Staff Report - April 2, 2002 - Agenda Item

The purpose of this report is to: 1) provide the Burbank City Council and Burbank Redevelopment Agency Board with an overview of the Lake-Alameda Focus Neighborhood Enhancement Strategy; and 2) consider the necessary budget amendment and design contract for further implementation of the Neighborhood Enhancement Strategy.

In May 2005, the City Council identified the Lake-Alameda area as a new �Focus Neighborhood� in need of revitalization. Like the other four focus neighborhoods Elmwood, Verdugo-Lake, Golden State and Peyton-Grismer, this area has: a higher percentage of renters versus owners; larger household sizes/overcrowding issues; a significantly greater percentage of population under the age of 18; code enforcement problems; a higher percentage of linguistic isolation and deteriorating housing conditions.

For almost ten years, the City of Burbank (City) has taken a proactive approach to neighborhood revitalization in these areas through, its partnership with the Burbank Housing Corporation and with making broader neighborhood enhancement investments (i.e. infrastructure, reducing crime, heightened code enforcement, etc.). By investing resources to improve the housing stock, provide affordable housing opportunities, develop neighborhood-based Family Resource Centers, and provide enriched living environments, the City and Redevelopment Agency have improved the living conditions of residents of these focus neighborhoods.

On May 30, 2006, staff presented a discussion paper to the City Council outlining the possibility of creating a landscaped access path along the Los Angeles County flood control channel right-of-way from Alameda Avenue to Victory Boulevard. The report explained that improvements to this area of the channel were already being considered as part of a larger Neighborhood Enhancement Strategy for the Lake-Alameda Focus Neighborhood. The City Council then directed staff to continue with its neighborhood improvement efforts and begin developing the proposed landscaped access path in the Lake-Alameda Focus Neighborhood.

The Lake-Alameda Focus Neighborhood is located between Alameda Avenue and the eastern City border with Glendale and is bounded by Interstate 5 Freeway to the north and Victory Boulevard to the South. The neighborhood is bisected by Lake Street and a dominant feature is the Los Angeles County flood control channel that passes through the neighborhood (Exhibit A).

This neighborhood is isolated and accessibility is a challenge for the residents due to the barriers of the flood control channel and the I-5 Freeway. The neighborhood exhibits a wide variation of housing conditions with deteriorated multi-family and single-family properties interspersed amongst other well maintained properties. Similar to other focus neighborhoods, code enforcement issues such as abandoned shopping carts, property maintenance, inoperable vehicles, illegal garage conversions, trash, junk, and debris are a persistent problem for this neighborhood. In addition, overgrown weeds and illegal trash and furniture dumping along the flood control channel right-of-way is a recurring problem. The Burbank Police Department has also identified this neighborhood as one with a definite gang presence.

To further assess issues facing this focus neighborhood and assist staff in developing a Neighborhood Enhancement Strategy, in the fall of 2005, staff formed the Lake-Alameda Neighborhood Improvement Team consisting of representatives from the Community Development Department, Burbank Water and Power, Parks, Recreation and Community Services Department, Burbank Police Department, Burbank Fire Department, and Public Works Department. Members of the Neighborhood Improvement Team began their assessment with several tours of the focus neighborhood. As part of the community outreach efforts, a resident questionnaire was mailed to all residents of the neighborhood. In addition, a community outreach event was held in December 2005, a community meeting in March 2006, and the first Lake-Alameda Fall Fun Fest event was held in October 2006.

As mentioned, one of the first steps in the community outreach process was a questionnaire which asked residents to give feedback about their neighborhood, what they like and do not like, what they considered the most important concerns facing their neighborhood, and of those concerns, which one needed immediate attention. Staff received a total of 56 questionnaires. The majority of the issues and concerns identified dealt with infrastructure issues, code enforcement problems, police/safety concerns, property maintenance, housing conditions, traffic/parking/circulation concerns, and lack of neighborhood amenities. During the community outreach process, residents expressed their desire for improvements along the flood control channel right-of-way.

The residential questionnaire was followed up by a community outreach event in December 2005. Staff made themselves available one Saturday morning to provide information on the City�s efforts to make improvements in the area. Residents had an opportunity to talk to staff about their neighborhood and drop off the residential questionnaires. Staff also provided copies of the Lake-Alameda Focus Neighborhood map, City magnets with important telephone numbers, information on the City�s rehabilitation loan programs, Parks & Recreation and Community Services Youth Resources Guide and Recreation Guide, and the City calendar, all in an effort to help connect this neighborhood with the services and amenities available in the City.

During a March 2006 community meeting, residents had the opportunity to express concerns to a panel of City representatives; members of the Neighborhood Improvement Team. The goal of this meeting was to share with residents the input received thus far, obtain additional feedback from residents, and provide attendees with an opportunity to ask the Neighborhood Improvement Team any questions. In addition, residents were provided with information and brochures on City services and programs. The feedback was similar to the issues and concerns pointed out in the residential questionnaire; infrastructure issues, parking/traffic problems, safety concerns, code enforcement issues, lack of neighborhood amenities and improvements to the flood control channel right-of-way. Residents expressed their gratitude for the City�s concentrated effort in their neighborhood and also shared how happy they were to already be seeing some improvements.

In October 2006, during the Lake-Alameda Fall Fun Fest, residents had an opportunity to view the proposed Lake-Alameda Landscaped Access Path schematic design and provide staff with input on the proposed Project. Residents did not have specific comments on the schematic design, but did express how excited they were about the Project and also stated they were anxious for the improvements to begin.

As a result of the tours and community outreach efforts, below are the main issues and concerns identified by both the Neighborhood Improvement Team and the residents of the Lake-Alameda Focus Neighborhood:

With the main issues and concerns identified, the members of the Neighborhood Improvement Team utilized this information to develop a strategy by which to begin neighborhood improvements.

The Neighborhood Improvement Team analyzed and prioritized the main issues to be incorporated into a Neighborhood Enhancement Strategy. The primary areas that needed to be addressed were: infrastructure deficiencies, accessibility/mobility, public maintenance upkeep, code enforcement issues (including property maintenance), lack of landscaping along Lake Street, and community education about City services. During this process, it also became evident that many of the issues were quite simple and could be taken care of rather quickly, while others were going to require more time and consideration to address. Therefore, the issues were divided into two types of categories; short term and long term neighborhood improvement goals.

The short term neighborhood improvement goals consisted of minor infrastructure improvements, general public maintenance, safety concerns, parking issues, property maintenance, providing additional landscaping, and public education. The long term neighborhood improvement goals were more specific and included improvements along the flood control channel right-of-way, sidewalk improvements and creating open space.

With the help and dedication of the Neighborhood Improvement Team, the following short term neighborhood improvement goals were immediately addressed. These improvements will assist in sustaining and strengthening the Lake-Alameda Focus Neighborhood as called for in the 2006-2007 Work Program.

Many of the short term neighborhood improvement goals require ongoing attention and the Neighborhood Improvement Team will continue monitoring these areas. At the same time the above issues and concerns were being addressed, the Neighborhood Improvement Team also focused their attention on achieving the long term neighborhood improvement goals. These issues are larger, more complex, and will require additional funding. The team assessed each of the long term goals and developed a plan on how to achieve each of the goals.

Sidewalk improvements will occur along Moss Street and the following three streets east of the flood control channel to the I-5 Freeway: Spazier Avenue, Elm Avenue and Linden Avenue. Public Works staff provided a cost estimate of $249,000 for the proposed sidewalk improvement project. Public Works is scheduled to go out to bid this month and it is anticipated that construction will be complete in February 2007.

The more complex long term neighborhood improvement goal and also one of the largest challenges facing the Lake-Alameda Focus Neighborhood is improving the Los Angeles County flood control channel right-of-way (Exhibit B). This area was overgrown with weeds as depicted in Photo 1, however, staff performed the necessary weed abatement and tree trimming as previously mentioned. There is illegal trash dumping in the flood control channel, and residents report that it is a popular �hangout area� for alleged gang members. This is an area that is also heavily traveled by pedestrians. It is a popular route for the neighborhood�s students going to and from school, as well as a quicker way for the residents to reach the main corridors; Alameda Avenue and Victory Boulevard. During the community outreach process, the residents of this focus neighborhood expressed to staff that they are eager to see improvements along this corridor.

The proposed Lake-Alameda Landscaped Access Path (Project) includes roughly, a �-mile of the Los Angeles County flood control channel right-of-way from the southeastern city limit at Victory Boulevard to Alameda Avenue. The Project consists of an eight foot wide meandering concrete pathway along the east side of the flood control channel. The path will be flanked with landscaping, pedestrian-oriented, non-obtrusive lighting, and additional access points at the intersecting cul-de-sac streets. Perimeter landscaping will include colorful drought tolerant ground-cover, shrubs, and trees to buffer neighboring residences, provide shade, and aesthetically enhance the area. Amenities will include pedestrian-oriented lighting, decorative hardscape at the intersecting cul-de-sacs, �doggy stations,� trash receptacles, signage, bollards, and fencing. This Project will improve accessibility for the residents of this focus neighborhood and also provide the community with a safe and aesthetically appealing walkway. In addition, the Project will also incorporate similar style drought tolerant landscaping, bollards, and fencing improvements along the west side of the flood control channel. The design plan for the west side of the channel will not encourage public access, but will be designed to compliment the improvements on the east side, thereby improving the aesthetics of the area (Exhibit C).

In June 2006, staff began the schematic design phase of the Project. The schematic design phase consisted of a variety of tasks, including: forming the project team (which included members of the Neighborhood Improvement Team); preparation of base maps; site analysis and data gathering; civil engineering evaluation; utility coordination; traffic engineering; conceptual design plans; and preliminary construction cost estimates. This phase has been a multi-departmental effort. The project team consisted of representatives from the following departments and divisions: Community Development Department (Housing and Redevelopment, Planning and Transportation, License and Code Services, and Building Divisions); Public Works Department (Engineering and Traffic Engineering Divisions); Parks Recreation and Community Services Department; Burbank Water and Power (Electric and Water Divisions); Police Department and Fire Department. In addition, coordination with the representatives from Los Angeles County (County) and meeting with the community were also included in the schematic design phase.

As described, the project team reviewed preliminary plans and provided input during the schematic design phase. The Planning and Transportation Division recommended that the pathway be 12 feet wide so that in the future the path may be converted to a bike path, should the City decide to construct a Class I connector bike path along this area from the Downtown Metrolink Station to Victory Boulevard. The Parks, Recreation and Community Services Department is aware of the ongoing maintenance responsibilities associated with the Project and will need vehicular access for maintenance and irrigation purposes. Staff also held individual meetings with Police and Fire representatives in order to discuss their needs and ensure that the improvements would �not� attract people loitering and create opportunities for crime and vandalism (i.e. an attractive nuisance). As mentioned, this corridor is reported to be a popular �hangout area� for alleged gang members and the Police Department has indicated that creating a well lit yet nicely maintained access path will not only deter unwanted nuisances, but may also create a sense of pride and ownership within the community. Police representatives expect that with the pride of the new path, residents will quickly report any problems. In order to have continuous police presence, which Police representatives have expressed is important in this neighborhood, they also requested to have vehicular access to the pathway. The Fire Department has indicated that the five access points to the pathway will be sufficient for emergency purposes.

Staff has incorporated the project team�s suggestions, comments and requests into the Project schematic design. The most significant being the ability to sustain vehicular traffic. Therefore, David Evans & Associates, the Agency�s landscape architecture firm, recommends the concrete path be six inches thick in order to accommodate police and maintenance vehicles. The second significant comment was with regard to the width of the path. After initial site analysis and data-gathering, it was evident that constructing a 12 foot wide paved pathway, as requested by the Transportation Division, could not be accommodated. The existing right-of-way consists of varying widths, City sewer lines and manholes, Los Angeles County drainage facilities that intersect the right-of-way and varying grades. Nonetheless, the project team developed an alternative that would still allow for the pathway to be converted to a bike path if in the future the City decided to construct a Class I, connector bike path along the Burbank-Western Channel from the Downtown Metrolink Station to Victory Boulevard.

Caltrans Class I bike path standards dictate a paved width of eight feet with a two foot graded area on each side of the path to provide clearance from obstructions. This graded area may be paved or unpaved. The proposed Project would be constructed to a width of eight feet where possible, and all appurtenances (such as light fixtures, trash receptacles, doggy stations, and trees) would be placed to maintain the required two foot buffer area on each side. To maximize landscaping along the corridor, the two foot buffer area would be planted with low-level landscaping. This will allow for better aesthetics and beautification of the corridor while still maintaining safe pedestrian and bicycle operation along the route.

For the most part, the length of the path will be eight feet wide. However, there are a few areas where the width will vary. At the Alameda Avenue entrance, the concrete path is proposed to be twelve feet wide and will then transition to an eight foot wide paved path.

At one restricted location between Elm Avenue and Linden Avenue, the paved width must be reduced from eight feet to six feet for approximately 130 feet due to the narrow channel right-of-way. If the path were upgraded to a bicycle path in the future, this section could be identified through appropriate signage alerting cyclists to the brief narrowing of the route. The two foot buffer from obstructions on either side would be maintained throughout this narrow section.

Finally, near the Victory Boulevard entrance where there is a proposed retaining wall between the pathway and the flood control channel fencing, the concrete path is envisioned to transition to a ten foot wide path with a two foot buffer area to maintain appropriate clearance.

The next step in the process is the design development and construction documentation phases. A Request for Proposals for the design of the Lake-Alameda Landscaped Access Path was released on September 20, 2006. Staff received three proposals. With the assistance of Public Works, staff reviewed the three proposals and is recommending contracting with David Evans & Associates for the next phases. David Evans & Associates completed the schematic design of the Project and have extensive experience in working with the City of Burbank.

David Evans & Associates has submitted a comprehensive fee proposal that addresses the many tasks that lie ahead: research and topographic surveys; base mapping; geotechnical studies; design development drawings; coordination with Los Angeles County Flood Control; construction layout/grading and drainage plans; storm drain and sewer improvement plans; retaining wall plans; planting and irrigation plans; electrical/lighting plans; and construction plans, details, specifications, and cost estimate.

If authorized to proceed, staff will work closely with Public Works staff, members of the Neighborhood Improvement Team, all City Departments, and the neighborhood community in preparing the final plans.

In addition to preparing the schematic design for the Project, David Evans & Associates also provided staff with a preliminary cost estimate of $1,153,000 for the construction of the proposed Project. However, it is important to recognize that this estimate is based on the schematic design and actual costs could change depending on conditions and constraints that have not yet been determined at this time. As mentioned earlier, the proposed sidewalk improvement project is estimated to cost $249,000.

In February 2006, the City was notified that available State grant funds could be applied to the Robert Ovrom Park project. Therefore, the CDBG funding previously expended for land acquisition could be replaced by the State grant. As a result, upon approval by the U.S. Department of Housing & Urban Development (HUD) in March 2006, CDBG funds of $1.233 million were reimbursed to the U.S. Treasury on June 8, 2006 to be applied to future eligible projects.

Community Development Block Grant (CDBG) funds are available for improvements in this neighborhood. Staff is recommending $1,527,265.27 in CDBG funds be committed for funding public facility improvements in the Lake-Alameda Focus Neighborhood. In order to do so, staff is requesting the City Council approve a budget amendment to add the $1.527 million in uncommitted funds to CDBG Fund 122. This amount represents $1,233,000 reimbursed to CDBG this year, Fiscal Years 2004 and 2005 program income of $264,312.31 and $29,952.96 in project carryover funds from previous years[1].

Staff is proposing to reprogram $1.527 million in CDBG funds to complete public facility improvements in the Lake-Alameda Focus Neighborhood. Funds will be earmarked for the long term neighborhood improvement goals identified as part of the Neighborhood Enhancement Strategy: sidewalk construction and the proposed Lake-Alameda Landscaped Access Path project. Following are cost estimates for the above-mentioned improvements:

It is important to note that these cost estimates are subject to revision based on competitive bidding, proposals received, and/or federal regulations (such as Davis-Bacon prevailing wage requirements). More definitive cost estimates will be developed as the proposed design process continues, however the ultimate cost will be determined during the bidding process. If the Lake-Alameda Landscaped Access Path project is approved and implemented, there will be ongoing maintenance costs associated with the improvements.

Reprogramming $1.527 million in CDBG funds requires the City to file a CDBG Amendment to the Final Statement of Community Development Objectives and Projected Use of Funds for fiscal years 2000 and 2001. Projects approved for CDBG funds must comply with federal regulations, which include the requirement that appropriate amendments be filed with HUD whenever the City decides not to carry out an activity described in the Final Statement, or to substantially change the purpose, scope, location or beneficiaries of an activity.

This amendment, if approved, involves a substantial change to the use of CDBG funds. Substantial changes are defined as those modifications involving amounts greater than ten percent of the current year federal allocation (Entitlement and program income) or any change in use, purpose, scope, location or beneficiaries of an activity. This policy is effective for all federal programs in which the City participates. Prior to amending the City's Final Statement of Community Development Objectives and Projected Use of Funds or other federal program or activity, the City provides citizens with an opportunity to comment on proposed changes to the use of funds. Written comments to the proposed amendment were accepted until October 25, 2006, but none were received.

Approval of this budget amendment and the projected use of funds fulfills a federal/CDBG national objective of maintaining a suitable living environment and increasing accessibility. It also commits a substantial amount of funds that provide for concentrated public facility improvements in a CDBG eligible area, as well as in a Redevelopment Agency designated focus neighborhood.

This combined goal is now being emphasized by HUD as a factor in rating how well communities use federal funds to meet needs specified in the Consolidated Plan. The availability of state funds has provided this opportunity to reprogram previously expended federal funds for other eligible community development improvements.

The commitment of $1.527 million of CDBG funds for public facility improvements in the Lake-Alameda Focus Neighborhood requires that these proposed improvement projects move forward expeditiously and that funds are expended in a timely manner so that the City meets its letter of credit balance obligation. This requirement dictates that the City�s letter of credit balance be no more than 1.5 times its previous year�s entitlement on April 15^th annually.

The design phase and the City�s procurement process for the proposed Lake-Alameda Landscaped Access Path project would not meet these funding time constraints. The design phase is estimated to take at least three months, while the City�s procurement process will take an additional five to six months. Therefore in order to meet the April 15, 2007 deadline, staff is proposing the County of Los Angeles undertake the construction phase of the Project. The County has extensive experience in making such improvements along their flood control channel right-of-ways and is willing to take on this task. To facilitate this process, staff is proposing to enter into a Use Agreement (Agreement) with the County which will explain in detail the City�s and County�s responsibilities. The Agreement will include a scope of services and performance schedule that would delineate when the funds need to be spent, at which point the County will need to select a contractor, and a deadline for when construction of the Project must be completed. At the time of approval of this Agreement, staff will recommend transferring some or all of the project funds into an escrow account. This alternative approach will allow the City to meet the CDBG fund letter of credit balance obligation. Therefore, if so directed staff will return at a later date with a proposed Agreement between the City of Burbank and the County of Los Angeles.

As mentioned earlier, throughout the schematic design phase, staff held several meetings with representatives from the County to discuss the proposed Project. The County provided feedback and their requirements for the Project. The County has been cooperative and has expressed to staff their enthusiasm and commitment to the improvements. In response to the City�s interests in the channel improvements, the County is committed to funding a complimentary landscaping project on the west side, as described earlier. The County is also willing to undertake the construction phase of the Project. As previously described, the design phase and the City�s complex bidding process, would not allow the City to meet the CDBG funding time constraints. Consequently, forming a partnership with the County is a vital component to the construction of the Lake-Alameda Landscaped Access Path project. Staff is requesting authorization to continue working with the County on this Project and developing the Use Agreement between the two agencies. As previously described, the Agreement will outline all the terms, conditions, and requirements of the Project. If authorized, staff will return to City Council at a later date for approval of the Agreement.

The Neighborhood Improvement Team identified six primary areas to be addressed in the Lake-Alameda Focus Neighborhood Enhancement Strategy: infrastructure deficiencies, improved accessibility/mobility, code enforcement problems, public maintenance upkeep, lack of landscaping, and community education. As described, considerable progress has been made to the Lake-Alameda Focus Neighborhood with the short term neighborhood improvement goals already completed. As part of the Neighborhood Enhancement Strategy, there are also several issues that will require ongoing attention, including: illegal parking, property maintenance, graffiti, general public maintenance, and code enforcement. Staff will continue to monitor these areas with the Neighborhood Improvement Team.

Improvements to this neighborhood will be an ongoing effort and the next step in the Neighborhood Enhancement Strategy is to focus on achieving the long term neighborhood improvement goals. Providing contiguous sidewalks throughout the neighborhood and planting additional parkway trees along Lake Street, meets two of those goals and will significantly enhance the neighborhood. The proposed Lake-Alameda Landscaped Access Path will be another major improvement for this neighborhood. As previously described, the area is already heavily used, therefore the improvements proposed will make the area more safe and aesthetically pleasing. In addition, the Project will achieve the long term neighborhood improvement goal of creating useable open space along the flood control channel right-of-way. Finally, the Project will improve accessibility within the neighborhood to the rest of the community.

As described, due to CDBG funding time constraints, forming a partnership with Los Angeles County is a key component to the construction of the Lake-Alameda Landscaped Access Path. If authorized to proceed, staff will return as quickly as possible to the City Council for approval of the Use Agreement with the County, which will outline all the terms, conditions, and requirements of the Project.

Staff anticipates completion of the design development and construction documentation phases in March 2007, at which time staff will return to the City Council with an update including the engineer�s estimate prior to proceeding with the bid process. It is estimated that the County will go out to bid for a construction contractor in May 2007, and construction of the Project could begin as early as September 2007 with a tentative completion date of March 2008.

The proposed budget amendment transfers $1,527,265.27 from account number 122.ND000.30004.0000.000000, CDBG unappropriated fund balance account, to fiscal year 2006 CDBG fund account number 122.CD25A.63051.1120.000000. If approved, the funds will be programmed for public facility improvements in the Lake-Alameda Focus Neighborhood. In addition, the fiscal impact of proceeding with David Evans & Associates for the design development and construction documentation phases of the proposed Lake-Alameda Landscaped Access Path project is $209,000. This amount is proposed to be paid out of the CDBG funds.

Staff recommends the City Council: 1) approve the proposed budget amendment to add $1,527,265.27 in uncommitted funds to the 2006 Community Development Block Grant program; and 2) commit the $1.527 million in Community Development Block Grant funds for public facility improvements in the Lake-Alameda Focus Neighborhood. In addition, staff recommends authorization to proceed with the design development and construction documentation phases of the proposed Lake-Alameda Landscaped Access Path project, including preparation of a Use Agreement with the County of Los Angeles for approval at a later date. Finally, staff proposes the City Council adopt the proposed Resolution which authorizes a Professional Services Agreement between the City and David Evans & Associates for $209,000.

[1] The $1.233 million in reimbursed funds were originally expended in Fiscal Year 2001-02 to acquire 140-144 East Providencia Avenue and 115-123 East Cedar Avenue as part of the Robert Ovrom Park project.

[2] This cost includes landscaping, bollards, and fencing improvements for the west side of the channel. The County of Los Angeles has committed to funding that portion of the Project cost.

Council Agenda - City of Burbank

Tuesday, December 5, 2006

Susan Georgino, Community Development Director/Assistant Executive Director