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
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(See map on reserve side)
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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.
Staff would work with the staff of San Carlos to prepare necessary
documents for Board and Council consideration to implement policy.
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