03-15-1971 - Regular Meeting - MinutesMINUTES OF THE ADJOURNED REGULAR MEETING OF THE CITY COUNCIL
CITY OF WEST COVINA, CALIFORNIA
MARCH 15, 1971.
OThe adjourned regular meeting of the City Council was called to order
at 5 P.M. by Mayor Ken Chappell in the West Covina Council Chambers.
The Pledge of Allegiance was led by the Mayor.
ROLL CALL
Present: Mayor Chappell; Councilmen Shearer, Nichols,
Young, Lloyd
Others Present: George Aiassa, City Manager
H. R. Fast, Ass°t. City Mgr.,
George Zimmerman, City Engineer
Richard Munsell, Planning Director
Lela Preston, City Clerk
Leonard Eliot, Controller
Chet Yoshizaki, Planning
Mayor Chappell: I would like to advise Council that I received
a letter from Ernest Debs on Citizens Affairs
asking that a name be submitted to participate
in the 6th Annual Recognition Day for older Americans which will be
held Saturday, April 24th. I was asked to select a citizen from our
community. You have in front of you a form that we will submit,if
Council has no objections, on Mrs. Mary Maxson, 89 years old on
March 25th. She was the wife of the first Mayor-, which goes back apite
a ways. 13 children, 11 still living. It is quite a record she has
attained while a citizen of our community. If there are no objections
I will submit her name?
Councilman Lloyd: Can no one else be submitted?
Mayor Chappell: We are asked to submit just one, so I would
say at this time this is the only one we are
going to submit.
Councilman Lloyd: Were there any other submissions?
Mr. Aiassa: We had no others.
Councilman Lloyd:
When is the final date?
Mayor Chappell:
It just asks for a prompt reply. Do you have
somebody in mind you would like to submit?
Councilman Lloyd:
I would suggest we leave the list open for a
short period.
Mayor Chappell:
Fine. In the past, Mayors have just gone
ahead with this but I prefer to come to
Council and let you know what is happening.
CENTRAL BUSINESS
Sid Williams: Historically our work on
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DISTRICT PHASE"I
PHASE II
Williams & Mocine the General Plan for West
_
Covina was begun in 1967.
PRESENTATION
In 1968 we did a preliminary
report indicating the need
for revitalization
of the Central Business District (CBD) area. As
Mr. Aiassa said at
that point, he didn't want any longer having people
telling him what was
wrong with the area but rather what to do about
it. As a result of
the preliminary report a Blue Ribbon Committee
was appointed and the
recommendation; of the Blue Ribbon Committee
was for a series of
phases of study, gradually working towards an
action program for
revitalization. Phase I was to be Reconnaisance,
an overall look at
the area in terms of the economics. What was the
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P age Two
market area? What was the market potentials? What were the financial
considerations? What were the physical characteristics and physical
problems? The entire assignment was related to the entire CBD area.
Late last Fall there began to be real concern that the major
department store negotiating with Broadway within the Plaza area,
• might go elsewhere in the East San Gabriel Valley. As a result of
this concern and a necessity for the City to demonstrate the
possibility of actually making available the land the character of the
reconnaisance shifted to what previously had been thought of as
Phase III, concerned with an action program.
I believe you received a request for amendment
of our contract as recommended by the staff at that time. The
completed report as revised is called Revitalization Strategy for
CBD. And I believe the report demonstrates very clearly that the City
of West Covina is at the crossroads. That with the major department
store, and I have talked to the principals involved and the principals
of the company trying to put the land together, West Covina may, if it
can make a site available at reasonable cost, have one or two
additional department stores in the Plaza area. The losses to the
City in revenues from sales and property taxes if this does not happen
are dramatic.
Presently, for example, the Broadway -Plaza
area does something in the way of 4/ of sales in the market area.
The market area is increasing dramatically and anticipated to be 75/
by 1990 and expendable income is also increasing. If the City is not
successful in revitalization of this area and loses the major
department store it can drop to one third of the otherwise anticipated
receipts. The drop then would be equally dramatic. The ways that
have been discussed of accommodating an additional store involve the
creation of a Parking District. Unfortunately the creatirn of a
Parking District and the issuance of the bonds means that the cost of
the District falls directly as an additional cost on the property
owners and developers. The store owners.
The State of California, however, in 1948
passed what was called at that time Redevelopment Legislation, which
says if an area is in their terms economically blighted that the City
may proceed to do what is necessary through a Redevelopment Agency,
who may be the City Council, to take such measures as may be
necessary to make it again economically strong and healthy: The taxes
that are collected on the area are established at the point at which
it is as at present economically deficient and any increase in taxes
over and above the amount now being collected can go to liquidate any
expenditures which are made by the City for this purpose.
The City of Hawthorne in Southern California
and the City of San Leandro in Northern California are examples of
cities that have been following this procedure. We are not talking
about Federal Urban Renewal. Federal Urban Renewal did operate in
many cities whew revitalization of the downtown area was the program.
We worked on Richmond in Santa Cruz which followed this procedure,
also the City of Ventura, but there are no federal funds available
for thiskind of redevelopment and in many communities there is a
• great reluctance to involve the Federal Government with all of their
requirements and procedures. We are talking about using State Law
which allows tax increment financing to be provided.
The report shows how the market area was
determined and also contains an opinion of a survey taken in the
West Covina Center and the Broadway Plaza area, which does show a
majority of property owners interested in revitalization in both'
centers, even at additional cost provided it can be demonstrated
there will be benefit. As I recalls the survey shows the merchants
in the Broadway -Plaza area interested in such a program and in the
West Covina Center not such a program.
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Page Three
The reason that it is extremely important to
be involved in the use of tax increment financing is that, as you
know, the City collects $1.00 of the $10.00 tax rate which otherwise
goes to the County. So in the case of one new department store
• and the sales which it would generate and the property tax it would
generate, the increment over present taxes collected in the area would
be $40,000 a year without the use of the State Redevelopment
legislation, but $482,000 a year using the State legislation.
The $482,000 a year is in additional property taxes plus $62,000
personal property tax which would provide a financial benefit of
$544,000, which would enable bonds to be floated to acquire the land
and sell it back to the agency putting the center together. Now if
there were to be two new department stores, which is a possibility,
the amounts would jump to $709,000. This does not include use of the
sales tax increment which would be $120,000 a year with one additional
store and $254,000 with two additional stores. The report goes on
in some detail, although some of the figures are preliminary, to
indicate what would be involved on a write down if the City did
proceed to set up such a program. Approximately three million dollars
for one new store and approximately five million dollars for two
additional new stores. These are all very conservative estimates.
Particularly the estimates of the finances which would become available.
The procedures involved to take use of tax
increment financing involve the adoption of a section of your General
Plan, pointing out the physical and economic deficiencies in the
area, therefore justifying the appointment of an agency with
redevelopment powers which can,as in the case of San Leandro, be the
City Council itself, and then the designation of a survey area.
We presume the survey area is a study area and probably the whole area
understudy in our reconnaisance from the Old Center on one side to the
discount house on the other. It is a survey area and this step then
makes clear to the agencies and store owners interested in this site
that the City is seriously proceeding with steps to make the site
available.
Within this survey area the .Planning Commission
selects a project area and the project area specifically would be
Broadway —Plaza for this phase of the significant program. The
Planning Commission prepares a preliminary plan for such an area.
Following these steps then there is the preparation of the redevelop-
ment plan by the Redevelopment Agency, which in this case could be
the City Council, and provides for the necessary owner participation,
the financing of the activity through the issuance of bonds, which
can be agency bonds or general obligation bonds, which are then
amortized by using tax increment financing. The City of San Leandro
has been proceeding with its program for over 10 years. Originally
it was to be a Federal Urban Renewal project, but there was great
protest so the City went slowly along in its own way putting in a
handsome large landscaped parking lot. The tax increment at the
beginning was very small, something like $25,000 per year, and now
because of new buildings being built is somewhere'in the order of
$100,000 a year, and admittedly that is a more modest program
than this, 'and the rewards also would be more modest,
• The amendment of our older contract provided
for this intensive work to see what the cost and benefits were for the
various methods of procedure in essentially saving the City from the
losses in the continued decline of this area.
The next phase of our contract if the City
Council desires to follow this procedure would be the adoption of
a section in the General Plan designating the overall area as having
physical and economic_.problems, the designation of a Redevelopment
Agency, the designation of the area and the preparation of the
preliminary plan by the Planning Commission. This then would be
Phase II. Phase II would be finished ln.. a 4 or 5 month period
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CITY COUNCIL 3/15/71 Page Four
CBD PHASE I - PHASE II
due to the urgency of working through the situation in concert with
the private agency and the department stores themselves. V41ich
would mean that we would have a target, if you desire to go ahead
with the contract, of completing that part of the work by the end of
July.
The next phase, the urgent parts would desir-
ably be done by early Spring or this time next year, which would then
put the City in a position to arrange the necessary financing to
proceed to make the land available, so that this work can go ahead.
I realize that one cannot summarize a 30 odd
page report and a year's intense study in a short period of time, but
I also realize that you have many other calls on your time. I will
be very happy to answer any questions that you desire to ask.
Councilman Lloyd: One of the questions which comes to my mind
and I think is most important is not so much
what we are going to do but what is going to
be the reaction of the general public to what you are proposing to do.
Have you any studies in the area of the behavorial attitude of the
general public in this type of program?
Mr. Williams: We have been involved in 4 programs, 3
involved Federal Urban Renewal and there is
always some reaction against Federal control,
federal priorities, etc. The City of Hawthorne has gotten as far as
the preparation of a Redevelopment Plan, presumably with public
acceptance or they wouldn't have gotten that far. San Leandro having
worked with their program for over a decade with vigorous support from
the merchants. I believe it is extremely important to make clear that
this is not a case of Federal Urban Renewal but rather the only
feasible way for the City to avoid the continued and almost disastrous,
decline of the Broadway Plaza area.
Councilman Lloyd:
Mr. Williams:
Councilman Lloyd:
Mr. Williams:
Councilman Lloyd:
Do you include the Old Center in this?
The program for the West Covina Center
would also be initiated in terms of discussion
but we thought it would be phased over a
longer period of time.
The statement you made would not be applicable
to that?
That is correct.
From your observations in correlating these
two areas as business centers, which one is
in the worse straits at the present moment?
Mr. Williams: West Covina Center does 17% of the sales,
83/ in the Broadway —Plaza area, which has lost
in sales in 1969-70.; Although the West Covina
Center is thought of as the more rundown the financial problems
affecting the City are far more serious as they affect the Broadway
Plaza. This is why the Broadway Plaza area is critical andc.because'
there is an agency that has been working for 3 years trying to put
together a program satisfactory to attract a major department store
and it really has suffered from the lack of available funds to clear
and,,for example, landscape the area for parking and from lack of
assurance that once started that one of the owners might not decide
they don't want to participate and this could theoretically include
the City saying we don't want to let the street go or something.
The principals involved have told me they feel that this procedure
is the only one which can work. It is the only one which makes
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CBD PHASE I - PRASE II
financing available adequate to do what needs to be done. The major
department store representative told me they had discussed alternate
sites, as I am sure you know they discussed going out on Azusa
Avenue or in LaPuente,but West Covina is the preferred location. It is
• the center, the land is there, the procedures are available; they do
need an assurance that it will go all the way through. This, again,
refers to the fact that the City Council, although it may never
use them or may never need it, would have the power of oinine.nt domain in
the assembly of property and in the establishment of the basis on
which there would be owner participation.
Councilman Lloyd: What,in your opinion would be the results if
the worst would be realized - assuming we
went forward on this program? In other words,
if we decide this evening we want to go forward as you have outlined
and in the options which were available to you and your staff in your
discussions - what were the worst things that might accrue that you can
think of?
Mr. Williams: Well,the physical decline of an area is
distressing and it is declined; it looks
declined' the circulation is poor; it is
unattractive; the economic decline affects the number of jobs
available to the City, the taxes available to the City: and, as far as
we can find out,this City this year has a moment of truth. The
major department store has indicated this is the preferred site and the
financial institution trying to put it together have said the odds
are 99/ or better. So,if this doesn't happen the little department
store in the Plaza now will certainly go. We have been assured of
this. The Broadway Store, by itself, without another major tenant
didn't do very well the last couple of years and will continue to do
more poorly. The decline is something like a drop from the current
3.3/ of the market in the East San Gabriel Valley, to 1.3/o,to as little
as maybe 1/ or 2% of the primary market area. In the long run,I
think the decline would continue and become worse than that. There
are other important things to be considered. We have stated in the
report that with a revitalized major shopping center,that other parts
of the area can become real key locations for major stores and offices
such as Home Savings. We have also stressed in the report there needs
to be a major transportation center. The overall loss to the City
would be $500,000 to $700,000 in property - plus $600,000 to $900,000,
all in taxes relating to where it is now, but where it is now has
been dropping relatively to Los Angeles in 1968-69 and another drop
in 1969-70,and when the little department store in there now goes
and further deterioration sets in the annual loss to the City would
be greater. Also,the chance of improving the West Covina Center is
much better if the Broadway Plaza area is strong. The offices, the
transportation center - everything seems to hinge on a particular
decision at this point. In my 30 years of urban planning I don't think
I have ever seen a City more clearly facing a go or no-go decision.
Councilman Shearer: In the beginning you mentioned the City
could declare an area, I believe you used the
term of economic blight to enable this tax
increment. Are there any guidelines that the State has seta that
• would control this because I heard the statement made by one of our
neighboring cities that they would like to have our blighted area
in their City because this is, compa.ratiw,a real going thing. I s this
strictly up to the City to decide this is a blighted area,or are
there some guidelines?
Mr. Williams: We have prepared these reports before for
other cities and I would say that we would
point out the things that could be
quantitively established. The loss of trade relative to Los Angeles
between 1968-69 and again between 1969-70. The fact our parking
survey in late 1969 turned up a surplus of parking spaces on the
Saturday before Christmas, which is sort of a key shopping period
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CBD PHASE I - PHASE II
and our control, which was Eastland, had a shortage of parking space.
The circulation problem of simply getting in arid, around the area. The
generally rundown appearance of the parking lot, the inadequacy
of the landscaping - these are all indicators. Not that this is a
ghetto,like people living in a house that is about ready to fall
down, but of a commercial area which is only realizing a part of its
potential. Did I answer your question?
Councilman Shearer: I think so. In other words you feel we would
have no problem in doing whatever is necessary
to proceed if our decision was to proceed.
Mr. Williams: Yes. I should say one reason we have phased
these contracts, the first phase being the
reconnaisance, the second phase being either
the City Council or the appointing by Council of an agency ready to
proceed, ---without as yet having to go into further steps - so if it
looks at a particular point to be either economically, (which I
doubt) or politically unfeasible, you could then stop at that point.
The reason for initiating these procedures is important in the sense
that this is an indication of what you might call good faith on the
part of the City, that the City intends to proceed and one cannot
expect a major department store tenant to sign an agreement until
there appears to be a plot of ground on which to locate the store.
Councilman Shearer: Do the bonds you talked about, necessary to
raise the funds, do they require a vote of
the people?
Mr. Williams: I believe as revenue bonds they do not.
Councilman Shearer: The reaction of the community was asked and
in your involvement in this type of thing,
since it is a freeze on the County and the
School Districts taxes, what kind of reaction has been expressed by
the County and School Districts to something like this? I can see
them saying - well,gee,you are cutting us off.
Mr. Williams: They will never get less takes than they
presently get. This is one of the costs
of the proceedings that during the time it
takes to get it going the taxes might have to be supported; but
they would always get as much taxes. The sales tax increment
could be used entirely locally for general tax purposes. I think
the argument that needs to be made here is that if the area in
truth -is declining and our indications have been in our 4 or 5
years of involvement here that most people do regard the area as
declined, then the,result over the long run would be a decline in
taxes for these agencies. The other thing is our estimates,as we
said were made very conservatively. All of the tax increment does
not need to be used to support the bonds. Our indication here is
that possibly some ratio of 2/3 or less of the increment would be
used for this. Obviously these steps are not taken without the
involvement of bond counsel. We talked to an old fr.iend.of ours -
Blythe & Company - and they indicated they would evaluate this
• segment of the program. Attorneys who make a practice of working
in redevelopment frequently are brought in. We would provide for
consistent advice by Larry Smith & Company, who worked with us on
the completion of Phase I. The City would not and we would not
presume to be able to provide advice in areas beyond our areas of
knowledge and I think the City would be moving prudently by going
into the next phase which would certainly involve public awareness and
involvement and certainly in order to hopefully establish a climate of
opinion and make it very clear that this is not a case of some
federal grant, because we know that there are great fears involved
that suddenly bulldozers will start knocking down people's houses,
etc., which are particularly severe when it is Federal., But I think
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Page Seven
if it is made clear that the agency, which is the City Council or one
appointed,by Council, that they have this authority by State Law and
there is no federal involvement,although we might get some beautifica-
tion funds or something if it is there. I remember we did a very
controversial study of the alignment of the_ Huntington Beach Freeway
back in 1968 with the Blue Ribbon Committee who provided great
support and I think this City has ways of involving people
constructively and creatively.
Councilman Shearer:
Would it go back to
Mr. Williams:
You mentioned less than 100/ of the tax incre-
ment was necessary to pay off the bond, What
would happen with the remainder of that?
normal distribution to the County?
other agencies unless
believe the City could
legal one.
Councilman Shearer:
It would be at the City's discretion. It
would, in my understanding, go into the City's
general fund and it would not go to the
the City made this determination, although I
do so. The question you are asking is more of a
I just wondered if the State Law limited this
tax increment strictly for the purpose it was
intended.
Mr. Williams: No. Look,for example,at the West Covina Center,
It would appear the Glendora area might) like the
San Leandro one) have a program which is a very
gradual kind of internal upgrading. Some of the additional funds
might be made available for use in other parts of the City for that kind
of upgrading. But I believe the City's right to those funds gives the
City the discretion to use the funds as they see fit.
Councilman Shearer: I have no further questions,but I can make my
comments if you so wish, Mr. Mayor?
Mayor Chappell: Are there any further questions? On the theory
that we may or may not have a citizens°problem -
in our last go -around on zoning somewhat outside
of the considered appropriate area, there were a lot of remarks made
that indicated the citizen was aware that this type of thing had to go .
on but they wanted it done in certain locations and I am sure this
location is exactly what we are talking about. Of course.)I can't claim
to be a reader of community minds but I feel they would be far more
favorably impressed with this location than anywhere else in our
community.
Mr. Williams: I believe that there have been violent reactions
frequently where housing is involved and problems
of relocation enter. These are plaguing
Palo Alto right now. Palo Alto wanted to upgrade its downtown area,,but
doing so meant tearing out a lot of old boarding houses and shacky
businesses, so a lot of people - both senior citizens and Stanford
students, hit the streets and said this can®t go on, but that is one
problem you absolutely do not have.
Councilman Young: Considering what you are saying,you are
essentially saying that if we have a:: --established
district, a commercial district, and if you
project this thing right down to the ultimate establishment of the
business enterprise, the new stores, etc., it will not cost the tax-
payers anything out of pocket - isn't that right?
Mr. Williams:
That is correct.
Councilman Young: Ultimately,the entire cost of city participa-
tion is returned from the increased valuation
of the property taxes?
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Mr. Williams:
Councilman Young:
Mr. Williams:
Councilman Young:
Page Eight
That is correct.
And, on top of that, we have the anticipation
of higher revenue from sales taxes?
Yesland on top of that the potential of
office buildings and other activities that
will tend to flow from a stronger center,
In my opinion)it would be a very salable item
in this particular location.
Councilman Nichols: I have nothing to add except that I have been
from the outset strongly in support of this
concept. I think it is absolutely essential,
I think it is totally salable and,I think necessary that the Council
move ahead along this course to whatever extent is desirable to
promote the redevelopment of the CBD area.
Councilman Shearer: I agree 100/. I think we have a situation if
we don°t�and I would like to be naive and say
"WellLLprivate enterprise will go out and someone will come in and pay
$6.OU a foot for that - if that is what it takes,"but I think that is
strictly naive. It is a competitive market today - maybe 15 or 20
years ago it wasn't competitive. If we don't do it I think it could
snowball in the other direction. I do think the citizens of this
community are intelligent enough to realize this and that we will not
have the objections, particularly:'.in'.the:°manner'in which you discuss
the financing. I think we should go forward on this.
I have one last question. We talked about a
revision to our contract with yoti.. How much
additional is this revision going to cost us?
I see $20,000 listed here, is that in addition?
Mr. Williams: We revised the contract within -the,contract-sum.
We had put in a rather large amount for traffic and
circulation studies in other parts of the CBD
area;and we shifted the funds that we hadn't billed yet in order to
complete this report.
Councilman Shearer: That is the second best news I heard today.
The first was when I read your report, I was
very enthused about it;and the second is that
it won't cost usany more than we already have budgeted, at least not
at this point.
Mr. Aiassa: One thing I would like Council to know is
we have budgeted Phase I and covered Phase I)
and for Phase Ii we put in a lump;sum of
$20,000 and we want to implement Phase II, and there will probably be
four portions to it. We want to implement in the same vein that
is now being proposed for that area. Our big initial move will be
probably at least half of that $20,000. This sum is budgeted in this
year's budget but it was not earmarked or identified,and we are now
doing that and putting in a contract proposal to tie it down.
Mayor Chappell: Any further questions? We do have some
recommendations in the staff report.
Mr. Aiassa: Mr. Mayor, I would like to have Council accept the
recommendation for Phase I as amended, but on
Phase II to hold off action until final formal
contract is presented to Council on March 22nd by staff and,in the
meantime,we will have some discussion with the City Attorney.
So moved by Councilman Shearer, seconded by
Councilman Lloyd. Motion carried on roll call vote as follows:
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CITY COUNCIL 3/15/71 Page Nine
CBD PHASE I - PHASE II
AYES: Councilmen Shearer, Nichols, Young, Lloyd, Cha.ppel.l
NOES: None
ABSENT: None
Motion by Councilman Lloyd, seconded by Councilman Shearer and
carried,to ' recessi at 5:55 P.M. for Jhe-purpose-of.-dinner and reconvene
a.t :7 .P. M. in .the :C. ty.:Mana, er:'s°:Conference. Room c,
CIVIC CENTER (Model of proposed parking center on display,
PARKING STRUCTURE along with diagrams.)
(Mayor Chappell called the meeting to order at 7 P.M. City Clerk
called roll call. All Councilmen were:present. Mr. Aiassa advised
that Frank Sata, Architect1would give a presentation on the proposed
Civic Center Parking Structure.)
Mr. Aiassa_: In our agreement with the County we are the
master contractor for the entire Civic Center
as to the motif and design. We are also
faced with the problem that we must accommodate the need for
increased parking and this is the problem we are now tackling. This
additional parking was scheduled for 1975 originallylbut now it is
needed for 1971 because the County wants to build andlin order for
them to build,we have to increase our parking area. This was the
agreement, that it would be done when they increased their buildings.
Frank Sata: I think we can keep this rather informal.
Architect We have before you the scale model from which
we can add or remove pieces as we discuss
the various aspects of the proposed project. We have tried to project
the potential of the whole site because when we start adding
structures,we wish to consider the long range plan of the Civic Center.
We will show the existing situation to start with; this is exactly
the way it is now�and then we will place the proposed scale models
of the various proposed buildings in the various alternatives.
The library building is projected as a 2-story expansion,and the
County Court house is projecting an expansion. (Pointed out a road
on the west side of the library building which is proposed to be
put in for entry into the parking areas.) The studies have been
placed more on concept than a schematic basis until we can come up
with the exact numbers needed which is still under negotiations.
This will give you an idea of how you can build itIand in what
increments and allow for expansion in the future. We don't know what
will actually happen in the Civic Center area in the future.
There may be an auditorium.
A critical space is the space next to the
projected expansion of the library. (Explained with the -use of the
model.) We are proposing to have you reconsider,,in terms of your
Master Plan,the option of maybe placing - if you do have an
auditorium - that perhaps it could be better located in this other
area. (Again used model auditorium to place on the displayed scale
of the Civic Center.) (Explained further.)
(Discussed in detail, using the diagrams and
the model, the parking loads rele.va.nt to each facility. About 325
additional spots are projected as the requirement; discussed peak
times for both the court house and the library. The parking area
for the library could be at the west end of the present parking lot
with a road cut in from the library to the parking lot)and city
employees could park toward the east end of the parking lot. The
County has requested certain types of development that they definitely
wanted,such as some green spaces alongside of their buildings; the
projected requirement of additional parking needed is 325 car spaces.)
Councilman Lloyd: Do you anticipate or do you have information
regarding the probable size of cars in the
future? Will cars continue to be as large
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CITY COUNCIL 3/15/71 Page Ten
CIVIC CENTER PARKING STRUCTURE
as they are now in the foreseeable future, say 5, 10 years from now?
Mr. Sata: I think that is a good question,because we
are concerned about it. It is enough of a
• concern that I wonder about what the involve-
ment of space is needed for any structure and we would want to think
about it. But we would have to arrive at a decision collectively,
saying this is the best way.
The quality of the parking needed could be
achieved by double decking parking. Plan A is the concept of
additional parking at the lower level for 254 cars. (Explained
in further detail.) Plan B would give a net increase of 283 cars.
(Explained in detail.) Plan C net increase of 287 car spaces; Plan D,
net increase of 325 spaces. Plans B, C. and D suggest upper floor
levels for parking.
Councilman Lloyd: I am going to shock everybody and ask a
question which is totally out of my normal
range - where are we going to put a
helicopter port? I think you really have to accept the fact that
some form of helicopter port has to be considered because there will
be more and more facilities developed throughout the Los Angeles area.
Right now,Los Angeles City and County are franctically strapped for
the handling of helicopters.
(Mr. Sata suggested one area, on the west side of the library building.)
Mayor Chappell: The question I have - we started out with the
Court house needing more space.. Does city hall
have all the space needed now,,with the way we
are renting our spaces out?
Mr. Sata: I should have pointed out at the beginning,
that when we conducted this study the first
thing we did was to make a study with your
staff of the needs, and we made a day-to-day study on the peak count of
cars .and the distribution on the Civic Center site including some
perimeter areas. So this has been considered.
Mr. Aiassa: Also there is a possibility (pointed out area
on the model) of using this area for an
exhibit area - day-to-day exhibit type of
thing for crafts, nature studies, ecology and the whole bit.
Councilman Nichols: In general, what would be the relative cost
of going up one level for a parking structure -
say the per square foot cost, as compared to
going up two levels? Say one level of'a greater range as compared to
the same area only two levels?
Mr. Sata: I think that is a very difficult one,because
I have heard contractors speak strongly one
way or the other. I think the natural thinking
• is A f you have it based on an expensive concrete structure and you can
use the same forms and you do it twice) -that it would be cheaper versus
the contractor that would be doing it over a long span. But I don't
really know if one is more costly than the other. (explained)
Councilman Nichols: As far as you are aware the cost of putting
the initial deck in, the pilings to create the
support, assuming you are going up later, is
no greater than putting one and then going up on top of it?
(Discussion continued between Mr. Sata and Councilman Nichols on the
cost factor, the aesthetics of double level parking.)
- 10 -
CITY COUNCIL 3/15/71
CIVIC CENTER PARKING STRUCTURE
Page Eleven
Councilman Nichols: Mr. Aiassa, what are we talking about in
terms of costs? Are we foreseeing that the
increased lease sums from the County will amortize the total of our
. payments?
Mr. Aiassa: We are shooting for that.
Councilman Nichols: What is a completely out of the ball park
estimate for the construction of the 325
spaces?
Mr. Fast: At this point in time we can only say a
parking structure costs $2,000 per car
space, so we are talking up towards $650,000.
Councilman Nichols: And you are realistically thinking that you
can increase lease payments sufficiently to
amortize?
Mr. Aiassa: We have already made contacts with the County)
and have so advised them if they want these
parking facilities that is about what it is
going to cost us.
Councilman Nichols: Well, I think it is very important that we
know right at the beginning whether we are
talking about taking some portion of this out
of the General Fund or whether we are expecting it to be reimbursed
from the County.
Mr. Aiassa: All from the County. There are three
subjects - the estimates, the actual bid and
then the final construction. We have
negotiated with the County and they are talking within the ball park
figure of $2,000 per car -.space.
Councilman Nichols: Then it would be realistic to announce to
our public that this is a structure to meet
the needs of the County and they will be paying
for it.
Mr. Aiassa: Right. We would not be building the
structure if the County weren't initiating
their 1975 project. We were planning for
5 years from now, but they have come back and pushed the issue to
1971.
(Discussion __ returned to the location of the library and the
parking lot for library parking. Councilman Nichols feeling it
was unrealistic to expect people to park their cars that distance from
the library and hike back. Mr. Aiassa explained it had two advantages.
One,the present parking would not be eliminated and,secondly,the
County is going to make it solely usable for library parking.)
• Councilman Shearer: Also does the County have a choice in this
matter - we have to provide 325 spaces?
Mr. Aiassa: Yes,they have requested that we provide the
spaces and we are giving them the alternatives)
and this is the most economical way we can go.
Councilman Shearer: Say the most economical is the $600,000 plus -
and . they say they can't go for that? We can
,only afford $500,000. Do we still have to
provide it?
Mr. Aiassa: We don't build. until the contracts are signed
- 11 -
CITY COUNCIL 3/15/71 Page Twelve
CIVIC CENTER PARKING STRUCTURE
for $600,000 or whatever.
Councilman Shearer: There is no way then that any money comes out
of the city funds?
• Mr. Aiaasa: We won't launch unlessit goes.
Mr. Fast: I had a discussion with county personnel,
the people that prepare the documents and have
worked on many parking structures for courts
and libraries; in fact they have a particular individual from the
Real Estate Management and a particular individual from the County
Engineer's Office, they work exclusively on libraries. They are
willing after the preliminary plans are done and we have made our
estimate based on the working drawings, based on those costs they are
willing to propose to the Board of Supervisors that they enter into an
anticipatory lease agreement based on preliminary costs /l and when final
bids are in they will then revise the parking lease ag�`eement to match
the final costs. And you can see how much the County, even at that
level, are expecting they are going to pay the bill for the structure.
Mr. Aiassa: They are also willing to have the Health
Department - as far as parking is concerned -
move out of here and move over here. (Used the
model to illustrate.) One thing, and I think
Mr. Shearer pointed this out. We weren't very anxious to go into this
kind of parking structure because it is not one of the things you can
predict cost right off the bat, but we have done a lot of paperwork
and the only answer we have is if they want to accommodate their
facilities with expanded parking they have to come back to us for the
parking. This is one of the conditions in the Joint Powers Agreement,
as our key to maintain the unity and the control of the Civic Center.
(Discussion followed on the placing of the auditorium, and the fact
that parking .could be double decked and allow the auditorium to be
placed at the east end of the area above one deck of parking.)
Mr. Aiassa: I was here when the concept of the auditorium
was first discussed and originally it was
projected for this spot where you would wipe
out your entire vision, whereas l if it is placed over in the parking
facility area, utilizing all that space and then you could utilize
that area for the heliport. And,,in regard to the auditorium,being.
that the County has already joined us in sharing structures it would
not, be. a big problem in having them join'. us; in ° the 'regio.nalI facilities
for regional parking fore..a regional ,auditorium
Councilman Lloyd: This assumes one question - are we ready for
an auditorium?
Mr. Aiassa: We will be eventuallyp and if any City is
going to build it,we are the one in the best
position to do so.
Councilman Lloyd: I would say right now that statement could be
• challenged very quickly by people in Covina.
Mr. Aiassa: No, I mean geographically, economically and
all other ways.
Councilman Lloyd: That has no bearing really; the fact remains
that the County is now involving itself in a
Joint Powers Agreement situation with the
City of Covina regarding an auditorium. Do you think,then,the County
is going to turn around in the future - Mr. Sata,what is the projection
on this? Completion of the total project - 10 years?
Mi. Sata:
I don't know.
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CITY COUNCIL 3/15./71 Page Thirteen
CIVIC CENTER PARKING STRUCTURE
Councilman Lloyd: I think you can say 10 years because you
are going to have this kind of population
increase. Herein 1973-75,they are doing a
Joint Powers Agreement with Covina involving a city hall and an
auditorium and then they are going to turn around and talk about a
regional auditorium in the area of West Covina?
Mr. Aiassa: But ours is a Joint Powers Agreement now.
And the auditorium is part of our concept and
what they have accepted.
Councilman Lloyd: I understand that, but what are your projections
on the Supreme Court of California that it isn't
going to throw this Joint Powers Agreement out, because they will say
the government is not a separate entity?
Mr. Aiassa: Well I would say in 2 years we might even be
able to establish it through the vote of the
people.
Councilman Lloyd: That may well be. I think you are going to
have to do that,,because I think the Courts are
going to rule against it.
Mr. Aiassa: I thinkawith the predictions shown fog the
East San Gabriel Valley,an auditorium is going
to becritical in 3 to 5 years.
Councilman Lloyd: No argument, we need an auditorium now.
Let us not talk about the morality of the thing
or whether it is needed here or not because that
is not the issue really, is it?
Mr. Aiassa: I need legislative action from the Council - what
do you want to do?
Councilman Lloyd: I am saying what kind of problems are we going
to face when we go forward with this type of
concept. It is a great idea. I think Mr. Sata
has done a tremendous job,,and to say I am impressed is an understatement.
But to say I don't recognize the pragmatic problems we are going to face
politically - and I don't really mean us sitting in this room now. I
think the view in light of history that most of us will be gone when
these problems really hit in full force, but I do say if we are
mindful of history we have to be aware of the decisions we are making.
I am saying,while I concur with your concept, do we have the green
light from the County at the present moment assuming that the Joint
Powers Agreement will be in effect? Do we have their go-ahead with
this conceptionalizing of the future of this area?
Mr. Aiassa: I would put wagers on West Covina, odds 3 to 1,
that West Covina is in the front place if we
do it within 2 or 3 years` but if we wait 5
years Iwe have lost it.
• Councilman Lloyd: I thought we had already lost it. Maybe I
misread it.
Mr. Aiassa: Covina is doing like all other areas. They
need an instrument to create the joint powers.
We had two agencies -- the Court and the
regional Library. Covina is grasping for something; we even took their
Probation Section away from them. An auditorium is not a simple,
elementary thing. It is a highly complicated liability. It is the
most expensive thing you can ever undertake] and it is one of the
things that is greatly abused. It is also very cherished once you have
it; alsojit is a heavy cross to bear because of the cost, the upkeep)
and it is very perishable. - 13 -
CITY COUNCIL 3/15/71
CIVIC CENTER PARKING STRUCTURE
Page Fourteen
Councilman Lloyd: As far as I am concerned you have my vote, I am
with you. I am just saying how many problems
are we going to face in this whole thing and I
say at the present moment, not in a contention situation but in a
competitive situation, the fact remains that Covina at the present
•
moment is negotiating. I have no qualms of going forward against
them on it.
Mr. Aiassa: The one that could have wiped us out completely
was the one they were programming for Mt. SAC.
It was to be regional and it was to be done
at taxpayers�expense,and that is the kind you can't whip because once
it gets moving you can't knock it out.
Councilman Lloyd: Well,you have obviously offered us the greatest
carrot in the world in the fact we are going to
have all of these wonderful things and we are
not going to pay for them and while I don't share in this case with
Chet and Ken in their attitude, my attitude is simply if I can spread
the cost out among all - between three or four million people in
Los Angeles County then the one hundred thousand people in West Covina
aren't buying a very big share of that, gut I also know I am buying a
share of roads, highways, public buildings and Civic Centers elsewhere
in the San Fernando Valley. I know it all kind of balances out,so my
attitude is simply let's get our licks in first and see what happens.
Councilman Shearer: The auditorium is really a;separate question;
this evening the parking structure will sink
or swim on its own merits Even if the
auditorium is never constructed,, the parking structure is still feasible
and necessary,�so the pros and cons of the parking structure are not
going to depend on whether or not the County says yes or no on an
auditorium.
Mr. Aiassa: Yes�that is the critical one now. There are
two things I want to point outa I do get
very sensitive when other creatures begin to
move into the areas we have sort of sacredly protected for years as
our own plumpand I feel I have not moved into the area of even --a
basic preliminary study or schematics as far as the auditorium is
concerned. And for three reasons I have not done so - one,
financially.I didn't have the money to put into it; 2 - after having
two consecutive studies, one professional and one a citizens study,
the pressure and the time and the need hasn't been a great challenge
shall we say with the banners, the flute and the pipes, But I do feel
if we wait too long that we will lose it and there will be no hope
of ever picking it up again. Somewhere and sometime during this
year some thought should be given to going into some kind of
schematics and a selling program so I can start the motivation going.
The County is interestedibut I have nothing to sell them.
Mr. Sata: In closing my discussion�I would like to say
I think all these points are well taken
because I think this is the type of
dimension we are trying to do in our concept, just anticipation of
• the points raised. The other point is about transportation. I
want to share with you what is happening in Boston on the space
above the freeway. There is a great deal of supports and federal
support as well, for transportation type centers, they are having a
lot of sense in being located in ways such as right over the
freeway. This has been considered but is not being presented to
you at this time. These are the alternatives and, hopefully, we
think of the potential things that could happen. This is an
important one because there is tremendous energy being made in the
whole field of environment (pointing to an area on the model) in the
area of childhood and�as a resultAthere is a great deal of response
by people for creating centers that have the programs for the young
people and these types of things.could have meaning between City Hall
- 14 -
CITY COUNCIL 3/15/71 Page Fifteen
CIVIC CENTER PARKING STRUCTURE
and the library, which may be the closest step to coming closest to
the other dream we had a long time ago of how to bring people back
into public activity.
• Councilman Lloyd: I appreciate your comments and certainly I
realize that I have been probably more
involved and conscious.. of the efforts being
made in transportation .and I feel the major problem we face is two-
fold. One is sociological and the other is political. The first need
is the ability to move people in our economy, our way of life.
We are terribly inefficient but we will get better. Cars will be made
smaller and will haul more people and we will use the systems that
are already there'and�again �we can use that air space without
offending anyone environmentally because the things that offend are
already there. In a political senselpeople need centers which direct
their sense of belonging to geographical centers. And I say this
will occur as we go forward in the dynamics of development in the
urbanization of this area)and will occur in areas just like this and
that is why I am much impressed with this because it indeed makes us
a focal point —and this I say�of course assuming that a focal point is
a good thing,. -which I don't really know, but I am assuming it is.
I am very favorably impressed.
Councilman Shearer: I am a little confused in some of the
comments here..: The role of,the City�and the
role of the County - the Joint Powers Authority.
I,notice the funding, in the staff report® It states "Funding for
architectural services to prepare the plans and specifications.is
available in the Civic Center budget. Funding for the parking
structure would be available through a revenue bond issue via the
Joint Powers Agreement. The final decision by the Council to
implement such a bond issue would come at some point in the futures'_
Would it be the Council's decision or the Joint Authority decision to
issue bonds?
Mr. Aiassa: The agreement will have to be negotiated
between the City and the County. The Joint
Powers is only the vehicle which has the power to sell bonds and
make the facility available and then we rent the facility to pay
the amortization charge.
Councilman Shearer: The official action of the selling and
issuance of the bonds would not be an action
of the City Council of West Covina?
Mr. Aiassa: I believe it is the Public Authority.
Mr. Fast: Yes)
City Council instructs by resolution
and the governing board enters into a lease
arrangement with them and they will build you a
parking structure and rent it back to the City.: The.y.go..out and build
it/ and they own the structure and rent it back to you.
Councilman Lloyd: Do you see any chance that we would get hung
• out for monies out of the City coffers?
I am asking you to reiterate what you have already said, and the
answer I want is "noI there is no problem that we will get hung out
on the monies4'
Mr. Fast: Nog that is correct.
Mayor Chappell: If there are no further comments,we have
recommendations in the staff report.
Motion by Councilman Shearer, seconded by Councilman Lloyd and carried,
to approve Plan B for the Civic Center Parking Structure.
- 15 -
CITY COUNCIL 3/15/71 Page Sixteen
CIVIC CENTER PARKING STRUCTURE
Motion by Councilman Shearer, seconded by Councilman Lloyd and
carried, to. instruct the City Manager and City Attorney to prepare
arl agreement for architectural services by Frank T. Sata for the
preparation of final plans and specifications for the parking
structure to be presented to the City Council at their meeting of
• March 22, 1971.
Motion by Councilman Shearer, seconded by Councilman Young and
carried, to authorize Mr. Sata and staff to make a presentation to the
Governing Board of the Joint'Pbwers Authority of the approved
schematic plan and to indicate to them the Council°s intention to
fund the project through a revenue bond issue via the Joint Powers
Agreement.°
(MAYOR CHAPPELL. RECESSED THIS PORTION_. OF THE MEETING AT 7:55 P.M.FROM THE
CITY MANAGER'.- CONFERENCE ROOM IN ORDER TO.,RECONVENE IN_.COUNCIL:CHAMBERS
FOR- FRRSWQTY. �WTVENI,NG, . PRESENTATION REPORT o RECONVENED AT 8 PM IN COUNCIL
CHAMBE
FREEWAY WIDENING REPORT
Mr. Zimmerman: Mr. Mayor and members of the Council) we have a
slide presentation for you tonight which will
cover the widening of the freeway by
pictorial review from the west end of the City to the east end.
Includeddin general is the widening of the freeway to 8 lanes, 4 lanes
in each direction; relocation of the frontage roads and some widening
of them; widening of Vincent, Citrus, Azusa and Barranca Streets
crossings of the freeway; new undercrossings at Lark Ellen, Hollenbeck
and West Covina.Parkway.; somestorm drains; underground utilities
district is involved with the widening; and other street lighting
underground, new street lights and street standards along the
facility; some 15 traffic signals to be rebuilt or installed new,
and landscaping.
The schedule for this worklincluding completion
of right-of-way acquisition)is within the next few months. Some
right-of-way clearance is now being undertaken. There is quite a bit
of removal of facilities such as the telephone lines, utility lines,
etc.; completion of plans and cooperative agreements covering the
widening of the freeway. There will be approximately four or five
co-operative agreements, one of which has been presented to Council
already/and several more are planned to be presented covering costs
to the City of about $250,000 to $300,000 of Gas Tax funds for
widening of streets along the freeway. There also will be some
million dollars of storm drain facilities which the City has already
co-operatively designed and will furnish for the project out of the
1970 Storm Drain Bond Issue. The advertising of the contract is
presently scheduled to Pe ready for advertising on the first of
November of this year. We believe we are on schedule and will meet
that schedule. Work should start within a little less than a year
from now,)with an actual contractor out there digging and completion
should occur some two and a half years later`in,1974. Total cost,
generally,for the freeway contract at this time is supposed to be
thirteen and a half million dollars. Following that construction)
there will be a separate landscaping contract with landscaping to
occur in the latter part of the 19701s.
In general the freeway construction will
start with the' realignment of the frontage roads and their recon-
struction to provide working room within the freeway itself to widen
it out, etc. The first interchange to be constructed will be the
Grand Avenue one. The reason for that is the alternate doing of the
various interchanges so good traffic can occur during construction.
The Grand Avenue interchange, Lark Ellen interchange and the Hollenbeck
undercrossings, as well as the West Covina Parkway new undercrossing
will occur about at one time)and alternate interchanges and under -
crossings will occur when they are done. So,there will be no complete
closedown. However/ there will be no closure of any of the underpasses
- 16 -
CITY COUNCIL 3/15/71 Page Seventeen
FREEWAY WIDENING REPORT
at any time. It will merely be the restricting of traffic to one lane.
There will be some inconvenience to traffic for that reason. The
final construction likely will be the completion of the through lanes
• on the freeway and the construction of the median barriers, signs and
lighting.
(Slides shown and explained. Questions asked and answered as each
slide shown. Quite a bit of discussion ensued with regard to the
cutting away of the fronts of apartment buildings, how this was to
be handled by the State, the ultimate aesthetics of it, etc.
Councilman Nichols asked that,if possible)staff present to the Gouncil
a report and pictures of other areas where this has occurred.
Mr. Zimmerman said this would be done. Discussion.regarding the
use of the excess land for Mini-/Parks.by Councilman Shearer inquiring
of staff if they were aware of this State Law. Mr. Fast advised
staff was aware and were checking into)and Mr. Zimmerman stated a
list of available excess parcels was just received and would be
studied and a report would be coming to Council in the future on this.)
Mr. Zimmerman: A further comment, basically,we were very con-
cerned about the manner in which public
relations was being handled with the various
parties involved and)so far, the State has done a very fine job and
there has been a minimum of complaints from the public and we hope to
keep it that way as much as possible when the town is pretty much
torn up for construction. The Assistant City Engineer has been named
as General Coordinator for the freeway work at this time; Traffic
Signals and Detours assigned to the Traffic Engineer; Building
Demolition is a responsibility largely of the Building and Planning
Departments; construction questions will be in the Engineering .
Department Construction Question Section; landscaping is proposed to
be the responsibility of the Planning Department and the Recreation &
Parks Department; Right-of-way,we have kept a running record of all
right-of-way acgt}isitions by the Division of Highways,and this
information is available at al.l times in the right-of-way section of
the Engineering Department. Scheduling is also in the Engineering
Department) along with the design layo.��,�s. Construction of the freeway
will take place overa two and a hal period at a cost of thirteen and
a half million dollars, so we have recently been advised by the
Division of Highways.
There is no action needed now by the Council,
but -for the next several months there will be action items pertaining
to it brought before Council.
Mayor Chappell: Thank you. If there are no further questions,
Mr. Aiassa has asked for an executive session
regarding condemnation.
(COUNCIL CONVENED AT 8:45 P.M. to Executive Session. Reconvened in. regular
session at 9 P.M.)
Mayor Chappell: Is there anything further tonight?
Councilman Lloyd: I have a few items but it is 9 o6clock and
I will bring them up next week, but I would
like to mention some of them now. I received
a letter from the gentleman named Phil Asha.bra.ner .. - the gentleman
that proposed 2 or 3 months :ago the possibility of allowing a lane on
the freeway to those automobiles wherein there were more than one
passenger. He would like to have a resolution from the City in
support of this type of activity and I would like to submit it to
the Council.
Mayor Chappell: Mr. Aiassa,will you reproduce copies of the
letter and submit it to Council? (Answer: Yes.)
marm
CITY COUNCIL 3/15/71 Page Eighteen
Councilman Lloyd: One other item. We have had several requests
for representations from this City to other
municipalities, even out of the nation.
Specificallyjthe Ice Hockey Group wherein they are going to Calgary
and I asked Mr. Aiassa if we had any more coins and it turns out we
• are all out of the coins. I would like to see a reinstitution of
the West Covina coin to be used as a public relations identification
gimmick. We would have to buy the dies. What kind of money are
we talking about, Mr. Aiassa?
Mr. Aiassa: For the dies - about $1,000.
Councilman Lloyd: I think this would be a thing of value. Once
you have the dies you then have to produce
the coins)so the initial cost would be
probably about $1500. Once you own the dies�you can produce the coins
for much less money. I think in the final interests of the City it
would be better to purchase the dies. This will probably end up
being discussed in the budget sessions.
Mayor Chappell:
ADJOURNMENT
ATTEST:
CITY CLERK
C
Mr. Aiassa� will you so include? (Answer: Yes.)
Motion by Councilman Shearer, seconded by
Councilman Nichols and carried, to 'a.djourn
meeting at 9:05 P.M.
APPROVAL
MAYOR