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HomeMy WebLinkAboutMINUTES - 04051988 - S.2 'y TO: BOARD OF SUPERVISORS t FROM: Contra • Supervisor Tom Torlakson Costa DATE: April 5, 1988 County SUBJECT: FEASIBILITY STUDY FOR A REGIONAL RECREATIONAL DISTRICT IN EAST COUNTY SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION RECONIlKNDED ACTION: Direct the Community Development Department to review the proposal for a feasibility study for a regional recreational district in East County and return to the Board with, its report. BACKGROUND INFORMATION: Please refer to the attached letter from the Brentwood Recreation and Park District, dated March 10, 1988, for additional information. TT:gro Attachment CONTINUED ON ATTACHMENT: YES SIGNATURE: /u,+�✓ �0 � ��� RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER SIGNATURE(S) ACTION OF BOARD ON April 5, 1988 APPROVED AS RECOMMENDED OTHER X REFERRED proposal for a feasibility study for a regional recreational district in East County to the Community Development Department and Finance Committee for review. VOTE OF SUPERVISORS X UNANIMOUS (ABSENT 1 ) 1 HEREBY CERTIFY THAT THIS IS A TRUE AYES: NOES: AND CORRECT COPY OF AN ACTION TAKEN ABSENT: ABSTAIN: AND ENTERED ON THE MINUTES OF THE BOARD OF SUPERVISORS ON THE DATE SHOWN. CC: Community Development ATTESTED � Finance Committee Phil Batchelor, Clerk of the Board of County AdministratorSupervisors and County Administrator M382/7-83 BY DEPUTY RECREATION AND PARK DISTRICT March 10, 1988 Tom Torlakson, Supervisor Contra Costa County 300 Leland Road, Suite 100 Pittsburg, CA 94565 Dear Tom, The enclosed proposal has been presented to: 1. BIMID, BIAA, BI Chamber Representatives 2. Byron Chamber 3. Brentwood City Council 4. M-8 5. DBPOA 6. OMAC 7. Knightsen Town Council All , except 4 and 5, have endorsed the concept and supported the current feasibility study. We have promised to circulate the results to each group for further discussion of issues which may surface. M-8 and DBPOA should be contacting us soon with their decision to or not to support the concept and study. We are currently identifying one contact person from each community or group. We have chosen not to take up more of their time until the feasibility study is complete. If it indicates viability, legally, politically and financially, we will continue to further identify the needs and priorities of each community and initiate a more indepth study to identify and assemble the actual funding avenues available and/or necessary to accomodate the demand for service facilities. This we hope you will support and sponsor at LAFCO. One of the first tasks we envision the expanded district undertaking is the creation of a master plan. The plan should contain text and graphics noting and illustrating the goals and priorities of the individual communities and the district at large. The focus would primarily be on local and regional facilities/recreational programs, and maintenance. 740 B Third Street • Brentwood, California 94513 • (415) 634-1044 This is an example of a community taking responsibility for providing services/facilities for itself. It is an efficient, accountable and local effort to better address and meet the immediate communities' park and recreational needs. The Brentwood Recreation and Park District would like to thank you for your personal support, and park dedication monies for the initial feasibility study, as you stated at the Bethel Island town meeting the evening of March 8, 1988, we will continue to keep you updated on the status of the District's progress on this matter. We are sure you can see the efficiency and opportunity from the county level in addressing one entity rather than potentially several . We look forward to your continued interest and support. incerel y, m Vogley Board of Commissioners Brentwood Recreation and Park District KV/llc cc: BIAA Byron Chamber Brentwood City Council M-8 DBPOA OMAC Knightsen Town Council STAFF REPORT JANUARY 7, 1988 TO BE CONSIDERED AT THE CITY COUNCIL MEETING OF TUESDAY, JANUARY 12, 1988 SUBJECT: Feasibility study for the expansion of the Brentwood Recreation and Park District. BACKGROUND: For several years now, the Brentwood Recreation and Park District has found it more and more difficult to meet the increasing demands for park and recreation facilities and programs. This demand has been generated on a district-wide basis by the significant increases in populations both within our community as well as the surrounding area. The Recreation and Park District, due to its relatively small size and limited resources, has been unable to develop the needed sports complex facilities and to increase its recreation programs that are needed now and in the immediate future. At past meetings of the Recreation and Park District Board discussions were held concerning future alternatives that might be implemented by the District in order to increase its ability to provide' expanded recreational programs, increased park facilities and the development of a sports complex. It became apparent that, by itself, the District would not be able to provide these items in sufficient quantities to meet the current and future needs of the area. Therefore, the District Board authorized staff to begin prelim- inary investigation of annexing all unincorporated areas within the Liberty Union High School District boundaries to the Brentwood Recreation and Park District for the purposes of coordinating park and recreation programs. A sub-committee of the Recreation and Park District, with staff assistance, began meeting with representatives of Oakley, Byron, Knightsen, Discovery Bay and Bethel Island in order to "feel out" these areas on the concept of creating a far East County Recreation and Park District. Without exception all felt the concept had merit and should be investigated as to its feasi- bility. In November of 1987 the attached preliminary proposal was submitted to representatives of these various areas at a meeting held at the community center. This report is a very brief synopsis of the proposed project and what is perceived as probable benefits and obstacles. It is by no means intended to be a feasibility study; only an informational document for conceptual consideration. This document was reviewed by the members present and they felt that, based upon its content, we should continue consideration of a feasibility study. As Council will note in the report, a consultant with significant experience was contacted and he recommended that our first efforts be directed at determining whether the concept has any feasibility at all. This would involve the identification of the legal processes available for the creation of this expanded district as well as preliminary financial indicators as to,.whether such an effort would be economically viable. If, at the conclusion of this preliminary study, all indicators are that there are reasonable legal means to achieve the expanded district and a reasonable likelihood that it will be financially viable then the consultant will then recommend that a full scale in depth feasibility and implementation study be conducted. The consultant has estimated the cost of such a preliminary study to be between three and four thousand dollars. This cost was explained to all representatives and each area agreed to go to its respective boards or commissions having jurisdiction over park and/or recreation programs and - request funding consistent with their proportionate share of the population served. The general division results in Oakley providing 33% of the cost, Brentwood providing approximately 25% to 30% of the cost and remaining unincorporated areas providing the balance of funding. Based on this preliminary cost estimate staff would request Council consider authorizing the City of Brentwood to participate in the preliminary feasibility study in an amount not to exceed $1,000. While the actual cost for Brentwood may fall slightly under this figure it would allow for adequate funding if the study came in at the $4,000 mark. Staff believes the concept has merit and there is sufficient interest from the communities in far East County. The district is pursuing the matter on a slow and cautious path and is being careful in limiting the expenditure of time and monies to insure that limited resources are not expended on a project that has no potential for success. The various community councils, boards and commissions will also be pre- sented with this issue, by their representatives, during::the month of January. RECOMMENDATION: Staff would recommend Council authorize the expenditure of up to $1,000 for completion of a preliminary feasibility study to evaluate the merits and fiscal viability of expanding the Brentwood Recreation and Park District to include all incorporated and unincorporated areas within the Liberty Union High School District boundaries. JAF:kw -2- EAST COUNTY CONSOLIDATED RECREATION & PARK DISTRICT PROPOSAL NOVEMBER 1987 During the past month individual meetings have been held with representatives from the various areas of far east county for the purpose of discussing the feasibili , of expanding the present Brentwood Recreation and Park District to encompass what is generally considered as the Liberty Union High School District area. These meetings have been held with community leaders for the purpose of exploring interest in a ,program for consolidation. Presently, the Brentwood Recreation and Park District provides the only organized recreational services to all residents of far east county. This, despite the fact that the official jurisdictional boundaries for the Brentwood Recreation and Park District extends just slightly beyond the current City of Brentwood limit line. This practice of providing recreational programs for all of far east county has been a tradition with the District and has proven to be beneficial both to the various communities and to the District itself. Over the past several ye,ars, .far east county has experienced significant growth without, unfortunately, a corresponding increase in park and recreational facilities for use by these new citizens. This shortage of facilities and programs has become critical and several of the individual communities are seeking means .to fulfill the recreational and park needs of their residents. However, our finding is ,that their limited size and capabilities are generally precluding them from being able to provide viable new facilities and expanded programs. Obviously, the far east county area is a diverse region with each community having unique needs, desires, and capabilities. The only incorporated area within this geographical district is the City of Brentwood. The remaining communities rely on the county to provide necessary services and facilities. Unfortunately, everyone has learned that the county is not now and does not wish to become involved � in recreational programing and is only expending a minimum amount of effort in the development of park and recreational facilities in our area. If however, the Brentwood Recreation and Park District could be expanded to include the entire geographical area of far east county there would be a large formidable district in a position to provide the vehicle to promote the development of both facilities and services. During preliminary discussions with representatives of the various communities it was made clear that everyone is open to the idea and has expressed a definite interest in exploring the feasability of expanding the current district. If such a program was accomplished it would be the goal of the district to begin to provide those facilities and programs that each community requires. We have tried to identify, below, some of the basic issues and benefits that we perceive would be the result of the formation of the new district. 1. Byron Byron is an older, long established community which has in past years undertaken efforts to try to beautify their community and to provide some park facilities. We anticipate that this new district would be in the position to assist Byron in the following areas: 1) Planning and implementation of a street beautification program, 2) Development of grant applications for facility improvements, 3) Maintenance of existing and future facility improvements, 4) to provide contractual maintenance to community groups who choose to build park and/or recreational facilities for the public's use. 2. Bethel Island Bethel Island, being a water oriented community would undoubtedly look to increasing this capability through facilities that would make the water an integral part of their amenities. Furthermore, with anticipated growth on the island the district could provide planning and coordination with developers to insure proper park facilities while at the same time providing a vehicle which could be utilized for contractual maintenance services. 3. Knightsen This very small portion of far east county has the same needs that the rest of us do. Currently Knightsen has one small community park which is on school property and is currently being maintained by the Knightsen School District. Due to current fiscal constraints the future of the park may be in jeopardy and the new district could very well be the salvation for this facility and the only means by which additional facilities be acquired. 4. Discovery Bay Discovery Bay has taken an active role in attempting to fulfill some of its park and recreation needs. Currently it's about to complete a 10 acre facility that was built primarily through the use of grant funds. Unfortunately, since park dedication fees were not a portion of past requirements the future capabilities of Discovery Bay to expand its facilities or to implement new ones is questionable. There currently is a strong desire for a community center as well as the need for a beautification maintenance program. The new district is believed to be a viable means of providing: 1) Beautification maintenance, 2) long term maintenance of existing park facilities, 3) a vehicle for the aquisition of additional funds for park and recreational expansion. 5. Oakley The community of Oakley, perhaps the fastest growing portion of far east county, is in critical need of park facilities. There is currently a master plan for the Oakley area which was completed just this October and is a major step in the planning process for park facilities throughout the Oakley area. This new district would provide a stable existing politi.calentity by which this plan could be coordinated with a general plan for parks and recreation for the entire new district. The coordination of the Oakley master plan with the rest of east county would be a significant step in helping to meet their goals as early as possible while at the same time eliminating unnecessary duplication and/or competition for facilities. Obviously, one of the first things someone would want to know when being asked to join such a program is what advantages are there for them. Specific benefits have been noted above but the following will give each of you an idea of the "general" befiefits we believe will come from the new district: 1. Recreation Programs and Administration 2. Landscapes/Park Maintenance 3. Future development review and planning 4. Coordinated area representation to local and state organizations S. Cost efficiency of programs and operations 6. Elimination of immediate area competition for facilities or participants -2- 7. Eliminating the need for additional special districts 8. Provide more market of programs with regional appeal 9. Provide a stable, ongoing and recognized organizational stucture for recreation activities 10. Improve assessibility for maintenance and problem resolution 11. Provide an increase population base for the purposes of applying for grants and other funding. In evaluating the feasibility for such program it goes without saying that there are other significant issues that must be recognized and addressed in order for the endeavor to be successfull. Some of the issues which have been identified early on are: 1. Procedures for expanding the District It is anticipatd that since the entire far east county would be involved .in .this proposal the district's boundaries could be expanded through the annexation process. A proposal will be prepared and submitted to LAFCO (Local Agency Formation Commission) upon whos approval would then forward it to the Board of Supervisors for final authorization. At the same time, the new'-district would. negotiate with the County to receive a portion of the current ad valorem tax resulting in no tax increase to any land owner in the present or- new district. 2. Name Change To continue to identify the district as the "Brentwood Recreation and Park District", would obviously be inappropriate. Since the newly proposed district would encompass all of far east county representatives from this body would be responsible for developing a new name which would be more representative of the scope and functions of the new district. 3. Change in Board Composition Currently, the five member board of directors of the Brentwood Recreation and Park Diatric.t are appointed by the county with 3 members being appointed from the recommendations of the City of Brentwood andthe remaining .2 being on the recommendation of the 5th District County Supervisor. Naturally, upon annexation of the rest of far east county into the district the number and representation of board members would have to change. It is imperative that the board be reflective of the various communities which it serves. Therefore, one of the first orders of business would be to restructure the board's composition and perhaps expand its number to more appropriately reflect the population and needs of the various communities. 4. Needs Assessment An initial responsiblity of the new district would be to conduct a needs assessment to determine what is necessary in the various communities in order to meet not only the regional needs of the district but the individual needs of the local areas. This needs assessment would be an intregal component of the ultimate far east county recreation and park master plan that would undoubtedly be required and necessary in order to operate the district in the most cost efficient manner. -3- 5. Additional District Facilities With the expansion of the district it may be necessary to provide satelite office space in one or more locations throughout east Contra Costa County. This issue, along with that of adequate staffing, would be the function of the new governing board and should be reflective of the needs of the district. 6. School/Park And Recreation District Coordination More and morethe concept of' joint use facilities between recreation and park districts and local schools is being viewed as a viable means of providing facilities. The new recreation and park district would provide a most appropriate vehicle for this type of coordination and development. 7. Political Considerations In addition to convincing the residents of each community of the benefits of this district it will be necessary to show the leaders, both in the local communities and at the Board of Supervisors level, that this program,,is in the best interest of each and every citizen and community in far east' Contra Costa. 8. FundinR As is the case in most issues the entire sucess of the program will obviously hinge of the ability to provide adequate financing. There are several means by which financing can be secured for the purposes of development and operation of the new district. The new board will be responsible for coordinating efforts in all these areas. They are as follows: 1. Ad Valoren Tax Currently, the Brentwood Recreation and Park District receives a portion of the Ad Valorem tax (property tax) for each piece of property located within its district boundaries. During the annexation process of the other communities this same portion would be negotiated away from the county in order to provide funding for the operation of the district. It is similar to what has been occurring when the City of Brentwood annexes unincorporated land. During the annexation process the city has negotiated both on behalf of the park district and itself for a portion of the Ad Valoren tax that was being collected by the county. In evaluating the potential for revenue, the most preliminary indications are that the overall assessed evaluation of the Liberty Union High School District is $1,554,249,585. We estimate the new district's portion of the one percent property tax is collected would be approximately $300,000 per year. 2. Park Dedication Fees As development occurs throughout the district a fee is levied on each new unit of construction. This fee, commonly called park dedication fee, has been collected by the county and is placed in an account which can only be used. for the development of park facilities within the area it is collected. The new district would be responsible for ensuring that these fees are collectec and expended in an appropriate manner as development occurs throughout the entire far east county area. -4- 3. Assessments/Park and Maintenance District As a special distict, we would be in the position to be instrumental in fostering maintenance assessment disticts for new development as well as being in a position to levee a distict wide recreation and parks service fee, if approved by the communities. The fact that the special district exists gives it the ability to collect and monitor revenues of this type as well as to enter into specific maintenance agreements for such areas as the City of Brentwood and private/non district owned park facilities used by the public. CONCLUSIONS To this point, the Brentwood,Recreation and Park Distict has been exploring the interest of the various communities in the development of a single recreation and park district for far east county. If it appears that this is something the communities believe would be in their best interest it will be necessary to develop a feasibility plan which would clearly identify whether or not_ such a project is viable and worth undertaking. Initial contacts with.a consultant, familiar with both east county and such studies, has indicated that a two step approach would appear to.be most appropriate. First, a preliminary study to determine if the project is feasible at all. He anticipates the cost to prepare such a preliminary feasibility study would be in the neighborhood of 2 - 3 thousand dollars. If, as a result of this preliminary investigation it is determined that it is economically and politically feasible to develop a single recreation and park district for far east county a complete feaE:i.bility Study will be prepared for submission to LAFCO and the Board of Supervisors. Unfortunately, nothing is without cost and in order to make a sound judgement in this matter the staff at the recreation and park district believes that the preliminary study is critical. Therefore, if the interest is there we would hope the various communities would support the cost of the preliminary study. This would result in a nominal cost to each community but would also result in a document able to provide sound factual data upon which to determine the true feasibility of a new far east county recreation and park district. _....._.