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HomeMy Public PortalAbout19770224 - Agendas Packet - Board of Directors (BOD) - 77-06 Meeting 77-6 MIDPENINSULA REGIONAL PARK DISTRICT Special Meeting Board of Directors N O T I C E February 24 , 1977 8 :00 P.M. Heather Elementary School 2757 Melendy Drive San Carlos, CA The Board of Directors of the Midpeninsula Regional Park District will hold a Special Meeting on Thursday, February 24 , 1977 at 8 :00 P.M. in the Multi-use Room of Heather Elementary School , 2757 Melendy Drive, San Carlos, Calif- ornia, for the purpose of holding a Public Hearing on the Site Evaluation of the Hassler Health Home Property. A G E N D A (8 :00) ROLL CALL (8 :05) PUBLIC HEARING 1. Site Evaluation of Hassler Health Home Property 'i (10 : 00) ADJOURNMENT i i i I L �I i i I i i (See map on reserve side) i V, _19 AEW_ (Meeting 77-6 , or Agenda item No. 1) MIDPENINSULA REGIONAL PARK DISTRICT MEMORANDUM February 18 , 1977 TO: Board of Directors FROM: H. Grench, General Manager SUBJECT: Site Evaluation of Hassler Health Home Property On February 24 , 1977 , the Board of Directors will consider a report from staff regarding the site evaluation of the Hassler Health Home property. The report has not, unfor- tunately, been completed in time for mailing with the Special Meeting agenda. The report will be delivered to the Board at the earliest possible time. HG:acc R-77-10 AW (Meeting 77-6) MIDPENINSULA REGIONAL PARK DISTRICT REPORT February 24 , 1977 TO: Board of Directors FROM: H. Grench, General Manager SUBJECT: Site Evaluation of Hassler Health Home Property Introduction: At its meeting of January 26, 1977 the Board of Directors was presented with an urgent request of the City Council of San Carlos to acquire the Hassler Health Home property. The Council Resolution pointed out that the City had "already, by its action of its voters, provided for one-half of the cost of acquisition of said Hassler Lands and is actively engaged in seeking matching funds in order to consumate the purchase of these lands. . . . " The Resolution further stated that "the City is making a formal request to the Midpeninsula Regional Park District to acquire the property in total . . . . " Testimony by the Council representatives seemed to indicate that it was hoped that the District would pay the full cost of the property, although the possibility of a lesser contribution was acknowledged. This site has been discussed for potential District acquisition or participation since the commencement of annexation activities. After the successful annexation vote in June, 1976 the District moved immediately to extend its activities to the new area. Extension of the District' s draft Master Plan was begun, and the new printed draft of this valuable open-space resource inventory should be available in March. Staff and Board also began an investigation of specific sites and of the new territory in gen- eral. The Board adopted a policy which allowed immediate land acquisitions to be made in the newly annexed area even before December,, 1977 when the first tax revenue increment would accrue to the District. Because of the considerable public interest in the Hassler site, it has received an extraordinary amount of attention, including a Special Meeting of the Board for the purpose of a site tour. The threat which so many citizens of San Carlos feel from the prospect of a State correctional facility at that location has created a new sense of urgency toward commitment of this pro- perty as open space. As a result on January 26, the Board of Page two Directors moved that staff be directed to report to the Board at the earliest possible meeting on the possible use and manage- ment plans, including potential costs , for the Hassler property and on various possibilities for funding the acquisition, develop- ment and operation of the property, and how the District might participate. Background: The City of San Francisco operated a tuberculosis sanitarium on a small portion of the land from 1927 . The remain- der of the property was left in a near natural condition. In the 1960 's the site was determined to be excess to the needs of the Department of Public Health. Since being closed as a tuberculosis hospital, several potential public or quasi-public uses for the building complex have been suggested. Two of the most prominent are a treatment center for developmentally disabled children and a rehabilitation facility operated by the State Department of Corrections. Parallel to discussions regarding the building complex, the City of San Carlos has aggressively pursued long term protection of approximately 280 acres as permanent open space. The City of San Carlos has indicated that the proposed asking price by San Francisco is $2. 1 million. Measures to finance acquisition have included passage by residents of San Carlos of a ballot measure which allows for a local tax of up to 7� per $100 of assessed val- uation which could finance $1.1 million in bonds. Implementation of this taxing perogative is dependent upon securing supplemental funding of a projected $1 million. The following attempts have previously been made to secure supplemental funding: (a) A request for participation by San Mateo County and eventual development of the site as a County park - this proposal was declined by the San Mateo County Board of Supervisors. (b) Application for Land and Water Conservation Funds such application has twice failed to secure funding. A. Description of the Site. 1. Location and Boundaries. The site lies within the north- east quadrant formed by the intersection of Interstate 280 and Edgewood Road (see attached map) . It is bounded on the northeast by residential development within the City of San Carlos and on the southwest by Interstate 280 and then watershed lands of the City and County of San Francisco. An 80 acre undeveloped private holding forms the northwestern boundary, while Edgewood Road is the boundary on the southeast. The site is an unin- corporated area of San Mateo County. age three within the Sphere of Influence of the City of San Carlos. 2. Topography and Geology. The site consists of a prominent ridge with intermittent creek canyons on either side. Max- imum elevation is 653 feet. The San Andreas Rift Zone is located one half mile to the south. 3. Vegetation and Wildlife. Vegetation on the site varies from riparian oak woodland in the canyons to chaparral on the hillsides and ridges, with exotic species in the area of the­Health Home. These plant communities would be expec- ted to furnish habitat for numberous bird species, mule deer, ground squirrels, brush rabbits and other small mammals. 4. Vehicular Access. Edgewood Road provides the only vehic- ular access onto the site. A narrow, surfaced two-lane road enters the property from Edgewood Road by first pass- ing over a right-of-way for the Hetch Hetchy Aqueduct which is owned and operated by the San Francisco Water Department. The road serves the Hassler Health Home com- plex and continues past the buildings along the main ridge to a water storage tank located near an Interstate 280 vista point with no connecting vehicle access to it. A minor access point, without a paved road extension onto the property, is provided by an unsurfaced road leading from Edmonds Road, past the Canyon Hospital to a boundary fence. It is not clear whether an access easement to the Hassler property goes through this area. The City of San Carlos has been studying the realignment of roads in the vicinity of the current Hassler entrance. The roads which could be realigned include Crestview, Bow, Quarry, Edmonds, Hassler and Edgewood. Such realign- ment could influence vehicle access to the Hassler site. 5. Public TransIgortation. Local public buses currently run within about a block of the site. --6- Existing Structures. Refer to the attached map for locations of the following utilities and structures. (a) The Hassler Health Home complex is located on the ridge top and has a total floor area of approximately 120 ,000 square feet. It is comprised of a group of structures built dur- ing the period from 1926 to 1939 . The devel- oped area includes about 12 acres. (b) A sewage treatment plant is situated near the east corner of the property. (c) A group of animal enclosures, including a dog run,lies beyond the buildings. Page four The San Mateo County Historical Association has found no evidence to indicate that there is anything of par- ticular historical, archeological or architectural sig- nificance on the property. 7. Utilities. The water supply to the building complex comes from the Hetch-Hetchy Aqueduct. Reserve storage tanks located near the Interstate 280 vista point provide a relatively small reserve capacity on the site. A pump is located on the Hetch-Hetchy right of way. In 1944 with the completion of the Belmont-San Carlos treatment plant, the Hassler sewer line was connected directly to the new Edgewood sewer system, thereby dis- continuing the use of the on-site treatment facility. The City and County of San Francisco have retained rights to a 300 ,000-400 ,000 gallon per day outflow even though the Health Home facility is not operating at capacity. With the increased use of the existing sewer line along Edgewood Road, it is questionable as to whether or not the line would actually be capable of carrying a large increase in outflow. A. Potential Additions and Adjacent Properties : It is District policy when evaluating the potential of a site for open space acquisition to consider as possible future additions adjacent and nearby lands which form portions of the same environmental unit. 1. San Mateo County Canyon Hospital. This 20 acre property with a 120 bed hospital represents an inholding on Ed- monds Road. One floor of the building is currently used as a County Coroner 's office, and the remainder of the facility is empty. Another portion has been used as a police academy. Long term plans for the building call for possible establishment of a County psychiatric hospital. The placement of this building (in the mouth of the can- yon) is such that it seriously detracts both from the functional use and aesthetic experience of the southern- most canyon. A loop trail system for the site would logically include passage through the area currently occupied by this facility. 2 . Hetch Hetchy Aqueduct Right-of-Way. A 60-foot-wide right-of-way along Hassler Road adjacent to the eastern corner of the property is owned by the San Francisco Water Department. Visitors to the Hassler Health Home area must pass through this parcel, which contains a Page five sizeable structure presently used by the City of San Fran- cisco as a Single Men's Rehabilitation Center. The Water Department has in other locations given permission for public recreational use on their rights-of-way with the restriction that no permanent structures be constructed; however, the Department's attitude toward this area is not known. 3. Private Land. An 80 acre parcel of private property ad- jacent to the northern boundary of the site comprises part of the Devonshire Canyon drainage area. Future development would endanger the environmental integrity of the stream canyons below, as well as detracting from the scenic values of and from the Hassler Site. C. Alternative Sites and Master Plan Scoring. The MRPD planning process includes consideration of alternative sites that would serve area residents. A logical service area for residents of Redwood City and San Carlos should include sites within a 15-20 minute travel distance of the population center. Such sites could be reached via Edgewood Road, Jefferson Avenue, Farm Hill Boule- vard, Woodside/Canada Roads and Interstate 280. There are three general areas identified in the draft MRPD Master Plan which fit this service area criterion. They are listed below, with the average composite scoring on a scale of 0 to 10 from the draft Master Plan: Average Average Score Sextile 1. Hassler Site 5.3 3.1 2. State College Site- a parcel of 5. 7 2 .4 470 acres located southerly across Edgewood Road, owned by the State of California as a formerly proposed State College site. This property has good potential for park use and open space preservation. 3. Area West of 1 280 5. 8 2. 0 In addition there are other potential major park and open space areas located within the same approximate travel time from urban areas. Travel time for the Hassler property and the considered adjacent lands is estimated to be 10-20 min- utes from the population center of the District's San Mateo County annexation area. Page six The Master Plan scoring is based upon a resource analysis of lands for the following open space functions: Protec- tion of Natural Vegetation, Protection of Wildlife, Outdoor Recreation, Guiding Urban Form, Scenic Preservation and the Protection of Agriculture. This analysis indicates that the other two areas score higher than the Hassler site; however, the Hassler site average score ranks midway among scores of all lands in the District's planning area. D. Use and Management Alternatives. 1. Use. There are three potential levels of use for the area: a. Passive - No parking area would be provided and no trail system developed. Primary use would be pro- tection of natural resources, preservation of scenic backdrop and occasional hiking. b. Low intensity recreation - Opportunities such as hiking, equestrian use, nature programs , some developed parking and trail system would be provided (this is typical of MRPD facilities) . C. The uses mentioned under (b) above plus developed picnic areas and possibly play meadows. These types of use presuppose either removal of the existing buildings or finding a compatible use, which is one where the use associated with the buildings and the auto traffic generated does not conflict with the pre- servation of natural qualities and recreational use. Cost of removal is estimated at $200,000 to $400 ,000 , depending on such factors as salvage value, time con- straints, amount of material that could be buried on-site, etc. 2. Management. a. The recent City of San Carlos application for federal Land and Water Conservation funding proposes manage- ment and operation of the site by the City of San Carlos. Management by San Carlos would be appropriate for any of the levels of use discussed previously. b. Joint San Carlos/MRPD - The MRPD could possibly par- ticipate in management if San Carlos assumed respon- sibility for police and fire services and any developed recreation facilities such as picnic areas , day camps , irrigated meadows , etc. In addition, participation by the District would imply a level of public access accomplished by adequate parking and developed trail system. This would be consistent with current MRPD Board policy. Page seven C. San Mateo County - San Mateo County might also manage developed recreational facilities. E. Environmental Impact. The City of San Carlos has already filed an Environmental Impact Analysis for potential use levels addressed above in connection with its federal grant applications . Thig Analysis has been reviewed by appropriate jurisdictions . If the project proceeds on the basis recommended below, San Carlos will be responsible for meeting requirements of -the, California Environmental Quality Act. The project has been found by the City to be in conformity with the City and County General Plans. F. Compatibility of Public Open Space and a Facility. It has been suggested by representatives of the State Depart- ment of Corrections that except for the area immediately encompassing the Hassler Health Home buildings , the site could be leased or perhaps given to San Carlos or the MRPD for public open space use. Considerable reaction from the public has already been received to the effect that adults would not feel safe themselves or for their children near a "prison. " Although examples have been cited wherein homes and public facilities do co-exist quite nicely with correc- tional facilities , none of the examples seem to correspond closely to the present situation. In this case, the facility would be surrounded by open space covered with dense vegeta- tion. Although the passage of time would undoubtedly see a reduction of fears if no incidents occurred threatening people' s safety or peace of mind, the site would probably never be used to its full public open space advantage . The potential environmental impact of any necessary clearing of land around a facility is not known since specific plans are not available. G. Finances. The District' s $2,446 ,000 budget for land this fiscal year is derived from $1 ,446 ,000 in cash and $1,000 ,000 in new' debt. The Board's policy is to investigate and acquire land in the newly annexed area immediately, even though new tax revenue does not accrue to the District from the San Mateo County area for a year and a half after the annexation took place. Assuming the same assessed valuation and tax rate as this year and considering that the first year' s taxes would in- clude only the secured roll, the first San Mateo County tax increment of about $365,000 of a total of $820 ,000 would be collected in December, 1977 . The District is therefore in the position of having more land to acquire potentially, while having the same amount of money for the next several months. 11 now j Page eight The table below lists funds already allocated this year for land commitments on new sites and on additions. Principal Payment New Debt Los Trancos Open Space Preserve $ 182 ,000 $ 600 ,000 Picchetti Ranch 145 ,000 355 ,000 El Sereno Open Space Preserve 49 ,000 0 North Foothills Open Space Pre- serve 26 ,000 0 Saratoga Gap Open Space Preserve 20 ,000 269 ,000 Fremont Older Open Space Pre- serve 471 ,000 0 Permanente Creek Park 300 ,000 0 Stevens Creek-Baylands Nature Study Area 210 ,000 0 Total $1,403 ,000 $1 ,224 ,000 Budget $1,446 ,000 $1,000 ,000 The Board previously approved the 20% excess debt commitment of $224 ,000 as capable of being paid off in future years with- out unduly affecting the District 's program. Although the cash budget for land is almost completely committed, almost half the year remains , and staff has been investigating other properties which might be offered to the District before the year's end. Some of these seem as threatened and at least as valuable as open space resources as the Hassler site. Since the initial tax revenue increment for a fiscal year lags the July 1 start of the fiscal year by six months, reserve funds of $765,000 are budgeted in the 1976-1977 year for land expenditures in the first half of the 1977-1978 fiscal year. Expenditure of these funds could be made on an emergency basis this year, but at the expense of next year 's acquisition pro- gram. In order that cash reserves not be affected seriously, a major expenditure such as indicated on the Hassler site or on other potential acquisitions would have to be funded by longer term financing, such as an installment purchase from the landowner or a bank loan. Although this type of financing can serve to tie up open space lands before they can be developed, it is only done at the expense of less future acquisition and more money spent on interest. Page nine Income from the sale or lease of the former Hassler Health Home buildings could be used to help defray acquisition costs. However, uses of the buildings compatible with public open space have not yet been established and are therefore inde- terminable as potential income. Nonetheless, given the pas- sage of time and a commitment to seeking compatible uses, this potential source of income seems promising. The possibility of receiving a federal Land and Water Conser- vation Fund grant toward the project is not dead in spite of the lack of approval by the past Secretary of the Interior. A grant of $1. 1 million had been recommended by the State Director of Parks and Recreation and by the Director of the Regional Office of the Bureau of Outdoor Recreation. In the forthcoming grant year there will probably be twice the over- all funding for the Land and Water Conservation program, and a reapplication may be favorably received. Because of this, I have requested a waiver of retroactivity from BOR which would allow, at the applicant' s risk, the acquisition of the property before grant approval. The applicant would be either the Mid- peninsula Regional Park District or the City of San Carlos , and the cooperative nature of the project would probably enhance the possibility of grant approval. Other grant sources are also possible. For example , the City of San Carlos receives SB 174 funds in San Mateo County and federal Revenue Sharing funds that the District does not re- ceive. The District and San Carlos will undoubtedly receive funds from Proposition 2, although the San Mateo County allo- cation formula has not yet been adopted. Both agencies budget such funds according to overall priorities. The current think- ing of the city parks and recreation heads within San Mateo County is that 90% of the Proposition 2 monies should go to the cities and recreation districts, leaving only 10% for the MRPD and/or County. San Mateo County is currently reviewing the Parks and Recreation Element of its General Plan. As part of this review, a Citizen' s Committee is considering many compet- ing park proposals, including the Hassler site. Conclusion: The Hassler property is unique among sites which the District has acquired or potentially might acquire. The open space resource values and functioning of the site as public open space have, however, been compromised by the former Hassler Health Home buildings, the road system, the adjacent San Mateo County and San Francisco facilities, and the noise impact of Edgewood Road and Interstate 280. Furthermore, the District' s cash position is weak, and its potential debt commitment must also be allocated to other costly, high priority, threatened sites within the District. Nonetheless, the major portion of the property is indeed undevel- oped open space immediately adjacent to heavily urbanized San Carlos and Redwood City and could be enjoyed by a great many people, both Page ten actively and passively. The existence of public transportation very close to the site is an important advantage. Moreover, the site has specific attributes such as lovely canyon areas, vista points and interesting trail routes. The intense public interest in San Carlos in preservation of this area, as evi- denced by the almost two-thirds vote to incur a City-wide tax tloward, this,purpoae, seems worthy of District support. For these s, the following recommendations are being made. Recommendations : ' It is recommended that the Board adopt the follow- ing position with respect to the Hassler site: 1. The District will lend its support to the acquisition of the Hassler property and to the search for use of the former hos- pital buildings as San Carlos projects. 2. The District will finance its contribution through installment purchase with San Francisco, a bank loan, or other means not requiring cash. 3 . Assuming financing can be arranged, the District will contribute the lesser of $1- 05 million, or 50% of the fair market value as determined by appraisal approved by the District, toward the acquisition of the Hassler property by San Carlos. 4. San Carlos will convey a conservation and open space easement on the undeveloped portion of the site to the District. 5. All net income from the sale or lease of the portion of the site developed with the former hospital facilities and all income from any federal Land and Water Conservation Fund grant, County grant, or any joint grant application which helps finance acquisition will accrue equally to San Carlos and the District. Any other State or federal grant toward the project arranged solely by San Carlos or the District will accrue only to that applicant. 6. After San Carlos finds a use for the former hospital buildings compatible in the District' s eyes with open space use of the rest of the land, thec,District will consider managing the open space portion of the land as undeveloped public open space in accordance with a site use and management plan developed by the District, provided that San Carlos will provide police and fire protection. District would provide ranger patrol of the open space. 7. San Carlos shall be responsible for the maintenance and security of the buildings. Any new construction, additions or reconstruc- tion of the buildings would be subject to the approval of the District. 8. If San Carlos or San Mateo County wishes park development with picnic or other facilities, site operation and such development would not be borne by the District. Page eleven It is further recommended that the President of the Board send a letter to the San Carlos City Council outlining the District' s position. 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N _ ...... 40Q t � San . ��la l\ . �� .. � ari ♦, vi P 4f, b i- H A S S L E R P R O P E R T Y e C,/ /J/.� •�j �� FRANC/SC �e'�,��_ \ i T.6 ' ^.•"�T�' `'. EOG E.000 �_� -------- Potential Trails srATE ff$N AND .Ho �+et t+.t"''• 1 4 ,f`' GAME REFUGE .3E��--�- �,� 1 San Mateo County Property 2 Hetch Hetchy Right-of-Way \` ��� -5 2' Y zT l 3 Adjacent Large Parcel a Hassler Health Home ,: '? b Sewage Treatment - { �'� y—^.r Redwood Park• — l: + •\ % C . Animal Enclosures <� �— w,+�' 4 ?, .,; .'.