HomeMy WebLinkAbout; ; FISCAL YEAR 2011-12 GROWTH MANAGEMENT PLAN MONITORING REPORT; 2011-07-01
CITY OF CARLSBAD
Fiscal Year 2011-12
Growth Management Plan Monitoring Report
July 1, 2011 through June 30, 2012
Carlsbad City Council
Matt Hall, Mayor
Mark Packard Keith Blackburn
Farrah Golshan Douglas
Lorraine Wood
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 July 1, 2011 – June 30, 2012, 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.
12
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.
13
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
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
3
Table 1, Continued Performance Standards
Public Facility Performance Standard More Information on Page
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 FY 2011-12 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*
* For additional information, please see the expanded discussion and an analysis on the adequacy of
each public facility beginning on page 11.
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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.
• 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. 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; however, an application for a
master plan has been submitted for the development of the former South Coast Quarry (“Quarry Creek”) site, which includes a draft LFMP for Zone 25. 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 1 for the general boundaries and locations of the LFMZs.
5
Figure 1
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 dwelling unit. According to data from the
2010 Federal Census, the average number of persons per dwelling unit in Carlsbad is 2.358
persons.
City of Carlsbad
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As of June 30, 2012, the City’s population is estimated to be 106,973, which is calculated by multiplying 2.358 persons per dwelling unit by the number of dwelling units in Carlsbad, which is
45,366 (see page below for a discussion of residential development activity).
As part of the monitoring process, the persons per household number can be adjusted in the future
when updated Federal Census data is available. It should be noted that the above population estimates are for facility planning purposes only and not an official population estimate for Carlsbad.
FY 2011-12 Residential Development Activity
Building permits for 424 new dwelling units were issued during the FY 2011-12. Table 3 provides a
breakdown by LFMZ, excluding the zones that had no development activity. Figure 2 shows the
recent five year trend for the number of residential units for which building permits were issued.
Table 3
FY 2011-12 Residential Development
By LFMZ By Quadrant
Zone Dwelling Units Quadrant Dwelling Units
1 68 NW 68 4 24
6 (SE) 82 NE 73 10 32
11 80 SW 89 14 73
20 39 SE 194 21 24
22 2
Total 424 Total 424
7
Figure 2
Non-Residential Development Activity
Building permits for 218,884 square feet of new non-residential construction were issued during FY 2011-12, comprising both commercial and industrial development. Table 4 provides a breakdown
by LFMZ, excluding the zones that had no development activity. Figure 3 shows the recent five
year trend for the square footage of non-residential construction for which building permits were issued.
Table 4
FY 2011-12 Non-Residential Development
By LFMZ By Quadrant
Zone
Square Feet Permitted Quadrant
Square Feet Permitted
Commercial Industrial Commercial Industrial
1 2,479 0 NW 180,874 0
6 960 0 NE 0 0
13 178,395 0 SW 0 0
17 0 37,050 SE 960 37,050
Subtotal 181,834 37,050 Subtotal 181,834 37,050
Total 218,884 Total 218,884
2008 2009 2010 2011 2012
# units 339 107 339 260 424
0
50
100
150
200
250
300
350
400
450
Fiscal Year (as of June 30) Residential Units
Permitted
8
Figure 3
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.” This resulted in dwelling unit caps as shown in Figure 4 (see the totals for each
quadrant below). All quadrants are in compliance with the dwelling unit caps established by
Proposition E for FY 2011-12.
2008 2009 2010 2011 2012
Square Feet 1,237,300 237,935 126,607 630,320 218,884
0
200,000
400,000
600,000
800,000
1,000,000
1,200,000
1,400,000
Fiscal Year (as of June 30) Non-Residential
Square Feet Permitted
9
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 to 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 FY
2011-12.
Quadrant Dwelling Unit Report
NORTHWEST
12,931 Existing units
2 439 Future
15,370 Total *
SOUTHWEST
11,008 Existing units
1851 Future
12,859 Total*
JUNE 2012
NORTHEAST
5,743 Existing units
3 299 Future
9,042 Total*
SOUTHEAST
15,684 Existing units
1 644 Future
17,328 Total*
* Based on Proposit,On 'E' Caps added to the existing units in 1986
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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 at buildout is estimated to be 51,899 units, which is less than what Growth Management allows.
On February 26, 2010, the San Diego Association of Governments (SANDAG) adopted its 2050 Regional Growth Forecast. Along with all other cities in San Diego County, the forecast analyzed
the development yield in Carlsbad from (1) available vacant land and (2) areas of potential redevelopment. 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 Dwelli1ig Unit Bank Summary
Bank balance reduced to 2,800
City Council Action 12/17/2002
NORTHWEST
Excess Dwelling Units\
Deposited =72
Withdrawn =106
Since 01/01/2003
SOUTHWEST
Excess Dwelling Units
Deposited = 48
Withdrawn = 62
Since 01/01/2003
JUNE 2012
Citywide Excess Dwelling Unit Bank
Balance is 3,003 as of 05/31/2012
---!-----NORTH EAST
Excess Dwelling Units
Deposited = 408
Withdrawn =171
Since 01/01/2003
SOUTHEAST
Excess Dwelling Units
Deposited= 50
Withdrawn = 36
Since 01/01/2003
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Table 5
2050 Dwelling Unit and Population Projections
Quadrant Dwelling Units * Population **
NW 14,554 34,318
NE 8,048 18,977
SW 11,209 26,431
SE 16,755 39,508
Citywide Total 50,566 119,235
* SANDAG 2050 Regional Growth Forecast ** Calculated using persons per dwelling unit size of 2.358 (based on Census 2010
data) 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.
Envision Carlsbad (General Plan Update)
In September 2012, the City Council accepted a Preferred Plan that proposes to change land use
designations on various properties throughout the city; those changes include increasing the number of residential units that can be built on some sites. The Preferred Plan is being utilized for
analysis purposes as part of the General Plan update. Any increase in residential capacity will
adhere to the Proposition E dwelling unit limitations and adequacy of facilities will be analyzed as part of the General Plan update. The analysis in this report is based on the current adopted
General Plan and facilities master plans.
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.
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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. FY 2011-12 Facility Adequacy Analysis
Based on the estimated June 30, 2012 population estimate of 106,973, the current demand
for administrative facilities is 160,460 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 Address Sq. Ft.
City Administration 1635 Faraday Avenue 68,000
City Council Chambers 1200 Carlsbad Village Dr 2,500
City Hall Complex 1200 Carlsbad Village Dr 13,500
City Yard 405 Oak Avenue 8,249
City Yard Modular Building 405 Oak Avenue 1,800
Senior Center 799 Pine Street 6,750
Parks Administration 1166 Carlsbad Village Dr 504
Parks Modular/Break Room 1166 Carlsbad Village Dr 2,000
Safety Center 2560 Orion Way 64,000
FR Training Facility 2560 Orion Way 18,112
Fleet Yard 2480 Impala Drive 10,358
Water District 5950 El Camino Real 18,000
Water District Modular 5950 El Camino Real 696
Total 214,469
C. Buildout Facility Adequacy Analysis Based on the 2050 projected buildout population of 119,235, the demand for city
administrative facilities will be 178,853 square feet. The existing 214,469 square feet of administrative facilities exceeds the Growth Management performance standard at buildout.
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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, was originally developed based on surveys of other libraries of comparable size and based on related standards (such as volumes per capita) set by the American Library Association.
B. FY 2011-12 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 June 30, 2012 population estimate of 106,973, the growth management standard requires 85,578 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 119,235, the demand for library facilities will
be 95,388 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 such items as Americans with
Disabilities Act (ADA), mechanical, and electrical requirements. To date, the HVAC has been upgraded and the ADA improvements have been completed. The City also has included a
building replacement project within the Capital Improvement Program budget, currently scheduled between the years 2020 and buildout.
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WASTEWATER TREATMENT CAPACITY
A. Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
B. FY 2011-12 Facility Adequacy Analysis The recently completed Encina Water Pollution Control Facility (EWPCF) 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 FY 2011-2012 annual daily average dry weather sewer flow was 6.92 million gallons per day (MGD) representing 67% of the City’s 10.26 MGD capacity rights. The
City’s annual daily average sewage flow to the EWPCF for the previous five years is measured as follows:
Fiscal
Year
Annual Daily
Average Flow
FY 2006-07 6.81 MGD
FY 2007-08 7.96 MGD
FY 2008-09 7.11 MGD
FY 2009-10 7.09 MGD
FY 2010-11 7.57 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 2012 City of Carlsbad Sewer Master Plan (adopted on November 13, 2012) contains an
analysis of annual daily average future sewer flow through buildout of the city based on the
Carlsbad General Plan land use projections. The analysis indicates that the City’s projected ultimate buildout flow is approximately 10.00 MGD. The City has purchased capacity rights
to 10.26 MGD in the EWPCF, which ensures adequate wastewater treatment capacity is
available to accommodate any unanticipated increase in future sewer flows.
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PARKS
A. Performance Standard 3.0 acres of Community Park or Special Use Area per 1,000 population within the Park
District1 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.2
B. FY 2011-12 Facility Adequacy Analysis
To date, all quadrants are in compliance with the performance standard.
Park inventory Park acreage required Quadrant existing by Performance Standard
NW 95.4 acres 90.1 acres required
NE 43.5 acres 42.3 acres required SW 70.3 acres 69.4 acres required
SE 114.9 acres 114.9 acres required Total 324.1 316 acres
The SE quadrant includes the 32 acre Alga Norte Park which began construction in the summer of 2012.
C. Buildout Facility Adequacy Analysis
Based on the current FY 11-12 CIP list of projects, Veteran’s Memorial Park (90 acres, with 22.5 acres applied to each quadrant) is proposed to be constructed prior to buildout.
Construction of this Special Resource Area park would result in the projected park inventory
for all city quadrants exceeding the projected required acreage at buildout, as shown below:
1 "Park District" = "quadrant". There are four park districts within the city, corresponding to the four quadrants.
2 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.
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Quadrant Buildout
Population3
Projected
required acreage3
Current
Inventory
Proposed
park acreage
Projected
Inventory
NW 34,318 103.0 95.5 22.5 118.0
NE 18,977 56.9 43.4 22.5 65.9
SW 26,431 79.3 70.3 22.5 92.8
SE 39,508 118.5 114.9 22.5 137.4
Total 119,235 357.7 324.1 90.0 414.1
D. Other Items
Park acreage in this year’s report reflects revisions made during a comprehensive review of open space and park acreages. Based on the analysis, various modifications were made to
GMP park acreages, including additional acreage in the NW Quadrant added for Pine Avenue Park (due to the completion of Phase I improvements at the Madison Lots) and the removal of Kelly and Hope Elementary Schools from the Joint Use Agreement with C.U.S.D,
and refinement of the existing joint use agreement area boundaries. These modifications resulted in more GMP park acreage than was stated in previous reports, including acreage previously not counted for La Costa Heights and La Costa Meadows Elementary Schools.
Figures above for proposed park acreage do not include park projects listed in the CIP as
“unfunded” or “partially unfunded” (e.g. Zone 5 Business Park Recreational Facility,
Robertson Ranch Park, Cannon Lake Park, etc.). Should alternative funding mechanisms be found, and these parks are built, the additional park acreage would further aid in
meeting/exceeding the Growth Management park performance standard.
3 Reflects SANDAG 2050 Regional Growth Forecast (see pages 9 and 10 of this report) and the updated persons per household number from the 2010 Census (this results in a slightly higher buildout population as compared to previous reports.
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DRAINAGE
A. Performance Standard Drainage facilities must be provided as required by the City concurrent with development.
B. FY 2011-12 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 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.
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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.
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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. FY 2011-12 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 2011 included 34 roadway
segments and 68 intersections. Results indicate all roadway segments and intersections
meet the Growth Management Circulation performance standard, as follows:
• 33 roadway segments operated at a LOS A and one roadway segment operated at a LOS B during 2011.
• During the AM peak hour, 68 intersections operated at a LOS C or better during 2011.
• During the PM peak hour, 65 intersections operated at a LOS C or better in 2011.
• During the PM peak hour, the following intersections operated at a LOS D or better,
which remains consistent with the performance standard. o El Camino Real/Alga Road/Aviara Parkway o El Camino Real/Arenal Road
o El Camino Real/La Costa Avenue
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.
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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 FY 2011-12.
21
Figure 6
PACIFIC
OCEAN
¼
NOTTO SCALE
CITY OF CARLSBAD
CIRCULATION PLAN
LEGEND:
+-++++ RAILROAD
-FREEWAY
PRIME ARTERIAL
MAJOR ARTERIAL
SECONDARY ARTERIAL
COLLECTOR STREET
FUTURE ROAD
i •
L,. .. _ .. J GJL __ 1
L •......• .,
'._J-__
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. FY 2011-12 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)
• 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);
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● 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).
24
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. FY 2011-12 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 development 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 to be in
compliance with the open space performance standard. 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 concurrent with development. 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. McMillan Homes has submitted a master plan for the development of the former South Coast Quarry (“Quarry Creek”) area of LFMZ
25. This draft master plan submittal and accompanying LFMP are under city review.
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. FY 2011-12 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 that 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. FY 2011-12 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 pipelines are in compliance with the Growth Management performance standard. Representatives from the
sewer agencies that provide sewer collection systems within the City include: Carlsbad, Leucadia Wastewater District and Vallecitos Water District. Each agency indicates that they currently have adequate conveyance capacity in place to meet Carlsbad’s sewer collection
demands.
The City of Carlsbad is served by the following four major interceptor systems:
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 City of Carlsbad & City of Vista
Varies from
0% / 0 MGD up to
50% / 33.6 MGD
Buena Interceptor City of Carlsbad & Buena Sanitation
District
Varies from
18% / 1.2 MGD up to
35% / 3.0 MGD
Vallecitos Interceptor City of Carlsbad, Buena Sanitation
District & Vallecitos Water District 5 MGD
Occidental Sewer City of Carlsbad, City of Encinitas &
Leucadia Waste Water District 8.5 MGD
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C. Buildout Facility Adequacy Analysis
The 2012 City of Carlsbad Sewer Master Plan evaluated the sewer infrastructure needs of the Carlsbad Sewer service area and identified those facilities required to accommodate
future customers at buildout. The master plan identified the Vista/Carlsbad Interceptor, and Buena Interceptor as requiring improvements to accommodate build-out demand (see below). Sewer trunk main capacities are estimated by comparing wastewater flow
projections to the capacity of the sewer system. Using a computer sewer model, the existing and future sewer demands are estimated and compared to the capacity of each trunk sewer pipeline. In addition, annual flow measurement information is also used to
determine actual flows in the sewer trunk pipelines.
Vista/Carlsbad Interceptor: A capacity analysis included in the 2012 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 2012/13
Capital Improvement Program has identified funds for construction of upgrades to these
reaches projected to begin in FY 2012/13. The replacement pipelines are sized based on ultimate flows from both the City of Carlsbad and City of Vista sewer collection systems.
Buena Interceptor. A capacity analysis conducted in 2010 indicates that although the City’s
wastewater flows are not projected to exceed the capacity rights in the Buena Interceptor,
the combined flows of Buena Sanitation District and City of Carlsbad during peak wet weather periods result in capacity restrictions. As a result, Carlsbad is coordinating with Buena Sanitation District to construct a parallel trunk sewer which will allow all flows from
Buena Sanitation District to be diverted to the parallel trunk sewer. Once constructed the City of Carlsbad will be the only agency with flows remaining in the existing Buena Interceptor, and this will provide sufficient capacity for Carlsbad during wet weather
conditions. Funding for the design and construction of the parallel trunk sewer was appropriated for FY 2012/13 by the City of Vista which operates the Buena Sanitation
District, and is now in the final design stage.
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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. FY 2011-12 Facility Adequacy Analysis
Carlsbad’s water distribution is provided by three agencies including the Carlsbad Municipal Water District (CMWD) serving 32.32 square miles (82.7 percent of the City), Olivenhain
Municipal Water District (OMWD) serving 5.28 square miles (13.5 percent of the City), and Vallecitos Water District (VWD) serving 1.48 square miles (3.8 percent of the City). These districts indicate that they have adequate capacity to meet the Growth Management
performance standard.
Water service demand requirements are estimated using a computer model to simulate 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, which is a subsidiary
district of the City of Carlsbad, from the 2012 CMWD Water Master Plan are shown below:
Existing Maximum Day Demand 26.7 MGD
Existing Storage Requirement 39.5 MG
Existing Storage Capacity 50.5 MG excluding
Maerkle Dam
storage
Future Maximum Daily Demand 39.4 MGD
Based on the water model analysis prepared for the 2012 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 FY2012/13 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.
Within the CMWD service area the existing average daily potable water demand peaked in FY 2007/08 at 18.2MGD. Beginning in fiscal year 2008/09 the average annual demand
reduced to 16.5 MGD, in FY 2009/10 it reduced to 14.2MGD, and reduced further in FY
2010/11 to 13.23 MGD. Demand increased in FY 2011/12 to 13.7 MGD. The lower water demand, compared to the peak in FY 2007/08, is a result of (1) implementing a new tiered
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water rate structure, (2) in 2009, a campaign was initiated to reduce customer consumption by the wholesale water agencies, and (3) beginning in 2008 an expansion of CMWD’s
recycled water system lowered potable water consumption.
To meet the 10 day storage requirement, CMWD needs 182 MG of storage capacity based
on the historic peak demand. CMWD has a storage capacity of 244 MG which consists of 195 MG of storage capacity at Maerkle Dam and an additional 49 MG 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 Reservoir, which provides the storage necessary to meet the 10 day storage requirement for OMWD. VWD’s average day demand was 14.6 MGD with an
existing storage capacity of 121.6 MG. Through interagency sharing arrangements VWD can obtain additional water supplies to meet a 10 day restriction on the imported water
supply.
C. Buildout Facility Adequacy Analysis
The 2012 CMWD Water Master Plan identifies facilities necessary for build-out conditions
within its service area. The 2012 update identified no additional storage tanks are required to meet the future 10 average-day storage requirements because of a reduction in demand from expansion of CMWD’s recycled water system.
As proposed land development projects are reviewed by the City, the Water Master Plans from CMWD, OMWD, and VWD are consulted to check pipeline sizes and facility capacities
to verify adequacy to support the water needs of the project and city. To comply with water master plan requirements, land development projects may be required to install a master plan water project concurrent with construction of that specific project.