HomeMy WebLinkAbout; ; FISCAL YEAR 2015-16 GROWTH MANAGEMENT PLAN MONITORING REPORT; 2015-07-01
CITY OF CARLSBAD
Fiscal Year 2015-16
Growth Management Plan Monitoring Report
July 1, 2015 through June 30, 2016
Carlsbad City Council
Matt Hall, Mayor
Mark Packard
Keith Blackburn
Michael Schumacher
Cori 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 fiscal year covering July 1, 2015 – June 30, 2016, 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 (last amended on
September 22, 2015) 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
Implement a comprehensive livable streets
network that serves all users of the system –
vehicles, pedestrians, bicycles and public transit.
18
3
Public Facility Performance Standard More Information
on Page
Maintain LOS D or better for all modes that are
subject to this multi-modal level of service
(MMLOS) standard, as identified in Table 3-1 of
the General Plan Mobility Element, excluding LOS
exempt intersections and streets approved by the
City Council.
Fire
The number of dwelling units outside a five-
minute “travel time” from the nearest fire station
shall not exceed 1,500 units.
23
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.
25
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.
26
Sewer Collection
System
Trunk-line capacity to meet demand, as
determined by the appropriate sewer districts,
must be provided concurrent with development.
27
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.
29
TABLE 2 – FACILITY ADEQUACY STATUS
Public Facility FY 2015-16 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
4
Public Facility FY 2015-16 Adequacy Status
(Meets performance standard?)
Buildout Adequacy Status
(Meets performance standard?)
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.
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
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r-.{~i . :'.:t'i ~ Northwest Quadrant ';'" ~-' ·,' ··/<:'· i D Southeast Quadrant
~:;}/:'. ;;:{: .• ~ SOutnwest Quadrant . ,, ,,. ; ''."tt:?\:}·::·, .. ~,;';:: t:i:[~,:~:;·:~\.·
City of Carlsbad
Quadrants & LFMP Zones --
18
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, 2016, the city’s population is estimated to be 109,004, 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 46,182 dwellings and commercial living units, as shown in Table 3 below.
TABLE 3 – GROWTH MANAGEMENT PLAN POPULATION CALCULATION
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, 2016.
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.
Quadrant Dwelling units Second dwelling
units
Commercial living
units
Total units Population
NW 12,300 156 226 12,682 29,904
NE 6,112 42 6,154 14,511
SW 10,142 25 685 10,852 25,614
SE 16,335 159 16,494 38,975
Total 44,889 382 911 46,182 109,004
7
Residential Development Activity
Building permits for 208 new dwelling units were issued during the FY2015-16. 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 2015-16 RESIDENTIAL DEVELOPMENT
By LFMZ By Quadrant
Zone Dwelling Units Zone Dwelling Units
1 82 NW 86
2 1 NE 85
3 4 SW 0
6 1 SE 37
11 36
14 78
25 6
Total 208 Total 208
FIGURE 2
450
400
350
300
250
200
150
100
50
0
■# units
Fiscal Year (as of June 30) Residential Units
Permitted
2012 2013
424 310
2014
152
2015
294
2016
208
8
Non-Residential Development Activity
Building permits for 550,245 square feet of new non-residential construction were issued during FY
2015-16, 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 2015-16 NON-RESIDENTIAL DEVELOPMENT
By LFMZ By Quadrant
Zone Square Feet Permitted Quadrant Square Feet Permitted
Commercial Industrial Commercial Industrial
1 16,788
NW 134,877 2,700 3 74,695
5 3,222
NE 152,310 123,019 11 23,509
13 43,394 2,700
SW 113,830 14 696
16 151,614
SE 23,509
17 113,830
18 119,797
Subtotal 310,696 239,549 Subtotal 310,696 239,549
Total 550,245 Total 550,245
FIGURE 3
Fiscal Year (as of June 30) Non-Residential Square
800,000
700,000
600,000
500,000
400,000
300,000
200,000
100,000
0 2012
■ Square Feet 218,884
Feet Permitted
2013
335,819
2014
682,180
2015
284,594
2016
550,245
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 2015-16. 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
NOH IHWlSI
12,300 Existing units
3 070 Future
15,370 Total •
SOLJTHW[ST
10,142 Existing units
2 717 Future
12,859 Total *
June 30, 2016
NORTHFAST
6,112 Existing units
2 930 Future
9,042 Total •
SOUTll[AST
16,335 Existing units
993 Future
17,328 Total•
• llosed on Propo~1t1on '[·Caps odded ru the ex1st1nq un,rs ,,, 1986
{'cit y of
Carlsbad
10
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 2015-16. “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, 2016
Inside the Village 751
Outside the Village 352
Pending deposits 632
Buildout Analysis
Under Growth Management, the maximum number of dwelling units that could be constructed is
54,599. On September 22, 2015, the City Council adopted the General Plan update. Table 7 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 7 – 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
11
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.
12
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 2015-16 Facility Adequacy Analysis
Based on the estimated June 30, 2016 population estimate of 109,004, the current demand
for administrative facilities is 163,506 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 Square Feet
City Administration 1635 Faraday Avenue 68,000
City Council Chambers 1200 Carlsbad Village Drive 2,500
City Hall Complex 1200 Carlsbad Village Drive 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 Drive 504
Parks Modular/Break Room 1166 Carlsbad Village Drive 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.
13
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 2015-16 Inventory and Adequacy of Facilities
The current inventory of library facilities is as follows:
Owned:
Dove Library 64,000 sq. ft.
Cole Library 24,600 sq. ft.
Learning Center 11,393 sq. ft.
TOTAL 99,993 sq. ft.
Based on the June 30, 2016 population estimate of 109,004, the growth management
standard requires 87,203 sq. ft. of public library space. The Library adequately meets the
growth management standard with current facilities (99,993 sq. ft.).
C. Facility Adequacy at Buildout
Based on the General Plan projected buildout population of 129,901, the demand for library
facilities will be 103,921 sq. ft. The existing 99,993 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, while extending the life of the Cole Library by 10 to 15 years.
Built in 1967, the design of the Cole Library could not have contemplated modern library
services including the extensive delivery of electronic resources, automated materials
handling, and the variety of new media formats. Additionally, the library’s role as a
community gathering space has increased. With an already maximized building footprint and
infrastructure constraints, the Cole Library will not expand further to meet these changing
needs. Additional meeting spaces, technology learning labs and maker spaces are examples
of elements desired by the community.
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.
14
WASTEWATER TREATMENT CAPACITY
A. Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
B. FY 2015-16 Facility Adequacy Analysis
The Encina Water Pollution Control Facility (EWPCF) Phase V expansion, which was completed
in 2009, 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 2015-16 annual daily average dry weather sewer flow was 5.82 million gallons
per day (MGD) representing 57% 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 2010-11 7.57 MGD
FY 2011-12 6.92 MGD
FY 2012-13 6.53 MGD
FY 2013-14 5.90 MGD
FY 2014-15 6.17 MGD
FY 2015-16 5.82 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 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 2015-16 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 105.2 89.7
NE 45.3 43.5
SW 70.2 76.8
SE 114.9 116.9
Total 335.6 327.0
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-
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 2012-13 133
SE FY 2012-13 348
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.
16
C. Buildout Facility Adequacy Analysis
Based on the current FY 2015-16 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
Population3
Projected required
acreage3
Current
Inventory
Proposed
park acreage
Projected
Inventory
NW 37,904 113.7 105.2 22.9 128.1
NE 22,423 67.3 45.3 22.9 68.2
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 91.5 427.2
Additional Parks Acreage
The figures above for proposed park acreage do not include park projects listed in the CIP as
“unfunded” or “partially unfunded”: Zone 5 Business Park Recreational Facility (NW – 9.3
acres); Cannon Lake Park (NW – 6.8 acres); or Robertson Ranch Park (NE – 11.2 acres). Should
alternative funding mechanisms be found, and these parks are built, the additional parks
acreage would further aid in meeting/exceeding the Growth Management parks
performance standard.
3 Reflects the 2015 General Plan Update
17
DRAINAGE
A. Performance Standard
Drainage facilities must be provided as required by the City concurrent with development.
B. FY 2015-16 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.
18
CIRCULATION
A. Performance Standard
During FY 2015-16, there were two circulation performance standards in effect, as described
below. On September 22, 2015, the City Council approved a new circulation performance
standard to implement the new General Plan Mobility Element.
July 2015 – September 22, 2015
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 (LOS C) during off-peak hours, nor
service level D (LOS 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.
September 22, 2015 – June 30, 2016
Implement a comprehensive livable streets network that serves all users of the system –
vehicles, pedestrians, bicycles and public transit. Maintain LOS D or better for all modes
that are subject to this multi-modal level of service (MMLOS) standard, as identified in
Table 3-1 of the General Plan Mobility Element, excluding LOS exempt intersections and
streets approved by the City Council.
B. Why the Circulation Standard was Changed – Livable Streets
The California Complete Streets Act (2008) requires cities in California to plan for a balanced,
multi-modal transportation system that meets the needs of all travel modes. Accomplishing
this state mandate requires a fundamental shift in how the city plans and designs the street
system – recognizing the street as a public space and ensuring that the public space serves all
users of the system (elderly, children, bicyclists, pedestrians, etc.) within the urban context
of that system (e.g. accounting for the adjacent land uses).
The previous circulation performance standard, which was utilized prior to adoption of the
General Plan Mobility Element, was established based on the circulation needs of a single
mode of travel – the automobile. The General Plan Mobility Element, adopted on September
22, 2015, identifies a new livable streets strategy for mobility within the city; the livable
streets strategy focuses on creating a ‘multi-modal’ street network that provides for the
mobility needs of pedestrians, bicyclists, transit users, and vehicles. Providing travel mode
options that reduce dependence on the vehicle also supports the city’s Climate Action Plan
in achieving its goals of reducing greenhouse gas emissions within the city.
19
C. Multi-Modal Level of Service (MMLOS)
The objective of the city’s livable streets strategy is to balance the mobility needs of
pedestrians, cyclists, transit users and vehicles. For each street in the city, the General Plan
Mobility Element identifies the travel modes for which service levels should be maintained
per the multi-modal level of service (MMLOS) standard.
The service levels for each travel mode are represented as a “grade” ranging from LOS A to
LOS F: LOS A reflects a high level of service for a travel mode (e.g. outstanding characteristics
and experience for that mode) and LOS F would reflect an inadequate level of service for a
travel mode (e.g. excessive congestion for vehicles, inadequate facilities for bicycle,
pedestrian, or transit users). The levels of service for the various travel modes are evaluated
according to the following factors.
Vehicular Level of Service: Level of service is evaluated using the most recent version of
the Highway Capacity Manual. This methodology evaluates the capacity of a roadway
system based on a driver’s freedom to maneuver and may include an evaluation of overall
delay experienced at intersections.
Pedestrian Level of Service: Level of service will be evaluated using the MMLOS method.
This method will evaluate the quality of the pedestrian system (e.g. number of vehicle
lanes that need to be crossed and the speed of adjacent traffic) and the friendliness of the
infrastructure at intersections (e.g. pedestrian countdown heads, dedicated pedestrian
facilities (e.g. a scramble phase, curb extensions, refuge median).
Bicycle Levels of Service: Level of service will be evaluated using the MMLOS method.
This method will evaluate the quality of the bicycle system (e.g. bicycle route, bicycle
lanes, or bicycle pathway; presence of bicycle buffers from the vehicle travel way), the
amenities of the system (e.g. presence of bicycle parking), and the friendliness of the infra-
structure (e.g. bicycle detection at intersections, pavement conditions, bicycle lanes).
Transit Levels of Service: Level of service will be evaluated using the MMLOS method.
This method will evaluate the transit vehicle right-of-way (e.g. dedicated or shared, signal
priority), hours and frequency of service (e.g. weekday/weekend hours, peak period
headway); performance (e.g. on-time or late); amenities and safety (e.g. lighting, covered
stop, bench, on-board bike/surfboard storage); and connectivity (e.g. to other transit
routes, employment areas, schools, visitor attractions and other major destinations).
D. FY 2015-16 Facility Adequacy Analysis
Vehicle Travel Mode
In July and September 2015, vehicle level of service was evaluated as part of the 2015 Traffic
Monitoring Program. The results of the 2015 Traffic Monitoring Program were finalized in
December 2015 and are summarized below.
20
FY 2015-16 VEHICLE LEVEL OF SERVICE
Circulation Performance
Standard
Applicability of
Performance Standard
2015 Traffic Monitoring
Program LOS Results1
Prior to
Sept. 22, 2015
LOS C or better
during off-peak hours All street segments and
intersections
27 segments evaluated
25 segments = LOS A
2 segments = LOS B
______________________
49 intersections evaluated
Off-peak & AM peak hours
49 intersections = LOS C
or better
PM peak hours
47 intersections = LOS C
or better
2 intersections = LOS D
(El Camino Real/Faraday Ave
and
Cannon Rd/Faraday Ave)
LOS D or better
during peak hours
After
Sept. 22, 2015
LOS D or better
[peak and off-peak hours]
Streets segments and
intersections subject to
the vehicle LOS
standard, per the
General Plan Mobility
Element2
1 Results are based on the method used in July 2015 to evaluate vehicle LOS. As part of efforts to implement the General Plan Mobility
Element, city staff is currently drafting a revised method to evaluate the MMLOS standard for vehicles, as well as pedestrian, bicycle
and transit service.
2 Per General Plan Mobility Element Policy 3-P.10, the following street facilities and associated intersections along these street
segments are exempt from the vehicle level of service standard:
La Costa Avenue between Interstate-5 and El Camino Real
El Camino Real between Palomar Airport Road and La Costa Avenue
Palomar Airport Road between Interstate-5 and College Boulevard
Palomar Airport Road between El Camino Real and Melrose Drive
Pedestrian, Bicycle and Transit Travel Modes
During FY 2015-16, the following circulation performance standards applied to pedestrian,
bicycle and transit facilities:
FY 2015-16 PEDESTRIAN, BICYCLE AND TRANSIT LEVEL OF SERVICE
Circulation
Performance Standard
Applicability of
Performance Standard
Prior to
Sept. 22, 2015 No standard N/A
After
Sept. 22, 2015 LOS D or better Streets subject to a pedestrian, bicycle or transit
MMLOS, per the General Plan Mobility Element
21
Measuring the performance of non-vehicle modes of travel is a new requirement for the city.
For the General Plan Environmental Impact Report, a method was used to evaluate the
MMLOS standard for pedestrian, bicycle and transit facilities. Following the adoption of the
General Plan and the new MMLOS standard, city staff immediately began the process of
revising the MMLOS method used for the General Plan Environmental Impact Report; the
purpose of the revisions is to refine the criteria used to evaluate level of service for
pedestrian, bicycle, and transit facilities. The revised MMLOS method is expected to be
completed within next 12 months; therefore, this report does not include current level of
service information for the pedestrian, bicycle and transit travel modes.
The following summarizes the progress made during FY 2015-16 to revise the Carlsbad
MMLOS method and improve the levels of service for pedestrian, bicycle and transit modes
of travel:
Revisions to MMLOS Method
o To ensure compliance with the MMLOS standard, staff developed an interim traffic
impact analysis approach to evaluating the MMLOS standard for pedestrian, bicycle,
and transit facilities.
o Initiated drafting of a revised MMLOS methodology, and used development review
experiences to inform refinements to the revised MMLOS methodology.
Facility improvements for pedestrian and bicycle modes of travel.
FY 2015-16 IMPROVEMENTS TO PEDESTRIAN AND BICYCLE FACILITIES
Improvement Where
Added buffered bike lanes
Faraday Avenue
Cannon Road
El Camino Real
Added new bike lanes
Calle Barcelona at Rancho Santa Fe Road
Madison Street
Rutherford Rd at Aston Avenue
Loker Avenue
Added shared lane markings
Chinquapin Avenue
Jefferson Street
Laguna Drive
State Street Road
Palomar Airport Road
Faraday Avenue
La Costa Avenue
Installed rectangular rapid flashing beacons
Tamarack Avenue at Valley Street
Grand Avenue west of Carlsbad Boulevard
Loker Avenue West
Carlsbad Boulevard (various locations)
Installed various pedestrian and bicycle
improvements, including pedestrian lighting and
overhead lighting
State Street roundabout
22
Improvement Where
Installed new bridge for pedestrian/bicycle use Over Agua Hedionda lagoon
(part of the Vista/Carlsbad sewer project)
Added bikeway striping Avenida Encinas
Added new crosswalk Gateway Road
(part of ViaSat improvements)
E. Buildout Facility Adequacy Analysis
The Environmental Impact Report for the 2015 General Plan evaluated how buildout of the
land uses planned by the General Plan will impact the vehicle, pedestrian, bicycle and transit
levels of service. The following summarizes the results of that evaluation:
Vehicle Level of Service at Buildout
Additional future road segments (portions of College Boulevard, Poinsettia Lane and
Camino Junipero) needed to accommodate the city’s future growth were identified as
part of the General Plan update. The General Plan Mobility Element identifies the needed
future road segments as “planned…streets.”
The following street facilities were identified in the General Plan and are expected to
provide a vehicle level of service below LOS D. Per General Plan Mobility Element Policy
3-P.10, the following street facilities, including the intersections along these segments,
are exempt from the vehicle level of service standard:
o La Costa Avenue between Interstate-5 and El Camino Real
o El Camino Real between Palomar Airport Road and La Costa Avenue
o Palomar Airport Road between Interstate-5 and College Boulevard
o Palomar Airport Road between El Camino Real and Melrose Drive
At buildout, the improvements to these street facilities needed to meet the LOS D
standard would significantly impact the environment in an unacceptable way and/or
would conflict with the core values of the Carlsbad Community Vision. For example,
creating streets wider than six lanes conflicts with other city goals, such as protecting
open space and habitat, reducing greenhouse gases and ensuring public safety. Widening
streets beyond six lanes also creates new challenges for intersection operations,
maintenance, and storm water management. Therefore, rather than widening these
arterial streets, General Plan Mobility Element policies promote implementation of other
measures, such as transportation demand and system management, to better manage
the transportation system as a whole.
Pedestrian, Bicycle and Transit Level of Service at Buildout
Improvements to pedestrian, bicycle and transit facilities may be needed to ensure
compliance with the MMLOS standard. Needed improvements will be identified after the city
has completed revisions to the MMLOS methodology.
23
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 2015-16 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
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
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.
24
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 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).
25
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 2015-16 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 23-25 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.
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.
26
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 2015-16 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.
SMUSD is in the planning stage for the La Costa Meadows Elementary School
Reconstruction Project. In addition to reconstructing and modernizing La Costa Meadows
Elementary School, the proposed improvements would increase in student capacity by 80
seats. The school district anticipates construction to be completed in phases over three
summers, beginning in summer 2017.
3. Encinitas Union Elementary School District
According to a site capacity report provided by the school district, sufficient student
capacity exists through 2016.
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.
27
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 2015-16 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
28
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.
Construction is expected to begin in early 2017.
An update to the City of Carlsbad Sewer Master Plan has been initiated and is in the data
collection phase. The project will provide an updated evaluation of sewer infrastructure
needs at buildout.
29
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 2015-16 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:
Water demand Volume
Existing Maximum Daily Demand 26.7 MGD4
Future Maximum Daily Demand 39.4 MGD
Water storage Volume
Existing Storage Requirement 39.5 MG5
Existing Storage Capacity 50.5 MG excluding Maerkle Dam storage
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 2015-16 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.
4 MGD – Million gallons per day
5 MG – Million gallons
30
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
2015-16 11.4
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.
An update to the CMWD Water Master Plan has been initiated and is in the data collection
phase. The project will provide an updated evaluation of water infrastructure needs at
buildout.