HomeMy WebLinkAbout; ; FISCAL YEAR 2014-15 GROWTH MANAGEMENT PLAN MONITORING REPORT; 2014-07-01
CITY OF CARLSBAD
Fiscal Year 2014-15
Growth Management Plan Monitoring Report
July 1, 2014 through June 30, 2015
Carlsbad City Council
Matt Hall, Mayor
Mark Packard Keith Blackburn
Lorraine Wood
Michael Schumacher
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, 2014 – June 30, 2015, 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
Circulation1
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.
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1 The City of Carlsbad 2015 General Plan adopted a new performance standard for Circulation (see Mobility Element),
however it was not applicable during the timeframe of this report (the General Plan was adopted in Sept. 2015). The new
Mobility standard will be used in future GMP Monitoring Reports.
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. 21
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.
23
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.
24
Sewer Collection
System
Trunk-line capacity to meet demand, as determined by the appropriate sewer districts, must be provided concurrent with
development.
25
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.
27
Table 2 Facility Adequacy Status
Public Facility FY 2014-15 Adequacy Status
(Meets performance standard?)
Buildout Adequacy Status
(Meets performance standard?)
City Administrative Facilities Yes Yes
Library Yes Additional facilities to be
provided*
Wastewater Treatment Capacity Yes Yes
Parks Yes 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 12.
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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 twenty-five 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. Consistent with the GMP, the LFMP must do the following: 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. All twenty-five LFMZs have an adopted LFMP.
Please see Figure 1 for the general boundaries and locations of the LFMZs.
5
Figure 1
City of Carlsbad
Quadrants & LFMP Zones
6
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. Utilizing data from the 2010 Federal Census, the average number of persons per dwelling unit in Carlsbad is 2.358 persons (total population divided by total number of dwelling units).
As of June 30, 2015, the city’s population is estimated to be 108,412, which is calculated by multiplying 2.358 persons per dwelling unit by the number of dwelling units, second dwelling units,
and commercial living units (which were counted as dwelling units in the 2010 Federal Census); in total there are 45,931 dwellings and commercial living units, as shown in Table 3 below.
Table 3
Growth management plan population calculation
Quadrant
Dwelling
units1
Second
dwelling units2
Commercial
living units3
Total
units Population
NW
12,203
135
226
12,564
29,626
NE
6,091
41
6,132
14,459
SW
10,132
25
685
10,842
25,590
SE
16,240
153
16,393
38,737
Total
44,666
354
911
45,931
108,412
1 Dwelling units represent the dwellings that are counted for purposes of the city’s Growth Management dwelling unit limits per Proposition E (excludes second dwelling units and commercial living units); the number of dwelling units shown in this table are updated to June 30, 2015.
2 Second dwelling units are accessory to single family dwellings and are separate dwelling units with living space,
kitchen and bathroom facilities. Pursuant to state law, second dwelling units cannot be counted as dwellings for purposes of the city’s growth management dwelling limits. However, the units are counted here to ensure all city population is considered in regard to the performance standards for administrative facilities, libraries and parks.
3 Commercial living units, as shown in this table, are professional care facility living units that were counted as dwelling units in the 2010 Federal Census. Pursuant to city ordinance (CMC 21.04.093), commercial living units are not counted as dwellings for purposes of the city’s growth management dwelling limits. However, the units are
counted here to ensure all city population is considered in regard to the performance standards for administrative facilities, libraries and parks.
As part of the Growth Management Plan (GMP) monitoring process, the persons per dwelling unit 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 GMP facility planning purposes only, and may vary
from other official population estimates for Carlsbad.
7
Residential Development Activity
Building permits for 294 new dwelling units were issued during the FY 2014-15. Table 4 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 4
FY 2014-15 Residential Development
By LFMZ By Quadrant
Zone Dwelling Units Zone Dwelling Units
1 67 NW 103
6 32 NE 53
11 90 SW 16
14 53 SE 122
20 16
Total 294 24 36
Total 294
Figure 2
450
400
350
300
250
200
150
100
50
0
■# units
Fiscal Year (as of June 30} Residential Units
Permitted
2011 2012
260 424
2013
310
2014
152
2015
294
8
Non-Residential Development Activity
Building permits for 284,594 square feet of new non-residential construction were issued during FY
2014-15, comprising both commercial and industrial development. Table 5 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 5
FY 2014-15 Non-Residential Development
By LFMZ By Quadrant
Zone Square Feet Permitted
Quadrant
Square Feet Permitted
Commercial Industrial Commercial Industrial
1 3,993 1,878
NW 105,303 1,878 3 58,915
5(SW) 4,652
NE 10,858 11 17,673
13 42,395
SW 4,652 14 10,858
17 65,700
SE 17,673 144,230 18 78,530
Subtotal 122,976 161,618 Subtotal 122,976 161,618
Total 284,594 Total 284,594
Figure 3
Fiscal Year (as of June 30) Non-Residential Square
Feet Permitted
800,000
700,000
600,000
500,000
400,000
300,000
200,000
100,000
0 2011
■ Square Feet 630,320
2012
218,884
2013
335,819
2014
682,180
2015
284,594
9
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 2014-15. As noted above in Table 3, second dwelling units and commercial living units are not
counted as dwellings for purposes of Growth Management Program compliance with the Proposition E caps.
Figure 4
Quadrant Dwelling Unit Report
Reconciled to the General Plan Update
NORTHWEST
3 167 Future
15,370 Total *
SOUT HWEST
10,132 Existing units
2 727 Future
12,859 Total *
June 30, 2015
NORTHEAST
6,091 Existing units
2 951 Future
9,042 Total *
SOUTHEAST
16,240 Existing units
1088 Future
17,328 Total*
* Based on Proposition 'E' Caps added to the existing units in 1986
{'city of
Carlsbad
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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
Table 6 for the Excess Dwelling Unit Bank status at the end of the FY 2014-15. “Pending” excess units are associated with projects that have been approved, but are not yet constructed or an
approved land use change is not yet effective. “Pending” EDUB units are not available to allocate to
other sites; the units will be deposited into the EDUB and made available for allocation at the time the associated projects are constructed or the land use change becomes effective.
Table 6
Excess Dwelling Unit Bank
Balance as of June 30, 2015
Inside the Village 768
Outside the Village 921
Pending deposits 437
Note: These numbers do not reflect the deposits and withdrawals that occurred with the General Plan update, which was approved in Sept. 2015, after the timeframe of this report.
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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 September 22, 2015, the City Council adopted the General Plan update. Table 5 shows potential
buildout in the city resulting from application of land uses shown on the Land Use Map on vacant and underutilized sites, according to analysis undertaken for the General Plan update. Table 5
2035 Dwelling Unit and Population Projections
Quadrant Dwelling Units Population
NW 15,121 37,904
NE 8,945 22,423
SW 11,088 27,795
SE 16,667 41,780
Citywide Total 51,821 129,901
City of Carlsbad 2015 General Plan
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 12 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 2014-15 Facility Adequacy Analysis
Based on the estimated June 30, 2015 population estimate of 108,412, the current demand for administrative facilities is 162,618 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 2035 projected buildout population of 129,901, the demand for city administrative facilities will be 194,852 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 2014-15 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, 2015 population estimate of 108,412, the growth management standard requires 86,730 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 2015 General Plan projected buildout population of 129,901, the demand for library facilities will be 103,921 s.f. The existing 99,745 square feet of library facilities is expected to fall
short of the Growth Management standard at buildout.
In 2015-16, the City will have completed major maintenance and renovation for both the Cole and Dove facilities that addresses current ADA requirements and allows delivery of modern library
services and technology, extending the life of the Cole Library 10 to 15 years. Complete replacement of the Cole facility is included in the Capital Improvement Program budget between the years 2020
and buildout. The city should begin planning for a replacement library facility that meets the Growth
Management standard at buildout as the city also considers future city hall and community gathering requirements.
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WASTEWATER TREATMENT CAPACITY
A. Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
B. FY 2014-15 Facility Adequacy Analysis The Encina Water Pollution Control Facility (EWPCF) Phase V expansion accommodates the
ultimate buildout demand for the Carlsbad Sewer Service Area based on projections made in the 2012 City of Carlsbad Sewer Master Plan; and therefore, currently provides adequate capacity in excess of the performance standard.
Carlsbad’s FY 2014-2015 annual daily average dry weather sewer flow was 6.17 million gallons per day (MGD) representing 60% 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 2009-10 7.09 MGD
FY 2010-11 7.57 MGD
FY 2011-12 6.92 MGD
FY 2012-13 6.53 MGD
FY 2013-14 5.90 MGD
C. Buildout Facility Adequacy Analysis
The Encina Water Pollution Control Facility Phase V expansion provides adequate sewer treatment capacity to ensure compliance with the Growth Management wastewater performance standard through buildout of the Carlsbad sewer service area.
The 2012 City of Carlsbad Sewer Master Plan 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.
15
PARKS
A. Performance Standard
3.0 acres of Community Park or Special Use Area per 1,000 population within the Park
District2 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.3
B. FY 2014-15 Facility Adequacy Analysis
To date, all quadrants are in compliance with the performance standard.
Quadrant Park acreage inventory
existing
Park acreage required by
Performance Standards
NW 105.3 88.9
NE 45.3 43.4
SW 70.2 76.8
SE 114.9 116.2 Total 335.7 325.2
In May 2014, the City Council approved a permit with the California Department of Parks and
Recreation to assume maintenance and improvement of 6.9 acres of state-owned property that includes the Tamarack Beach Upper Picnic Facilities and the Tamarack/Frazee Beach Coastal Bluffs (NW quadrant). The permit enabled the city to upgrade amenities and provide
a higher level of service to the public by making physical improvements to the picnic areas, conducting deferred maintenance on the restrooms at Tamarack Avenue, restoring/re-
vegetating the bluff areas, and enhancing the quality and frequency of grounds maintenance.
In August 2014, the City Council entered into an updated joint-use agreement with the Carlsbad Unified School District for recreational use of 2.6 acres at Hope Elementary School
(NE quadrant) and 2.9 acres at Kelly Elementary School (NW quadrant). Amongst other
changes, that update reinstated these two school fields into the agreement, and correspondingly, into the parks inventory.
Currently, the performance standard requirement for park acreage exceeds the inventory of existing and scheduled park acreage except for the following two quadrants: SW and SE.
However, although short of the acreage required, these quadrants are not out of compliance
with the performance standard because neither the time frame nor dwelling unit thresholds have been reached.2 The deficits in the SW and SE quadrants were identified in the FY 2012-
2 "Park District" = "quadrant". There are four park districts within the city, corresponding to the four quadrants.
3 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.
16
13 GMP report, and units are tracked from this point on by adding building permits for dwelling units finaled since that time frame.
Quadrant Year deficit identified Units constructed since deficit identified
SW FY 2012-13 123 SE FY 2012-13 248
To generate population estimates, this year’s report incorporates updated dwelling unit numbers from the General Plan Update process. Previously, population was based upon the Finance Department’s “Growth Projection” chart. This switch in methodology results in an
increase in the deficit for the SW quadrant, and slight reductions for the other quadrants.
C. Buildout Facility Adequacy Analysis
Based on the current FY 2014-15 CIP list of projects, Veteran’s Memorial Park (91.5 acres,
with 22.9 acres applied to each quadrant) is proposed to be constructed prior to buildout.
Construction of this community park would result in the projected park inventory for all city quadrants exceeding the projected required acreage at buildout, as shown below:
Quadrant Buildout Population4 Projected required
acreage3
Current Inventory Proposed park
acreage
Projected Inventory
NW 37,904 113.7 105.2 39 144.3
NE 22,423 67.3 45.3 34.1 79.4
SW 27,795 83.4 70.2 22.9 93.1
SE 41,780 125.3 114.9 22.9 137.8
Total 129,901 389.7 335.6 91.5 454.6
D. Other Items
Park acreage in this year’s report also reflects revisions made during a comprehensive review of open space and park acreages. Minor modifications were made to GMP park acreages
due to refinement of the boundaries of certain sites, based on enhanced GIS technology.
These modifications, coupled with the additions described above, resulted in more GMP park acreage than was stated in previous reports.
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.
4 Reflects the 2015 General Plan Update (this results in a 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 2014-15 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.
The larger/master plan facilities have been identified in the City’s 2008 Drainage Master Plan and the associated Planned Local Drainage Area (PLDA) fee program was established to finance their construction. The construction of smaller development/project related drainage
facilities are addressed during the review of individual project proposals. Maintenance, repair and replacement projects are identified on an ongoing basis and are incorporated in the Capital Improvement Program as a part of the Corrugated Metal Pipe Replacement program,
the Northwest Quadrant Storm Drain Program or as individual/stand-alone projects. 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 fully contain and convey the 100 year flood event. As a result, some of the runoff is conveyed through the
community and therefore 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 conditions to maintain compliance with the drainage performance standard:
1. Payment of the PLDA fee.
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.
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 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.5 B. FY 2014-15 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 2014 included 27 roadway segments
and 49 intersections. Results indicate all roadway segments and intersections meet the
Growth Management Circulation performance standard, as follows:
• 25 roadway segments operated at a LOS A and two roadway segments operated at a LOS B during 2013.
• During the AM peak hour, all 49 intersections operated at a LOS C or better during 2013.
• During the PM peak hour, 47 intersections operated at a LOS C or better in 2013.
• During the PM peak hour, the intersections of El Camino Real/Cannon Road and
Palomar Airport Road/El Fuerte Street operated at a LOS D or better, which remains consistent with the performance standard.
C. Buildout Facility Adequacy Analysis
5 The City of Carlsbad 2015 General Plan adopted a new performance standard for Circulation (see Mobility Element),
however it was not applicable during the timeframe of this report (the General Plan was adopted in Sept. 2015). The new
Mobility standard will be used in future GMP Monitoring Reports.
19
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
FY 2014-15.
20
Figure 6
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OCEAN
o~-===i,-Q
J:10:lgl~CU'\P'¥lflhg.stanGYC1Mal)
CAIAVERA
City of Carlsbad
Circul ation Element
CITY OF CARLSBAD
CIRCULATION PLAN
~FREEWAY
""' PRIME ARTERIAL
"-' MAJOR ARTERIAL
'""-.., SECONDARY ARTERIAL
'"'-..., COLLECTOR SlREET
''-., FUTURE MAJOR ARTERIAL
++RAILROAD
a w
21
FIRE
A. Performance Standard
The number of dwelling units outside a five-minute response from the nearest fire station shall not exceed 1,500 units.
B. FY 2014-15 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 response
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 response 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 response 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 response 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 new 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 six Fire Stations (five minute response equates to road driving distance of 2.5 miles); ● All planned, major roadway arterials; and
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● 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 Number Total number of dwelling units outside of five minutes
1,3 & 4 (aggregated) 1,227
2 902
5 392
6 1,185
As noted above, the GIS map analysis revealed that at build out, 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 response 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. FY 2014-15 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. In April 2013, the LFMP for Zone 25 was adopted along with the Quarry Creek Master Plan,
which found that sufficient open space exists in Zone 25 so that all development will comply with the GMP standard through buildout.
LFMZ 22 is still developing and, as future development occurs, open space will be required to meet the performance standard.
C. Buildout Facility Adequacy Analysis
As discussed above, all LFMZs, except for Zone 22, have met the Growth Management open space performance standard. Future projects in LFMZ 22 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 2014-15 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 2011 Comprehensive Facilities Master Plan Update, sufficient student
capacity exists through 2016. CUSD staff confirmed that the district can accommodate both the current enrollment levels and expected future growth.
2. San Marcos Unified School District
SMUSD staff indicated that the schools serving Carlsbad are currently at maximum capacity but that will-serve letters are still being issued by SMUSD for proposed
developments in the part of Carlsbad that is served by SMUSD schools, and that the
schools serving Carlsbad could accommodate the expected future growth within this area.
3. Encinitas Union Elementary School District
According to a site capacity report provided by the school district, sufficient student
capacity exists through 2015-16.
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 Chapter 3.11 of the 2015 General Plan EIR, for all school districts at all grade levels,
capacity is expected to be sufficient for the buildout student population with no need for
additional schools.
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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 2014-15 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 (3.4% 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
Ranges from
3.4% / 0.93 MGD up
to 50% / 33.6 MGD
Buena Interceptor City of Carlsbad & Buena Sanitation
District
Ranges 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. This is an active construction project, expected to be completed in FY 2017/18. 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 2013/14 by the City of Vista which operates the Buena Sanitation District, and is now in the 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 2014-15 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 MGD6
Existing Storage Requirement 39.5 MG7
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 FY 2014/15 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.
6 MGD – Million gallons per day
7 MG – Million gallons
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Within the CMWD service area the existing average daily potable water demand is shown below:
Fiscal Year MGD
2007/08 18.2
2008/09 16.5
2009/10 14.2
2010/11 13.2
2011/12 13.7
2012/13 14.4
2013/14 14.9
2014/15 13.6
The lower water demand, compared to the peak in FY 2007/08, is a result of (1) implementing a new tiered water rate structure to encourage water conservation, (2) in 2009, a campaign
was initiated to reduce customer consumption by the wholesale water agencies, (3) the
persisting drought has forced voluntary and mandatory conservation measures in 2015, and (4) beginning in 2008 an expansion of CMWD’s recycled water system lowered potable water
consumption. Water conservation by CMWD customers has resulted in an overall reduction
in per capita 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.