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HomeMy WebLinkAboutMINUTES - 07231996 - SD3 ' 5p,3 TO: BOARD OF SUPERVISORS IOC-06 Contra 4 FROM: INTERNAL OPERATIONS COMMITTEE o _ s Costa County DATE: July 15, 1996 COUN SUBJECT: INTERIM COUNTY PARKS, RECREATION AND TRAILS POLICIES SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION RECOMMENDATIONS: 1. APPROVE the attached document entitled: "Interim Contra Costa County Parks, Recreation, and Trails Program and Organizational Structure". 2. APPROVE the attached document entitled: "Policy on Compliance with Measure C (1988) Growth Management Standards". 3. REFER to the Finance Committee the issue of how to pay for the preparation of a Countywide Parks and Recreation Master Plan as is described in the attached memorandum dated July 2, 1996, from the Public Works Director. 4. RECOGNIZE that approval of the above recommendations includes the approval of the implementation program outlined on page 15 of the Interim Program and Organizational Structure, including the review of the park dedication fee structure. CONTINUED ON ATTACHMENT: YES SIGNATURE: RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE APPROVE THER SIGNATURE(S): GAYLE BISHOP Y'IJIRTOE RS ACTION OF BOARD ON July 23, 1996 APPROVED AS RECOMMENDED X OTHER VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE UNANIMOUS(ABSENT ) AND CORRECT COPY OF AN ACTION TAKEN AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN. ATTESTED July 23, 1996 Contact: PHIL BAT ELOR,CLERK OF THE BOARD OF cc: County Administrator RV AND COUNTY ADMI ATOR Community Development Director Public Works Director Y IOC-06 BACKGROUND: On June 3, 1996, our Committee met with staff from the Community Development and Public Works Departments on this subject and reviewed the draft report on this subject. Staff indicated that they wanted to take our responses to the policy issues which had been raised and revise the proposed Interim County Parks, Recreation and Trails Policies document and return to our Committee on July 15, 1996 with a revised document. On July 15, 1996, our Committee met with staff from the Public Works Department, Community Development Department, General Services Department and interested citizens. Staff reviewed the changes which had been made to the earlier draft document and noted in particular the policy on compliance with Measure C's Growth Management Standard and the memo from the Public Works Director, outlining the reasons why a Countywide Parks and Trails Master Plan would be important for the County. Staff clarified that preparation of a draft Plan would probably cost in the neighborhood of $40,000 to $50,000. No source of funding has been identified for the preparation of the Plan and we therefore believe that it is appropriate for the Finance Committee to review how it might be possible to pay for the development of a Plan. As the attached memo from the Community Development Director notes, staff have developed the two reports listed above to provide an interim policy basis and user's guide for the County's existing parks and recreation program. Upon approval by the Board of Supervisors, they will be utilized on an interim basis until a Countywide Parks and Recreation Master Plan can be developed. Our Committee is concerned that at some point in the future an effort be made to coordinate all of the plans and resources which exist, in the County from all of the jurisdictions which operate parks, recreational facilities, or trails into a single document which can be useful to the general public. Hopefully the development of a Master Plan can be at least one step in this direction. -2- CONTRA COSTA COUNTY COMMUNITY DEVELOPMENT DEPARTMENT DATE: July 1, 1996 TO: Internal Operations jCommiee FROM: Harvey E. Bragdon Director of Communpment SUBJECT: INTERIM COUNTY PARKS, RECREATION AND TRAILS POLICIES RECOMMENDATIONS 1. APPROVE the"INTERIM CONTRA COSTA COUNTY PARKS, RECREATION, AND TRAILS PROGRAM AND ORGANIZATIONAL STRUCTURE." 2. APPROVE the "POLICY ON COMPLIANCE WITH MEASURE C (1988) GROWTH MANAGEMENT STANDARDS." 3. Refer to the Finance Committee the issue of how to pay for a Countywide Parks and Recreation Master Plan as described in the attached memo from the Public Works Director. BACKGROUND/REASONS FOR RECOMMENDATIONS The Community Development, Public Works and General Services Departments have developed the two reports listed above to provide an interim policy basis and user's guide for the County's existing parks and recreation program. They will be utilized on an interim basis until a Countywide Parks and Recreation Master Plan can be developed. The attached memo from the Public Works Director indicates the need for a Countywide Parks and Recreation Master Plan. The Board should refer the issue of how to finance this program to the Finance Committee. Jwc:aw i:W.n*m cc: Skip Epperly (PWD) Steven Goetz (CDD) Gerald Bender (GSD) Paula Edmonds (PWD) INTERIM CONTRA COSTA COUNTY PARKS, RECREATION, AND TRAILS PROGRAM AND ORGANIZATIONAL STRUCTURE Prepared by the Contra Costa County Community Development Department Public Works Department June, 1996 1. POLICY ON PARKS AND RECREATION FUNCTION Contra Costa County provides parks and recreational services to the urbanized areas of the County. Usually, it provides these services through a local financing entity established to fund operation and maintenance facilities in a community, discreet area or a development project. However, given the historical context of how the County developed and the vastly different size and shapes of the unincorporated areas remaining in the County, the recreation function that services unincorporated populations occur through a very wide range of mechanisms. Among these mechanisms are: County Service areas for unincorporated communities. • Autonomous recreation and park districts. • Landscaping and lighting districts. • Joint use agreements with other agencies. • Cities for lands within their sphere of influence. • Special arrangements. Where there are unincorporated communities currently not served by a local financing agency, the County encourages the community or the Municipal Advisory Committees serving these areas to work with the County to establish and insure funding for local park facilities. 2. COUNTY ORGANIZATIONAL FRAMEWORK TO PROVIDE THE RECREATION AND PARKS FUNCTION. Several County Departments are involved in the provision of local recreational facilities. This arrangement generally follows how staff functions have evolved as the Board of Supervisors has worked on the organization of County Departments. Most functions occur within the Growth Management and Economic Development Agency (GMEDA). The main staff functions and the person and phone number to contact should you have questions are listed by Department: A. Community Development Department (1) Park Policy Planning The County General Plan forms the basic policy document for undertaking the park's function. It generally locates the local park or trail and outlines the standard aspired toward for each type of recreational facility. The location of parks tend to reflect near term conditions and are not intended to show all park lands necessary to meet General Plan goals or performance standards. 1 When pending general plan amendments have parks potential, they can also be considered as part of the plan amendment process. Questions should be directed to the Comprehensive Planning Section, 335- 1236 (Jim Cutler). (2) Parks Master Plans(or Action Plans). Park master plans or action plans provide further guidance than can be found in a General Plan. Master or Action Plans outline specific park and recreation proposed facilities and funding proposals for either a facility or geographic area of the County. They can be specific to an acquired parkland ready for development or be a wish list of potential park sites. They are approved by the Board of Supervisors but are not made part of the General Plan (since they may not be fully realized). Questions should be directed to the Public Works Special Districts 313-2253 (Attn: Skip Epperly)or Comprehensive Planning Section 335-1236 (Attn: Jim Cutler). (3) Coordination With Other Agencies On Future Facilities. The County is actively involved with the East Bay Regional Park District, the California Department of Parks and Recreation, cities, or other local facility providers. This section also staffs the Contra Costa County-East Bay Regional Park District liaison committee. Questions should be directed to the Comprehensive Planning Section, 335- 1236 (Attn: Jim Cutler). (4) Capital Improvement Program A five year Capital Improvement Program is prepared yearly outlining anticipated expenditures for neighborhood parks facilities by revenue source and year of expenditure. The CIP guides near-term actions by County staff to ensure proposed development projects will meet the General Plan's growth management performance standard for neighborhood parks. Questions should be directed to the Transportation Planning Section 335- 1240 (Attn: Steve Goetz). 2 (5) Conformance With 1988 Measure C Provisions. Annually, the County undertakes a review of its efforts to conform to the growth management element of the County General Plan for submission to the Contra Costa Transportation Authority. Questions should be directed to the Transportation Planning Section 335- 1240 (Attn: Steve Goetz). (6) Redevelopment Planning The County has five redevelopment areas: North Richmond, Oakley, Rodeo, Bay Point, and Pleasant Dill BART. Provision of parks and trails facilities are a part of this function. Question within the five redevelopment area boundaries should be directed to the Redevelopment Agency 335-1255 (Attn: Jim Kennedy). B. Public Works Department (1) Creation of local agencies. Most County parks are operated and maintained through local entities, e.g. County Service Areas or Landscaping and Lighting Districts. The California Government Code specifies procedures for creation of these local entities. Questions regarding creation or annexation to these entities should be directed to the Special Districts Division 313-2253 (Attn: Skip Epperly). (2) Day to Day Operation of County Parks or Trails. The operation and maintenance of County recreational facilities or the provision of recreational activities is a major function of the County's recreational operation. Questions regarding the day-to-day operation of County parks should be directed to the Special Districts Division 313-2253 (Attn: Skip Epperly). (3) Facility Planning Facility or site planning is a coordinated effort involving several County Departments; but it's main focus is in the Public Works Department. Generally Public Works Special Districts works with the following sections to fulfill this function as outlined below: 3 Master Planning is coordinated with the Community Development Department (see item 2A(2). • Park land and trail acquisition is done by Real Property Division of Public Works. County parks facilities are generally designed by the Architectural Services Division of the General Services Department. Legal services are provided by the County Counsel's office. • Long term leases with other public agencies for recreation purposes are coordinated by the General Service Department's Lease Management section. Questions regarding facility planning should be directed to the Special Districts Division 313-2253 (Attn: Skip Epperly). (4) Coordination with County Service Area Citizen Committees. Several County Service Areas for recreation have citizen committees to advise the Board of Supervisors on parks and recreation facilities. In some cases these are the Municipal Advisory Councils which comment on a range of issues including parks. Certain County Service Areas also have a local staff contact. Questions on County Service Area Citizen Committees or their agendas should be directed to the Special Districts Division 313-2253 (Attn: Skip Epperly). (5) District Budgets and Park Dedication Funds. Public Works prepares budgets for all special districts for recreation under the control of the County. In addition, the County's Auditor's Office is the depository for trust fund accounts for all park dedication fees collected in the County. Park dedication fees are exactions paid for the construction of all new homes in the unincorporated area of the County and are used to finance new and improved local park and trail facilities. Monies are kept in separate accounts based on proximity to where the homes are constructed, so they can be: spent to solve local parks needs. Where the unincorporated areas are within a city Sphere of Influence (SOI), the money can be made available to the city to improve city parks or acquire lands. Trust 4 fund money use is restricted to local parks facilities; it is not generally available for operation and maintenance purposes. All requests for usage of park dedication funds are processed through the County's Redevelopment Agency staff, however, day-to-day control is through the County Public Works Special Districts section staff. Questions on the park's trust fund or local agency budget should be directed toward Special Districts Section 313-2253 (Attn: Skip Epperly), for processing through the County's Redevelopment Agency staff. 3. GENERAL PLAN RELATIONSHIP The County's park and trail programs starts with the concepts found in the Contra Costa County General Plan. The Parks and Recreation issues are covered in a section of the Open Space Element extending from page 9 - 18 through page 9 - 38. This section first discusses the major parks and open space areas of the County and then on page 9 -23 focuses on the local parks and trails program (the focus of this document). For a full understanding of the County General Plan's park policies, the reader should examine that document at the Community Development Department or at the libraries throughout the County. Table 1 reproduces the Parks and Recreation Goals and Policies from that plan. County General Plan growth management polices for neighborhood parks call for a standard of three acres per. 1,000 population. In single family residential areas that would average around three acres for every 333 homes and in multiple family residential areas that is approximately three acres for every 500 homes. Most unincorporated communities in the County do not presently meet this standard. The purpose of the General Plan's Growth Management Element is to ensure that all new development approved by the County will meet this standard. New development in unincorporated areas should be carefully reviewed to determine its impact on meeting this standard. Applicants are expected to provide a facility(s) that meet the local parks performance standard or a funding mechanism has been established which will provide the facility to meet the standard. A. Park Criteria. Table 2 identifies the park criteria the County utilizes when considering new facilities. In the real world, especially where parks are being added to the existing urban fabric these criteria can't always be met. None-the-less, they are the starting point for consideration of new facilities. B. Private Recreational Facilities. Increasingly, private developments are being considered which provide on-site recreational facilities to serve project residents. These facilities provide project amenities and are effective implementation tools. These facilities may limit the effect 5 of new homes on public park facilities;they effectively expand the range and number of recreational facilities available to area residents. While these facilities are maintained by homeowners associations or by other local financing mechanisms, they generally are not available to the general public. The addition of private recreation facilities are encouraged by County General Plan policy. Inclusion of such facilities in new projects in a community will generally lessen the impact of new homes on existing local parks. The appropriateness of these facilities are determined in the review of new development applications. Questions on private recreational facilities in new developments should be directed to the Current Planning section of Corrmmnity Development at 335-1210. C. Trails. Riding, biking and hiking trails are planned for in various combinations throughout the County. The planned County trail system is coordinated with facilities of the East Bay Regional Park District, East Bay Municipal Utility District, Contra Costa Water District and the cities. The general plan.includes maps identifying the planned trails which would be desirable throughout the County. Local or feeder trails are not generally shown on the trails map, but; are encouraged by the plan. Trails through major parks and open space areas aren't show on the countywide plan maps. D. Regional Trails. The East Bay Regional Park District is the main provider of trails between communities. These facilities are developed in cooperation with the other governmental agencies they pass through. Operation and maintenance of their trails is provided by the District. The off-road trail system provided by the District is a major recreational resource of the County; this function's expanding rapidly in terms of areas served and miles in service. Questions regarding the planned regional trail system should be addressed to the Trails Section of the East Bay Regional Park District (635-0138). E. Planned Local Trail Routes or On-Road Facilities. The cities and the County work cooperatively to have safe on road or adjacent to the road biking and walking facilities. Given the intermingling of jurisdictional boundaries, it is difficult to determine which agency can answer questions on local trail facilities. Questions about local trails both planned or developed can best be responded to by contacting city staff or in unincorporated area by Ernie Vovakis (335-1243). 6 4. PARK DEDICATION FEES (Quimby Act) State legislation (the Quimby Act) allows local governments to collect parkland dedication fees in lieu of having every development be responsible for building local park facilities on site. The presumption behind this legislation is that every local jurisdiction can establish local park standards and that new development is responsible for adding additional land and/or facilities to keep pace with the current standard. Contra Costa County has adopted a local parkland standard of three acres of neighborhood parks for each 1,000 population. This is the standard discussed in the Quimby Act. A. Current Fees. . The current fees are$2,000 for each new home; in East Contra Costa County the fee is $1,350. That lower fee was based on the lower land value which existed in East County. Decisions on whether land and facilities should be provided, or if the payment of fees is appropriate, happens when a development application is reviewed and in the public hearing process. For applications of less than fifty units,the payment of fees is usually presumed. B. Annual Review of Fee. It has been several years since the park dedication fees have been reviewed to insure the fee is adequate to meet the standards. A study will need to be undertaken to see if the fee needs to be adjusted and if the lower fee in East County continues to be warranted. This effort will need to be accomplished by the Public Works and Community Development Departments in time for the 1997-1998 fee adjustments (at budget adoption time). The park dedication fee should be adjusted annually based on either the CPI for the Bay Area or by a study to ensure the fee is adequate to meet the standard requirements. Questions on the fee amount should be directed toward the Special Districts Section 313-2253 (Attn: Skip Epperly). C. City Sphere Of Influence Funds. Where development occurs within a city sphere of influence (SOI), these funds are available for use by that city for land acquisition of facility improvement. This is true except where the unincorporated areas are large and have a local parks agency which will utilize these funds e.g. Bay Point in the Pittsburg SOI or Kensington in the El Cerrito SOI, etc. A city can be considered for use of these funds by special request to the County Public Works Department (Special Districts staff for a specific park use. That 7 request will be processed by staff to the Board of Supervisors which will make the final decision on the transfer of the park dedication money to a city for a specific use. Where funds are transferred to a city for their use, the County will take credit for that transferral in terms of compliance with the growth management requirements of Measure C. Questions on the City SOI program should be directed to Special Districts Section (313-2253). D. Negotiated Higher Park Dedication Fees. On occasion the County has negotiated higher park dedication fees than the County ordinance code requirements. Generally,this has occurred with development in a city SOI where the city has a higher park dedication fee than the County and the city has requested the County to apply the higher fee so that all developments within a'city SOI pay the same amount. For this concept to be implemented, it needs to be done during consideration of the development application by the hearing;body. This approach is consistent with the County's park dedication ordinance because it relies on the more localized municipal knowledge of the cost of facilities in their area. In no case will the park dedication fee be lowered if a city has a lower park dedication fee. I-Egher fees can also be considered where a specific localized park shortfall has been identified and higher fees are required to meet the park standard. Questions on this issue should be referred to the Current Planning section of the Community Development Department (335-1210). E. Credit For Private Recreational Facilities. County General Plan policy allows for the possibility of a developer receiving partial park dedication fee credit for on-site recreational facilities. The County park dedication fee ordinance allows for up to 50% credit to be considered. The decision on whether credit should be allowed occurs during review of a development application. Prior to any credit being given for a recreation facility, a finding must be adopted that the facility must open to and service the public. Increasingly it has been more difficult to receive a park dedication credit for on-site facilities. Questions on this issue should be refbrred to the Current Planning section of the Community Development Department(335-1210). 8 5. DETERMINING THE NEED FOR ON-SITE LOCAL PARKS FACILITIES. The General Plan provides the standards for developing local plans and identifies the general location of such facilities, parks and trails. It is far too general to provide site specific determinations. The General Plan does not identify all the facilities necessary to comply with the General Plan goals for park and recreation facilities or the performance standards for neighborhood parks. To date that has occurred in two general fashions - through the development of local parks and trail master plans or through individual decisions on specific development proposals. A. Parks and Trail Master Plans. Several unincorporated communities within the County have initiated park and trail master plans which identify opportunities and potential parks and trails that can be developed to serve the community. It usually relates back to the standards for local parks identified in the General Plan. These are efforts where County staff work in concert with a local citizen group (e.g. County Service Area Committee) to develop a plan. A consultant is usually hired to assist in the preparation of such a plan. Once such a plan has been prepared by a local citizens group and staff, it is forwarded to the Board of Supervisors for approval of the plan as one basis for considering park and trail facilities. It is=made a part of the County General Plan since it usually is a wish list of desired facilities. It is common that all identified potential sites can't be financed or developed. Placement in the General Plan can lead to legal concerns over on the"takings issue". Many communities have such plans approved for their areas but not all do and some are in need of update. No unincorporated Countywide Parks Master Plan has been completed for the County. Questions on Parks and Trail Master Plans should be directed to Special Districts Division (313-2253) or the Comprehensive Planning Section attention, Jim Cutler (335-1236). B. Decisions on Land Development Applications. For large developments (over 50 units) it is relatively common for the developer to recommend the construction of on-site recreational facilities. The applicant makes additional recommendations on how the facilities are to be operated and maintained (the institutional arrangement to insure perpetual financing). Some of the facilities will be for use by project residents, others could be for use by the general public as local parks. 9 In other cases the development proposal will not include recreational facilities and County staff will argue the need to redesign the project to provide for residents or area wide local parks needs. In either case,the need for recreational facilities can be considered in the staff review of the development or redevelopment applications and throughout the public hearing process. Obligations for new local park facilities need to be in relationship to the impact the project will have existing recreational facilities of the area. A valid public issue is whether an applicant will pay fees or be required to provide (or contribute land toward) a local park. Among the issues staff considers in making a recommendation on whether or not to require on site recreational facilities are: 1) Conformity to the General Plan.local parks map. 2) If the site is shown or referenced in an approved local parks master plan. 3) Conformity with the growth management requirements of the County General Plan. 4) Public concern or desires. 5) Viewpoint of Board established citizens advisory committee or elected Board's that direct the operation of recreation agencies. 6) Views of the project developer. 7) Availability of an agency(or ability to create an agency) to finance operation and maintenance. The final County decision on the nature and extent of facilities occurs based on both the staff report(s) and on the public hearing process. The Board of Supervisors is usually the final decision-making body. Questions on specific development application and on-site recreation facilities should be directed to the Current Planning Division of the Community Development Department (335-1210). 6. OPEN SPACE LANDS In much of Contra Costa County the flatter imore easily developed land has already been developed or approved for development. Substantial portions of the remaining lands are on parcels where there are high slope lands or wetlands which will need permanent protection consistent with General Plan policies and State and Federal programs and policies. Some properties,while traditionally considered developable, may be limited in potential due to the presence of rare or endangered species. The options for control of these lands within a development are maintained by a homeowner's association, gifting the lands to a public agency or leaving the land in private ownership (while restricting future development on the property). 10 SD. 3 Traditionally such areas would be conditioned by deeding the development rights to the County and having the lands maintained by a homeowner's association. This is still a valuable method of control over such lands. Increasingly, such lands are being offered to a public agency, including the County, for maintenance. Public policies on wetlands control and the Endangered Species Act make public ownership and maintenance to perpetuate the resource(s) of species increasingly desirable. There are presently no County policies giving direction to staff on when, or if, such land should be accepted by the County. Until a complete study of the issue is done, the following interim policies will provide some guidance. A. , If open space land is available and is contiguous to property owned by another public agency.. County staff will routinely urge dedication of the land to that public agency. County staff will contact the East Bay Regional Park District staff to see if they would desire acceptance of such land. B. The local land trust(if one exists) or other land trusts will be contacted to see if they wish to take on stewardship of the land. C. Where there is no adjacent public agency land (or where they decline to accept the land) the County will consider acceptance of the land if there is an important public benefit in that action. Examples of important public benefit would be protecting wetlands or the sites that have actual use by special status species. D. Acceptance will be considered where the site is adjacent to an existing County facility, such as a local park, and the acceptance will provide public control in a cost-effective manner. E. Acceptance, generally, will only be considered if an endowment fund or funding mechanism is provided to cover the costs of operation and maintenance of this land. Examples .of such mechanisms include landscaping and lighting districts, county service districts, mandatory pass through from homeowner's association, etc. F. Lands which serve as project open space for visual amenities or high slope lands do not generally met the criteria of important public benefit and will be a homeowner's association facility. If grazing or discing is required it will generally be a homeowner's responsibility. G. Size will be an important factor in consideration of land to be accepted by the County. The smaller the size, the less need there should be for county involvement. Lands smaller than=acres that lack"important public benefit" and that aren't adjacent to other county park lands usually won't be considered for County acceptance. The 11 Board of Supervisors is the final decision-making body on what constitutes "important public benefit." Questions regarding open space dedications should be directed to the Comprehensive Planning Section of Community Development (335-1235), Current Planning Division of Community Development (335-1210) and the Special Districts Section of Public Works (313-2253). 7. NEW COMMUNITIES Recently the County has had several development proposals for projects larger than 1,000 residential units. These type of projects are large enough that they could greatly impact the recreational program of the area or adjacent city. It would appear that these projects need to be treated as separate areas for park and recreational facilities. Interim policies on these projects include: A. The project's minimum local park acreage standard shall be four acres per 1,000 population. B. Where the project is within the SOI of a city or could logically be added to the adjacent cities SOI, the project shall meet the adjacent cities park district standards. C. A mechanism to provide and operate the local parks will be required to be established before occupancy of any units on the site. If annexation to a city is anticipated and they will be the agency to run the facilities, all resources and financing set aside to fund the County parks shall be transferred to the annexing city. D. Where open space lands are part of the planning scheme, an integrated program of open space management shall be required and all open space lands in this project shall be deed restricted as part of subdivision approval process. A financing mechanism shall be established to maintain the open space lands. Large open space areas shall be under the control of a public agency(see open space policies#6 above). S. TRAIL REQUIREMENTS Where a land development project is proposed along a planned trail route, to insure the project's conformity with the General Plan,the project should be conditioned on construction of improvements to the trail (if needed). 12 A. Deferred Improvement Agreements. In some cases a deferred development agreement may be allowed on segments of the trail to allow for uniformity of construction; this approach should be utilized sparingly. B. Coordination with EBRPD, cities, other trail providers. The applicant shall be responsible for coordination with other public agencies for trail facilities that cross or are adjacent to the property being considered for development. C. Project Conformity With The Adopted General Plan. Project conformity with the General Plan will only be granted for an application fronting on a proposed trail shown on the Biking, Hiking or Riding Trail Plan maps shown in the County General Plan if the trail is already complete or if the application is conditioned on providing trail improvements. Frontage improvements is the minimum required action to define conformity. D. The County Planning Agency will be responsible for determining the nature of improvements necessary to insure compliance with the General Plan. 9. SPECIAL PROGRAMS County citizens advisory committees have occasionally gone beyond recreational roles in advising the Board on park and recreation matters. A recent example is where County Service Area R-7A worked with Danville and San Ramon on the San Ramon Creeks Trail and Revegetation Study. The study went beyond planning the trail along San Ramon Creek into revegetation and other matters. This is appropriate where the citizen's group can show a relationship between their Board established role and the broader environmental issue involved. 10. RECREATION PROGRAMS The County will operate recreational programs for a community, but only where the funding for these type programs can be assured through the budget of a local financing entity. 11. PRIVATE FOR PROFIT RECREATION FACILITIES. The County has an active role in promoting and approving private recreational facilities ranging from campgrounds, equestrian centers to docks and wharfs along the many water resources of the County. While not generally perceived as local park facilities, they do expand the range of available recreation opportunities to our citizens. Opportunities to 13 further integrate these operations into the recreation fabric of the County need to be further explored. 12. OPTIONS FOR FINANCING OPERATION AND MAINTENANCE. Special districts have been a prominent feature of local government in Contra Costa County, especially since the implementation of Proposition 13 in 1978. Special districts share with cities many of the same powers with respect to providing specific services and facilities to a community. In many cases, special districts have the legal ability to deliver a wide range of municipal services, yet offer representation and local control related to those services provided. Proposition 13 and Proposition 4 resulted in severely curtailing the ad valorem property tax for special districts,leaving fewer alternatives to fund local programs. An additional blow to local financing was the recent shift of Special District Augmentation Funds, or AB8 Funds, from cities and counties to the State. Proposition 13 effectively eliminated the establishment of new districts dependent on the property tax and public agencies began to look for alternative financing methods. Contra Costa County has utilized various methods of financing park development, operation and maintenance. The principal forms of financing are the County Service Areas, the Park Dedication Trust Funds (Quimby Act), the Landscaping and Lighting Act of 1972, special taxes and State and local park grants. County Service Areas The County Service Area Law was developed as a mechanism through which counties could furnish to unincorporated areas a wide variety of municipal-type services beyond those uniformly provided countywide. Contra Costa County has seven County Service Areas which provide park, recreation, landscaping and maintenance activities. Pre-Proposition 13 Service Areas draw on the ad valorem tax as its source of revenue. The Pre-Proposition 13 County Service Areas where parks and landscaping services are provided are Clyde, Alamo, Discovery Bay, Crockett and MonTaraBay. Post-Proposition 13 County Service Areas do not share in the ad valorem tax because of the rules governing the creation of Tax Rate Areas (TRA's). There are two service areas in Contra Costa County which provide park services that do not receive funding through the ad valorem tax. Those areas are El Sobrante and.Rodeo. Special Assessments Under the Landscaping and Lighting Act of 1972, State of California The Landscape and Lighting Act of 1972 provides a means for the County and other public agencies with an alternative financing for landscaping, lighting, community halls, parks and recreation improvements. Properties benefiting from these improvements may be assessed 14 through annual assessments on real property tax bills. There are special assessments not subject to Proposition 13 rather than taxes, because the revenues collected are for specific improvements. Landscape and park improvements in particular have long been recognized by California statutory law as improvements which benefit local property and for which special assessments are appropriate. Grants The State of California has had a long tradition of supporting regional and local park development through the use of special ballot measures providing funding revenue. The East Bay Regional Parks District has also issued bond measures to provide similar funding to park development. Park Dedication Funds (Quimby Act) The County currently has a two-tier Park Dedication Fee. The fee for East County is $1,350, and $2,000 for the balance of the unincorporated County. The use of Park Dedication Fees are to be used only for the purpose of developing new or rehabilitating existing parks or recreation facilities which will serve future residents of a development or the community from which the fees are collected. The County may accept the dedication of land and improvements in lieu of fees. 13. IMPLEMENTATION PROGRAM. In furtherance of the interim program,the following items need to be undertaken by staff over the next few months. A. Review and adjust the park dedication fees based on current costs as an interim measure. B. Work with the Internal Operation Committee to determine how to finance a Countywide Parks Master Plan. C. Consider if a separate trails Master Plan should be developed (maybe with CCTA monies). D. Direct staff to follow these Interim policies in reviewing land development applications. JWC:aw jAaw\interim2 Jc June 27,1996 15 3 TABLE I CONTRA COSTA COUNTY GENERAL PLAN PARKS AND RECREATION FACILITIES GOALS 9-H. To develop a sufficient amount of conveniently located, properly designed park and recreational facilities to serve the needs of all residents. 9-I. To develop a system of interconnected hiking, riding and bicycling trails and paths suitable for both active recreational use and for the purpose of transportation/circulation. 9-J. To promote active and passive recreational enjoyment of the County's physical amenities for the continued health, safety and welfare of the citizens of the County. 9-K. To achieve a level of park facilities of four acres per 1,000 population. PARKS AND RECREATION FACILITIES POLICIES 9-32. Major park lands shall be reserved to ensure that the present and future needs of the County's residents will be met and to preserve areas of natural beauty or historical interest for future generations. Apply the parks and recreation performance standards in the Growth Management Element. 9-33. A well-balanced distribution of local parks, based on character and intensity of present and planned residential development and future recreation needs, shall be preserved. 9-34. Park design shall be appropriate to the recreational needs and access capabilities of all residents in each locality. 2) along waterways having an adequate channel width as defined by the State Harbors and Navigation Code; 3) in areas having adequate public vehicular access; 4) where off-site improvements, such as required access roads, can be assigned to development; 5) where adequate on-site sewage disposal can be provided; 16 TABLE 1 (continued) 6) where located in an area served by a public fire protection district; and 7) when such uses will not conflict with adjacent agricultural uses. Intergovernmental Coordination 9-t. Coordinate with the various school districts in the County to provide for the joint use of recreation facilities. 9-u. Coordinate funds and programs administered by County government and other agencies, such as the East Bay Regional Park District, to obtain optimum recreation facilities development. 9-v. Develop a comprehensive and interconnected series of hiking, biking and riding trails in conjunction with cities, special districts, public utilities and county service areas. Funding 9-w. Form a County-wide committee to explore funding sources for recreation and open space to support regional, community and local park and trails on a County-wide basis. 9-x. Work with local unincorporated communities to determine the means of providing local park services where the need presently exists, as well as when development occurs. 9-y. Increase the park dedication fee to a level which approaches the local park dedication standards called for in this Plan. 17 3 TABLE 2 COUNTY PARK CRITERIA 1. Playlots a. Site Area: 2,000-5,000 square feet for either an independent site or that portion of a playground developed as a playlot. b. Location: Independent sites located in the centers of apartment projects or planned unit developments which they are intended to serve. C. Facilities: Basic facilities include playground equipment for preschool children (swings, slides, climbing apparatus) and shaded bench area for parents. Additional facilities include sandboxes, spray pools, and both grassed and hard-surfaced play areas. 2. Playgrounds a. Site Area: Independent site -- 3-7 acres; in conjunction with park or school -- 3•-5 acres. b. Location: Central to neighborhood served, preferably accessible without having to cross traffic arterials or railroads. C. Facilities: Basic facilities include playground equipment for elementary school children plus both hard-surfaced and grassed play areas. Additional facilities include playlot, shelter, sports and game areas (baseball diamonds, tennis courts, and wading and swimming pools). d. Service Radius: One-half mile; larger in areas of low population density or unusual topography. e. Association: Playgrounds should be developed in conjunction with elementary schools and parks for maximum effectiveness. Location within independently-situated play fields and parks is also desirable. 3. PlaAelds a. Site Area: 10 acres minimum, 15 acres desirable; 12 acres minimum, 17 acres desirable for sites with playground facilities. b. Location: Central to four or five neighborhoods (roughly four or five elementary school service areas). 18 T• Table 2 (Continued) C. Facilities: Primary facilities include game courts, sports fields, lawn games area. Secondary facilities include swimming pool, shelter house or recreation building, parking lot. d. Association: Playfields adjoining high school sites or community parks are particularly appropriate. Playlots and playground should also be included. 4. Neighborhood Parks a. Acreage/Population: 2.50 acres per 1,000 population. b. Site Area: Without playground -- 3-7 acres; with playground -- 6-8 acres; with playfield -- 12-17 acres. C. Location: Identical to playgrounds-- center of neighborhood. d. Facilities: (Park area only)Landscaped open space (trees, grass, shrubbery), benches and tables, and walks. e. Service Radius: One-half mile. f. Association: Neighborhood parks are best located adjacent to playgrounds, playfields and elementary schools. They may also contain a neighborhood recreation center. 5. Community Parks a. Acreage/Population: 1.50 acres per 1,000 population. b. Site Area: Independent sites -- 15-20 acres. With playgrounds and playfield -- minimum 25 acres, recommended 40-50 acres. C. Location: In the center of a group of neighborhoods. The site should have some natural features of interest such as water frontage or rough topography if possible. d. Service Radius: Two miles. e. Facilities: Both landscaped and natural open space, playgrounds and playfields, parking, special facilities such as golf, boating and swimming, and a community center. JWC:aw j:\aw\interirn2Jc June 27,1996 19 POLICY ON COMPLIANCE WITH MEASURE C (1988) GROWTH MANAGEMENT STANDARD FOR PARKS. The County must annually submit a self-certification program to the Contra Costa Transportation Authority on how it has met the growth management standard for the preceding year. A review of past submittals indicate that they haven't included information on the full range of park facilities accomplished in a year. Future submittals need to deal with a broader range of accomplishments. Future submittals need to describe: A. Where the County has contributed improvements to joint school/park facilities. B. Where the County has contributed to joint park-flood control basin facilities. C. Where the County has contributed to joint park and trail flood control facilities (both within cities and in the unincorporated areas. D. When the County has transferred park funds e.g., park dedication or bond funds to cities or autonomous special districts for their use, the County should receive prorated credit for its level of contribution. E. Where the County has required land dedication to a city or other public agency and where the area has been planned for local recreational use. F. Where the County has implemented trails (linear parks) to serve a local area, or contributed to trail facilities being implemented by other agencies. G. To acknowledge the loss of park facilities that are annexed by a city and/or transferred to another agency. H. Where the County has required for private recreation facilities to be developed and maintained by a project. Especially if park dedication fees have been allowed for the facilities and acreage provided. JWC\aw jAparksmsmeom June 27,1996 June 27, 1996 PUBLIC WORKS DEPARTMENT CONTRA COSTA COUNTY DATE: July 2, 1996 TO: Internal Operations Committee FROM: J. Michael Walford, Public Works Director , SUBJECT: "DRAFT"INTERIM CONTRA CO COUNTY PARKS,RECREATION,AND TRAILS PROGRAM AND ORGANI ATIONAL STRUCTURE FILE: 0650-4500-3952 Over the past 20 years, Contra Costa County has increasingly become involved in the operation of park and trail facilities throughout the unincorporated areas. The parks vary in size and purpose as does the County's role in their operation. From planning, fund development, renovation, and construction to operation and maintenance,the County has varying degrees of involvement in the County's public parks and trail. At present, however, a set standard of policies and guidelines that addresses the planning, development and operation of parks and trails in the County does not exist. A County-wide Parks and Trails Master Plan would perform this function. So, what are some of the benefits of a County-wide Parks and Trails Master Plan for Contra Costa County? • Provision of an advanced planning tool, which helps avoid haphazard planning, while providing an inventory of potential sites suitable for parks throughout the County. • Assure that present and future trail development connects to existing trail systems throughout the Bay Area. • Develop uniform policies and guidelines relative to park, trail and open space developments for new subdivisions. • Set uniform standards and guidelines for renovation of older parks and trails. • Ensure compliance with the General Plan's growth management standard for neighborhood parks, conformance with the Capitol Improvement Program and establish reasonable park fees that are reviewed annually. • Provide an invaluable grantsmanship tool. Proposed/future parks and trails would be identified in this Master Plan, enabling grant applications to refer to this document. • Provide information to the public on where the County parks system is headed. Attached is a draft of the policy guidelines for your review and consideration. The responsibility for the planning, development and management of the County's parks is shared by various departments. This proposed document has been prepared jointly by staff from those departments who share in these duties: Community Development, General Services and Public Works Departments. JNfNTE:pe g:\EngSvc\.SpDist\Parks MRO cc: C.Hansen,Deputy-Administration M.Avalon,Engineering Services S.Epperly,Special Districts P.Edmonds,Special Districts D.Heisch,Administration