TITLE
Recommendation to adopt resolution in support of the formation of the Lower Los Angeles River Recreation and Park District; direct the City Clerk to file the Resolution with the Local Agency Formation Commission; and, authorize City Manager to approve the final District Boundary Map on behalf of the City. (Citywide)
DISCUSSION
Background
Parks provide many community benefits such as encouraging physical activity, improving health and fitness, mitigating against urban heat effects and air pollution, and reducing greenhouse gas emissions through trees and greenery. A study by the Los Angeles County Department of Parks and Recreation, however, identified the region surrounding the Lower Los Angeles (LA) River as one of the most park-poor areas in Los Angeles County. While the countywide average of park space is already low at 3.3 acres per 1,000 residents, the report found that some areas along the Lower LA River have as little as 0.3 park acres per 1,000 residents.
The single greatest barrier to new park space along the Lower LA River is lack of funding and resources. The recently approved State water bond (Proposition 1) provides funding opportunities for the revitalization of the Lower LA River watershed, including a $30 million direct allocation to the San Gabriel and Lower Los Angeles Rivers and Mountains Conservancy (RMC) and funds for urban creek restoration. But these resources are strictly limited to acquisition and development of facilities and cannot be used for operations or maintenance of park facilities. A lack of local resources often means that parks cannot be developed, let alone properly maintained.
While the Lower LA River serves an important purpose as a flood protection and control channel, it also presents a unique opportunity for open space and urban greening and as a recreational resource for the region. With numerous recent developments, including the creation of a Lower Los Angeles River Working Group to develop a revitalization plan and the Los Angeles River Revitalization Master Plan, there is growing local interest in transformation of the LA River. The City has also led efforts such as the Park Acquisition Feasibility Report, distributed to Council on April 5, 2021, to evaluate the feasibility of acquiring and developing park space along the LA River.
Lower Los Angeles River Recreation and Park District
As a regional challenge, lack of park space and access to the Lower LA River requires a regional solution. Recognizing the myriad challenges jurisdictions face in coordinating park projects and funding along the LA River, in 2016, former Senator Ricardo Lara authored Senate Bill 1374 authorizing the formation of the Lower Los Angeles River Recreation and Park District (District). The purpose of the District would be to advance park developments, activities, and programming along the Lower LA River that exceed the boundaries of individual cities.
The initial legislation specified which members would comprise the initial District Board and set a deadline for the formation of the District by January 1, 2020. In 2021, Senate Bill 268 further expanded the scope of the Board membership and extended the deadline to form the District by January 1, 2024. The District Board would be comprised of seventeen members in total, including three members of the public appointed by the Los Angeles County Board of Supervisors and the fourteen Cities whose boundaries include a portion of the Lower Los Angeles River or the Rio Hondo: Bell, Bell Gardens, Commerce, Compton, Cudahy, Downey, Long Beach, Lynwood, Maywood, Montebello, Paramount, Pico Rivera, South Gate, and Vernon.
The proposed boundaries of the District align with recent LA River studies, including the Lower LA River Revitalization Plan, County Master Plan, and River Ranger Public Safety and Program Plan. District boundaries are anticipated to extend based on parcels one mile from the LA River following major roadways. A draft map is attached (Attachment A), and the final boundary map for the District will be presented to each member City for approval. The City Manager or an appointee would be authorized to approve that map.
The District is intended to help promote the development of open space and parks for the benefit of communities along the Lower LA River by increasing interjurisdictional coordination and resources. The District can assist with organizing activities and programs such as a River Ranger program to provide public safety. It can also support capital improvements, development projects, and park maintenance through additional funding opportunities, including joint District grant applications, philanthropy, public-private partnerships, and service fee and tax transfer structures. While most existing funds for parks are limited to acquisition or development, the District could bring more flexible resources to use for ongoing costs.
Furthermore, the RMC has committed to assisting with the establishment of the District and to provide administrative support for the Board over at least a three-year period. Cities within the District would continue to have local control over their park projects along the Lower LA River, including projects that are voted on and supported by the District Board; final decisions would still be made by the local authority. Once the District is formed, the Board will determine the structure of the organization moving forward and will outline the District priorities. Any decisions regarding a property tax transfer would require voter approval, and funding would be distributed within the District.
Staff recommends the City Council approve the attached Resolution supporting the formation of the District through the Local Agency Formation Commission (LAFCO) process. While SB 1374 and SB 268 described above establish the membership of the District’s Board of Directors and with this legislative authority the District may be formed without members providing a resolution in support, all member Cities except Compton, Vernon, and Long Beach have submitted resolutions in support of the District.
Staff further recommends that the City advocate for Board representation to be weighted according to population and geographic territory represented along the LA River. The initial Board would comprise 17 members, each with one vote. Since the City represents as much as one-third of the Lower LA River area and a significant portion of the population in the District, the City should request to have a more equitable vote structure, whereby votes on key issues like those that have a direct fiscal impact on the member jurisdictions would require both a majority vote of the Board members and a weighted-vote based on geographic territory and population in order to be adopted.
This matter was review by Anita Lakhani on March 10, 2022, and by Budget Operations and Development Officer Rhutu Amin Gharib on March 7, 2022.
TIMING CONSIDERATIONS
The RMC is currently in the process of forming the District through LAFCO. While the City’s resolution is not a requirement for the establishment of the District, it is recommended that the City submit the Resolution in support of RMC’s efforts prior to completion of the LAFCO process, anticipated in Spring 2022.
FISCAL IMPACT
This recommendation is to adopt a Resolution in support of the formation of the Lower Los Angeles River Recreation and Park District and approve the district boundaries on behalf of the City. This recommendation has no fiscal impact beyond the budgeted scope of duties and is consistent with City Council priorities.
The RMC has dedicated funding and staff resources to manage the formation process on behalf of the member jurisdictions. The resulting fiscal impact once the District Board is formed would require City representation including an elected representative to serve on the Board and a minimal level of staff resources
The long-term fiscal impacts of District Board participation are unknown. The Board, initially consisting of 17-member representatives, would be responsible for developing the District’s funding plan. Overall funding needs and sources will be based upon the amount and types of services to be provided by the District. The District would have authority to apply jointly for funds, solicit private donations and potential public-private partnerships for funds to operate and maintain parks, and leverage funding by fee assessment or tax transfer of the entities within the District service area. It is expected that the Board will recommend a fee assessment. The cost of a possible fee assessment is unknown at this time. Voter approval would be required for taxes applied within the District. The Department would return to City Council for land use approval on any future projects recommended by the Board within the City’s boundaries. There is no local job impact associated with this recommendation.
SUGGESTED ACTION
Approve recommendation.
BODY
[Enter Body Here]
Respectfully Submitted,
BRENT DENNIS
DIRECTOR OF PARKS, RECREATION & MARINE
APPROVED:
THOMAS B. MODICA
CITY MANAGER