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CITY HALL • 211 EIGHTH STREET
SEAL BEACH, CALIFORNIA 90740
(213) 431-2527
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January 29, 1970
Honorable Mayor and City Council,
City of Seal Beach
Seal Beach , California 90740
Subject: Report on Park Developments
Gentlemen:
At your meeting of October 6, 1969 , your Honorable Body authorized and_direct-
ed the City Manager to (1) open negotiations for an exchange of property
in order to acquire a park site in College Park East, (2) to present a
development plan for expanded recreational facilities at the First Street
beach, (3) to renew negotiations for leasing or acquiring property northerly
of the Marina Hill area for park purposes , and (4) to estimate initial and
reoccurring costs of these possible developments . This report is in compliance
with your authorization and direction.
History of Parks and Recreational Facilities in Seal Beach
Your Honorable Body will recall that until 1967 the City's total park and
recreation lands were comprised of the beach and Eisenhower Park , a land-
scaped area at the foot of the municipal pier, Ocean Avenue and Main Street.
This land was purchased by the City in 1939. The area is approximately 615
feet by 100 feet including the pier approaches . No playground equipment is
provided. The beach area was devoted almost exclusively to ocean bathing and
swimming. Parking facilities were provided at Eighth , Tenth and First Street
areas . A small playground facility was provided immediately east of the pier.
The only other public facilities which could be utilized for recreational
purposes on a restricted and limited scale were the two school sites located
within the City. Zoeter School ' Twelfth Street and Pacific Coast Highway,
has a total size of approximately 4.8 acres partially occupied by school
buildings. Tennis courts are available, a small "stadium" in connection with
a ball field is available and night lighting of the ball field is anticipated
in the near future. McGaugh School , Bolsa and Seal Beach Boulevard, has a
school-owned gymnasium which has been used on a regular basis by the City
during the past two years for adult recreation purposes. A ball field at
this site is also occasionally used by the City.
1)
Page Two t
In 1966, the City and school district jointly financed the construction of a
community swimming pool which the City operates after school and vacation
periods . The pool is located at the McGaugh Intermediate School .
Commencing in 1967, the City began a more progressive program of acquiring
and developing recreational and park facilities. Edison Park , a ten acre
area, is leased from Southern California Edison Company at a rental rate of
$500 per year for a term expiring February 14, 1972. Approximately two and
one half acres have been developed with grass and irrigation system and a
volleyball court has been constructed. The lease provides for certain re-
strictions as to use and development. A request has been made to Southern
California Edison Company for an extension of the present lease. Edison Park
serves College Park West. The area was dedicated in 1969 but was first used
during the summer of 1968.
An abandoned dead-end street-end in the College Park West area was utilized
to construct a basketball court during the present year. This facility also
serves College Park West.
Shapell Park , a 1.7 acre area, was donated in fee by S & S Construction Company
and affiliates , together with $5 ,000. It is currently the only park-recreation
area in College Park East. The facility currently has playground equipment,
multi-purpose and basketball courts , landscaping and an irrigation system.
The land was donated as part of a "package" to re-subdivide areas of College
Park East whereby housing units would not back up to the San Diego-Garden
Grove Freeway. No plans for park and/or schools were included in the original
development proposal and the annexation agreement of 1964. Shapell Park was
dedicated in March 1968 but really became usable by the summer of 1969. De-
velopment concepts previously approved by your Honorable Body include tennis
multi-purpose courts . A swimming pool was proposed at the Shapell Park location
but has not been approved within the development concepts authorized by the
City Council .
Schooner Park, Schooner Way, in the Bridgeport area , was developed and dedicated
to the City by Suburbia, Inc. , as part of the development plans approved for
their subdivision. The area is approximately three quarters of an acre and
also acts as a buffer-barrier between the sewer plant-corporation 'yard and the
Bridgeport housing development. No playground equipment is provided or anti-
cipated. The park was dedicated in 1969.
Marina Park, 151 Marina Drive, is currently being developed. The approximately
1.9, acres of land was purchased by the City from Suburbia, Inc. for a community
building and park. After deductions for street and parking purposes , approxi-
mately 1.5 acres is available for the community building and park purposes.
Marina Community building was dedicated in December 1969. The park development
includes playground equipment, two tennis courts , and a multi-purpose court.
It is not anticipated that one tennis court will be constructed during the
first phase of development. It is also anticipated that the park will be usable
for recreation purposes during the summer of 1970.
Page Three
In June 1968, the North Seal Beach Community Center, a 4,500 square foot
facility, was dedicated. The facility is located next to the public library
in the Rossmoor Shopping Center.
In December 1969, the Marina Community Center, an approximately 5 ,000 square
foot facility, was dedicated. Regular users of the Marina Community Center
presently include: the Veterans of Foreign Wars , the VFW Auxiliary, the
American Legion , the American Legion Auxiliary , Seal Beach Woman 's Club , Seal
Beach Junior Woman 's Club , Alanon , Republican Women , Democratic Club. Regular
users of the North Seal Beach Community Center include: College Park Homeowners
Association, Seal Beach Play Group, Boy Scouts , Girl Scouts , Little League,
Blue Birds , B'Nai Brith , Temple Beth , and Knights of Columbus.
In addition, dances have been held for teenagers at the North Seal Beach Com-
munity Center. Plans are now going forward to have slim and trim classes ,
teenage and junior high school dances and other recreational programs at the
Marina Community Center.
General Plan
In the Statement of Goals , the following was noted in the General Plan :
"The City's main recreation facility is the beach. An important goal
of the City should be the creation of a number of inland parks and
recreation facilities. This goal is a matter of urgency because of
the rapid disappearance of open land. The goals in the development
of parks and recreation facilities should be provision of a range of
facilities to suit the needs of various population groups , the distri-
bution of facilities strategically around the City, the multiple use
of public properties include recreation , and the choice of park loca-
tions which will serve the City's open space needs in addition to
active recreation. "
The General Plan, adopted in August 1966, specified certain park and recrea-
tional facilities. In brief, the plan provided for the acquisition of six
new neighborhood park sites, acquisition of acreage adjacent to Marina Hill
for active and passive recreation, obtaining of rights to land at the flood
control retarding basin , construction of additional improvements on the beach.
Specifically, the neighborhood park sites were designated as : three one-
acre parks located in the College Park area, two neighborhood park sites
in the Marina Hill area, and one park site in the ocean area. The Hellman
Ranch site was a proposed community park. This latter facility, which
included the bluffs behind the Marina Hill residential area , was to provide
and maintain open space at the two most important entrances to the City, on
the Pacific Coast and San Gabriel Freeways. The county flood control re-
tarding basin was also to be a community facility. The beach and waterfront
areas were considered as regional in nature.
Subsequently, on September 17, 1967, after hearings and approval by the
Planning Commission, the City .Council , after a public hearing, adopted a
park and recreation element to the General Plan. This element detailed to
a further degree the park requirements and beautification projects of the
City.
Page Four
The General Plan is general ; it does not specify exact acres , area or location
of a park. Therefore, in describing neighborhood parks , the area could be
1-5 acres for a population of 4-5 ,000 persons. The above figures are taken
from the proposed capital project and improvement section of the plan and •
were included as minimums and possible goals that could be met without
extreme difficulties.
Meeting the General Plan Goals
As you will note, the City is striving to meet the goals set forth in the
General Plan. Substantial compliance has been made during the past three
and one half years . In order to complete the General Plan goals for neigh-
borhood parks , one additional park is required for the College Park East area,
two neighborhood facilities are required for the Marina Hill area: Land has
not been acquired for the initial beginning of the proposed community parks.
With the exception of providing public utilities on the municipal pier, no
improvements have been made during the past three years to the beach area.
which would provide for more public use of said area.
It might be noted that in the forty two months since the adoption of the
General Plan, that considerable progress has been made in meeting the goals
established not only in' the area of parks-recreation-open space, but in all
areas of municipal government. It is reasonable to state that more progress
has been made than in any similar prior period of time, although there is
still much to be accomplished. Accomplishments include (1) Edison Park
meeting the goal in College Park West, (2) Shapell Park meeting part of the
College Park East goal , (3) Marina Park satisfying part of the ocean area
goal (4) North Seal Beach and Marina Community Centers , (5) community
swimming pool .
The goals outlined in the General Plan could be more adequately achieved as
far as park-recreation-open space areas are concerned with the acquisition
and use of the park facilities outlined in the section of proposed parks ,.
although the goals would not fully be achieved.
Proposed Parks-Council Request for Study and Negotiations
Bluebell Park-Neighborhood Facility
The proposed additional park to serve College Park East, designated as Blue-
bell Park, as shown on the proposed development plan , is approximately 1.2
acres. Development would include playground equipment and a small community
center (approximately 2 ,000 square feet) if the present S & S sales office
becomes available at minimum cost or on a donated basis . We believe the land
cost to be approximately $65-70,000 for about ten lots. Possible development
costs over a period of several years are in addition and tentatively as follows
(costs would depend upon total acreage acquired, etc. ) :
Page Five
Irrigation System $ 5 ,000
Landscaping 5,000
Multi-purpose courts 5,000
Playground apparatus and area 5,000
Community building , move in , etc. 5,000
Restrooms , recreation shelter 10 ,000
35 ,000
Engr. , plans , inspection 5 ,000
Contingency 4,250
Total $44,250
In the proposed capital improvement plan for completion prior to 1985 , it was
assumed that $40,000 (without contingencies) would be expended during a period
of 1970-71 through 1977-78, at the rate of $5,000 per year.
Gum Grove Park-Neighborhood and Community Park
The Gum Grove area (Bullet Hill) , if purchased at today's rates and land cost,
would require approximately $176,000 for the proposed 10.49 acres site plus
the cost of additional appraisals , attorney fees , court costs , etc. connected
with eminent domain proceedings . As your Honorable Body is aware, the owners
of the property have in the past indicated a willingness to lease the area for
the amount of taxes ($3,300-3,500 last year) for a five year period, with sub-
sequent extensions of one year periods. Termination of the lease could be
made after the initial four year period on one year's notice. Use would be
restricted to day time only. The City would be required to fence the property '"`
and no major structural improvements could be made without the approval of
the property owners. The land has a grove of approximately 850 eucalyptus
trees, mostly second growth, occupying approximately eight acres of the total
site. The land is currently zoned R-1 7,000. It is estimated that approxi-
mately eight acres of the 10.49 acres site could be used for housing develop-
ments by the use of a 11/2: 1 grade cut. Such a grade cut is permitted by the
Uniform Building Code. On the basis of the estimated cost of the site, the
rental rate proposed (that is the taxes on the property) represents an annual
payment of less than 2% of the possible capitalized cost of purchase.
The estimates of costs can vary considerably depending upon a number of
assumptions. The following costs are minimum estimates , designed to produce
a natural area that provides a buffer zone, open space and the initial begin-
nings of a future community park. In all probability, extensive investments
would not be made until such time as the City has title to the property. The
estimates of costs are as follows :
Fence (required) and road $ 20 ,000
Clean Up - first year 5,000
Clean Up - second year 5 ,000
General Minimum development 15,000
(picnic. tables , trails , etc. ) 45.000
Engr. , inspection , etc. 6 ,750
Contingency 5 ,175
Total $ 56,925
•
Page Six
It might be noted, however, that the cost of development, $15 ,000, could be
delayed if so desired by the Council , leaving a cost estimate of $30-35 ,000.
It was programed in the proposed capital improvement plan that $20 ,000 would
be expended in 1970-71 and $5 ,000 per year for the following five years.
First Street Area
The First Street beach area has recently become more intensely used than in
the past and it is expected to become one of the more popular beach areas in
the City. It is common knowledge that ocean beach area is insufficient for
the population and state-wide policy appears to be encouraging greater use of
beach facilities .
The First Street area is totally on State owned tidelands , with a lease to
the City for a period of about 47 more years. Funds derived from the area
must be utilized for tideland trust areas and purposes .
You are aware that the access to the First Street beach area and parking lot
is over land owned by the City of Los Angeles ' Department of Water and Power
with a use license to this City which may be terminated on 180 day notice.
The parking lot currently has approximately 133 auto parking spaces ; lot
revenue is currently limited to the summer period primarily. Additional
capital improvements , i .e. comfort stations , have not been actively considered
in the past because of the lack of City owned access to the area.
The estimates of capital costs can vary considerably depending upon policy
determinations of the City Council . The following is the expenditure
contained in the proposed capital improvement plan previously submitted to
your Honorable Body:
Sanitation facilities & $ 20,000
small recreation office
Parking lot expansion 25,000
Recreation facilities & landscaping , 20 ,000
Additional recreation facilities 145 ,000
410,000
Engr. , inspection, planning ; 16 ,500
Contingency 12 ,650
Total $139 ,150
The budgetary plan included $20 ,000 per year in 1970-71, 1972-73 and 1973-74,
$5,000 per year in 1971-72 and 1974-75, $10,000 in 1975-76 and $15 ,000 in
1976-77 and 1977-78 for a total of $110,000 capital construction cost estimates .
The enlargement of the parking lot area would not be in front of any residence
along Ocean Avenue although the enlargement would include easterly and ocean-
ward expansion to provide for a total of 250 parking spaces . Additional revenue
could, therefore, be realized. A concession (food) could also be planned and
would produce rental revenue.
The projected costs of improvement could be easily reduced by the elimination
of recreational facilities , i .e. handball courts , or could be postponed beyond
the dates mentioned above.
Page Seven
Operational Costs
Again, estimated operational costs would depend upon the facilities constructed
at each proposed park-recreation area. It is assumed that the operational
cost of Bluebell Park would approximate that of Edison, Marina or Shapell and
is the basis of the estimate below. It is assumed that the operational costs
of the other two facilities would be approximately equal to the summer expendi-
tures at Shapell , Edison or Marina Parks . This assumption could prove invalid
depending upon Council policy.
Estimated Annual
Recreation Costs
Bluebell Park $ 3,500
Gum Grove Park 1,700
First Street Beach Area (upon 1 ,700
completion of some recreation
facilities)
Total $ 6,900
In addition , the three facilities combined would require about one man year
of routine maintenance other than development time and expense, or approxi-
mately $9,000 per year, bringing operational costs to a total of less than
$16 ,000 per year for the three facilities .
Proposed Financial and Development Plans
A sum of $139,150 is projected as capital costs for the First Street beach
area exclusive of any costs in connection with purchase of access . This
office is now in-preliminary discussions and negotiations for an exchange
of City rights in Ocean Avenue westerly of First Street for road easements
for an extension of First Street to the beach area. Should this exchange
prove feasible, there would not be a cash outlay for access . Should the
possible exchange not be negotiated, the City could wait until the adjacent
Department of Water and Power property is sold and then attempt to negotiate
an access to the beach. It might be noted that developing state policy includes
maintaining access for the public from land to the ocean. The above methods ,
or a third possibility of purchase, should therefore, in our opinion , be
favorably considered by your Honorable Body.
The Gum Grove area appears to be available through a lease with compensation
to the "landlord" of an amount equal to the taxes on the leased property. A
lower rental figure could not be imagined and/or obtained in our opinion. It
might be noted that funds necessary to purchase the property could readily be
invested at interest rates effective over the past two years to produce an
amount equal to three times the rental rate (at present tax rates and assessment
valuations) . The cost benefit, therefore , becomes very favorable even including
the limited capital project costs outlined above. Should the City enter into
an agreement for the lease of the Gum Grove property , a reasonable period of
notice to terminate is available which would allow the City, if necessary, to
allocate funds for the purchase of all or part of the proposed park. However,
there appears to be no reasons why the property owner would terminate the lease
until such time as the adjacent property is developed. The property is currently
zoned P.-1, with minimum lot size of 7,000 square feet.
Page Eight
In all probability, a precise plan or other request would be made for lot
sizes compatible to those on the "Hill " or other types of residential
development; such a development would necessitate the dedication of park
land or payment of a park acquisition fee. It is reasonable to note that
the development of the Hellman acreage within the City (and there is also
a sizeable parcel outside the City not used for oil production purposes)
would require approximately five acres of land to be dedicated for park
purposes, which together with the "unusable" portion of the Gum Grove bluff
area approaches the acreage being considered for lease. In our view, therefore,
it is a reasonable assumption that most and possibly all the park area proposed
to be acquired by lease will remain a park area regardless of any adjacent
developments -- if that were to be the policy of the City Council and the
present ordinances are enforced.
Concerning Bluebell Park, negotiations continue and are not finalized but
involve the principal that the property to be acquired would be for the
water department, part of the water system, and the surface utilized for
park purposes . In this manner, the price would be included in the reimburse-
ment-purchase agreement for the water system, with payment for the land
included in present payments from water sales in the College Park area. The
cash outlay for the next several years would therefore be restricted to
development costs only. Concurrently, negotiations are in progress to
realign roadways in the area of Bluebell Park , requesting Bixby Ranch Company
to dedicate street easement areas to park purposes. If the request were
agreeable to Bixby Ranch Company, the size of the park could perhaps be
increased without a substantial increase in cost.
In summary, it appears that no large capital outlay for acquisition may be
necessary if all negotiations prove favorable to the City. In the most
unfavorable situation -- i .e. purchase of the Gum Grove , Bluebell Park. and
First Street beach access -- the cost would approach $300,000. It would,
therefore, be our thought and recommendation that the procedures outlined
above involving exchange of easement rights for First Street, use of the water
system reimbursement-purchase and lease of the Gum Grove area be favorably
considered.
Ordinance Standards
You will recall that your Honorable Body adopted an ordinance under provisions
of the State Quimby Act to require park land dedication in new subdivisions.
This ordinance requires certain land areas for park purposes based upon
certain standards. Applying these standards to some of the areas of the
City indicates the need to acquire property now.
Approx. present "Standard" under
park area Ord. Prov. (approx. )
College, Park West 2.5 partially developed, 2.8 ac.
10 ac. total available
College Park East 1.7 ac. , additional 15.0 ac.
1 .2-1.5 proposed
Ocean Area 3.5 ac. , additional 15+ presently,
. 75 proposed on Electric- 30+ ac. in 1985
12th in future
Riverfront Area (part of above in ocean area)10.0 ac.
Balance of City in Total. 40 ac. approx.
Page Nine
Ad Hoc Park Committee Recommendations - Priority of Parks
At the time of preparation of this report, one phase of the Ad Hoc Park
Committee's function has been completed and their recommendations are
summarized below:
1. The acquisition of a neighborhood park site, designated for
study purposes as Bluebell Park , at Almond Avenue and Bluebell Street,
in the College Park area; and further strongly recommend that efforts
be made to acquire additional land beyond the. proposed 1.2 acre site if
at all possible. The recommendation and priority is made in realization
that approximately 1,500 children between the ages of five and seventeen
years of age will live in College Park East within less than two years ,
only one small park-recreation area is now available , no school facilities
are provided within College Park East; and land will not be available for
park purposes unless acquisition is made in the immediate future. The
proposed site is in accordance with the General Plan.
2. The acquisition of a third park-recreation facility in College
Park East, or which is so located as to serve the College Park East area
conveniently. Such facility would be profitably utilized for such
activities as softball , baseball , and other recreation and sports
activities requiring larger land areas.
3. The leasing of a portion of the Heldman Estates property often
called the Gum Grove area, and sometimes referred to as Bullet Hill ,
on the terms and conditions outlined by the owners. The leasing of
this site, while of a lower priority than park areas in College Park
East, should not be contingent and/or dependent upon the acquisition.
of a third park site in College Park East.
4. The acquisition of a permanent access to the First Street beach
area is in keeping with state policies and would be beneficial to the
citizens of the community. A high priority should be given to said
acquisition in order that additional beach recreation uses may be made
in that area over a period of several years. '
5. The acquisition of neighborhood park site and/or tot lots in the
Marina Hill and Ocean areas.
6. The acquisition of additional land adjacent to the proposed Gum
Grove Park.
7. The development of the retarding basin area.
Recommendation
In view of the indisputable fact that open land is becoming rapidly less
available, the goals and policy of the City to date as outlined in the General
Plan and this report, together with our professional opinion concerning the
absolute necessity to improve the environmental conditions of the City, it is
recommended that your Honorable Body by minute order approve the following
procedures and policy relating to the next phase in park acquisitions :
Page Ten
1. The City Manager to proceed with all due and deliberate speed to
complete negotiations for the acquisition of Bluebell Park utilizing
the financial procedures' outlined' above in connection with the water
land and system, to continue negotiations concerning the acquisition
of two additional lots (making a total of twelve) and/or the realign-
ment of roadways to bring the total net area up to 1.5 acres .
2. To authorize drafting of a lease for the Gum Grove area commencing
July 1, 1970 under the terms and conditions outlined herein.
3. To authorize and encourage the exchange of easement rights in
Ocean Avenue westerly of First Street for similar rights for an
extension of First Street and to direct the City Manager to proceed
with these negotiations .
4. To approve as preliminary concepts the proposed plans for the above
mentioned areas , with determination of various portions of development
to be determined annually commencing in 1970-71.
5. To establish as the policy of the Council that a priority equal to
the highest -priority is to be given to land acquisition (lease or purchase)
for park-open space-recreational purposes .
6. To dedicate by resolution the City owned property at the southwest
corner of Eighth Street and Ocean for park purposes =- such a portion
would be in keeping with the thoughts of the State as expressed in
prior communications and information given your Honorable Body.
7. To approve a policy statement that the Council supports the acquisition
or lease of Bluebell and Gum Grove Parks and access to First Street beach
and the development of the First Street beach area.
8. To direct the City Manager to investigate the possibility of federal
grants for open space-park areas for further acquisitions in keeping
with the General Plan and in keeping with the President's announced
policy (including federal lands) .
Very trul, 7.urs ,
-e sn•r
City Manager
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