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HomeMy WebLinkAboutChap3_Background 3.1 Brief History of Temecula There have been three Temeculas. By the time Spanish explorers and missionaries arrived in the Temecula Valley, it had been occupied for centuries by the hunting and gathering Luiseño Indians who lived in a village near where the Temecula and Murrieta Creeks join to form the Santa Margarita River at Temecula Canyon. This was the first Temecula. The Luiseños moved their village upstream on Temecula Creek to establish a second Temecula in the early 1800’s until they were evicted in 1875. This site had been developing into an American settlement along the Southern Emigrant Trail since the 1850’s and later became known as Old Temecula. Mexico won independence in 1821 and by 1833 had begun a period of secularization of the mission system during which the lands were given to private individuals. These grants were often huge tracts of land by today’s standards. A number of these ranchos were the genesis for large-scale beef cattle ranches that were well established and survived the transfer of California to the United States and later prospered by supplying meat to feed the Gold Rush. These cattle operations gave the City of Temecula its modern beginnings, its rural ranching heritage and “horse country” image. This period represented the second Temecula. The first Butterfield Overland Stage, which ran between St. Louis and San Francisco, pulled up in front of the Magee Store near Old Temecula in 1858. The stages were an important communications and transportation link for what was still a remote outpost, bringing in both new settlers and mail. The second post office in the state was established in Temecula in the Magee Store, the first being sited in San Francisco. The Civil War put an end to the Butterfield Overland Stage Service after only three years in operation. Virtually every place the railroads went, an economic and speculative boom soon followed. Temecula was no different. The California Southern Railroad built a rail line along Murrieta Creek connecting Temecula to National City in 1882, prompting much of the town of Temecula to move once again to settle along the new tracks at what became known as New Temecula. Following a devastating flood that destroyed the rail line through Temecula Canyon after only two years of operation, the rail line was rebuilt once more within two years, only to be washed out again in 1891, this time never to be rebuilt. The northbound link continued to operate until 1935, when the track was torn up for good. New Temecula is now known as Old Town Temecula and the only visible remnant of the original Old Temecula is Louis Wolf’s adobe store, which still stands as the oldest building in Temecula. Chapter Three BACKGROUND 1970s-era Rancho California sales brochure Background City of Temecula Page 3-2 Chapter 3 High quality granite was already being quarried around Temecula in 1881, but the arrival of the railroad made quarrying a more lucrative venture by making it much easier to ship the finished product. Because it lies on the surface as enormous boulders, Temecula granite is unique in not having to be mined from under a layer of surface overburden. It was widely used for building blocks, steps, curbs, headstones, fences and hitching posts in Temecula, Riverside, Los Angeles and San Francisco, but the industry dwindled away as concrete replaced cut stone and the quarries disappeared by the end of World War I. The era of great cattle ranches gave way to a new era of suburban development in 1964 with the sale of Vail Ranch and its subsequent development as Rancho California. It was advertised from the beginning with a strong equestrian character and became the core of what is now the City of Temecula. Originally, it’s planners set aside little more than a quarter of the land for residential use, with the remaining acreage devoted primarily to various types of agricultural and some industrial uses. This suburban development represented the third Temecula. Incorporated in 1989, Temecula’s residents voted overwhelmingly to retain their city’s original Native American name, making Temecula the only city in California to do so. There have been various translations of “Temecula,” with perhaps the most poetic being “where the sun breaks through the mist,” but the most probable is the Luiseño word meaning “place of the sun.” The Rainbow Gap through the hills immediately southwest of the city allows coastal fog to overflow into the valley and helps to create a comfortable environment for much of the year. The resulting local microclimate also supports a wine industry that continues to grow in size and notoriety along the eastern edge of the city. Temecula today is a city with a population of approximately 67,000 located on Interstate Highway 15 in southern Riverside County, just just north of San Diego County. Its centralized location places it within a reasonable commuting distance of San Diego, Los Angeles and Orange Counties where the majority of its residents commute to work. It has also attracted a number of high technology, medical and manufacturing firms in an industrial zone along the Interstate 15 corridor. 3.2 Temecula General Plan Adopted in 1993, the Temecula General Plan is intended to be a comprehensive first step in unifying the community. Like many communities in the region, Temecula is faced with substantial growth pressures. The General Plan is intended to respond to these growth pressures by providing long-term policy guidance for the community’s physical, economic, social and environmental changes. More than any other single idea within the General Plan, the most important is the commitment to the preservation and enhancement of the high quality of living in the Temecula Valley. Physical identity and cohesion, adequate services and facilities, high quality development and a wide range of community activities all underlie this idea. The General Plan is intended to result in changes that will affect how residents perceive their home, neighborhood, community and the overall quality of life in the City. The overriding issue for the General Plan, therefore, is how to benefit from change and the opportunities posed by growth pressures. The General Plan expresses a vision of the future of the City and prescribes techniques to manage growth and development so that the vision can be achieved. This vision embodies an active approach to shaping the dynamics of change. The challenge of the General Plan is to establish clear and sustainable direction. General plans frequently fail in this respect because of their singularly physi Chapter 3 Page 3-3 Multi-Use Trails and Bikeways Master Plan cal orientation and their complexity and detachment from the real process of decision making. The vision statement is intended to document the rationale for the new City’s General Plan in order to facilitate its implementation. Given this planning context, a statement of the most important dimensions of community character to be preserved or achieved as development occurs is essential. That is the community vision. The purpose of this Vision Statement is to declare a commitment to a quality of living that substantially exceeds what would otherwise occur. The Vision Statement will enable future community leaders and citizens to recall and endorse the meaning of the Plan and maintain diligence in carrying out its intent. The thrust of the Vision Statement draws upon the Mission Statement adopted by the City Council prior to preparation of the General Plan. The Mission Statement, as follows below, established a positive framework for the General Plan. • The mission of the City of Temecula is to maintain a safe, clean, healthy and orderly community; balance the utilization of open space, parks, trail facilities, quality jobs, public transportation, diverse housing and adequate infrastructure; and to enhance and revitalize historic areas. • The City will encourage programs for all age groups, utilize its human resources, preserve its natural resources whi le stimulating technology, promoting commerce and utilizing sound fiscal policy. • It is City Council’s resolve that this mission will instill a sense of pride and accomplishment in its citizens and that the City will be known as a progressive, innovative, balanced and environmentally sensitive community. The portions of the General Plan that most directly affect the development of a trails and bikeways master plan are the Circulation and Open Space/Conservation Elements. Like most General Plans, most references to trails and bikeways occur in the Open Space/Conservation Element, but much of the Circulation Element is also noteworthy. While the entire General Plan was reviewed, these two elements were most carefully examined and applicable sections incorporated into the text of this study. In addition, portions of several other elements were applicable to this study. 3.3 Circulation Element A Circulation Element is required by state law (Government Code Section 65032(b)) and must consist of “the general location and extent of existing and proposed major thoroughfares, transportation routes, terminals, and other public utilities and facilities, all correlated with the Land Use Element of the General Plan.” The Circulation Element must state the overall goals, objectives and policies concerning the circulation needs of the City and specifically address issues relating to major thoroughfares, transportation routes, terminals and other local public utilities and facilities. For this trails and bikeways master plan, the City of Temecula’s Circulation Element was reviewed concerning issues of streets and highways, parking, public transit and paratransit, bicycle and pedestrian facilities, demand management, and vehicular and pedestrian safety and the applicable sections transcribed into this document. Temecula’s dominant natural and man-made features, which establish the framework within which the circulation network must function, include the creeks north, west and south of the City, the foothills ringing the Temecula Valley and Interstate 15 cutting through the western portion of the City. These features serve to separate the City from surrounding unincorporated areas of the County both physically and perceptually. Background City of Temecula Page 3-4 Chapter 3 The Circulation Element represents an important component of the City’s General Plan. The development of the Circulation Element has been influenced by issues, goals and objectives identified by local officials, City staff, Technical Advisory Subcommittees and the community during the General Plan process. According to State law, the policies and plan proposals of the Circulation Element should: • Coordinate the transportation and circulation system with planning issues; • Promote efficient transport of goods and the safe and effective movement of all segments of the population; • Make efficient use of existing transportation facilities; and • Protect environmental quality and promote the wise and equitable use of economic and natural resources. 3.3.1 City of Temecula Five Year Capital Improvement Program The first Capital Improvement Plan (CIP) for the City was for 1992-1996. It served as a guidance and planning tool for the provision of public improvements over the next five years. Projects included in the CIP generally include land and rightof-way acquisition, design, construction or rehabilitation of public buildings, public infrastructure and other public facilities. This document serves to coordinate the financing and scheduling of major public projects to be undertaken or overseen by the City. Not all projects included in the CIP have specified funding. The City’s CIP is revised on an annual basis to meet changing needs, priorities and financial conditions. The following designated projects in the CIP (2001-2006) have particular relevance to the Circulation Element: • Butterfield Stage Road extensions from La Serena Way to Nicolas Road • Diaz Road extensions from Winchester Road to Cherry Street • Ynez Road corridor improvements • Margarita Road interim extension from Winchester Road south to current terminus at General Kearney Road • Calle Chapos improvement between Nicolas Road and Walcott Road • Overland Drive overcrossing of I-15 • Pala Road Bridge at Temecula Creek; • Rancho California Road interchange loop ramp • Winchester Road interchange improvements • Ynez Road extension to Date Street • Date Street overcrossing of I-15 3.3.2 Summary of Circulation Issues Circulation issues identified based on input received at neighborhood meetings and interviews with City Council and Planning Commission members related primarily to existing transportation system deficiencies and timely implementation of needed improvements. In addition to “current” problems, a number of the issues which were identified involved the need to plan for long-range transportation system improvements such as new roadway corridors; additional freeway overcrossings and better freeway access; provisions for alternative modes of transportation; and funding of improvements. A key circulation issue identified during the general plan process with relevance to this master plan is summarized below: • The provisions for alternative modes of transportation are severely lacking in the community. City City residents are interested in a City-wide bike system that links commercial, employment, institutional and recreational centers with residential areas. Public transit opportunity needs to be augmented as ridership demand is identified. New development should incorporate design features which promote the use of transit as well as bicycle and pedestrian travel. Chapter 3 Page 3-5 Multi-Use Trails and Bikeways Master Plan 3.3.3 Circulation Goals and Policies The following applicable goals and policies are summarized from the City’s Circulation Element. Goal 1: Strive to maintain a Level of Service “D” or better at all intersections within the City during peak hours and Level of Service “C” or better during non-peak hours. Goal 2: Enhance traffic safety on City streets. Goal 4: An efficient City circulation system through the use of transportation system management and travel demand management strategies. Policy 4.4 Require new development to incorporate design features which facilitate transit service and encourage transit ridership such as bus pullout areas, covered bus stop facilities, efficient trail systems through projects to transit stops and incorporation of pedestrian walkways that pass through subdivision boundary walls. Policy 4.5 Require specific plans and other mixed use projects to provide an internal system of trails linking schools, shopping centers, centers, transit and other public facilities within residential areas. Policy 4.6 Provide a comprehensive system of Class 1 and/or Class 2 bicycle lanes to meet the needs of cyclists traveling to and from work and other destinations within the City. Policy 4.7 Encourage a mix of uses within a project designed to maximize internal trip making, maximize the use parking facilities and to promote a shift from auto use to pedestrian and bicycle modes of travel. Goal 6: Safe and efficient alternatives to motorized travel throughout the City. The successful promotion of alternative modes of transportation such as bicycle, pedestrian and equestrian modes require facilities which support these models provide convenient access and are designed in a manner which promotes safety. Policy 6.1 Promote the safety of pedestrians and bicyclists by adhering to uniform trail standards and practices and communicating safety practices to the public. Policy 6.2 Off-street bicycle and equestrian trails should minimize the number of locations where automobile cross traffic will be experienced. Policy 6.3 Ensure accessibility of pedestrian facilities to the elderly and disabled. Policy 6.4 Traffic signals located along bike routes and where significant pedestrian activity is present shall be properly timed and periodically adjusted to allow for the safe movement of the non-motorized modes. Policy 6.5 Adequate linkages shall be provided for non-motorized modes, between residential areas and commercial/employment activity centers, public institutions and recreation areas. Policy 6.6 Motorized vehicles and motorized cycles shall be prohibited from using the City’s recreation trail system. 3.3.4 Implementation Programs The Circulation Element discusses a broad range of topics related to transportation improvement implementation strategies and programs which collectively work towards a realization of the Circulation Element goals and objectives. There is limited reference to trails and bikeways. For example, in Section A: Roadway Functional Functional Design Guidelines, no mention is made of pedestrian, bicycle or trail issues except for the recommendation under that the “Optional Rural Arterial Highway Standard” include bike lanes along only one side of the roadway. This is not advised. Bikeways should be provided on both sides of a roadway, or not at all. This is because motorists entering the roadway are unlikely to watch for cyclists coming from the right. Background City of Temecula Page 3-6 Chapter 3 Another applicable section is E: Local Congestion Management Program. It states in part, “…the City should take a leadership role in the formation of a community-based ridesharing program and commuter bicycle program for local residents…” 3.4 Open Space/Conservation Element The Open Space/Conservation Element contains goals, policies and implementation programs to encourage the conservation and proper management of the community’s resources. Furthermore, the purpose of this Element is to ensure the provisions of parks and recreation opportunities for the community’s residents. Open space is one of the key features that defines the character of Temecula and contributes to the quality of life that residents want to maintain. Open space performs a multitude of functions that are beneficial to the community. Open space functions to provide for outdoor recreation areas, protect viewsheds, preserve important natural resources, provide flood control, protect health and safety and establish buffers between incompatible land uses. 3.4.1 Establishment of Equestrian, Hiking and Bicycle Trails and Routes According to the Parks and Recreation Master Plan, the City does not provide a formal bicycle route or recreation trail system for cycling, walking or horseback riding. Many existing trails are being used informally for these activities. In order to implement a formal trail system, the City will need to take advantage of the remaining opportunities to obtain trail easements, obtain leases for trails along utility corridors, acquire rights-of-way, require dedication of land from new development and resolve trail conflicts where they occur. Temecula residents participate in hiking, walking and cycling more frequently than any other recreational activities (derived from the Community Survey results of the Parks and Recreation Master Plan, 1992). In planning for future bike and recreational trail facilities, residents expressed a strong desire for well-defined trails that link with regional routes and connect neighborhoods to parks, schools and commercial uses. Trails should be designed to provide access to key destination points within the City and region, and serve as both recreation and transportation routes. Residents placed a high priority on the development of loop trail systems wherever possible and trails that follow creeks and utility easements where feasible. The Parks and Recreation Master Plan includes a Draft Bicycle Routes map. The Plan calls for the preparation of a subsequent Recreation Trails Plan to define route alignments, provide design standards and establish implementation mechanisms to achieve a comprehensive trail system within the City. A key to trail implementation is the establishment of procedures within the Planning and Public Works Departments to ensure recreational trail improvements become an integral part of new roadway and infrastructure improvements. The Plan also notes the potential issue of trails as an environmental impact (and resulting human intrusion) on existing plant and animal life. This Parks and Recreation Master Plan is the most relevant document to this study and this portion of it is particularly relevant. 3.4.2 Conservation of Resources Although the City of Temecula is, like most southern California cities, comprised primarily of urbanized and/or disturbed areas that would be expected to have low habitat value for native wildlife, a great variety of sensitive biological resources are known to exist or potentially exist within the remaining undeveloped areas of the City. Some of these sensitive biological resources, including wildlife corridors and certain species, are still found in the City. The sensitive species are closely associated with coastal sage scrub and riparian communities. The City also contains significant landforms and cultural and historic resources that Chapter 3 Page 3-7 Multi-Use Trails and Bikeways Master Plan require conservation. In general, all the resources of note are either threatened, deteriorated or damaged primarily due to the effects of urbanization and expanding population. The Temecula properties listed in the California Inventory of Historic Resources are the Murrieta Creek Archaeological Area, Temecula’s first Post Office, Temecula quarries and the Little Temecula Rancho Adobe. Due to the presence of reliable water sources and a fertile valley floor, the Temecula area has always been a desirable place to live. Temecula contains many older structures, historic sites and districts that may be of interest to trail users. 3.4.3 Implementation Programs Implementation programs applicable to this study include those concerning recreational trails and the conservation of open space. Applicable programs for recreational trails include the following: 1. Prepare and adopt a Trails Master Plan that defines trail classifications, trail design standards, implementation mechanisms and capital improvement program. Separate equestrian trails from other types of recreational trails where feasible. 2. Negotiate land deeds as necessary to implement the City’s recreational trail system. Such designations may include: • Obtaining leases, securing easements from public utilities for use of easements as trails • Obtaining rights-of-way for trail improvements along La Serena Way, Rancho California Road, De Portola Road and Butterfield Stage Road • Obtaining land from new development for trail improvements and connections • Obtaining land to develop trails along designated roadways 3. Prepare and adopt an implementation and improvement plan for a City-wide bicycle system to ensure that bike routes are implemented or reserved concurrent with new development. Open space conservation incentives include the following: 1. Where feasible, secure permanent open space through dedication, easements or other acquisition mechanisms as a part of the discretionary review process. 2. Provide for a Planned Unit Development process in the Development Code to allow clustering of development and the dedication of open space for conserving natural resources, views and providing additional recreational opportunities. 3.4.4 Open Space/Conservation Element Goals and Policies The following section lists the goals and related policies applicable to this study: Goal 1: A high quality parks and recreation system that meets the varying recreational needs of residents. Policy 1.10 Maximize pedestrian and bicycle access to existing and new parks as an alternative to automobile access. Goal 3: Conservation of important biological habitats and protection of plant and animal species of concern, wildlife movement corridors and general biodiversity. Policy 3.6 Limit the recreational use of designated open space areas where sensitive biological resources are present. Policy 3.7 Maintain and enhance the resources of the Temecula Creek, Santa Margarita River, Pechanga Creek and other waterways to ensure the the long-term viability of the habitat, wildlife and wildlife movement corridors. Goal 5: Conservation of open space areas for a balance of recreation, scenic enjoyment and protection of natural resources and features. Background City of Temecula Page 3-8 Chapter 3 Policy 5.10 Require the connection of open space and recreation areas to adjacent developments and publicly owned recreation areas where appropriate. Goal 6: Preservation of significant historical and cultural resources. Policy 6.10 Support an integrated approach to historic preservation in coordination with other af fected jurisdictions, agencies and organizations for areas within Temecula and the surrounding region that seeks to establish linkages between historic sites and buildings with other historic features such as roads, trails, ridges and seasonal waterways. Goal 8: A trail system that serves both recreational and transportation needs. Temecula residents walk, hike, jog and bicycle more frequently than participating in other forms of recreation. This level of interest is significant considering that the City does not offer a formal, developed trail system. Many opportunities remain for the City to implement a recreational trail system concurrent with new development, roadway improvements and flood control projects. The future recreational trail system should connect to regional trails and function as alternative transportation routes, where appropriate. This recreational trail system can also function to link cultural and historic sites within the area to recreational amenities along local creeks, and the open spaces of the Cleveland National Forest to the southeast and the Santa Margarita River to the southwest. Policy 8.1 Provide a City-wide recreational system that connects to the County’s regional trail system through adoption of a Trails Master Plan that provides for bicycling, equestrian, hiking and jogging trails and support facilities. Policy 8.2 Negotiate land deeds as necessary to implement the City-wide trail system. Policy 8.3 Require proposed development to provide trail connections to the City-wide trail system as defined by the Parks and Recreation Master Plan and Trails Master Plan. Policy 8.4 Require development plans to identify locations for an internal trails/sidewalk system that links land uses and provides convenient travel to transit facilities. 3.5 Land Use Element The Land Use Element is often considered the “umbrella” element of the General Plan because it encompasses the issues and policies considered in greater detail in the other elements of the plan. The Land Use Element establishes land use goals and policies, supported by implementation programs for the land uses envisioned within the community including, housing, community services, industrial and retail development, parks and open space. The Land Use Element provides the framework for new growth and development, as well as for the protection/conservation of existing uses and resources. The element encourages future urbanization while conserving the significant characteristics of the natural and man-made setting which contribute to a quality of life that residents want to maintain. 3.5.1 Existing Land Use Pattern Temecula’s existing land use pattern is generally characterized characterized by employment uses on the west side of I-15 and residential uses on the east side. This pattern forces many residents employed in Temecula to use the highway interchanges to cross town to work. Furthermore, many commercial centers and community services are not conveniently located to residential areas, requiring the use of the automobile and longer travel distances than is desired by residents. The existing City land use pattern and the dispersed regional land use pattern has created an automobile-dependent community. The lack of a comprehensive trail system linking residential areas to parks, commercial and employment uses further encourages automobile use over walking and bicycling. Chapter 3 Page 3-9 Multi-Use Trails and Bikeways Master Plan 3.5.2 Commercial Revitalization Many of the City’s commercial areas and corridors are automobile-dependent and do not provide or induce pedestrian or bicycle activity. The absence of pedestrian oriented areas exacerbates traffic problems and resultant air pollution and noise. There is the opportunity to incorporate trails, pedestrian accessways and other non-automotive design features in all future commercial development and in the revitalization or infill development in Old Town Temecula and along Jefferson Avenue. Future levels of traffic congestion within the community will be influenced by the land use patterns. The level of congestion can affect the convenience of walking, biking, using a shuttle or bus service, or a fixed rail system that links Temecula to other communities. The architecture, landscape design and site planning of projects should emphasize a pedestrian orientation and convenient access between uses to support alternative transit methods. 3.5.3 Special Study Overlay The Special Study Overlay designation is intended for those areas in the community that require a comprehensive, detailed evaluation of development opportunities and constraints. The land use designations identified on the Land Use Plan are based on existing lot patterns, access constraints, lack of infrastructure, topography and other considerations. The purpose of a special study is to recommend any changes to General Plan land uses based on a detailed evaluation of, among other things, the provision of recreation trails and open space linkages. The special study(s) should also identify a strategy for financing and phasing of infrastructure and other public improvements. 3.5.4 Development Agreements Development agreements are authorized by State law to enable a city to enter into a binding contract with a developer to assure the type, character, quality of development and the public benefits to be provided. The development agreement may also contain conditions on the provisions to public benefits over and above what is required by the General Plan, Development Code and other City ordinances. 3.5.5 Incentive Programs Incorporate incentives within the Development Code to encourage property owners to provide additional park and recreation facilities, preserve natural habitat, provide additional open space linkages to adjacent habitat preserves, or provide other public benefits as indicated in Policy 5.1 of the Land Use Element. Such incentives may include, but are not limited to density bonuses, height bonuses and reduced parking requirements. 3.5.6 Land Use Goals and Policies Goal 4: A development pattern that preserves and enhances the environmental resources of Temecula. The City is rich in the quality and diversity of its biological resources. Furthermore, the hillsides in the southeastern portion of the City form an aesthetic backdrop for the community. Although the majority of the area is anticipated to ultimately be urbanized, it is important that the City seek to retain open space that is of value for its biological, recreational, visual or aesthetic characteristics. Policy 4.4 Work with the utility districts to develop a trail system and enhance the natural resources along the San Diego Aqueduct, creeks and other utility easements where feasible. Background City of Temecula Page 3-10 Chapter 3 Goal 5: A land use pattern and intensity of development that encourages alternative modes of transportation, including transit, bicycling and walking. Policy 5.1 Include in the Development Code and through other ordinances a package of incentives to encourage development to include development of parkland and trails. Policy 5.2 Require the provision of pedestrian and bicycle linkages from residential areas to open space/recreation facilities, commercial and employment centers. Policy 5.3 Encourage variety in the design of sidewalks and trails with respect to alignment and surface materials to provide a convenient and enjoyable experience for the users. Policy 5.4 Provide grade-separated bike paths along major arterials where feasible. Ensure that non-grade-separated bike paths are designed for safety. 3.6 Air Quality Element The Air Quality Element addresses air quality in the context of local land use planning. To date, most efforts at improving air quality have relied on emission control devices and development of cleaner technologies. While these efforts have been successful in reducing emissions, population growth experienced by the region threatens these gains. Air quality efforts are increasingly directed at the relationship between growth, land use activities and air quality. Land use patterns directly influence transportation demand, which in turn, impacts air quality. Goal 2: Enhanced mobility to minimize air pollutant emissions. Automobile use is the single greatest contributor to air pollution in California. Most of the air quality problem stems from our dependence on the automobile. The most effective strategy for improving air quality involves making fewer automobile trips, and when such trips are necessary, making them shorter. The provision and availability of alternative modes of transportation are essential to the success of this strategy. Alternative transportation demand strategies can increase the efficiency of the transportation system, reduce congestion and improve regional air quality. Policy 2.3 Pursue development of a public transit system including local shuttle and bus routes, and bicycle and pedestrian trails that are linked to regional light rail. 3.7 Parks and Recreation Master Plan The City of Temecula adopted a Parks and Recreation Master Plan in November 1993. This master plan was formulated to provide guidance to the City for the organized and structured development of the City’s parks, recreation, trails, open space, facilities and programs. The following sections are excerpts from the document relating to trails and bikeways. 3.7.1 Community Goals and Objectives of the Master Plan Following incorporation in 1989, the City of Temecula held a series of public meetings and conducted a survey to determine what services citizens felt was most important for the City to provide. The results indicated that a trail system was a high priority, and this is reflected in that “a City-wide multi-use trails system that includes bicycle, jogging and equestrian trails” became one of three Community Goals in the 1993 Parks and Recreation Master Plan. Master Plan Objectives: 1. Develop joint-use agreements with private ownership and various public entities, i.e., utilities and flood control agencies in order to establish rightof-access. Chapter 3 Page 3-11 Multi-Use Trails and Bikeways Master Plan 2. Develop trail development standards. 3. Provide for circulation opportunities for transportational and recreational uses. • Supply Inventory This stage of the City’s development presents tremendous opportunities to establish comprehensive guidelines for bicycle routes, recreational and equestrian trails. • Facilities Improvements D. Master plan bicycle and recreation trails, obtain right-of-access and program phased development. • Action Items 2. Develop agreements with utilities companies and private landowners for long-term use of easements, and develop joint-use agreements with other public access. • Temecula Community Survey When respondents were asked to identify specific needs in terms of recreation facilities and programs, some of the most frequently reported needs were for more biking, jogging and nature trails. The City of Temecula at present does not have a formal trails system to accommodate this need. • Community Workshop Summaries Summaries Two workshops were held in 1991. The first workshop focused on identifying the issues that most concerned the residents of the community. Four groups were formed, including one focused on recreational trails. The workshop included a general discussion of the issues and a session was spent prioritizing issues. The recreational trails group was given the task of reviewing existing and proposed trails and linkages. They also made suggestions on trail requirements and standards. The participants voiced concern about the environmental impact of future trails on existing plant and animal life, and stressed the need for safety, security, adequate signage and maintenance. The members also emphasized that the trails should serve the dual purpose of leading to and from residential and commercial areas, schools and parks sites. It was suggested that trails should link with each other at certain points to serve multiple functions. It was further proposed that there should be a ban on all motorized vehicles and that trails should be reserved only for their respective uses: such as walking, biking, jogging, hiking or equestrian trails. The group suggested that the trails should have a specific destination rather than simply meander aimlessly throughout the City. Rest stops, trash cans, drinking fountains and other amenities were also suggested. The group also expressed the need for trails to be spread throughout the City evenly; at present, they felt too many trails were concentrated in the eastern end of the City and not enough in the western section. Representatives from the Metropolitan Water District and Eastern Metropolitan Water District expressed willingness to work with the City to obtain agreements for the use of public utility easements for recreation trails. The participants stressed the need to provide sufficient access for emergency vehicles. Several areas were also identified as lacking trails and as having insufficient amenities and facilities. A second workshop was held including a group devoted to to bicycle routes, recreation trails and standards. The task for this group was to review the design layout of specific types of trails, paths and routes. The members of this group were asked to review the standards prepared for the trails and bike routes. It was the consensus that emphasis on safety and security should be the guiding rule in the development of trails and routes. The participants also stressed the need to provide access for emergency vehicles on all trails; otherwise, it was suggested that all motorized vehicles be banned from using the trail system. Background City of Temecula Page 3-12 Chapter 3 It was suggested that, for the bike trails, a 10’ width is sufficient as it provides room to pass pedestrians. Bike standards consistent with California state standards and speed limit signs posting safe speeds were also proposed. Several dangerous crossings were also identified: these included the intersections of Ynez Road and Winchester Road; Rancho California Road and Ynez Road; Jefferson Avenue and Winchester Road; Highway 79 and Pala Road; Highway 79 and Margarita Road; Highway 79 and Butterfield Stage Road; and Margarita Road and Pauba Road. The workshop participants expressed several requests regarding facilities and needs. In summary, these include: 1. Clear and defined bike route plans throughout the City, including trails that link with the regional routes and linkages to neighboring parks and schools. 2. Complete recreation trail system that provides loops wherever possible and utilizes all creeks and easements; these trails should expand concurrently with new development as it happens. 3. All trails should provide sufficient space for access of emergency vehicles. 4. The need for passive recreational opportunities such as areas for walking, picnicking, etc. 3.7.2 Implementation Plan Policy is the critical link and governing principle for taking a course of action in implementing a parks, recreation and leisure services program. If policy is to serve as the critical link between means and ends, it will require a sensitivity to community values in establishing priorities responsive to need. The following are a series of goals and policy examples and options to be discussed by the City and considered in the Department’s policy framework that relate directly to trails and bikeways. • Plan for maximum pedestrian and bicycle access to existing and new parks as an alternative to automobile access. • Develop specific design plans for linkages or trails to be used as guides in creating comprehensive recreation and transportation systems for pedestrian and all all non-motorized vehicles or forms of transportation. Funding Strategy Pedestrian and Bicycle Trail Funds – These grant funds are applied for projects that enhance bicycle commuting and thus relieve parallel roadways. SB-821 funds are programmed by the County from a state apportionment. Half of county-wide SB-821 Program (“Local” funds) is allocated to cities and the County on a population formula basis, the other half (“Regional” funds) is awarded on a competitive basis to projects benefiting the county-wide trails system. The SB-821 Local Funds may also be used on pedestrian facilities such as sidewalks and handicap ramps. 3.7.3 Development Priorities The following improvements are of the utmost importance and should all be completed within a short term. However, if a site in a designated need area becomes available, its purchase and development should proceed depending on available funding. Recreation Trails Begin immediately to obtain easement and rightsof-access from both landowners of the easements and utility companies. Resolve trail conflicts, develop master plans and trail standards, make trail improvements and obligate new development to make improvements and expand trail systems. Establish guidelines for conditions of approval for new developments along utility easements and flood control easements (creeks) for dedication of land and improvements for continuation of recreation trails. Chapter 3 Page 3-13 Multi-Use Trails and Bikeways Master Plan 3.7.4 Acquisition Priorities Negotiate land deeds as necessary to complete recreation trail. a. Obtain leases, secure easements from public utilities for utilization of easements. b.Obtain right-of-way for trail improvements along La Serena Way, Rancho California Road, De Portola Road and Butterfield Stage Road. c.Obtain land from new developments to link trails. d. Obtain land to develop trails along proposed roads to secure linkage and loop trails. Bicycle Routes Community Services staff will work with Public Works to establish a comprehensive bicycle route system throughout the City. The state standards for Class 2 and Class 3 facilities shall apply and street marking and signage should begin immediately after adopting the master plan. Development of Class 1 bicycle routes along creeks is also a high priority. A master plan of improvements should begin immediately for specific site improvements. This is critical as new development is planned along these designated routes. The cost of improvements can be passed on to new development as part of offsite improvements. Once the master plan of improvements is complete, the improvements should be budgeted for the short-term and mid-term. Recreation Trails Begin immediate negotiations with public utilities and landowners to obtain lease agreements for easements. Develop a specific master plan of recreational trails, design standards and implementation program. Immediately set up guidelines with public works and traffic departments to establish ground rules for recreation trails to become an integral part of new road, street and infrastructure improvements. Adopt the maps showing proposed recreation trails as a basis for recreation trails and work to resolve conflicts along the trails system. Avoid dead end trails and work to loop all trails and link these with schools and parks. Maps 5-7 and 5-8 of the Parks and Recreation Master Plan indicate the preferred routes as presented by the County Southwest Area Plan (SWAP) and participation by the community residents with special interest in equestrian and mountain bike riding. A public awareness program will be required to obtain support for the trail system and gain dedication of easement rights from private ownership. Outline of Procedure for the Development and Realization of the City-wide Recreation Trail System: 1. Establish a recreation trail public task force to work with staff to adopt standards, develop specific plans and participate in a public awareness program. 2. Establish a liaison with homeowners associations and landowners of utility easements to establish lines of communication, trail layout, design standards, time line, review and resolve conflicts. 3. Obtain agreement to utilize easements from public utilities and easement landowners for utilization of easements (including MWD, EMWD and County Flood Control District). 4. Develop guidelines for horse trails and crossings using prescribed standards that are applicable to the specific situation. Utilize proper signage to ensure clarity and safety. 5. Develop a site-specific recreation trail map, design standards and phasing plan. Utilize design professionals to prepare maps, gain public input, design trails and trail head parks. Establish budgets and a phasing program. 6. Develop road and street crossing guidelines. Set standards for recreation trails. Background City of Temecula Page 3-14 Chapter 3 7. Set up guidelines with public works agencies and traffic control to establish standards for recreation trails. 8. Adopt guidelines for conditions for new development for dedication of land and improvements for continuation of trails. 9. Proceed with phasing as the Capital Improvement Plan dictates for the development and acquisition of trails and facilities as established by the site-specific recreation trail map. 3.8 Applicable Plans from Adjacent Jurisdictions Temecula is bounded by the City of Murrieta along its northern boundary and by unincorporated County land around the remainder of the city limits, except for the Pechanga Indian Reservation at the city limits in the southeast portion of the City. The City of Murrieta and the County have their own trail planning efforts at different levels of detail and stages of implementation. As part of the planning process, contact was made with all the surrounding jurisdictions to ensure the development of concepts and alignments which would be compatible with those of the surrounding areas. A summary of the issues regarding each community is presented below. The City should maintain periodic contact with surrounding jurisdictions to ensure that the linkages necessary to achieve a regionally connecting trail system are accomplished. 3.8.1 City of Murrieta Temecula’s sole municipal neighbor, the City of Murrieta, prepared a 1999 Parks and Recreation Master Plan and Financing Strategy which calls for the implementation of a trail system. The plan identifies many trail opportunities throughout the community including natural creek channels. It recommends the preservation of the Murrieta Creek and Warm Springs Creek area as a rustic environment for residents to hike and experience nature in a quickly developing suburban setting. A general guideline is to conserve open space for its natural, cultural and recreational values. The plan also recommends that any new development should be required to contribute to the park and trail system through land dedication and/or improvement of facilities. Some of Murrieta’s alignments are along its southern boundary, particularly along creek channels, where they could connect to Temecula’s trails. Wherever possible, connecting the two community systems is recommended as a way to unify them into a larger overall trail system that better serves the residents of both communities and the region as a whole. 3.8.2 County of Riverside The County of Riverside General Plan contains an Equestrian, Hiking and Bicycle Trails Program that identifies hiking and equestrian trail alignments; directs the County of Riverside Parks and Recreation Department to conduct an inventory of existing and future trails, including Federal and State trails which are part of a larger integrated system; establishes direction for hiking and equestrian trail management and maintenance; and identifies trail funding and acquisition mechanisms. In addition, the Program requires that the recreational trail system be coordinated with bicycle routes in the Circulation Element. The County’s Program was used in the preparation of the Parks and Recreation Master Plan, in the establishment of trails standards, alignment, acquisition and funding mechanisms. In 1989, the County of Riverside adopted a County-wide trails master plan that designates trails as either “regional” recreational trails in unincorporated areas and requiring County approval and funding, or “local” recreational trails which would be within the jurisdictions of the County’s municipalities and would be their responsibility to implement. The system, as a whole, is intended to be an efficient network of trails serving recreational and commuting users throughout the County. To date, only a small percentage of the trail system has actually been implemented. (Southwest Area Community Plan, Regional Trails and Bike Paths adopted November 28, 1989.) Chapter 3 Page 3-15 Multi-Use Trails and Bikeways Master Plan A number of trail segments are proposed for Temecula and its immediate surroundings in the County trails master plan. (See Figure 5-3, Other Jurisdictions.) Especially since they were generally proposed in desirable locations, many of the trails proposed in the County plan were endorsed in the recommendation for trails for this study. For example, the County plan includes trails or Class 1 bikeways along the full extent of all three creek corridors around the Temecula core, as well as along two of the aqueduct corridors, which directly correlates with the City’s primary project goal of a loop system using those alignments. 3.8.3 Metropolitan Water District The Metropolitan Water District (MWD) owns and operates aqueducts on their own property in fee simple ownership or via easements that cross the entire City of Temecula. These aqueducts run in a generally north/south orientation, cutting across what is essentially the geographical center of the City. These aqueducts have surface access in the form of dirt roads that are almost fully contiguous with the underlying aqueducts except in the areas of steepest terrain. The aqueduct alignments predate the City of Temecula’s incorporation by several decades. Over the years, these aqueduct easements have been routinely assumed to be likely non-motorized trail routes by a number of planning agencies. However, interviews with MWD staff concerning this type of use yielded some potentially disturbing information. MWD customarily applies regulations to its aqueducts that will directly affect any trails development planned along them. While non-trail specific alterations such as landscaping are welcomed, rules governing equestrian use and grading for trails raise special concerns. MWD has strict regulations governing equestrian use along its aqueduct easements. Horses are simply not allowed within its easements or fee simple property except in areas where they would be 25 feet below the invert level of the adjacent pipeline and separated by at least 100 feet laterally. Essentially, this means that equestrian use along the aqueducts is not possible because the combined vertical and horizontal offset is not known to occur anywhere in Temecula. This regulation is intended to prevent fecal-borne pathogens from entering the water system following a pipe breakage and subsequent repair. According to MWD staff, shutting off an aqueduct pipeline and emptying it for repairs can create sufficient vacuum to pull any potentially pathogen-laden water out of the surrounding soil and back into the pipe. As well as not allowing horses near pipelines, MWD also allows no change in grade of more than one foot within its jurisdiction. This is intended to protect pipeline cover because MWD can not be certain how much cover exists over its pipelines. MWD is concerned that reducing coverage may endanger pipes by making them more likely to be exposed, while increasing coverage could place excessive strain on aging pipes. Therefore, any change in grade of more than one foot, either cut or fill, may not be allowed. This may be problematic in areas of steep terrain where switchbacks are likely to be a desirable method of routing a trail, or even the only workable method. Background City of Temecula Page 3-16 Chapter 3 3.8.4 Riverside County Flood Control and Water Conservation District The Riverside County Flood Control and Water Conservation District (RCFC&WCD) jurisdiction within Temecula includes all of the creek beds and the maintenance roads adjacent to the creeks. These roadways are generally hard-packed dirt and wide enough to allow large equipment access to the creek beds for seasonal riparian plant clearing and any other needed maintenance. Most segments are currently fenced and gated. However, a substantial segment along Santa Gertrudis Creek has been paved and striped as a multi-purpose trail. RCFC&WCD representatives indicated that additional trail installations are feasible if three criteria can be met. They are (1) that the agency not pay for any improvements, (2) that the agency be indemnified and (3) that any improvements not reduce existing channel cross-sections. The agency welcomes any trail proposal that fulfills these three basic criteria. 3.8.5 US Army Army Corps of Engineers Flooding has been an ongoing problem in the Murrieta Creek area, causing significant damage to the Old Town area of Temecula as recently as 1993 and is expected to get worse with increased development of the watershed. Flooding problems in the Murrieta Creek watershed are related to inadequate capacity of the existing drainage system, particularly in the Old Town area. In response to this problem, the Corps of Engineers recently completed a Murrieta Creek Flood Control, Environmental Restoration and Recreation Final Feasibility Report, dated September 2000. The planning goals of the study include reducing flood inundation damage, reducing the costs of flood insurance, restoring the riverine ecosystem and providing recreational opportunities. The selected alternative calls for increasing the flow capacity of Murrieta Creek by widening the channel along its entire length through Temecula with natural or gabion-protected sides and a natural bottom, ecosystem restoration, a large detention structure with recreation fields upstream just beyond the city limits in Murrieta, modification of the streambed just upstream of the Rancho California Road to increase flow under the bridge and replacement of the Main Street bridge. The plan calls for 12 foot wide combination service roads/trails along both sides of the creek, with the west side facility designated for equestrian use and the east side for pedestrian and bicycle use. A footbridge is planned across Santa Gertrudis Creek and a trail undercrossing of Winchester Road. The plan also indicates a crossing of Murrieta Creek just north of the confluence of the Santa Gertrudis and Murrieta Creeks at Diaz Road, where a service road would cross a levee structure forming the outlet of a large detention basin. 3.8.6 Southern California Edison Electric Company The Southern California Edison Electric Company (SCE) owns and operates several power lines on their own property in fee simple ownership or via easements. In most cases, these easements cross multiple privately owned parcels and do not have associated roadways or other access. For example, power line segments pass over rear property line fences between the back yards of residential developments over significant distances. 3.8.7 Pechanga Indian Reservation The Temecula Band of Luiseño Mission Indians owns and operates the Pechanga Entertainment Center on the southeast edge of Temecula along Temecula Creek. The complex includes a casino and RV park and reservation property encompasses a significant portion of the creek bed in this area. Luiseño tribal representatives indicated to City of Temecula staff that trails access has been discussed, but no formal planning has been undertaken.