HomeMy WebLinkAbout; ; CITY OF CARLSBAD 2009 GROWTH MANAGEMENT PLAN MONITORING REPORT; 2009-01-01
CITY OF CARLSBAD
2009 Growth Management Plan
Monitoring Report
Carlsbad City Council
Claude A. “Bud” Lewis, Mayor
Ann J. Kulchin, Mayor Pro Tem
Matt Hall
Mark Packard
Keith Blackburn
Report prepared in cooperation with the following departments:
Community and Economic Development
Fire
Parks & Recreation
Library and Cultural Arts
Transportation
Utilities
Carlsbad Municipal Water District
2
Introduction
The purpose of this report is to provide information regarding the status of the Carlsbad
Growth Management Plan (GMP) for the calendar year covering January 1, 2009 –
December 31, 2009, and to verify that the plan is continuing to accomplish its stated
objectives. The primary objectives of the GMP are to ensure that adequate public
facilities are provided concurrent with growth, and to assure compliance with the ultimate
dwelling unit limitations that were established by Proposition E, which was passed by
voters in 1986.
Performance Standards
Proposition E established broad guidelines for determining adequacy of public facilities.
These guidelines are further defined in the Citywide Facilities and Improvements Plan
(Sept. 16, 1986) by means of specific performance standards for each of the eleven
public facilities. These public facilities, their performance standards, current status, and
anticipated adequacy at buildout are outlined in Table 1 and Table 2, as follows:
Table 1
Performance Standards
Public
Facility Performance Standard
More
Information
on Page
City
Administrative
Facilities
1,500 sq. ft. per 1,000 population must be scheduled for
construction within a five-year period or prior to construction of
6,250 dwelling units, beginning at the time the need is first
identified.
11
Library
800 sq. ft. (of library space) per 1,000 population must be
scheduled for construction within a five-year period or prior to
construction of 6,250 dwelling units, beginning at the time the
need is first identified.
12
Wastewater
Treatment
Capacity Sewer plant capacity is adequate for at least a five-year period. 14
Parks
3.0 acres of Community Park or Special Use Area per 1,000
population within the Park District* must be scheduled for
construction within a five year period, or prior to construction of
1,562 dwelling units within the Park District beginning at the time
the need is first identified.**
15
Drainage Drainage facilities must be provided as required by the City
concurrent with development. 17
3
Table 1, Continued
Performance Standards
Public
Facility Performance Standard
More
Information
on Page
Circulation
No road segment or intersection in the Local Facility
Management Zone (LFMZ) nor any road segment or intersection
out of the zone which is impacted by development in the zone
shall be projected to exceed a service level C during off-peak
hours, nor service level D during peak hours. Impacted means
where 20% or more of the traffic generated by the local facility
management zone will use the road segment or intersection.
19
Fire The number of dwelling units outside a five-minute “travel time”
from the nearest fire station shall not exceed 1,500 units. 22
Open Space
Fifteen percent of the total land area in the Local Facility
Management Zone (LFMZ) exclusive of environmentally
constrained non-developable land must be set aside for
permanent open space and must be available concurrent with
development.
24
Schools
School capacity to meet projected enrollment within the Local
Facility Management Zone (LFMZ) as determined by the
appropriate school district must be provided prior to projected
occupancy.
25
Sewer
Collection
System
Trunk-line capacity to meet demand, as determined by the
appropriate sewer districts, must be provided concurrent with
development.
26
Water
Distribution
System
Line capacity to meet demand as determined by the appropriate
water district must be provided concurrent with development. A
minimum of 10-day average storage capacity must be provided
prior to any development.
28
Table 2
Facility Adequacy Status
Public Facility CY 2009 Adequacy Status
(Meets performance
standard?)
Buildout Adequacy Status
(Meets performance
standard?)
City Administrative Facilities Yes Yes
Library Yes Yes
Wastewater Treatment
Capacity
Yes Yes
Parks Yes Additional facilities to be
provided*
Drainage Yes Additional facilities to be
provided*
Circulation Yes Additional facilities to be
provided*
Fire Yes Yes
Open Space Yes Additional facilities to be
provided*
Schools Yes Yes
Sewer Collection System Yes Additional facilities to be
provided*
Water Distribution System Yes Additional facilities to be
provided*
4
* For additional information, please see the expanded discussion on each individual public facility
beginning on page 10.
What Happens if Facilities Do Not Meet the Performance Standard?
The GMP requires development activity to stop (in a specific area of the city or citywide)
if a performance standard is not being met, as described below:
Administrative Facilities, Library, and Wastewater Treatment Capacity are facilities
that serve the entire City. Their adequacy in meeting the performance standard is
analyzed by considering the cumulative impact of citywide development. The
failure of any one of these facilities to meet the adopted performance standard
would affect the City as a whole. In that event, all development in the City would be
halted until the deficiency is corrected.
Parks are analyzed on a quadrant basis. This means that if the standard is not
being met in the quadrant, development is halted for all Local Facility Management
Zones (LFMZs, see description below) in the quadrant.
Similar to parks, Fire facilities are analyzed on the basis of fire station districts
which can comprise multiple LFMZs, and if the standard is not met for a district,
then development would be halted in that district.
The remaining facilities (Drainage, Circulation, Open Space, Schools, Sewer
Collection System, and Water Distribution System) are analyzed on an LFMZ basis.
If one of these facilities falls below the performance standard in a given LFMZ,
development in that LFMZ would stop and other zones would not be affected if they
are continuing to meet all performance standards.
Please turn to page 11 for a description of the individual facility performance standards
and an analysis on the adequacy of each facility.
Local Facility Management Zone Plans
The Citywide Facilities and Improvements Plan divided the City into 25 Local Facilities
Management Zones (LFMZ). Each LFMZ is required to have an adopted Local Facilities
Management Plan (LFMP) prior to any development in the LFMZ. Of the twenty-five
LFMZs, twenty-four have adopted LFMPs. Zone 25 is the only LFMZ to remain without
an adopted plan. Prior to any development in Zone 25, an LFMP must be adopted.
Consistent with the GMP, the LFMP must: describe how the LFMZ will be developed,
how compliance with the Growth Management standards will be achieved, how the
necessary public facilities will be provided, and what financing mechanisms will be used
for the facilities. Please see Figure A for the general boundaries and locations of the
LFMZs.
•
•
•
•
5
Figure A
Population as a Measurement for Facility Performance Standards
As indicated in Table 1, above, the performance standards for City Administrative
facilities, Library facilities, and Parks are stated in terms of population. The demand for
these facilities is based on each new dwelling unit built and the estimated number of new
residents it adds to the city, which is determined using the average number of persons
per household. According to the 2006 update to the Federal Census, the average
number of persons per household in Carlsbad is 2.349 persons.
As of December 31, 2009, the City‟s population is estimated to be 104,425, which is
based on 2.349 persons per household and the estimated number of dwelling units in
Carlsbad, which is 44,455 (see page below for a discussion of residential development
activity).
It should be noted that the above population estimates are for facility planning purposes
only and not an official population estimate for Carlsbad. The federal census will be
conducted again in 2010 and the persons per household number can be adjusted in the
future as part of the monitoring process.
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25 City of Carlsbad
Local Facility Management Zone (LFMZ)
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6
2009 Residential Development Activity
Building permits for 174 new dwelling units were issued during the Calendar Year (CY)
2009. Table 3 provides a breakdown by LFMZ. The number of new dwelling units in CY
2009 is lower than in the previous five years. Figure 2 shows the recent five year trend
for the number of residential building permits issued.
Table 3
2009 Residential Development by LFMZ
LFMZ # of New Dwelling Units LFMZ # of New Dwelling Units
1 18 15 0
2 0 16 0
3(NW) 0 17 0
6(SE) 11 18 0
7 0 19 0
8 0 20 0
9 0 21 0
10 61 22 0
11 67 23 0
10 0 24 0
12 0 25 0
14 17
Citywide Total – 174 new dwelling units
Figure 2
2005 2006 2007 2008 2009
# Permits Issued 1,480 713 364 257 174
0
200
400
600
800
1,000
1,200
1,400
1,600
Calendar Year Residential Permits Issued
7
Non-Residential Development Activity
Building permits for 108,622 square feet of new non-residential construction were issued
during CY 2009, comprising both commercial and industrial development. Table 4
provides a breakdown by LFMZ. For CY 2009, the square footage of non-residential
construction has decreased as compared to the previous three years (see Figure 3 for
the recent five year trend in non-residential construction).
Table 4
2009 Non-Residential Development by LFMZ
Non-residential
LFMZ
Square Feet Permitted
LFMZ
Square Feet Permitted
Commercial Industrial Commercial Industrial
1 0 0 12 0 0
2 0 0 13 979 0
3(NW) 60,668 0 14 0 0
5(NW) 0 11,093 17 35,882 0
5(NE) 0 0 18 0 0
5(SW) 0 0 19 0 0
6 (SE) 0 0 20 0 0
8 0 0 21 0 0
9 0 0 22 0 0
10 0 0 23 0 0
11 0 0
Citywide Subtotal 97,529 11,093
Citywide Non-
residential Total 108,622
Figure 3
2005 2006 2007 2008 2009
Square Feet Permitted 1,336,312 1,373,138 1,457,958 707,804 108,622
0
200,000
400,000
600,000
800,000
1,000,000
1,200,000
1,400,000
1,600,000
Calendar Year Non-Residential
Square Feet Permitted
8
Proposition E Compliance
The purpose of this part of the report is to demonstrate that the ultimate dwelling unit
caps stated in Proposition E will not be exceeded. Proposition E states “the maximum
number of residential dwelling units to be constructed or approved in the City after
November 4, 1986 is as follows: Northwest Quadrant 5,844; Northeast Quadrant 6,166;
Southwest Quadrant 10,667; Southeast Quadrant 10,801.” As shown in Figure 4, all
quadrants are in compliance with the dwelling unit caps established by Proposition E for
CY 2009.
Figure 4
Council Policy Statement 43 (Proposition E “Excess Dwelling” Unit Bank) established a
dwelling unit bank concept in order to enable the City to grant density increases for
certain types of residential projects, such as affordable housing projects, while assuring
that the Proposition E caps are not exceeded. For projects that develop below the
allowable density under Growth Management, these “excess” dwelling units are placed
into the Excess Dwelling Unit Bank (Bank), and those units are then available to allow
other projects to exceed the allowable density.
On December 17, 2002, the City Council adopted Resolution No. 2002-350, which
amended Council Policy Statement 43 by reducing the accumulated number of excess
units from 5,985 to a new total of 2,800. Excess units may be allocated from the Bank to
any quadrant based on the criteria in Council Policy Statement 43, so long as the
citywide dwelling unit cap or individual quadrant caps are not exceeded. Please see
Figure 5 for the Excess Dwelling Unit Bank status at the end of the CY 2009.
Quadrant Dwelling Unit Report
January 1, 2010
15,370 Total •
SOUTHWEST
10 914 Existing units
1 945 Future
12.859 Tol.31'
NORTHEAST
5.538 Existing units
3.504 Future
9.042 Total•
SOUTHEAST
15.154 Existing units
Z 174 Flrtllre
17,328 Total •
* Hased on Proposition 'E' (:aps adcled to the existing unit.;; in 1986
9
Figure 5
Buildout Analysis
Under Growth Management, the maximum number of dwelling units that could be
constructed is 54,599; however, as a result of the Excess Dwelling Unit Bank reduction
in 2002, the potential number of dwelling units is estimated to be 51,414 units, which is
less than what Growth Management allows. In addition, it is possible that the City may
not have enough developable land to reach the Growth Management dwelling unit cap.
On February 26, 2010, the San Diego Association of Governments (SANDAG) adopted
its periodic update to the 2050 Regional Growth Forecast. Along with all other cities in
San Diego County, the forecast analyzed the development yield from available vacant
land and areas of potential redevelopment in Carlsbad. According to the 2050 Regional
Growth Forecast, the maximum number of dwelling units in Carlsbad is estimated to be
50,566 in the year 2050. Utilizing this forecast, the projected dwelling units and
population for Carlsbad at buildout is shown in Table 5 below:
Excess Dwelling Unit Bank Summary
Bank balance of
5,985 reduced to
2,800
City Council Action
1211712002
NORTHWEST
Excess O¼•elling Units
Deposited =67
Withdrawn =116
Since 01/0112003
SOUTHWEST
Excess D'.velling Units
Deposited =49
Withdrawn = 59
Since 01/01/2003
January 1 , 201 O Citywide Exe.es~
Dwelling Unit Bank
B.alanoe is 2,941 as of
01/01/2010
NORTHEAST
Excess Dwelling Units
Deposited= 374
Withdra· .... n =177
Since 01101 /2003
SOUTHEAST
//
Excess Ow-elling Units
Deposited = 45
Withdrawn = 42 -.. .._ .,. .. -... /' • )<.,
' 1 Since 0110112003
/··'
',
10
Table 5
2050 Dwelling Unit and Population Projections
Quadrant Dwelling Units * Population **
NW 14,554 34,187
NE 8,048 18,905
SW 11,209 26,330
SE 16,755 39,357
Citywide Total 50,566 118,780
* SANDAG 2050 Regional Growth Forecast
** Calculated using household size of 2.349
Public Facility Financing
In 1991, the City of Carlsbad established Community Facilities District No. 1 (CFD) to
provide financing for a number of public facilities of citywide importance that are needed
to meet the requirements of the GMP, including various road and intersection
improvements, and the Dove Library. As LFMZ plans are adopted, they are conditioned
to annex into the CFD at the time the first discretionary permit grants an entitlement to
develop in the LFMZ. This ensures financing for public facilities that can accommodate
future growth consistent with the criteria of Growth Management.
Status of the Facilities
Beginning on page 11 is a discussion of the adequacy of each of the eleven public
facilities addressed in Carlsbad‟s GMP.
11
CITY ADMINISTRATIVE FACILITIES
A. Performance Standard
1,500 sq. ft. per 1,000 population must be scheduled for construction within a
five-year period or prior to construction of 6,250 dwelling units, beginning at the
time the need is first identified.
B. CY 2009 Facility Adequacy Analysis
Based on the estimated CY 2009 population figure of 104,425, the current
demand for administrative facilities is 156,638 square feet. To date, City
Administrative Facilities exceeds the performance standard. The existing
inventory of City and Carlsbad Municipal Water District buildings (leased and
owned) occupied for administrative services includes the following:
Facility Dept Address Sq. Ft.
City Administration City 1635 Faraday Avenue 68,000
City Council Chambers City 1200 Carlsbad Village Dr 2,500
City Hall Complex City 1200 Carlsbad Village Dr 13,500
City Yard CSD 405 Oak Avenue 8,249
City Yard Modular Building CSD 405 Oak Avenue 1,800
Housing & Redevelopment H&R 2965 Roosevelt 3,200
Senior Center P&R 799 Pine Street 6,750
Parks Administration Parks 1166 Carlsbad Village Dr 504
Parks Modular/Break Room Parks 1166 Carlsbad Village Dr 2,000
Safety Center Pol 2560 Orion Way 64,000
Fleet Yard PW 2480 Impala Drive 10,358
Water District Wtr 5950 El Camino Real 18,000
Water District Modular Wtr 5950 El Camino Real 696
Total 199,557
C. Buildout Facility Adequacy Analysis
Based on the 2050 projected buildout population of 118,780, the demand for city
administrative facilities will be 178,170 square feet. The existing 199,557 square
feet of administrative facilities exceeds the Growth Management performance
standard at buildout.
12
LIBRARY FACILITIES
A. Performance Standard
800 sq. ft. (of library space) per 1,000 population must be scheduled for
construction within a five-year period or prior to construction of 6,250 dwelling
units, beginning at the time the need is first identified.
Library space (leased/owned, public/non-public) is used as a standard library
measurement of customer use and satisfaction and includes collection space,
seating, meeting rooms, staff areas, technology, and other public facility needs.
The performance standard, stated above, for library facilities was adopted by the
City Council in 1986 as part of the Growth Management Plan‟s Citywide Facilities
and Improvements Plan. This standard was originally developed at that time
based on surveys of other libraries of comparable size and based on related
standards (such as volumes per capita) set by the American Library Association.
B. Current Inventory and Adequacy of Facilities
The current inventory of library facilities is as follows:
Owned:
Dove Library 64,000 s.f.
Cole Library 24,352 s.f.
Learning Center 11,393 s.f.
TOTAL 99,745 s.f.
Based on the Dec. 31, 2009 population estimate of 104,425, the growth
management standard requires 83,540 s.f. of public library space. The Library
adequately meets the growth management standard with current facilities
(99,745 s.f.).
C. Facility Adequacy at Buildout
Based on the 2050 projected buildout population of 118,780, the demand for
library facilities will be 95,024 s.f. The existing 99,745 square feet of library
facilities exceeds the Growth Management standard at buildout.
It is possible that the City‟s population will not trigger the Growth Management
Plan requirement to add additional space to the Cole Library before the city
reaches buildout. However, structural conditions may require the Cole Library to
be reconstructed prior to buildout.
A 1998 feasibility study conducted at the Cole Library indicated several structural
and building code issues to be addressed within a reasonable time, including
13
such items as American‟s with Disabilities Act (ADA), mechanical, and electrical
requirements. The City has already included a building replacement project
within the Capital Improvement Program budget, currently scheduled between
the years 2020 and buildout.
14
WASTEWATER TREATMENT CAPACITY
A. Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
B. CY 2009 Facility Adequacy Analysis
The recently completed Encina Wastewater Treatment Facility Phase V
expansion will accommodate the ultimate buildout demand for the Carlsbad
Sewer Service Area and therefore, currently provides adequate capacity in
excess of the performance standard.
Carlsbad‟s CY 2009 average annual sewer flows of 7.15 million gallons per day
(MGD) represents 70% of the City‟s 10.26 MGD capacity rights. The City‟s
average annual sewage flow to the Encina Wastewater Treatment Facility for the
previous five years is measured as follows:
Fiscal
Year
Average Annual
Flow
CY 2005 7.36 MGD
CY 2006 6.62 MGD
CY 2007 7.20 MGD
CY 2008 7.74 MGD
CY 2009 7.15 MGD
C. Buildout Facility Adequacy Analysis
With the completion of the Encina Phase V expansion, adequate sewer treatment
capacity exists to ensure compliance with the Growth Management wastewater
performance standard through buildout of the Carlsbad sewer service area.
The 2003 City of Carlsbad Sewer Master Plan Update (currently being updated).
conducts an analysis of annual future sewer flow through buildout of the city
based on the Carlsbad General Plan land use projections, and indicates that the
City‟s projected buildout flow is approximately 9.87 MGD. The City has
purchased capacity rights to 10.26 MGD in the Encina expansion project, which
ensures adequate wastewater treatment capacity is available to accommodate
any unanticipated increase in future sewer flows.
15
PARKS
A. Performance Standard
3.0 acres of Community Park or Special Use Area per 1,000 population within the
Park District * must be scheduled for construction within a five year period, or
prior to construction of 1,562 dwelling units within the Park District beginning at
the time the need is first identified.**
B. CY 2009 Facility Adequacy Analysis
To date, all quadrants are in compliance with the performance standard.
Quadrant Current Inventory Current Demand
NW 90 acres 91 acres required
NE 42 acres 42 acres required
SW 71 acres 70 acres required
SE 78 acres 112 acres required
Total 281 acres 315 acres
The NW Quadrant, although 1 acre short of the acreage required, is not out of
compliance with the GMP because neither has the time (5 years) nor dwelling
units (1,562 dwelling units) trigger points been reached (refer to ** in Section A
above and in the footnote below). The SE quadrant is also in compliance
because Alga Norte Park is scheduled for construction*** and will add 32 acres
to meet demand.
C. Buildout Facility Adequacy Analysis
After construction of Alga Norte Park, the only Quadrant projected to be in deficit
at buildout and requiring additional acreage to meet the performance standard is
the NE Quadrant, which will require the construction of a park by 2021. This
need could be met by either construction of Veteran‟s Memorial Park or
Robertson Ranch Park.
* "Park District" = "quadrant". There are four park districts within the city, corresponding to the four
quadrants.
** The threshold for triggering the construction of a new park is as follows: Once a deficit of park
acreage in a quadrant is identified, a new park must be scheduled for construction within the time
frame of five years, or before the cumulative construction of 1,562 dwelling units, whichever occurs
later.
***According to City Council Resolution No. 97-435, “scheduled for construction” means that the
improvements have been designed, a park site has been selected, and a financing plan for
construction of the facility has been approved. Alga Norte Park meets the definition of “scheduled
for construction”.
16
Based on the current FY 09-10 CIP list of projects, Alga Norte Park (32 acres)
and Veteran‟s Memorial Park (100 acres, with 25 acres applied to each quadrant)
are proposed to be constructed prior to buildout. Construction of these parks
would result in a citywide total park acreage of 414 acres, which will exceed the
performance standard citywide by 56 acres (based on projected buildout
population numbers). See below for a summary of the data. In addition, the
projected park inventory for all city quadrants will exceed the projected demand
at buildout, as shown below:
Quadrant Buildout
Population *
Projected
demand
Current
Inventory
Proposed
park
acreage
Projected
Inventory
NW 34,187 103 91 25 116
NE 18,905 57 42 25 67
SW 26,330 79 71 25 96
SE 39,357 118 78 57 135
Total 118,779 357 282 132 414
* Reflects SANDAG 2050 Regional Growth Forecast (see pages 8 and 9 of this report)
D. Other Items
Figures above for proposed park acreage do not include park projects listed in
the CIP as “unfunded” (e.g. Business Park Recreational Facility, Robertson
Ranch Park, Cannon Lake Park, Pine Park Madison Properties, etc.). Should
alternative funding mechanisms be found, and these be parks built, the additional
park acreage would further aid in meeting/exceeding the Growth Management
park performance standard.
17
DRAINAGE
A. Performance Standard
Drainage facilities must be provided as required by the City concurrent with
development.
B. CY 2009 Facility Adequacy Analysis
All areas of the City currently meet the growth management drainage
performance standard.
The standard for drainage distinguishes it from the other public facility standards
because, by its very nature, drainage facility needs are more accurately
assessed as specific development plans for individual projects are finalized.
Therefore, the drainage performance standard was written to allow the City to
require appropriate drainage facilities as development plans are finalized and
approved.
Smaller drainage facilities are addressed during the review of individual project
proposals. The larger „backbone‟ drainage facilities are addressed in the City‟s
2008 Drainage Master Plan. The City‟s Planned Local Drainage Area (PLDA) fee
program was established to assist developers and land owners with the financing
of the larger „backbone‟ facilities identified in the Drainage Master plan.
There is one area in the City where special conditions are being applied to
development projects to ensure compliance with the drainage performance
standard. The Agua Hedionda and Calavera Creek channels located east of El
Camino Real within the residential community of Rancho Carlsbad were found to
be of inadequate size to contain the 100 year flood event. Projects located within
LFMP Zones 5, 7, 14, 15, 16, 18 and 24 that drain to the Agua Hedionda or
Calavera Creek must comply with the following special conditions to maintain
compliance with the drainage performance standard:
1. Financially guarantee construction of the master planned drainage
improvements needed to mitigate flooding impacts within the residential
community of Rancho Carlsbad.
2. Install onsite drainage improvements to ensure that direct drainage impacts
resulting from the proposed development do not exacerbate the potential
for downstream flooding of existing development.
The financial guarantee (special condition 1 above) includes payment of the
existing PLDA fee and a requirement to enter into an agreement to pay the
proposed updated PLDA fee that guarantees financing for all required drainage
18
facilities needed to mitigate the existing flooding condition. Subsequent to the
City Council‟s adoption of the PLDA fee structure and the 2008 Drainage Master
Plan, all development projects must pay revised PLDA fees.
C. Buildout Facility Adequacy Analysis
The 2008 Carlsbad Drainage Master Plan proposes the construction of new
facilities to accommodate potential storm events. Construction of the proposed
Master Drainage Facilities will ensure the Drainage performance standard is
maintained through buildout of the city. The 2008 Carlsbad Drainage Master
Plan also updated the PLDA program to ensure adequate funds are available to
fund construction of needed flood control facilities. The estimated costs for these
facilities and the programming of PLDA funds are included in the annual
Operating Budget and Capital Improvement Program.
19
CIRCULATION
A. Performance Standard
No road segment or intersection in the Local Facility Management Zone (LFMZ)
nor any road segment or intersection out of the zone which is impacted by
development in the zone shall be projected to exceed a service level C during
off-peak hours, nor service level D during peak hours. Impacted means where
20% or more of the traffic generated by the local facility management zone will
use the road segment or intersection.
B. CY 2009 Facility Adequacy Analysis
All intersections and roadway segments currently comply with the Circulation
System performance standard.
For purposes of monitoring traffic throughout the City, the capacity of an
intersection or roadway segment is compared to the actual volumes measured in
the field and reported in terms identified as a “Level of Service (LOS). The
definition of “Level of Service” is a quantitative measure of traffic conditions that
reflects how restrictive vehicle movements are, or may become. The six levels of
traffic service range from A to F. LOS Level A represents the most ideal
conditions; Level E is at capacity; and Level F indicates forced flow, or stop and
go traffic representing a gridlock condition. The Transportation Research Board
Highway Capacity Manual further defines LOS based on specific measurements
of traffic volumes and roadway capacities.
The Growth Management Traffic Monitoring Program for 2009 (see Appendix A
for the 2009 Traffic Monitoring Program report summary) included 34 roadway
segments and 67 intersections. Results indicate all roadway segments and
intersections meet the Growth Management Circulation performance standard,
as follows:
All 34 roadway segments operate at a LOS B or better during AM and PM
peak hours.
During AM and PM peak hours, 63 intersections operate at a LOS C or
better
During AM and PM peak hours, the following 4 intersections operate at a
LOS D or better, which remains consistent with the performance
standard.
o El Camino Real/Cannon Road
o El Camino Real/La Costa Avenue
o Palomar Airport Road/Melrose Drive, and
o Palomar Airport Road/I-5 northbound off ramp
•
•
•
20
C. Buildout Facility Adequacy Analysis
The Traffic Monitoring Program will continue to be utilized to monitor LOS and
verify road and intersection performance and compliance with Growth
Management standards at buildout.
In addition, future road segments have been identified in the Circulation Element
of the General Plan as necessary to accommodate the buildout of the city (see
Figure 6). Traffic forecasts for Carlsbad prepared by SANDAG are based on the
buildout of the General Plan, which is based on the Growth Management Plan,
and future regional traffic projections. To ensure compliance with the Growth
Management Plan, all of the city‟s LFMPs detail the construction and financing
plans for any circulation improvements identified by the traffic forecasts as
necessary to accommodate the future buildout. For more information about the
funding of circulation improvements, please see the Capital Improvement
Program Budget for FY2009 - 2010.
21
Figure 6
PACIFIC
OCcAN
!
NOTTO SCALE
CITY OF CARLSBAD
CIRCULATION PLAN
' ; ' ! Lr. .. -.. ..! GJi.._1
LEGEND:
+++-+ RAILROAD
-FREEWAY
PRIME ARTERIAL
MAJOR ARTERIAL
SECONDARY ARTERIAL
COLLECTOR STREET
FUTURE ROAD
OLIVENHA/N
22
FIRE
A. Performance Standard
The number of dwelling units outside a five-minute “travel time” from the nearest
fire station shall not exceed 1,500 units.
B. CY 2009 Facility Adequacy Analysis
The City‟s Fire facilities are in compliance with the Growth Management
performance standard. There are no more than 1,500 dwelling units outside of a
five-minute travel distance from any of the City‟s six fire stations.
The intent of the GMP standard, as applied to Fire facilities, is to establish the
number of stations and their locations, based upon travel distances. At the time
the GMP was developed, scientific fire behavior information and recognized best
practices supported the position that a response time of five minutes would result
in effective fire incident intervention. To determine the most desirable
geographic sites for future fire stations, it was necessary to convert the five-
minute response time to a measurable distance that could be applied to a future
road network scheme. Because the GMP provides no other trigger mechanism
for the installation of additional fire stations, it follows that up to 1,500 dwelling
units could exist outside the five-minute reach of the closest fire station for an
indeterminate length of time without violating the GMP standard. The five-minute
travel time measure was selected exclusively as a means of logically positioning
emergency response resources throughout the City. Therefore, the standard is
applied as a means of measuring compliance with locating fire facilities in
accordance with the GMP, not the performance of the Fire Department in
meeting service responsibilities. The GMP Fire performance standard is utilized
to determine the number of fire stations and their locations, not Fire Department
response times.
C. Buildout Facility Adequacy Analysis
At buildout no single fire station district will exceed the established threshold of
more than 1,500 units that exist outside of a five minute travel time.
To determine if Fire facilities will be adequate at buildout, the City‟s Geographic
Information System Department (GIS) created a map based upon the following
information:
● Existing fire station locations, except Station No. 3, which was sited at
its planned future location (just east of the northeast corner of the
intersection of Cannon Road and El Camino Real)
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Anticipated future development
2.5 mile road distance from each of the 6 Fire Stations (five minute
“travel time” equates to road driving distance of 2.5 miles);
● All planned, major roadway arterials; and
● The number of dwelling units projected at buildout that will be located
outside of the 2.5 mile road (5 minute) distance from each fire station
The GIS map, based upon the above-noted assumptions, revealed the following
findings:
Fire Station Total Number of Dwelling
Number Units Outside of 5 Minutes
1, 3 & 4 1,010
(Aggregated)
2 798
5 897
6 811
As noted above, the GIS map analysis revealed that at buildout, the City‟s existing and
planned Fire facilities will meet the GMP performance standards standard (i.e. the total
number of dwelling units that will exist outside of a five minute travel time from the
nearest fire station will not exceed the threshold of 1,500 units).
•
•
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OPEN SPACE
A. Performance Standard
Fifteen percent of the total land area in the Local Facility Management Zone
(LFMZ) exclusive of environmentally constrained non-developable land must be
set aside for permanent open space and must be available concurrent with
development.
B. CY 2009 Facility Adequacy Analysis
To date, adequate open space has been provided to meet the performance
standard.
Open space to meet the performance standard is provided concurrent with
approval of projects. The location of performance standard open space must be
indicated during project-specific analysis. It must be in addition to any
constrained areas, such as protected wildlife habitat or slopes greater than 40%.
At the time the Citywide Facilities and Improvements Plan was adopted (1986),
the LFMZ‟s were divided into: a) those that were already developed and
considered in compliance with Growth Management, and b) those that still
needed to comply with the open space performance standard.
In 1986, LFMZs 1 through 10, and 16 were already developed and considered in
compliance with the open space performance standard. As development
occurred subsequent to the adoption of the CFIP, LFMZs 11 – 15, 17 – 21, and
23 – 24 have provided adequate open space to meet the performance standard.
LFMZ 22 is still developing and, as future development occurs, open space will
be required to meet the performance standard.
LFMZ 25 is largely undeveloped and no LFMP has been adopted for this zone.
Before development is allowed in this area, an LFMP must be adopted that
demonstrates how the open space performance standard will be met.
C. Buildout Facility Adequacy Analysis
As discussed above, all LFMZs, except for Zones 22 and 25, have met the
Growth Management open space performance standard. Future projects in
LFMZs 22 and 25 must provide open space in compliance with the performance
standard.
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SCHOOLS
A. Performance Standard
School capacity to meet projected enrollment within the Local Facility
Management Zone (LFMZ) as determined by the appropriate school district must
be provided prior to projected occupancy.
B. CY 2009 Facility Adequacy Analysis
Currently, school capacity is in compliance with the Growth Management School
performance standard (see below). The City is served by four school districts as
listed below:
1. Carlsbad Unified School District
According to the Carlsbad Unified School District Facilities Master Plan
(2007), sufficient student capacity exists through 2014.
2. San Marcos Unified School District
Projections for enrollment and school capacity analysis were not available;
however, it is Carlsbad‟s practice to require all development projects to pay
impact fees to the appropriate school district to ensure adequate facilities are
provided.
3. Encinitas Union Elementary School District
According to demographics data in the Encinitas Union Elementary School
District Facilities Master Plan (Nov. 2004), sufficient student capacity exists
through 2015.
4. San Dieguito Union High School District
Based on demographic projections provided by San Dieguito Union High
School District, it is estimated that schools serving Carlsbad will have
sufficient student capacity through 2018.
C. Buildout Facility Adequacy Analysis
Based on available information, as indicated above, it is estimated that school
districts will maintain sufficient capacity through the years 2014 – 2018. School
enrollment projections and facility master plans will be periodically updated by
the school districts, allowing future capacity analysis to be performed to verify
enrollment can be accommodated.
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SEWER COLLECTION SERVICES
A. Performance Standard
Trunk-line capacity to meet demand, as determined by the appropriate sewer
districts, must be provided concurrent with development.
B. CY 2009 Facility Adequacy Analysis
Sewer improvements are provided on a project by project basis concurrent with
development. Currently, the City of Carlsbad‟s Sewer service area sewer
pipelines are in compliance with the Growth Management Sewer Collection
Services performance standard. Representatives from the sewer districts that
serve Carlsbad (Carlsbad Sewer District, Leucadia Waste Water District and
Vallecitos Water District) indicate that they currently have adequate conveyance
capacity in place to meet Carlsbad‟s sewer collection demands.
The City of Carlsbad is served by the following four major interceptor systems
and is described in more detail as follows:
Note: MGD = million gallons per day
For both the Vista/Carlsbad Interceptor and the Buena Interceptor, the
percentage of Carlsbad capacity rights increases in the downstream reaches of
each interceptor system (0% in the upstream reaches as they enter the Carlsbad
service area and up to 35% or 50% in the downstream reaches for Buena
Interceptor and Vista/Carlsbad Interceptor, respectively as they enter the Encina
Water Pollution Control Facility).
Interceptor System Sewer Districts Served Carlsbad Capacity
Rights
Vista/Carlsbad
Interceptor
Carlsbad Sewer & Vista Sanitation
Districts
Varies from
0%/0 MGD up to
50%/33.6 MGD
Buena Interceptor Carlsbad Sewer, Vista Sanitation &
Buena Sanitation Districts
Varies from
18% /1.2 MGD up to
35%/ 3.0 MGD
Vallecitos Interceptor Carlsbad Sewer & Vallecitos Water
District 5 MGD
Occidental Sewer
Carlsbad Sewer, Encinitas
Sanitation & Leucadia
Sanitation Districts 8.5 MGD
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C. Buildout Facility Adequacy Analysis
The 2003 City of Carlsbad Sewer Master Plan evaluated the sewer infrastructure
needs of the Carlsbad‟s Sewer service area and identified those facilities
required to accommodate future customers at buildout. The master plan
identified the Vista/Carlsbad Interceptor as requiring improvements to
accommodate buildout demand (see below). Sewer trunk main capacities are
estimated by comparing wastewater flow projections to the capacity of the sewer
system. Using a sewer model, the existing and future sewer demands are
estimated and compared to the capacity. In addition, annual flow measurement
information is also used to determine actual flows in the sewer trunk mains.
Vista/Carlsbad Interceptor: A capacity analysis included in the 2003 City of
Carlsbad Sewer Master Plan indicates three relatively flat pipeline portions of
Reaches VC13, VC14 & VC15. As a result, during peak period flows, the
pipeline is flowing full. The FY 09/10 Capital Improvement Program has
identified funds for construction of upgrades to these reaches projected to begin
in FY 09/10. The replacement pipelines are sized based on ultimate flows from
both the Carlsbad and City of Vista Sewer systems.
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WATER DISTRIBUTION SERVICES
A. Performance Standard
Line capacity to meet demand as determined by the appropriate water district
must be provided concurrent with development. A minimum of 10-day average
storage capacity must be provided prior to any development.
B. CY 2009 Facility Adequacy Analysis
Carlsbad‟s water distribution is provided by the Carlsbad Municipal Water District
(CMWD), Vallecitos Water District (VWD) and Olivenhain Municipal Water
District (OMWD). These districts indicate that they have adequate capacity to
meet the Growth Management performance standard.
Water service demand requirements are estimated using a computer model to
simulate the two water distribution scenarios: 1) maximum day demand plus a
fire event, 2) peak hour demand. This computer model was calibrated using
actual flow measurements collected in the field to verify it sufficiently represents
the actual water system.
Existing and future daily demand and storage requirements for CMWD:
Existing Maximum Day Demand 33 MGD
Existing Storage Requirement 40 MG
Existing Storage Capacity 51 MG
Future Maximum Daily Demand 40 MGD
Future Storage Requirement 55 MG
Based on the water model analysis prepared with the 2003 CMWD Water Master
Plan, future pipelines and water system facilities were identified to ensure a
complete water system is constructed to accommodate future customers. In
addition, funds for the construction of future facilities were included in the
FY09/10 Capital Improvement Program. Therefore, the future water infrastructure
is programmed to be in place at the time of need in order to ensure compliance
with the performance standard.
For CMWD the existing average daily demand peaked in 2007 at 21.8 MGD. For
2009 the annual demand reduced to 19.3 MGD as a result of implementation of a
new tiered water rate structure and a campaign to reduce customer consumption
by the wholesale water agencies. To meet the 10 day storage requirement,
CMWD needs 218 MG of storage capacity. CMWD has a storage capacity of
249 MGD which consists of 195 MGD of storage capacity at Maerkle Dam and
an additional 54 MGD of storage capacity in various storage tanks throughout the
distribution system. In 2004, the OMWD completed construction of a water
treatment facility at the San Diego County Water Authority Emergency Storage
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Reservoir, which provides the storage necessary to meet the 10 day storage
requirement for OMWD.
C. Buildout Facility Adequacy Analysis
The 2003 CMWD Water Master Plan identifies facilities necessary for buildout
conditions within its service area. The update identified additional improvements
required to meet future water demands and the need for two additional water
storage tanks to meet future 10 average-day storage requirements.
As proposed land development projects are reviewed by the City, the CMWD
Water Master Plan is consulted to check pipeline sizes and facility capacities to
verify adequacy to support the water needs of the project and city. To comply
with water master plan requirements, land development projects may be required
to install a master plan water project concurrent with construction of that specific
project.