HomeMy WebLinkAboutApprove Surplus School Property Purchasing Plan and Direct S Council/Agency Meeting Held:
Deferred/Continued to:
*Approved ❑ Conditionally Approved Ll Denied Ci a Si ure
Council Meeting Date: May 2, 2005 Departme Number: PL 05-15
CITY OF HUNTINGTON BEACH
REQUEST FOR COUNCIL ACTION
SUBMITTED TO: HONORABLE MAYOR AND CITY CO NCIL MEMBERS
SUBMITTED BY: PENS �CBRETH-GRAFT, City Admi ' trator
PREPARED BY: HOWARD ZELEFSKY, Planning Director
JIM ENGLE, Community Services Direc o r.,
SUBJECT: Approve Surplus School Properly Purc ing Plan
Statement of issue,Funding Source,Recommended Action,Alternative Action(s),Analysis,Environmental Status,
Attachrimm(s)
Statement of Issue:
The disposal of surplus school property that qualifies as park or recreational open space is
regulated by the Naylor Act. This Act gives the City first priority to acquire a surplus school
site but requires the City to adopt a Surplus School Property Purchasing Plan prior to such
acquisition. This report transmits a Surplus School Property Purchasing Plan for the City of
Huntington Beach for City Council consideration.
Funding Source: Not applicable.
Recommended Action:
Motion to:
1. "Approve the Surplus School Property Purchasing Plan (ATTACHMENT NO. 1)", and
2. "Direct staff to update the Surplus School Property Purchasing Plan as additional
school sites are surplused for City Council approval."
Alternative Action:
The City Council may make the following alternative motion:
"Continue the Surplus School Property Purchasing Plan and direct staff accordingly."
F-I
REQUEST FOR COUNCIL ACTION
MEETING DATE: May 2, 2005 DEPARTMENT ID NUMBER: PL 05-15
Analysis:
The disposal of surplus school property that qualifies as park or recreational open space is
regulated by the Naylor Act. This Act gives the City first priority to acquire a surplus school
site but requires the City to adopt a Surplus School Property Purchasing Plan prior to such
acquisition. The purpose of the attached plan is to fulfill this Naylor Act requirement.
There are 14 closed school sites in the City of Huntington Beach at this time. Two of these
sites have been surplused. The Surplus School Property Purchasing Plan considers the
existing open space and recreational opportunities at all 14 sites in the context of the open
space needs of the community. The Plan provides background data and analysis for the
closed school sites, including the open space needs of the community within the vicinity of
each closed school, the youth sports that are allocated to each site and adjacent parkland.
The Plan identifies a range of acquisition options for the City of Huntington Beach and
includes a recommendation for priority acquisitions for sites that are currently surplused.
Approval of the Plan does not require that the City acquire any of the school sites. Staff
recommends that the City Council approve the Surplus School Property Purchasing Plan
because it provides a comprehensive review of the closed school sites and fulfills Naylor Act
requirements.
Environmental Status:
The subject request is exempt from the California Environmental Quality Act pursuant to
Section 15061(b)(3).
Attachment(s)•
NumberCity Clerk's
Page 1. Surplus School Property Purchasing Plan
PL05-15 -2- 4/20/20051:27 PM
ATTACHMENT 1
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TABLE OF CONTENTS
PAGE
LEGISLATIVE AUTHORITY 1
APPROACH 2
OVERVIEW OF CLOSED SCHOOLS 3
ANALYSIS S
RECOMMENDATION 13
APPENDIX 14
i
LIST OF TABLES
PAGE
Table 1 Summary Data for Closed Schools 3
Table 2 Open Space Needs in Subareas with Closed Schools S
Table 3 Youth Sports Allocation 10
Table 4 Closed Schools by District Ranked from Highest to Lowest Open Space Need 11
Table 5 Naylor Act Acquisition Options for Closed Schools Sites by District 12
LIST OF FIGURES
Figure 1 Fountain Valley School District 4
Figure 2 Huntington Beach City School District 5
Figure 3 Ocean View School District 6
Figure 4 Westminster School District 7
Figure 5 City Subarea Map 9
ii
Surplus School Prooerty Purchasing Plan
LEGISLATIVE AUTHORITY
The disposition of surplus property owned by any public entity in California is governed
by the surplus property statutes codified in Government Code Sections 54220, et seq.
The Education Code provides supplemental regulations that govern the disposition of
surplus school sites. (Education Code Sections 17230, et seq., 17385, et seq.) In
addition, the disposal of surplus school property that also qualifies as park or
recreational open space is regulated by the Naylor Act, which is codified in Education
Code Sections 17485, et seq.
The net effect of the Naylor Act is to make certain surplus school property available to
a city at less than fair market value. The Naylor Act only applies to parcels of land
owned by school district to which the following conditions exist:
(a) Either the whole or a portion of the school site consists of land,
which is used for school playground, playing field, or other
outdoor recreational purposes, and open-space land particularly
suited for recreational purposes;
(b) The land described in (a) has been used for one or more of the
purposes specified therein for at least eight years immediately
preceding the date of the governing board's determination to sell
the school site;
(c) No other available public-owned land in the vicinity of the school
site is adequate to meet the existing and foreseeable needs of
the community for playground, playing field, or other outdoor
recreational and open-space purposes. (Education Code Sections
17486, 17487.)
Once a school district decides to sell or lease a school site containing property subject
to the Naylor Act, the disposition must be in accordance with the procedures set forth
in the Act.1 The City of Huntington Beach is given first priority to any surplus school
sites located within the city. Within sixty days after receiving notice from the school
district, the City must provide written notification of the City's intent to purchase the
surplus property. If the City chooses to purchase property from the school district, the
City Council shall first make a finding, approved by a vote of two-thirds of its members,
that public lands within the vicinity of the school site are inadequate to meet the
existing and foreseeable needs of the community for playground, playing field, or other
outdoor recreational and open space purposes. (Education Code Section 17492.)
1 A school district may exempt up to two surplus sites under certain specified circumstances.
(Education Code§17497.) Also,the Act permits the governing board of the school district to choose to
retain any part of a school site containing structures or buildings,together with such land adjacent
thereto as the governing board determines must be included in order to avoid reducing the value of that
part of the school site containing the structures or buildings to less than 50%of the fair market value.
(Education Code §17490.)
Page 1
Surplus School Property Purchasing Plan
Education Code Section 17493 requires that the City must have adopted a plan for the
purchase of surplus school property. Moreover, it specifies that public agencies are
restricted to acquiring no more than 30 percent of surplus sites under the Naylor Act.
Section 17493 is set forth below:
(a) No public agency may purchase surplus school property from a
school district pursuant to this article unless it has first adopted a plan
for the purchase of surplus school property. The plan shall designate
the surplus site or sites all or a portion of which the public agency
desires to purchase at the price established pursuant to this article
and shall designate at least 70 percent of the total surplus school
acreage as property which the agency does not desire to purchase at
the price established pursuant to this article. Where the plan indicates
that the agency desires to purchase only a portion of a school site at
the price established pursuant to this article, it shall designate the
percent of the property to be so purchased and provide a description of
the general location of the property to be purchased, without
designating the metes and bounds.
The purpose of this Surplus School Property Purchasing Plan is to fulfill the
requirement of Education Code Section 17493.
APPROACH
The City of Huntington Beach is served by four elementary school districts and one high
school district. Each of the elementary school districts owns one or more closed school
sites, for a combined total of 14 closed school sites. Of this total, two have been
declared surplus. It is the City's understanding that additional sites may be surplused
in the next year.
The mandate of the State Education Code is to prepare a plan for acquisition of surplus
school sites. However, given that the number of sites that have surplus status will
likely increase in the next year, this Surplus School Property Purchasing Plan ("Plan")
evaluates all 14 closed sites. This approach provides a citywide perspective on the
potential loss of open space associated with the sale of school sites. This enables the
City to comprehend the long-term and geographic issues relevant to the loss of school
sites and provides information to facilitate strategic planning and acquisition decisions.
Notwithstanding this approach, recommendations are only provided for sites that have
been surplused at this time because of the certainty associated with the current data
and conditions pertaining to these sites. To the extent that additional school sites are
closed or surolused in the future. this Plan should be updated.
Pursuant to Section 17493, the City is restricted to acquiring no more than 30 percent
of the surplus school sites using Naylor Act provisions. The regulations do not specify if
the 30 percent applies to property owned by each District or to all surplus sites within a
city's jurisdiction. Staff believes the intent of the legislation is to allow each district to
capture 70 percent market value and that it did not anticipate the Huntington Beach
Page 2
Surplus School Property Purchasing Plan
scenario, in which a city is served by four elementary school districts. In other words, if
the City did not take the by-the-district approach and chose to acquire all of its Naylor
Act sites from one district, that district could be significantly affected financially and
would likely not achieve the 70 percent market value intended by state law. Therefore,
although citywide analysis is included, the primary approach is on a district basis.
OVERVIEW OF CLOSED SCHOOLS
The majority of the 14 closed school sites have not been used by the school districts
for public education for many years. Most of them have well established alternative
uses. In some cases, the districts have entered into long-term leases for use by other
schools. When on-site open space is available, youth sports are allocated, or assigned,
by the City to use the fields. The following table provides basic information regarding
the school sites, by district, that was used in the analysis to support the Surplus School
Property Purchasing Plan, including 2004/2005 youth sports allocation data. The
table also indicates if the City has any park land adjacent to the school sites. Figures
1-4 depict the geographic area served by each district in the city.
Table 1
Summary Data for Closed Schools
Tl f USE � SCHOOL ' Tip IFtd':
GLDSEID TGTAIL OPEN SPACE PARK
. . ACRES.
iftin Va .
School`Irict'
Lamb Dist.Off. 14.26 7.5 2.0 Soccer
Wardlow HB Valley Boys&Girls 14.36 10.0 2.3 Baseball
Club Soccer
Beach: 'Sotioa
Burke Huntington Christian 7.72 5.0 2.5 Baseball,Soccer
Kettlerl HB City 9.8 4.5 - Softball
Soccer
City Flag Football
LeBard Dist. Off 10.16 5.8 5 Baseball
Gisler Brethren Christian High 14.1 7.8 10.5 Baseball,Soccer
lumn
Glen View The Learning Center Day 10.42 6.6 3.0 Baseball
Care Soccer
Haven View Grace Lutheran 10.58 5.8 3.0 Baseball,Soccer
Lark View/ Dist. Off/Education 15.09 5.2 3.0 Soccer
Nueva View Center
Meadow View Daycare/Priv.School 13.53 7.2 - Soccer
Park View HB Adult School/Coast 11.98 5.2 - Baseball
High Soccer,YMCA
Pleasant View School District Special 8.61 5.3 2.0 Soccer
Educ, Field Hockey
Robinwood Coastline Comm. Colle ez 9.27 4.0 2.0 Soccer
I'f .
Franklin T. l=isher Head Start Frog. 6.78 3.0 2.0 None
'Will closed at end of school year.
2Coastline Community College has notified the District they will vacate site in 2006.
Page 3
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Surplus School Property Purchasing Plan
ANALYSIS
Open Space Considerations
Closed school sites are important to the fabric of the community because of the open
space that they provide, as well as the services that a lessee offers. The Naylor Act
exists to allow a city to preserve property for outdoor recreational and open space
purposes. Accordingly,the City's approach in developing this Plan was to evaluate the
open space condition for each subarea served by the closed school site.
In 1999, the City completed a Community Sport Facilities Inventory and Needs
Assessment that divided the city into 30 subareas, essentially on a quarter section
basis with adjustments due to geographical, city boundary or other physical
considerations, e.g. major streets. Figure 5 is a map of the subareas. The Needs
Assessment tabulated the amount of open space (City and School) available in each
subarea and compared it with the General Plan parkland standard of five acres of
parkland per 1,000 persons. The Needs Assessment concluded that although the City
met this standard overall,there were some subareas that were deficient.
For the purposes of this Surplus School Property Purchasing Plan, data for the
subareas with closed school sites were re-tabulated. This effort incorporated 2000
Census data to determine the existing need for parkland within each subarea based on
the City standard and a more refined estimation of the usable open space at school
sites. The parkland need was compared to available City parkland and School open
space that would continue to be available at non-closed school sites. The resulting
number indicates how much of an open space surplus or deficit each subarea has.
Table 2 presents the results of the analysis, ranking each subarea from greatest to
lowest need. Using Subarea 11 as an example, it has a shortage of 16.8 acres of open
space and only has 11 percent of the open space needed in this subarea. At the other
extreme, the last five subareas have a surplus of open space.
Table 2
Open Space Needs in Subareas with Closed School Sites
Ranked from Highest to Lowest Need
Subarea Closed Open Space Acres Percent of Park Neec
School Surplus or(Deficit) Satisfied
11 Pleasant View (16.8) 11%
24 Lamb (14.4) 29%
ca 28 LeBard (7.2) 41%
cn 2 Maven View (14.0) 43%
23 Wardlow (24.6) 45%
°
0 27 Burke (20.7) 46%
10 Park View (21.7) 56%
5 Glen View (6.6] 82%
c, 30 Gisler 6.0 115%
R 3 Robinwood, Franklin 5.6 118%
S 29 Kettler 12.9 148%
c :3
n W 15 Lark View 101.6 223%
O 8 Meadow View 81.4 287%
Page a
LW END
IIIt� B-Lane Major(Divided)
WESTMINSTER ..r,.m� 6-Lane Maier(DWed)
�O ■.a_s_■■ 4•I.ane Prdnary(Dlvtded)
A d. • P fq — Cen$u&Boundary
'G,,3 �• s 1 Map Area Reference Number
EWAY
21
FOUNTAIN
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1
-PACIFIC OCEAN
Now Aroas ere delNoed by f bArrlere d mef or hlpinwrye eM primary elaaetR In adJwL populwon census
erase were ift to dare otw ama b=dwM nol d Mded by phirNW bw •
Re#erenee Area . •
Surplus School Property Purchasing Plan
Youth Sl2orts Considerations
As indicated in Table 1, all but one of the closed school sites is allocated for use to a
sports group. In many cases, more than one sport uses the same site. To facilitate the
use of these fields, the City has installed lighting at some locations. To provide a
comparison of the closed school sites from the perspective of youth sports
considerations, a rating system was employed as follows:
Sport Allocated
None = 0
One Sport = 1
Two or More Sports = 2
Lighted Fields = +1
The results of this ratings system are presented in Table 3. The school sites are
ranked from highest to lowest rating and then alphabetically. Gisler and Haven View
both receive the highest ranking because they are each allocated to two sports and
have lighted fields. Half of the 14 sites receive a rating of 2. Of these, Lamb is the
only site with lighted fields.
Table 3
Youth Sports Allocation
Ranking of Closed School Sites
P.M*
fry
Gisler 3
Haven View 3
Burke 2
Glen View 2
Kettler 2
Lamb 2
Park View 2
Pleasant View 2
Wardlow 2
Lark View 1
LeBa rd 1
Meadow View 1
Robinwood 1
Franklin 0
Page 10
Surplus School Property Pcrchasfno Plan
District Analysis
Table 4 shows the information from Tables 2 and 3 on a district basis. Individual
schools are ranked from highest to lowest based on the open space needs of the
subarea in which the closed school is located. Using the Ocean View School District as
an example, there are four closed schools located within subareas that have a deficit
of open space. Of these, Haven View has a high allocation ranking in terms of youth
sports.
Table 4
Closed Schools by District
Ranked from Highest to Lowest Open Space Need
-
y - -
Lamb (14.4) 29% 2
Wardlow (24.6) 45% 2
LeBard (7.2) 41% 1
Burke (20.7) 46% 2
Gisler 6.0 115% 3
Kettler 12.9 148% 2
view Sl
Pleasant View (16.8) 11% 2
Haven View (14.0) 43% 3
Park View (21.7) 56°% 2
Glen View (6.6) 82% 2
Robinwood 5.6 118% 1
Lark View 101.6 223% 1
Meadow View 81.4 287% 1
Maria
Franklin 5.6 118% 0
Using the data from Tables 1 and 4 as well as a site assessment by City staff, the
following table demonstrates a range of options with respect to Naylor Act acquisitions
by the City of Huntington Beach. Pursuant to the State Education Code,the City may
acquire up to 30 percent of a district's acreage using the Naylor Act. Moreover, the
City must make a finding that public lands within the vicinity of the site are inadequate
to meet the open space needs of the community. Based on the later requirement, the
analysis in Table 5 shows various options related to the 30 percent limitation but does
not include closed school sites located within subareas that have an open space
surplus as acquisition options. These sites are shown in italics.
The options presented indicate thatthe City has the potential to acquire a significant
amount of open space. Option 1 evaluates what sites the City could acquire if it chose
to purchase entire sites. in some instances, due to the size of a site and the 30
percent district limitation, the City is not able to consider acquisition of an entire site.
This is the case for the sites in the Fountain Valley School District. Option 2 considers
Page 11
Sur lus Schaal Property Purchasink Plan
what acreage the City could acquire if it only purchased the open space portion of the
school sites. As shown in the table,the total amount of acreage increases significantly
if the City pursued this option because it would be purchasing smaller portions of land.
In developing Options 1 and 2, sites are identified for acquisition until the 30 percent
limit is reached or would be exceeded by the addition of another site. Option 3 targets
the critical open space portion of the closed school sites for acquisition, such as the
improved playing fields.
Table 5
Naylor Act Acquisition Options
For Closed School Sites by District
Ranked from Highest to Lowest Open Space Need
DISTRICT/ School School Option 1 Option 2 Option 3
CLOSED Open Total Acquisition o1 Acquisition of Acquisition of
SCHOOL Space Acres Entire Site Open Space Critical
Acres Open Space
Fountain Valley School District
Lamb 7.5 14.3 - 7.5 0
Wardlow 10 14.4 - - 8.6
FV Total 17.5 28.7 - 7.5 8.6
30%of FV Total 8.61
Huntington Beach City Schooi District
LeBard 5.8 10.2 10.2 5.8 6.54
Burke 5.0 7.7 - 5.0 6.0
Gisler 7.8 14.1
Kettler 4.5 9.8
HBC Total 23.1 41..8 10.2 10.8 12.54
30%of HBC Total 12.54
Ocean View School District
Pleasant View 5.3 8.60 8.6 5.3 5.3
Haven View 5.8 10.58 10.58 5.8 5.8
Park View 5.2 11.98 - 5.2 5.2
Glen View 6.6 10.40 - 6.6
Robinwood 4.0 9.27
Lark View 5.2 15.10
Meadow View 7.2 13.50
OV Total 39.3 79.43 19.18 22.9 +-16.3
30%of OV Total 23.83
Westminster School District
Franklin 3.0 6.8
Overall Total 82.9 156.731 29.38 41.2 37.44
Total of 30%Values 47.01
Italics indicate Closed Schools in Subareas with a surplus of open space;these sites are
not eligible for Naylor Act purchases.
-indicates acquisition would exceed 30 percent limit.
There are clearly more options available to the City. For instance, the City could
acquire one site in one school district but only the open space in another district.
Multiple scenarios for some of the school districts are also possible because it is
not known which specific schools may be surplused in the future, which would
Page 12
Surolus School Property Purchasing Plan
affect the attractiveness and or importance of a particular site at a given point in
time.
Recommendation
This recommendation section is very specific relative to the Fountain Valley School
District because the City is aware of which schools are surplused and can therefore
make recommendations based on current data regarding surrounding open space
and youth sports group usage. Determining which areas should be retained or are
not needed in other school districts can only be estimated, as presented in the
options in Table 5, based on available data because there are a multitude of
potential scenarios.
The recommended priority Naylor Act acquisitions for the two surplused sites in the
Fountain Valley School District, based on the analysis in this Surplus School
Property Purchasing Plan, are listed below.
Surplus School Site
Lamb - No acquisition
Wardlow - Acquire 8.6 acres of open space
As additional closed school sites are surplused, this Surplus School Purchasing
Plan, and recommendation section, must be updated. Only at that time will the
data be certain to facilitate a City decision regarding other closed school sites.
With an update, the City can develop a specific scenario that reflects current data
on usage by neighborhood residents and youth sports groups, open space needs
within a subarea and available park and open space area for a specific site or sites.
Page 13
r ! s Schoof Property Purchasing Plan
Appendix
As noted in the Approach section of this Plan,the analysis and recommendations
presented are on a district basis, recognizing the 30 percent limitation set forth in
state law. If the interpretation of the 30 percent requirement changes such that it
applies to closed school sites citywide, irrespective of district boundaries,then the
options change slightly. Table A-1 presents these options for informational purposes.
Table A-1
Naylor Act Acquisition Options
For Closed School Sites Citywide
Ranked from Highest to Lowest Open Space Need
DISTRICT/ School School Option 1 Option 2 Option 3
CLOSED Open Total Acquisition of Acquisition of Acquisition of
SCHOOL Space Acres Entire Site Open Space Critical
Acres Open Space
Pleasant View 5.3 8.60 8.6 5.3 5.3
Lamb 7.5 14.3 14.3 7.5 7.5
LeBard 5.8 10.2 10.2 5.8 6.5
Haven View 5.8 10.58 10.58 5.8 5.8
Wardlow 10 14.4 10.0 8.6
Burke 5.0 7.7 5.0 5.0
Park View 5.2 11.98 5.2 5.2
Glen View 6.6 10.40
Gisler 7.8 14.1
Kettlor 4.5 9.8
Franklin 3.0 6.8
Robinwood 4.0 9.27
Lark View 5.2 15.10
Meadow View 7.2 13.50
Overall Total 82.9 156.73 43.68 1 44.6 1 43.9
30%of Total 47.01
Italics indicate Closed Schools in Subareas with-a-surplus of open space,these sites are
not eligible for Naylor Act purchases.
Page 14
RCA ROUTING SHEET
INITIATING PLANNING DEPARTMENT
DEPARTMENT:
SUBJECT: SURPLUS SCHOOL PROPERTY
PURCHASING PLAN
COUNCIL MEETING DATE: May 2, 2005
RCA ATTACHMENTS STATUS
Ordinance (w/exhibits & legislative draft if applicable) Not Applicable
Resolution (w/exhibits & legislative draft if applicable Not Applicable
Tract Map, Location Map and/or other Exhibits Not Applicable
Contract/Agreement (wlexhibits if applicable)
(Signed in full by the D Attome Not Applicable
Subleases, Third Party Agreements, etc.
(Approved as to form by City Attome Not Applicable
Certificates of Insurance_(Approved by the City Attome Not Applicable
Financial Impact Statement (Unbudget, over $5,000) Not Applicable
Bonds (If applicable) Not Applicable
Staff Report (If applicable) Not Applicable
Commission, Board or Committee Report If applicable Not Applicable
Find in s/Conditions for Approval and/or Denial I Not Applicable
EXPLANATION FOR MISSING ATTACHMENTS
REVIEWED RETURNED FORWARDED
Administrative Staff
Assistant Cit Administrator Initial
-City Administrator Initial
City Clerk
EXPLANATION FOR RETURN OF ITEM:
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