San Diego River Trail: Carlton Oaks Segment

San Diego River Trail: Carlton Oaks Segment

San Diego River Trail: Carlton Oaks Segment Alternative Alignment Study FINAL REPORT | 2015

Final Report

Stephan Vance

Mark Carpenter Joe Punsalan Jill Chorak Diana Smith Kristin Bleile Beth Chamberlin

Sam Borja Karen Kosup Charles Belt

Jim Rocks

San Diego River Trail: Carlton Oaks Segment

Introduction............................................................................. 1 Project Study Area............................................................................................................................2

Existing Conditions................................................................. 2 Environmental...................................................................................................................................3 Cultural Resources...........................................................................................................................7 Topography........................................................................................................................................8 Utilities.................................................................................................................................................8 Real Estate...........................................................................................................................................8 Other Information............................................................................................................................8

Outreach Process.................................................................... 14 Workshop #1 – Development of Alternative Alignments.................................................14 Workshop #2 - Analysis of Alternative Alignments.............................................................15

Analysis................................................................................... 16 Trail Alignment Options................................................................................................................16 Trail Evaluation.................................................................................................................................22 North Alignment Description.....................................................................................................28 South Alignment Description.....................................................................................................29

Conclusions............................................................................. 30

Final Report

Figures Figure 1: Location Map..............................................................................................................................................2 Figure 2: Study Area...................................................................................................................................................4 Figure 3: Vegetation Communities.......................................................................................................................5 Figure 4: MSCP MHPA................................................................................................................................................6 Figure 5: Historic Resources along San Diego River.......................................................................................7 Figure 6: Existing Topography................................................................................................................................9 Figure 7: Utilities........................................................................................................................................................ 10 Figure 8: Land Ownership...................................................................................................................................... 11 Figure 9: Maintained Golf Course Areas............................................................................................................ 12 Figure 10: FEMA Flood Zones................................................................................................................................ 13 Figure 11: Preliminary Planning Alignments................................................................................................... 17 Figure 12: Cross Section Key Map........................................................................................................................ 18 Figure 13: Sample Cross Sections........................................................................................................................ 19 Figure 14: Planning Corridors............................................................................................................................... 21 Figure 15: Phase 1 Trail Evaluation Criteria....................................................................................................... 22 Figure 16: Phase 1 Trail Evaluation Results....................................................................................................... 23 Figure 17: Phase 1 Trail Evaluation Results....................................................................................................... 24 Figure 18: Phase 2 Trail Evaluation Results....................................................................................................... 26 Figure 19: Alternative Alignments....................................................................................................................... 27 Figure 20: Phase 2 Trail Evaluation Criteria and Results.............................................................................. 31

San Diego River Trail: Carlton Oaks Segment

Introduction This project is part of the SANDAG Regional Bike Plan and funded by the Early Action Program (EAP) with funds already allocated. Allocation of funds are as follows:

The goal of this project is to develop preliminary alignment alternatives for the Carlton Oaks Golf Course segment of the San Diego River Trail (SDRT.) This phase of work prepares the project for preliminary engineering, environmental analysis and preparation of environmental documents. This project will assist in obtaining the necessary permits required to complete final plans, specifications and estimates, prior to ultimately constructing this portion of the SDRT. In order to accomplish this goal, preliminary environmental analysis and stakeholder outreach was conducted to identify feasible trail alignments.

This process also included collecting existing conditions and performing alternatives analysis using available data and public input.

• Preliminary Engineering/Environmental: $1,325,000 (2016) • Construction: $7,411,900 (2018)

Existing San Diego River Trail

This phase of the project is funded by a grant from the State Coastal Conservancy to SANDAG. Future construction funding could include Federal transportation funds, and as a result, environmental clearance pursuant to California Environmental Quality Act (CEQA) and National Environmental Policy Act (NEPA) is presumed.

The next phases of this project will perform engineering and detailed environmental studies to finalize the environmental documents and obtain applicable required permits. Preliminary engineering, or 30% designs, will be tasked in the next phase to determined the best and most feasible alignment. In addition, preliminary specifications and cost estimates to develop a Class 1 bicycle path suitable for users of all ages and skill levels will also be conducted.

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Final Report

Project Study Area

The project lies within the cities of San Diego and Santee. The southern boundary is bordered by State Routes 52 and 125 and Mission Trails Regional Park (MTRP) to the west.

The project study area is from the intersection of West Hills Parkway and Carlton Oaks Drive on the west through the Carlton Oaks Golf Course to the existing multi-use trail within the City of Santee’s Mast Park West as shown in Figure 1. The study area includes segments 043, 044, 044A, 045, 046 and 047 from the 2010 SDRT Gaps Analysis1. The project is also identified as Priority #4 within the City of Santee Bicycle Master Plan (2009)2.

Existing Conditions The existing condition information collected was used to conduct the alignment feasibility and evaluation process (Figure 2). Five general topic areas of data were collected: Environmental; Cultural Resources; Topography; Utilities; and Real Estate.

Figure 1: Location Map

1. http://sdrc.ca.gov/docs/SDRT_GapsAnalysis_low.pdf 2. http://www.sandiego.gov/planning/programs/transportation/mobility/bicycleplan.shtml 2

San Diego River Trail: Carlton Oaks Segment

Environmental General biological surveys and vegetation mapping was conducted for the entire study area during August/September 2014. While no special status species were observed during survey efforts, several special status species were identified that could potentially be supported by the habitats within the site: California gnatcatcher; least Bell’s vireo; and southern willow flycatcher. Depending on the alignment chosen, protocol surveys may be required for one or more of these species as part of the environmental documentation for the project.

Disturbed habitat adjacent to West Hills Parkway

The vegetation mapping documented eight native vegetation communities and five non-native vegetation communities listed below and shown in Figure 3.

• Developed • Disturbed • Disturbed Wetland** • Freshwater Marsh**

Freshwater marsh along the golf course

• Flat-topped Buckwheat Scrub* • Herbaceous Wetland** • Mule Fat Scrub** • Non-native Grassland* • Ornamental • Open Water** • Southern Riparian Forest** • Southern Willow Scrub** * Upland habitats typically requiring mitigation for impacts.

Disturbed wetland

** Wetland habitats typically determined to be jurisdiction (federal and/or state) and require mitigation for impacts.

Additionally, the land area within the boundary of the City of San Diego has been designated Multi-Habitat Planning Area (MHPA) as part of the Multiple Species Conservation Program (MSCP) and will require additional evaluation and design consideration (see Figure 4).

Open water, golf course pond 3

Final Report

Figure 2: Study Area 4

San Diego River Trail: Carlton Oaks Segment

Figure 3: Vegetation Communities 5

Final Report

Figure 4: MSCP MHPA 6

San Diego River Trail: Carlton Oaks Segment

Cultural Resources The records search and site survey has been postponed to the Preliminary Engineering and Environmental Document phase of the project. It is generally acknowledged that the Kumeyaay village of Sinyeweche occupied some portion of the site and the surrounding area prior to the development of residential housing and the golf course. As such, any ground disturbing activities associated with any alignment chosen will require an archaeological monitor. During other site investigations a grinding rock was observed within a less disturbed upland area.

Grinding rocks

Figure 5 shows cultural and historic resources along the San Diego River as identified in the San Diego River Park Conceptual Master Plan3.

Figure 5: Historic Resources along San Diego River

3. http://sandiegoriver.org/conceptual_plan.html 7

Final Report

Topography Existing topographic information (2 foot contour interval) was collected from existing data sources (Figure 6).

While the information was useful for trail alignment planning, it is inadequate for preliminary engineering and grading estimates. New higher resolution topography will need to be collected for the next phase of this project.

Golf course utilities

Utilities Existing public and private utility infrastructure and property/right of way boundaries were collected and mapped. These utilities are listed below and shown in Figure 7.

• Water • Sewer • Recycled Water

Real Estate

Existing drainage channels

There are three property entities, T Y Investment Inc, City of San Diego and City of Santee, which span or are connected to this site. The boundaries for these entities are shown in Figure 8.

Other Information

In the golf course proper, the maintained areas were mapped including cart paths and are shown in Figure 9.

The site includes several flood zones as shown in Figure 10. The area within the project boundary contains a 100 year floodway, a 100 year floodplain and is adjacent to a 500 year floodplain.

Single-family residential adjacent to north golf course access road

Golf cart paths along northern edge of golf course 8

San Diego River Trail: Carlton Oaks Segment

Figure 6: Existing Topography 9

Final Report

Figure 7: Utilities 10

San Diego River Trail: Carlton Oaks Segment

Figure 8: Land Ownership 11

Final Report

Figure 9: Maintained Golf Course Areas 12

San Diego River Trail: Carlton Oaks Segment

Figure 10: FEMA Flood Zones 13

Final Report

Outreach Process Workshop #1 – Development of Alternative Alignments The first workshop for this project was held on November 6, 2014 at the MTRP Visitor Center. It was a well attended meeting with 38 participants. The meeting started off with an introduction by SANDAG followed up by a presentation from both SANDAG and the consultant team. The presentation identified the goals of this particular project and how it fits into the larger network of planned regional facilities; identified all feasible trail alternatives through the golf course site; and featured existing conditions on the site that could have an impact on the trail alignment. At the conclusion of the presentation, a question and answer session was held, and then the attendees were invited to fill out the survey provided to vote for a preferred trail alignment and express any other comments or concerns.

Some concerns were the impacts the trail could have on the river such as armoring the berm on the river side. A few attendess voiced that the natural flow and occasional flooding of the river should not be impeded.

Attendees were also invited to leave comments on the boards in the rear of the room displaying existing conditions and feasible trail alignments.

COMMUNITY MEETING Carlton Oaks Segment

SAN DIEGO RIVER TRAIL

CARLTON OAKS GOLF COURSE SEGMENT The San Diego Association of Governments (SANDAG)

The majority of comments came from the question and answer session at the end of the presentation. One of the major topics discussed was the need for an equestrian element. Many of the attendees see this segment as a potential equestrian connection from Lakeside and Santee to MTRP, while others identified the desire for a Class 1, multi-use path to connect the surrounding neighborhoods. The southern alignment was the most popular based on attendee comments and survey results.

San Diego River Trail

Qualcomm Stadium Segment

EXISTING FACILITIES IN REGIONAL CORRIDORS SAN DIEGO REGIONAL BIKE PLAN CLASS B - BIKE PATHS CYCLE TRACK BICYCLE BOULEVARD ENHANCED CLASS II - BIKE LANE ENHANCED CLASS III - BIKE ROUTE UNBUILT SEGMENT

invites you to the second community meeting on a proposed new section of the San Diego River Trail — the Carlton Oaks Golf Course segment. Attend the meeting to hear proposals for where this trail could be built and provide input on the trail design and features. Your participation will

FOR MORE INFORMATION

help ensure the proposed project serves the needs of

Contact Project Manager, Stephan Vance (619) 699-1924 stephan.vance@sandag.org

San Diego and Santee residents, and San Diego River Trail

Si desea obtener información en español por favor comuníquese con Paula Zamudio (619) 595-5610 paula.zamudio@sandag.org This is a public meeting.

Any interested members of the public are welcome to attend.

Supported in part by the State Coastal Conservancy.

users from around the region.

ABOUT THE PROJECT SANDAG is working with the San Diego River Conservancy and the cities of San Diego and Santee to complete the San Diego River Trail — a regional bikeway that eventually will extend from the Pacific Ocean through Santee. The Carlton Oaks Golf Course segment is a proposed addition that will create a trail from West Hills Parkway, past the golf course, to connect with exiting trails in Mast Park West.

DATE Tuesday, April 28, 2015 6 – 8 p.m.

LOCATION Mission Trails Regional Park Visitors Center 1 Father Junipero Serra Trail San Diego, CA 92119 VISIT THE PROJECT WEBPAGE KeepSanDiegoMoving.com/SDRiverTrail SANDAGregion

@SANDAG #SanDiegoRiverTrail #GObyBIKEsd

In compliance with the Americans with Disabilities Act (ADA), this document is available in alternate formats by contacting the SANDAG ADA Coordinator, the Director of Administration, at (619) 699 -1900 or (619) 699-1904 (TTY).

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SANDAGregion

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San Diego River Trail: Carlton Oaks Segment

Workshop #2 - Analysis of Alternative Alignments The second workshop (final workshop for this portion of the project) was held on April 28, 2015 at the MTRP Visitor Center. There were 31 participants in attendance along with SANDAG, consultant staff, and staff from the cities of Santee and San Diego.

The meeting started with an introduction by Santee council member Jack Dale from the city of Santee and SANDAG Board of Directors Chair and then proceeded with a presentation by SANDAG and the consultant team. The presentation provided an overview of the project status and criteria used to evaluate the two most feasible alignment options.

Workshop #2, City of Santee Council Member presentation

The majority of questions posed at the end of the presentation were in regard to the ownership of the golf course and how that would have an impact on choosing the northern or southern alignment. Some participants repeated a request from the first workshop for the ability to include of an equestrian trail in the alignment. The northern alignment has some constraints but placing the bike path on that alignment would not preclude a future equestrian trail on the southern alignment. Residents adjacent to the northern alignment expressed concerns about privacy, visual impact, noise, and crime. The survey comments indicated that the majority of attendees support the southern alignment.

Workshop #2, SANDAG presentation

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Final Report

Analysis Trail Alignment Options The ultimate goal is to connect the existing portion of SDRT that terminates at the western edge of Mast Park West with the planned alignment of the SDRT within MTRP at the western end of Mast Blvd. The connection from West Hills Parkway to the SDRT within MTRP is a separate project within the SANDAG Regional Bike Early Action Program to be funded in future years. The MTRP Master Plan is on-going and will identify the alternatives through that planning process.

As such, a connection to West Hills Parkway is acting as the western terminus of this study. This will allow access to the SDRT from a public right-of-way until land ownership and permits west of West Hills Parkway are resolved.

Access to West Hills Parkway and Carlton Oaks Drive

Figure 11 highlights all the initial corridors that were identified through the study area, which included areas adjacent to many of the golf cart paths and between the active play areas of the golf course. None of the corridors were intended to cross any of the active play areas of the golf course.

To better understand the scale between the preliminary trail alignments and its immediate surroundings, cross sections were developed for the public workshops and analysis. Figures 12 and 13 show samples of the cross-sections of these alignments and their relations to the golf course and immediate boundaries.

Driving range near golf course clubhouse

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San Diego River Trail: Carlton Oaks Segment

Figure 11: Preliminary Planning Alignments 17

1

2

3

4

Final Report

Figure 12: Cross Section Key Map 18

19

Residential

Section Section 78

Residential

Sycamore Creek

Sycamore Creek

Section 4

Section 8

Residential

Residential Residential

Section 3 Section 6 Residential

Section 4

Section 3

Section 5

Section 2

Section 4

Residential

Section 1

Section 2

Golf Course Golf Course

Sycamore Creek

Golf Course

Golf Course

Driving Range

Golf Course

Golf Course

Golf Course

Golf Course Fringe

Golf Course

Berm

Berm

San Diego River

Sycamore Creek

Berm

Golf Course

Berm

Golf Course

Golf Course

Sycamore Creek

Golf Course Fringe

Putting Green

Golf Course

Sycamore Creek

Golf Course

Golf Course

Sycamore Creek

Golf Course

Golf Course Fringe

Golf Course Fringe

Golf Course

Club House

Golf Course

Sycamore Creek

Sycamore Creek

Wetland Area

Golf Course Golf Course Fringe Parking Lot

Golf Course Fringe

Golf Course Fringe

Golf Course Fringe

Fringe

San Diego River

Berm

Golf Course

San Diego River

San Diego River

SR-52

San Diego River Trail: Carlton Oaks Segment

Figure 13: Sample Cross Sections

Go

San

Final Report

Figure 14 highlights the corridor options that were presented at the first public workshop.

Southern Corridors • On the existing berm adjacent to the San Diego River (1A) • Adjacent to the southernmost east-west golf course cart paths (1B) for the eastern third of the alignment Golf course cart paths • East-west connection through the northern portion of the golf course on the maintenance road continuing south of the driving range and the club house and then through the center of the golf course adjacent to cart paths as the alignment heads west (2)

Northern Corridors • East-west connection through the northern portion of the golf course on the maintenance road continuing south of the driving range and the club house and then along the unpaved access road (3A) • New graded route that travels north of the driving range, club house and then along the unpaved access road (3B)

Unpaved berm path along the San Diego River in the southern corridor (1A & 1B)

Alignment would be adjacent to the paved cart paths (2)

Unpaved golf course maintenance roads along northern corridor (3A)

Unpaved access road along the northern corridor (3A & 3B) 20

San Diego River Trail: Carlton Oaks Segment

Figure 14: Planning Corridors 21

Final Report

Trail Evaluation

• • • •

The trail evaluation and modeling process began in September 2014 and consisted of four field visits, two of which included Global Positioning Systems (GPS) data collection, as well as two Geographic Information Systems (GIS) modeling approaches.

Each factor was weighted according to its perceived positive or negative qualities on a scale of -5 (High Challenge, a very negative attribute that is likely to inhibit the permitting and construction of the project) to +5 (High Opportunity, a very positive attribute that is likely to ease the permitting and construction of the project) as shown in Figures 15 and 16.

Phase 1 The first phase of GIS modeling was used to assess the viability of all proposed alignments and to provide members of the public with enough context to make an informed decision about their preferred alignment at Workshop 1. Phase I assessed the following factors using a weighted overlay technique: • • • • • • • •

Risk of Flood related Erosion Existing Recreational Use Patterns Affects on Existing Land Uses Disturbance to Golf Course Operations

The weighted layers were then combined to provide a composite score identifying the degree of opportunities and constraints present in the project area. Finally all proposed alignments were intersected with the composite layer and each alignment was assessed for the level of opportunity and constraint that occurred along its length (Figure 17). Results were presented to the public and the two preferred alignments (1A and 3A) were selected by workshop participants.

Impacts to Wetland Vegetation Infringement upon Wetland Buffers Impacts to Upland Vegetation Within or Adjacent to MSCP MHPA Risk of Exposure of Cultural Resources Potential Flood Risk Costly Construction Features User Experience

Figure 15: Phase 1 Trail Evaluation Criteria 22

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Existing Recreational Use Patterns

Potential Flood Risk

Risk of Exposure of Cultural Resources

Risk of Flood of Flood-related Erosion

Infringement upon Wetland Buffers

Impacts to Wetland Vegetation

Affects on Existing Land Uses

Costly Construction Features

Impacts to Upland Vegetation

Disturbance to Golf Course Operations

User Experience

Within or Adjacent to MSCP MHPA

San Diego River Trail: Carlton Oaks Segment

Figure 16: Phase 1 Trail Evaluation Results

Final Report

Figure 17: Phase 1 Trail Evaluation Results 24

San Diego River Trail: Carlton Oaks Segment

Phase II Following the initial assessment and selection of the two preferred alternatives, a more detailed second phase of analysis was performed. Phase II ranked each alternative based on a similar series of factors in an attempt to identify a preferred route to carry forward into Preliminary Engineering and Environmental Review. Factors analyzed in the second round included: • Permanent Impacts to Vegetation in the Trail Right-of-Way • Temporary Impacts to Vegetation in the 20-ft Construction Buffer • Proximity to MHPA, Infringement upon Wetland Buffers • Potential Flood Risk • Risk of Flood-related Erosion, Amount of Fencing Needed • Utilization of Existing Paths, Encroachment on Existing Land Use • User Safety Conflicts • Disturbance to Golf Course Operations Each factor was weighted simply as either an Opportunity or a Challenge as shown in Figure 18. The project footprint was then intersected with each layer and a percentage of the project with each weight was recorded. Results were presented at Workshop 2 and the two preferred alignments were commented on by workshop participants (Figure 19).

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Temporary Impacts to Vegetation (20-ft Construction Buffer)

Risk of Flood-related Erosion

User Safety Conflicts

Permanent Impacts to Vegetation (Trail Right-of-Way)

Potential Flood Risk

Encroachment on Existing Land Use

Disturbance to Golf Course Operations

Fencing Needed

Within or Adjacent to MSCP MHPA

Utilizing Existing Paths

Infringement upon Wetland Buffers

Final Report

Figure 18: Phase 2 Trail Evaluation Results

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San Diego River Trail: Carlton Oaks Segment

Figure 19: Alternative Alignments 27

Final Report

North Alignment Description Length: 1.6 Miles From east to west, the North Alignment straddles the most northern edge of the site. The alignment begins at the connection to the existing SDRT terminus going south, follows the existing trail on the berm and then splits off to the north towards the golf course maintenance yard. The alignment would then utilize an undefined dirt path behind the maintenance facility before joining the existing unpaved maintenance road.

The trail continues west along the unpaved maintenance road and then over the existing bridge at Sycamore Creek. From there, the alignment would be adjacent to the golf cart paths in front of the clubhouse.

Shortly after passing the clubhouse, the alignment transitions to an unpaved access road immediately south of the property line shared with the adjacent residential properties.

Golf course maintenance yard

Further to the west, the alignment drops below the level of the adjacent properties and enters a eucalyptus grove before crossing an existing concrete storm drain channel. The alignment then tightly parallels the property line again to minimize impacts to a tee box before climbing the embankment up to West Hills Parkway and its intersection with Carlton Oaks Blvd.

Opportunities and Constraints Opportunities include: • Re-use of existing access for the majority of the alignment • Reduced wetland and habitat impacts • Outside of the MHPA buffer zone • No conflict with potential equestrian trail along the river

Eucalyptus grove east of West Hills Parkway

Constraints include: • Adjacency to existing residential property • Required retaining walls • Proximity to golf course clubhouse and maintenance operations • Potential for conflicts between golfers and path users

Proposed cross-section for North Alignment 28

San Diego River Trail: Carlton Oaks Segment

South Alignment Description Length: 1.4 Miles Similar to the North Alignment, the trail begins at the SDRT corridor and follows the San Diego River along the southern edge of the golf course on the existing berm which will need to be widened in many areas. As the alignment travels west, the berm ends and the alignment will require modifications to a tee box and fairway edge to make room for the path. As the alignment approaches West Hills Parkway, it will travel up the embankment and connect to the intersection at Carlton Oaks Blvd.

Shade from existing trail

Opportunities and Constraints Opportunities for this alignment include: • Adjacent to the San Diego River • Shade from adjacent trees • Separation from clubhouse and maintenance operations • Distance from residences Constraints include: • Potential impacts to native habitats and wetlands • Additional grading required to keep the trail at the minimum width required • Potential for damage from flooding • Required adjustments to entire edge of one golf hole • Constrains the options for future equestrian trail

Adjustments required to golf course play

Proposed cross-section for South Alignment 29

Final Report

Conclusions Though various numeric scoring methodologies were tested during the Phase II analysis, the identification of a single preferred alternative and an associated recommendation to carry it forward into Preliminary Engineering and Environmental Review could not be made. The inability to make a determination was primarily affected by potential changes in land ownership and associated potential changes in land uses within the privately owned portions of the golf course property. As a bikeway corridor, either alignment would be functional. At the two community workshops, expressed preferences were split between homeowners with property abutting the golf course who preferred the southern alignment and equestrian interests who expressed concern that the southern alignment would preclude a future equestrian trail through the area.

Subsequent to completing the alignment analysis and the final community workshop, the potential golf course redevelopment project was abandoned by the private developer. Without the changes proposed by the redevelopment, the northern alignment likely would have increased impacts on golf course operations, and that should make the southern alignment more feasible.

Consultation with the current golf course operator will be necessary to confirm that conclusion. Those discussions will take place as the preliminary engineering phase of work is being initiated.

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Carlton Oaks Phase II Alignment San Diego River Trail: Carlton Oaks Segment Evaluation Objective

1

Permanent Impacts to Vegetation (Trail ROW)

2

Temporary Impacts to Vegetation (20-ft Construction Buffer)

3

Within MHPA

4

Infringement upon Wetland Buffers

5

6

Northern

Southern

Alignment

Alignment

CHART KEY

Potential Flood Risk

Opportunity: % of project with positive attributes

Risk of Flood-related Erosion

Challenge: % of project with negative attributes

7

Fencing Needed

8

Utilizing existing paths

9

Encroachment on Existing Land Use

10

User Safety Conflicts

11

Disturbance to Golf Course Operations

User Experience

Cost

Hydrological

Biological

Criteria

Figure 20: Phase 2 Trail Evaluation Criteria and Results 31