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RESOLUTION NO
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A RESOLUTION OF THE CITY COUNCIL OF
THE CITY OF NEWPORT BEACH APPROVING
THE SANTA ANA RIVER /SANTIAGO CREEK
GREENBELT IMPLEMENTATION PLAN
WHEREAS, the purpose of the Santa Ana River /Santiago
Creek Greenbelt Commission is to assist in the coordination,
formulation and implementation of plans for the Santa Ana
River /Santiago Creek Greenbelt areas; and
WHEREAS, said Commission reviews and comments on
proposed private and public projects affecting the greenbelt;
and
WHEREAS, the Commission's actions are advisory to
adjacent jurisdictions, and not regulatory; and
WHEREAS,', the City of Newport Beach has cooperated
with and works with the Commission and the City of Costa Mesa,
Huntington Beach and Fountain Valley in the development of
the lower river segment of the Santa Ana River /Santiago Creek
Greenbelt Implementation Plan; and
WHEREAS, the adopted Santa Ana River /Santiago Creek
Greenbelt Plan emphasizes the need for the development of an
Implementation Plan; and
WHEREAS, there is a need to redefine the boundaries
of the greenbelt corridor as recognized by the Greenbelt
Commission; and
WHEREAS, Parks, Beaches and Recreation Commission
recommended approval of the Implementation Plan; and
WHEREAS, the Planning Commission of the City of
Newport Beach on April 1, 1976 recommended to the City Council
the approval of the Implementation Plan; and
WHEREAS, it is in the public interest to develop
an Implementation Plan for the Santa Ana River /Santiago Creek
Greenbelt,
I
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NOW, THEREFORE, BE IT RESOLVED by the City Council
of the City of Newport Beach that the Santa Ana River /Santiago
Creek Greenbelt Implementation Plan is approved, which Plan is
attached hereto as Exhibits "l ", 112111 "3 ", and "4 ".
ADOPTED this /92t day of April, 1976.
ATTEST:
City Clerk
OERTI D AS THE ORIGINAL
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}
EXHIfflt '''4"
LOWER RIVER SEGMENT
(NEWPORT BEACH AREA)
PROJECT N0.
PROJECT NAME E /UC /P
LNB -001
Water-
Related Recreation and Con-
servation
Area P
•
(a)
Small Craft Harbor -
(b)
Bicycle Trail (bluffs area) -
•
(c)
Bicycle Trail.(east levy;
19th Street to ocean) -
(d)
Hiking Trail (bluffs area) -
(e)
Hiking trail (east levy;
19th Street to ocean) -
(f)
Equestrian Trail (east levy,
19th Street to ocean) -
(g)
Neighborhood Parks (four
parks - bluffs area) -
(h)
View Parks (four parks -
bluffs area) -
(i)
Play Lot (one lot - scenic
area) -
(j)
Scenic Area (bluffs area) -
(k)
Scenic Area (adjacent east
levy) -
(1)
Landscaped Entry (Coast Highway
Area) -
(m)
Private Development (adjacent
bluffs scenic) -
(n)
Trails End Rest Stop (river -
mouth area) -
(o)
Coast Highway Reroute -
•
•
LCO -001 Water- Related Recreation and Conserva- P
tion Area (See (a) to (o) above)
LNB -002 Santa Ana River Equestrian Trail
(19th Street to ocean) E
11
EXHIBIT "4"
PRIORITY
1
1 i
PAGE Two
PROJECT NO, PROJECT NAME
LNB -003 . N/A -
LNB -004 . West Newport Park P
LNB -005 . Bicycle Trail (West Newport Park to
. LNB -001 (c) ). P
• RELATEn FEATURES
. Trails Linkage (Upper Newport Bay -
C.M. Corridor) P
"E - Existing, UC - Under Construction, P = Planned
•
•
1
1
ENGINEERING AND ECONOMIC FEASIBILITY STUDY
MOFFATT AND NICHOL, ENGINEERS
CONSTRUCTION COSTS
GENERAJ.
The coat of constructing the basic features
of this marina will be about the same for whoever
builds it. There will be differences in the methods
and cost of financing, however, depending; on who
• develops the various components. One of the
itcmn included in the scope of this study was a
determination of the relative feasibility of various
• combinations of public and private ownership alter -
natives. Each of these alternatives carries a
different price tag and cost allocation. Also,
as berthing basins are deleted from public owner-
ship, Federal participation decreases. Thus, in
order to develop cost estimates for the various
schemes of public versus private ownerships, these
schemes must first be defined and then analyzed
as to how each scheme will affect Federal partici-
pation. Because part of the financing will probably
be through a State loan, certain basic requirements
for State participation must be met as well as those
of the Federal Government.
SPONSORSHIP SCHEMES
The physical layout plan for the marina is shown
on Plate 2. Its capacity is 3009 recreational boats,
including berths for 150 boats around the water
perimeter of Newport Shores to be built by others.
In order to analyze the fiscal aspects of building
and operating the marina, construction costs are
considered for sponsorship schemes in which responsi-
bilities for construction and operation are
geographically divided as follows:
1. The entire marina to be owned by the Harbor
District.
2. Basin;; A, B and C to be owned by the Harbor
Di::t•.rict. Bauin D to be in private ownership but to
provide: at least 260 berths and operate within the
marina framr,work.
. Ha: ;ins A .end B to be owned by the Harbor
Wt:;in:.; C and D to be in private ownership
Ie,t to provide at. lca:tt; 1120 berths and to operate
within t:lw marin;r fr•:amrwork.
S3
•
•
For each of the four schemes, two alternatives
for land management of the perimeter lands of the
publicly owned basins are considered. Public parti-
cipation is maximized under sub - scheme "a" by acquiring
all of the perimeter lands and turning them over to
the Harbor District for leasing out to private enter-
prise, as is being done at Dana Point Harbor. Public
participation is minimized under sub - scheme "b" by
acquiring only the lands of the publicly owned basins
that are to be converted to water area plus the
20 foot marginal working strip, the slip- related
parking lots and the harbormaster's office site.
The remaining lands within the project boundary would
be left in private ownership to be developed and
managed by their owners for the various marina - related
uses of the overall development plan. Obviously,
these lands would have to be filled with materials
excavated from the water areas before they could be
used for such purposes, and thereafter their worth
would be increased several fold. The public sponsors
should be compensated for bringing about this increase
thru some form of agreement with the land owners at
time of acquisition. To simplify this accounting
problern for the purposes of this study, the cost of
land ac:quIsition under the sub- scheme "b" alternatives
i;. ;inerely reduced by the estimated cost to the public
::ponL;or of excavating and placing on the privately
held adjacent lands the amount of fill material
required to bring these lands up to project grade.
34
•
•
4. Basins A and B to be owned by the Harbor
District, but the Basin C and D areas to be completely
deleted from the project.
It should be noted that under Schemes 2, 3 and 4
the Harbor District will not be responsible for
bridging Victoria Street and that under Scheme 3
and 4, the Harbor District will not be responsible
for bridging 19th Street.
•
Each of the above schemes would meet the criteria
for Federal and State participation by providing for
public ownership of all waterways in the'publiely
•
owned basins, including (1) berthing areas, (2) a
harbor master area with a public landing, (3) public
ownership and construction of all bul- dreads, (4) public
ownership of a strip 20 feet wide surrounding the
entire wetted perimeter.
For each of the four schemes, two alternatives
for land management of the perimeter lands of the
publicly owned basins are considered. Public parti-
cipation is maximized under sub - scheme "a" by acquiring
all of the perimeter lands and turning them over to
the Harbor District for leasing out to private enter-
prise, as is being done at Dana Point Harbor. Public
participation is minimized under sub - scheme "b" by
acquiring only the lands of the publicly owned basins
that are to be converted to water area plus the
20 foot marginal working strip, the slip- related
parking lots and the harbormaster's office site.
The remaining lands within the project boundary would
be left in private ownership to be developed and
managed by their owners for the various marina - related
uses of the overall development plan. Obviously,
these lands would have to be filled with materials
excavated from the water areas before they could be
used for such purposes, and thereafter their worth
would be increased several fold. The public sponsors
should be compensated for bringing about this increase
thru some form of agreement with the land owners at
time of acquisition. To simplify this accounting
problern for the purposes of this study, the cost of
land ac:quIsition under the sub- scheme "b" alternatives
i;. ;inerely reduced by the estimated cost to the public
::ponL;or of excavating and placing on the privately
held adjacent lands the amount of fill material
required to bring these lands up to project grade.
34
•
•
•
•
•
•
CORP:.: OP NNCINE.ERS PARTICIPATION
It hri:; been a lonC. standing Federal policy to
partie:'ipate in the development of public: harbors or
mara;icc:�. This program is the responsibility of the
U.S. Army Corps of Engineers. At the direction of
Congress they undertake a thorough study of the project
and rncike their recommendation through the Secretary
of the: Army to Congress. If the project is approved
by Corngr•es:;, detailed engineering studies are made
and when the local sponsor's funds are ready, Congress
can appropriate necessary constrtaction funds. In
order- to qualify for these Federal funds, a number of
conditions; must be met by the local public agencies:
Thc•: harbor must be administered by a public
agency.
2. A public landing must be available to all on
equal terms.
3. All harbor facilities, public or private, must
be available to all on equal terms.
Moreover, an economic analysis that will be made
by the Corps must show a favorable ratio of general
public: benefits to Federal costs. The Federal share,
by Congreosional policy, is 50 percent of the con-
structions costs of the general navigation features,
the remainder to be provided by local interests,
in this case, the Harbor District. For this marina,
these features are the entrance Jetties, the navi-
gation lights, the revetted slopes around the curve of
the inner part of the entrance channel, and dredging
of the entrance channel and the main channel through
the four basins. The analysis of benefits is basi-
ca.13y a determination of the depreciated value of the
recreational -boat fleet (this being considered a
meas:ur•c of the benefits of the fleet to its owners),
thc: sport - fishing benefits, and the reduction of
damag,c• to boats of all classes because of the
she'Itcr• provided by the harbor. These benefits are
comp:u•ed to the costs of constructing and maintaining
thr: r.on,rral navigation features and acquiring the
land:: to be occupied by these. general navigation
atu c(:::.
The Cor•I);; of Eri- ineurs will make their own
c:conuui:ic: tus:i:l,y;1:; according to their established
I;uliic 1 in r. linwover•, in order- to determine the
fca:: i b i 1 i Ly of obtain intS Corp:; of Englneer
'i 5
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}
participation and funding, the following analysis
was made, based on the Corps guidelines:
(1) Total Public Harbor, 4 basins and 3000 boats
AnnueLl Cost
1st Cost - Construction
Cost of land acquisition
TOTAL
Annual Cost (50 year life)
Land and Construction*
Maintenance
TOTAL
Annual Benef
Depreciated value of boats
Average annual benefit
Bc neflt -Cost ratio 2.6
$7,400,000
1 725,000
9,125,000
$ 650,000
120,000
770,000
$28,000,000
2,000,000
(2) Bauins A, B and C Public with 2740 boats
Annual L Costs
1st Cost - Construction
Cost of land
TOTAL
Annual Costs (50 year life)
Land and Construction*
Maintenance
TOTAL
$6,920,000
1,590,000
$8,510,000
$ 610,000
100,000
710,000
Annual Benefits
Depreciated value of boats $25,000,000
Average Annual Benefit 1,812,000
lirnoI'it. -Coat ratio 2.6
•
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(3) Basins A and B Public with 1874 boats
Annual Costs
ist Cost - Construction $ 6,520,000
Cost of land 1,390,000
TOTAL $- 7,9109000
Annual Cost (50 year life)
Land and Construction* $ 560,000
Maintenance 90.000
TOTAL 56 0,000
Annual Benefits
Depreciated value of boats $17,000,000
Average Annual benefit 1,1229000
Benefit -Cost ratio 1.7
*Amort.i.zation of first costs in 50 years at
6 -7/8 percent compound interest.
The above analysis shows that so long as at least
Basins A and B are operated by the Harbor District,
participation by the Corps of Engineers with a Federal
expenditure of over $3,000,000 can be justified.
PROJECT FIRST COST
The following is a breakdown of first costs of
the marina, including highway bridges, assuming Corps
requ]rements will be met:
1'11EM
TABLE 2
Cost of Construction
(In millions of dollars)
Public or
Federal Public Private
ENTRANCE CIIANNE.1,
J el-t. i ua; and Wave Absorber* 1.250 1.250 -
Drc,dj, .nr: Entrance Channel* 0.715 0.73.5 -
N:ivil;ut.ion Aid Foundations* 0.045 0.045 -
I,:uul Val.wition - 3.000 -
P w i I' i s Coast. Il i gtiway Bridze
:luh 'Potul. 2.010 5.010
37
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t a r
Public or
ITI -:t4 Federal Public Private
BAS1'N A
Dredging Main Channel* 0.425 0.425 -
Bulkheading Main Channel - 0.060 -
Dredging and Bulkheading
Boat Basins - 1.300 -
Interior Roads - 0.075 -
Harbor Master & Admin. Fac. - 0.600
Land Valuation - Public - 1.710
Land Valuation- Pub /Priv. ** - - 3.050
Sub Total 0.425 4.590 3.050
BASIN A -B
Pacific Coast Highway Bridge 2.900
BASIN B
Dredging Main Channel* 0.625 0.625 -
Bulkheading Main Channel - 0.395 -
Dredging & Bulkheading
Boat Basins - 3.230 -
Interior Roads - 0.400 -
Support Land Utilities - 1.460 -
Land Valuation Public - 1.030 -
Land Val.uation'Pub /Priv. ** - - 0.690
Sub Total 0.625 7.140 0.690
BASINS B -C
19th St. Bridge - 3.000
P.ASIN C
Dredging Main Channel*
0.400 0.400 -
Bulkhcading Main Channel
- 0.1110 -
Urvdl�.ing & Bulkheading
Boat. ha:cins
- 1.600 -
intcrior Road-
- 0.175 -
:;up1x rt Land Utilities
- 0.930 -
Land Valuation Public:
- 1.010 -
I.,:ind Valuation Pub /Pr.f.v. **
- _- 0.750
"ub Total
0.400 11.525 0.750
hA:" I N:1 C -U
Vi,:Lnria ;Lr -cof. Bridge
- 0.700 -
38
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r
Public or
ITEM Federal Public Private
BASIN D
Dredging Main Channel*
Bulkheading !-lain Channel
Dredging & Bulkheading
Boat Basin
Interior Roads
Support Land Utilities
Control Structure for
Banning - Greenville Channel
Land Valuation Public
Land Valuation Pub /Priv. **
Sub Total
TOTAL
TOTAL (Public & Private)
0.240 0.240 -
- 0.525 -
- 0.580 -
- 0.075 -
- 0.550 -
0.400 -
0.410 -
0.320
0.2110 2.780 0.320
3.700 30.645 4.810
TOTAL (Federal, Public, Private)
35.455
39.155
*To be constructed by the Corps of Engineers
* *Public for sponsorship sub - scheme "a", private for
sponsorship sub - scheme "b ".
The breakdown of costs to participating interests
for each of the sponsorship schemes is shown in the
following Table:
TABLE 3
Cost Breakdown by Sponsorshi Schemes
(in millions of dollars
Harbor
Spon,orsh.iP Scheme. Fed. Dist. Private
1. All. water area:: public
a.. W i.h binds public 3.7 35.11 -
1,. WiLh .land :c private 3.2 29.1 6.3
?. hu::.inr, A, h, C, Public
u. With land;; publie 3.5 31.5 4.1
b. With laud;; private 3.1 25.6 10.2
3. Ba.;]n.; A, 11, Public
a. With .I -ands public 3.1 23.4 12.6
b. With l to i:; private 2.9 3.9. 1 17.1
39
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POTENTIAL REVENUES
GENERAL
The income produced by the overall project will
come from three principal sources. slip rentals in
the water area, taxes levied against the berthed
craft and leases of land parcels for various uses.
Slip rentals and numbers of boats to be taxed under
each sponsorship scheme will not vary appreciably
with any reasonable modification of the water -area
configuration in future planning, as the ratio of
berthing area to fairway and channel area must remain
approximately the same for navigational reasons.
Income from the land area, on the other hand, may
vary considerably according to the purposes for
which it is used and with intensity of use. Use-
intensity is closely related to the number of
people (below congestion limits) that are attracted
to the area either as permanent residents or as
participants in marina activities who come from out-
side they project boundaries.
The current trend in Orange County is toward cur -
taiLrncnt of the number of residents in any given area
by imposing various: types of governmental controls.
'these controls take the form of zoning restrictions,
buildIn6- height restrictions, restrictions on the
allowable number of residential units per acre,
review -board control over new development, etc.
An example of high- intensity use is Marina del Rey,
in Lor, Angeles County, where high -rise buildings are
permitted and where facilities that attract thousands
of v.litor: are encouraged. An example of low-
intensity use is Huntington Harbour, where minimum
lot --'Ize restriction as well as low- density zoning
regulatJons are imposed.
INCOME FROM SLIPS
.;lip rental rate, are estimated at $2.50 and $2.25
per I'uot of length per month for slips over and under
36 feel: rcr.;pect'ively, based on current rates in nearby
mar.inju. An average occupancy rate of 95% is assumed,
uslkint; th,! annual income per foot of 911p $28.50
-Intl $C 5.61, respectively. It is also assumed that the
hert.hiup; nr•ca;s together with their designated parking
aroau ave to be leased to private enterprise for slip -
coll:0.ruci.lon and operation, as io now being done at
40
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•
Dana Point Harbor, and that the annual income to the
Harbor District will be 20% of the slip rentals.
The income to the Harbor District by basins and by
sponsorship schemes is shown in the following table:
TABLE 4
Annual Slip Income
BASIN A
Berthing area 460,000 sq. ft.
Gross income: 117 slips x 50 ft. @ 28.50: $167,000
164 slips x 35 ft. @ 25.65: 11412000
*314xOOO
Harbor District lease income, 204 $ 62,800
BASIN B
Berthing area 1,760,000 sq. ft.
Gross income: 1452 slips x 35 ft. @ $25.65:$1,304,000
Harbor District lease income, 20% $ 2603,800
BASIN C
Berthing area 862,000 sq. ft.
Gross income: 866 slips x 30 ft. @ 25.65: $666,000
Harbor District lease income, 20% $133,200
BASIN D
Berthing area 244,000 sq. ft.
Gross income: 260 slips x 30 ft. @ 25.65: $200,000
Harbor District lease income, 20% $ 40,000
Sponsorship Scheme 1: public ownership all Basins $496,00.
Sponsorship Scheme 2: public ownership Basins A,B,C 456,800
Sponsorship Schemes 3 & 4: public ownership Basins A,B 323,600
41
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BOAT TAX REVENUE
The taxes derived from privately owned lands,
improvements built on these lands, furnishings in
these improvements and most other private properties
belonging to the tenants are normally used to pro-
vide community services for residents of those lands.
Because such taxes are all presumably returned to the
taxpayers in the form of police and fire protection,
schools, roads, sanitation, etc., they cannot be con-
sidered as project revenues. Additional taxes derived
from berthed boats, on the other hand, are generated
only as a result of more berthing area being provided,
and those additional boats do not increase the demand
for normal community services. Only those services
provided by the harbor management are increased, and
this increase is reflected in the harbor operations
costs which are taken into account in the economic
analysis. For this reason boat taxes are considered
to be direct revenues resulting from harbor con-
struction, regardless of their ultimate disposition.
Orange County levies taxes on the boats in its
harbors on the basis of their assessed value, i.e.,
one - fourth of their actual depreciated value. The
estimated harbor boat tax revenue is therefore con-
sidered to be one fourth of the depreciated appraised
value of the boats used in the benefit /cost analysis
for Corps of Engineers participation. Assuming a 95
percent occupancy factor, the berthed boats would then
have an assessed value of $9,590,000. The 1973 tax
rate for the Newport Harbor area is $9.18* per $100
of assessed valuation, and at this rate the boat tax
revenue produced by the project under Schemes 1, 2 and
3 would be approximately $8$0,000 annually. Under
Scheme 4 it would be approximately $5709000 annually.
INCOME FROM LAND AREAS
All land areas within the project boundary not
occupied by roads, slip - parking lots, the harbormaster °s
office and the green strip along the Santa Ana River
are considered leasable. The principal purposes for
which the leased land will be used are condominum -type
housing developments, motels and hotels, restuarants
and various commercial and recreational activities. As
previously stated, the primary requisite for a
successful leasing program of this nature is a fairly
large number of permanent residents who will make use
*Orange County Tax Assessor's Office, Marine Division
42
of the facilities provided other than the living units
themselves. For this reason, a fairly generous allo-
cation of condominum sites was provided for
feasibility- testing purposes. It was assumed that
about 2,500 units would be built on these sites, which
averue;; about 6 units per acre for the 420 acre site.
In add.H.J on, site; were provided for about 1,000 hotel
and mutaa urOLa. It was felt that the resulting marina
Population would a.,;zure the success of the restaurants,
• and thn commercial and recreational activities to be
ptrov idrrd.
• in Apri.L, 1967, Victor Gruen and Associates made a
rt— .,Ludy of Marina del Rey which provided data on
revenue;: being obtained by the harbor administration
from lease of marina lands for various purposes. That
was prior to the construction of any high -rise buildings
when the level of development approximated that desired
for West Newport Marina. The results of that study .
have been upgraded to present price levels to give the
following table of land lease revenues that is considered
applicable to the project area.
TABLE 5
Annual Revenues Obtainable for Marina Lands
Parcel Use Income per Square Foot
Restaurants $ 0.90
Motels: & Hotels 0.60
Var.touz; Sales & Recreation 0.35
Condominiums, General 0.20
Condrnn:ini.ums, Bluff Area 0.40*
*Derived for this report by considering the larger
number or un1L•s per acre possible and better vistas
of the ea ^.t- boundary condominiums.
An analyals of available lease parcels indicates that
a : ;atlufactur.y use -plan maximizing revenue potentials
without. viol.uting County height and unit - density criteria
can bu developed. First, a group of view condominiums
would bo ;;ited along the east boundary rising to about
the: lrvca. of the adjacent mesa lands. These structures
:;horLd nomma nd premium leak returns,. provided their
v.ir:w of thu harbor Is not obscured by development to the
we:;L. Next, a few channel -view restaurant sites would
he t•o :.crved alone; the water front, as they will probably
113
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7 7
produce the highest revenue per square -foot. Then
enough good hotel and motel sites will be reserved
to satisfy the anticipated transient needs. They
must be near or have easy access to main travel
routes cro;ning the marina. In general, the remain-
ing parcels along the waterfront will be offered
ma:lnly for two or three story condominiums, and
those not ::.long the water but generally contiguous
to main road:.; will be offered as sites for various
•commercial and recreational uses.
The revenue rates from Table 5 were applied to
• the: arc::.i;; of the various parcels in one typical
development scheme for the site which adhered
gonerallly to the principles previously described.
The estimated income is shown in the following Table:
TABLE 6
Annual
Income from Lease
of Land
Acres
Income
Basin A
Launching Ramp
3
$ 18,000
Residential
12
1902000
Commercial
8
164,000
23
$ 37`21000
Ban In B
Re:; Went l.al
28
510, 000
Commercial
24
463,000
Recreational
8
120 000
60
$12093"060
Darin C
Residential
20
284,000
Commercial
10
252,000
Recreational
5
76.000
35
$�b12, -O0
Ba:;in D
IIcsidcmtlal
14
360,000
Commercial.
5
80,000
Becreat.ional
-1
22
46 000
$486,600
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A summary of annual income to the Harbor District
from all sources for each of the sponsorship schemes
is presented in the following table:
TABLE 7
Annual Harbor District.Income From All Sources
(In Thousands of Dollars)
Slips Boat Land
1.
All
water areas public
a.
With lands
public
496.8
880
2,560
3',936..8
b.
With lands
private
496.8
880
-
1;376.8.
2.
Basins A. B, C
Public
a.
With lands
public
456.8
880
2,074
31410.8
b.
With lands
private
456.8
880
-
1036.8
3.
Basins A. B Public
a.
With lands
public
323.6
880
11462
2,665.6
b.
With lands
private
323.6
880
-
19203.6
4.
Basins A, B Public and
no
Marina in Basins C,D
a.
With lands
public
323.6
570
1,462
2055.6
b.
With lands
private
323.6
570
-
893.6
45
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ECONOMIC ANALYSIS
FUNDING SCHEDULE
One of the controlling factors in the economic
analysis of the proposed marina project is the re-
quired scheduling of funds that must be provided by
the Harbor District for each of the sponsorship
schemes considered. Deferred expenditures may be
reduced to present worth for comparison with project
revenues, which must also be reduced to present worth
for valid analysis. It is assumed that all lands would
have to be acquired prior to start of construction.
The construction features to be accomplished by the
Corps of Engineers will probably be completed over a
two or three year period, with matching funds for at
least half of the total being required prior to pro-
ject implementation. All bridge construction should
be accomplished as early in the program as possible so
that work on piers and abutments will not interfere
with basin development. The lead time required for
fabrication of steel superstructure components will
necessitate early funding also, so that most of the
funds for bridge construction will be needed very
early in the development program. Roads and utilities
cannot be installed until the land areas of the project
plan are filled and consolidated. Much of the excava-
tion for production of fill material, on the other
hand, must await completion of perimeter walls to
retain the fill, and construction of these walls is
one of the costliest features of the project..
In general, it appears that over half of the
required public funds must be available prior to
commencement of work and that most of the remainder
will be needed about a year later. Although the
construction period may cover about four years, it is
assumed for the purposes of this study that all
public funds must be available at the start of the
project. Some savings may result from deferred
funding of portions of the program, but until a firm
plan is agreed upon, it is considered unsafe to rely
on this possibility.
46
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REVENUE SCHEDULE
For the purposes of this report, it is assumed that
the leasing of berthing areas for slip construction will
begin at the end of the first three years of construc-
tion (as some overlap of construction and slip - leasing
is permissible) and that the slips will be rented and
occupied in uniformly increasing numbers to full capa-
city over the succeeding four years. In order to
simplify the calculations, no revenues are considered
receivable during the first two years of this period
and the full - capacity revenues from slip rentals and
boat taxes (reduced to 95 percent occupancy) are con-
sidered to be receivable from the beginning of the third
year (five years after project implementation) to the
end of the assumed project life 45 years later.
Under sub - scheme "a" of
alternatives, revenues from
help to support the project.
assumed to become receivabl e
the fifth year after projec
ANNUAL COSTS
tthe project - sponsorship
land -area leases will also
These revenues are also
in full amount beginning
implementation.
The annual revenues will be partially offset by
the annual costs of administering, patroling and
maintaining the harbor. These annual costs are esti-
mated at $300,000 for sponsorship scheme 1, $280,000
for sponsorship scheme 2, and $250,000 for sponsorship
schemes 3 and 4. Unlike the revenues however, they
will begin at the beginning of the slip- leasing period
and continue throughout the life of the project.
REVENUE -COST RATIO
One measure of the economic feasibility of a project
is a comparison of the sum of all of its revenues with
all of its costs reduced to annual amounts averaged .
over the life of the project. If the ratio exceeds one
to one, the project is considered to be economically
justified. In order to reduce costs and revenues to a
common basis, a project life must be established,
which for this project is assumed at 50 years as
required for analysis of Corps of Engineers projects.
The estimated first costs to the Harbor District
are shown in Table 2, and for this comparison, it is
assumed that they will be met with borrowed capital.
47
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•
For each sponsorship scheme it is assumed that a
State loan of $10,000,000 can be obtained, repayable
over a 30- yearbperiod at 4.5 percent compound interest
in 30 uniform annual installments. The remainder of
the first cost is assumed to be met with institutional
loans that will be repayable over a 50 year period at
8.0 percent compound interest in 50 uniform annual
installments. The debt - servicing costs would therefor
be the 30 year capital recovery factor (.06139) applied
to the first $10,000,000 of cost, plus the 50 year, 8%
capital recovery factor (.08174) applied to the remainder
of the cost. To the debt - servicing costs must be added
the annual costs of maintaining the harbor. Because
they do not start for three years after the project
implementation date, however, these costs should be
reduced by the ratio of the 50 year to the 47 year
sinking fund (.00174/.00220= .790)•
At the end of the project life, the public land
areas, water areas, and improvements will have a
salvage value for which credit may be taken in the
cost accounting. Inasmuch as the land and water areas
do not deteriorate with age and most of the improve-
ments, such as bulkhead walls, roads and utility
systems, suffer only minor deterioration if continuously
maintained, the salvage value of the public portions
of the harbor is considered to be 80 percent of the
initial Harbor District cost for each of the sponsor-
ship schemes evaluated. In taking an annual credit
for this salvage value, it may be assumed that the
prospective salvagor establishes a sinking fund to the
District's credit on the project implementation date
into which he pays a uniform annual amount, which at
8 percent compound interest will reach the estimated
harbor purchase price 50 years hence. This amount is
80 percent of the 50 year sinking fund factor
(.00174 x .80) multiplied by the Harbor District's
first cost as shown in Table 2. The District's
annual costs may then be reduced by this annuity.
The harbor revenues are those shown in Table 7,
but because they do not start for five years after the
project implementation date, they must be reduced by
the ratio of the 45 year to the 50 year compound
amount factor at 8 percent interest
(386.505/573.770 = .672). These revenues and the
comparable annual costs for each of the sponsorship
schemes, with resultant revenue -cost ratios, are
shown in the following table.
48
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40
TABLE 8
. Economic Analysis of 50-Year Project
(annual values in thousands of dollars)
From this analysis it is apparent that the scheme "b"
alternatives all lack justification by a fairly wide
margin. Under the scheme "a" alternatives, however,
the large revenues from land leases considerably exceed
the increases in coats resulting from the additional
raw -land acquisition, and for the first 30 years they
are marginally sub- feasible. After the State loan has
been retired, however, all of the scheme "a" alternatives
sho-a Yood feasibility for the last 20 years. The
method of analysis used in Table 8 is quite sensitive
119
Costs
Rev. /Coat .
Ratio
en
v
h0
N U
C Ls
N
N
Sponsorship
>
A
4) y
TwW
�
a m
d&
W
o
ti�
W4 O
�>4
ld o
Scheme
(D
x
n v3
o z
m 0
H
P•. M
a w
1.
All water public
a. Land public
2646
2690
237
-48
2879
.92
1.17
b. Land private
925
2175
237
-41
2371
.39
.53
2.
Basins A,B,C pub.
a. Land public
2292
2371
221
-44
2548
.90
1.18
b. Land private
898
1905
221
-36
2090
.43
.61
3•
Basins A,B pub.
a. Land public
1791
1709
198
-31
1873
•96
1.42
b. Land private
809
1358
198
-27
1529
•53
.88
4.
Basins A,B pub. &
no boats in
Basins C,D
a. Land public
1583
1709
198
-31
1873
.85
1.25
b. Land private
600
1358
198
-27
1529
.39
.66
From this analysis it is apparent that the scheme "b"
alternatives all lack justification by a fairly wide
margin. Under the scheme "a" alternatives, however,
the large revenues from land leases considerably exceed
the increases in coats resulting from the additional
raw -land acquisition, and for the first 30 years they
are marginally sub- feasible. After the State loan has
been retired, however, all of the scheme "a" alternatives
sho-a Yood feasibility for the last 20 years. The
method of analysis used in Table 8 is quite sensitive
119
M,
to interest rates. For example, if the interest
rate on the loan obtained from the private sector is
reduced from 8 to 7 percent, ttte revenue -cost ratio
will increase about 15 percent, making all of the
scheme "a" projects economically feasible for the
entire project life: Thus, if prevailing interest
rates were to improve in the future, or if.the State
would increase its share of the funding at its lower
interest rate, the economics of the project would be
measurably enhanced.
• It must be realized that the estimates of costs
and revenues on which this analysis is based are of
a very preliminary nature. While an effort was made
• to use conservative figures, these estimates must
be refined by more detailed planning of project com-
ponents and by market studies of prospective revenues
before they can be accepted as authoritative. Never-
theless, the strong indications of project feasibility
demonstrated by this analysis and consideration of
the many benefits that would result from the project
warrant continuance of efforts to achieve project
implementation.
•
•
SOURCE OF FUNDS
Implementation of the project must be geared to
the Corps of Engineer's time schedule. The earliest
definite assurance that a Federal project will be
implemented will be the allocation by Congress of
funds with which to start the Corpst General Design
Memoranda. If an effort is made in 1974 to secure
such a project for the marina site and this effort
is maintained over the next few years, experience
with other projects has shown that about 7 years
will be consumed in reaching this GDM- funding mile-
post. At that time, the Corps will begin the
detailed planning of those components of the
project which it will construct. About three
more years will then be consumed in the design
effort and preparation of contract plans and speci-
fications before actual construction can begin.
In the case of Dana Point
period was used to accumulate
District's taxing powers, and
thi.3 action will be repeated.
of Orange County is now about
Harbors, Beaches and Parks Di
50
_1n_
Harbor, this three year
funds thru the
it is assumed that
The assessed tax base
$4 billion, and the
striet's share of the
annual tar, levy is now $0.22 on hundred dollars
assessed value. The District is now using most of
its tax funds to raise the status of its County
Parks program to desired standards. This goal
should be reached within a few years, and assuming
that continuance of the same tax rate can be
justified, some of the funds can then be diverted
to other uses. For the purposes of this report
it is assumed that the Corps' GDM will be funded
in 1981 and that $0.05 of the tax levy can be
• diverted to accumulate project funds. This would
amount to $2,000,000 per year or $6,000,000 by 1984,
the assumed year of project implementation.
• Another source of funding is the small- craft-
harbors loan program of the State Department of
Navigation and Ocean Development. It is assumed
that a $10,000,000 State loan can be obtained in
1984 at the present annual interest rate'of 4.5
percent. This will probably be a 30 year loan with
a 5 year moratorium on commencement of repayment of
principal.
The remaining funding requirement would then have
to be met with Harbor Revenue Bonds, which will be
assumed to draw 8 percent interest with any maturity
period desired up to 50 years.
DEBT SERVICING
It is assumed that retirement of the District's
debts assumed in the financing of the project would
be accomplished generally by continuation of the
$0.05 per hundred tax levy allocation for the first
five years after project implementation and there-
after with harbor revenues augmented as necessary by
taxation. A suggested debt - servicing program for
each of the sponsorship alternatives considered in
this report is outlined in the following table.
51
•
•
•
•
TABLE 9
Suggested Debt - Servicing Programs
(all figures except tax rates in millions of dollars)
Scheme la. All water areas pub. with perim. lands pub.
Funds Required: 35.4 -6 =29.4: State 10.0, Rev. Bonds 19.4
Years
1984 -87
1987 -89
1989 -2014 2014 -34
Demands
Demands
State Loan
0.45
0.45
0.67 -
Revenue Bonds
1.59
1.59
1.59 1.59
Harbor Opr. & Maint.
-
0.30
0.30 0.30
Total 2.04 2.34 2.56 1.89
Met By
Harbor Income (Gross) 3.94 3.94
Taxes 2.04 2-34 - -
Tax Rate* $0.0510 $0.0585 - -
Harbor Income (Net) - - 1.38 2.05
Scheme lb. All water areas pub. with perim. lands pri.
Funds�uired: 29.1 - 623.1: State 10.0, Rev. Bonds 13.1
Years
1984 -87
1987 -89
1989 -2014
2014 -34
Demands
State
0.45
0.115
0.67
-
Revenue.Bonds
1.07
1.07
1.07
1.07
Harbor'Opr. &
Maint.
0.28
0.28
0.28
Total
1.52
1.80
2.02
1.35
Met By
Harbor Income
(Gross) -
-
1.38
1.38
Taxes
1.52
1.80
.64
-
Tax Rate*
$0.0380
$0.0450
$0.016
-
Harbor Income
(Net) -
-
-
$0.03
*rcr $100 of assessed value assuming tax base of
$11 billion
52
•
•
•
I
Table 9 Continued
Scheme 2a. Basins A,B,C public with perim. lands public
Funds Required: 31.5 -6 =25.5: Sate 10, Rev. Bonds 15.5
Years 1984 -87 1987 -89 1989 -2014 2014 -34
Demands
State Loan 0.45 0.45 0.67 -
Revenue Bonds 1.27 1.27 1.27 1.27
Harbor Maint. & Opr. - 0.28 0.28 0.28
Total 1.72 2.00 2.22 1 1.55
Met By
Harbor Income (Gross) - - 3.41 3.41
Taxes 1.72 2.00 - -
Tax Rate* $0.0430 $0.0500 - -
Harbor 7neome (Net) - - 1.19 1.86
Scheme Pb. basins A,B,C public with perim. lands private
Funds Required: 25.8 -6 =19.8: State 10, Rev. Bonds 9.8
Year;; 1984• -87 1987 -89 1989 -2014 2014 -34
Demands
State Loan 0.45 0.45 0.67 -
Revenue Bonds 0.80 0.80 0.80 0.80
Harbor Opr. & Maint. - 0.28 0.28 0.28
Total 1.25 1.53 1.75 1.08
Met BY
Harbor Income (Gross) - - 1.34
'faxes 1.25 1.53 0.41
'Paz Ratc* $0.0312 $0.0382 $0.0103
Ilrirl o r I.nnome (Not) - - -
*Pur• $100 oi' a:;: ;o: ;scd value assuming tax base
of $4 H.].I.Lon
53
-17-
1.34
0.26
•
•
•
•
Table 9 Conti.nuod
Scheme 3a. Aa:;J.n :; A,B pub. 4ith perim. lands public
Funds fiequl.red: 23.4 -6 =17.4: State 10, Rev. Bonds 7.4
Year:
1984 -8'1
1987 -89
1989 -2014
2014 -34
Demands ---- - -
- - -- -
-
State Loan
0.45
0.45
0.67
-
Revenue Bonds
0.60
0.60
0.60
0.60
Harbor Opr. &
Maint. -
0.25_
0.25
0.25
Total
1.05
1.25
1.52
0.85
Met BY
Harbor Income (Gross) - - 2.67 2.67
Taxer. 1.05 1.25 - -
Tax Rate* $0.0262 $0.0312 - -
Harbor Income (Net) - - 1.15 1.82
Scheme 3b. Hasins A,B pub. with Perim, lands private
Fund- Required: 10.1 -6 =13.1: State 10, Rev. Bonds 3.1
Year:;
1984 -87
1987 -89
1989 -2014
2014 -34
- _
Demands-
State Loan
0.45
0.45
0.67
-
Revenue Bonds
0.25
0.25
0.25
0.25
Harbor Opr. & Maint.
-
0.25
0.25
0.25
Total
0.70
0.95
1.17
0.50
Met By
Harbor Income (Gross) - - 1.20
Taxes. 0.70 0.95 -
Tax liatr.* $0.0175 $0.0238 -
Harbor income (Net) - - 0.03
*Vor $.100 of a! ;:ce,;ncd value anGuminl, tax base of
$4 hlIIi.on
1.20
0.70
•
•
•
TaI 1, 9 font Lnued
Scho me 4a. Basins A,B pub. Yith perim. lands public
and no marina in Basins C,D
Fund" Required: 23.4 -6 =17.4: State 10, Rev. Bonds 7.4
Years
1984 -87
1989 -89
1989 -2014 2014 -34
Demand::
State Loan
0.45
0.45
0.67 -
Revenue Bonds
0.60
0.60
030 0.60
Harbor Opr. & Maint.
-
0.25
0.25 0.25
Total 1.05 1.25 1.52 0.85
Met by
Harbor Income (Gross) - - 2.36 2.36
Taxc:; 1.05 1.25 - -
Tax Rate* $0.0262 $0.0312 - -
Harbor income (Net) - - 0.84 1.51
:scheme A. Basins A,B pub. with perim. lands private
and no marina in Basins C,D
Funds Required: 19.1 -6 =13.1: State 10, Rev. Bonds 3.1
Yearra
1984 -87
1987 -89
1989 -2014 2014 -34
Demands
State Loan
0.45
0.45
0.67 -
Revecue Bonds
0.25
0.25
0.25 0.25
Harbor Opr. & Maint.
-
0.25
0.25 0.25
Total
0.70 0.95
Met By
Harbor Income (Grown) -
Taxo:. 0.70
0.95
1.17 0.50
o.89 0.89
0.28 -
Tax RaLv* $0.0175 $0.0238 $0.0070 -
1 ybor I nnome (Not) - - - 0.39
*P"r WO of asoanned value asnumi.ng tax base of
:4 61 1 1 ion
BE
11
•
•
•
IND I 1P:(;11' ISi1:NIA ITB
In addition to the direct. - revenue berieflts used
for financial justification of the project, several
Indirect benefit:> w1ll result. The tax base of the
area will be increased not only by virtue of the
taxable developments withi.n the project boundary but
also because of new developments in presently
depresccd areas outside the project boundary that
will be upgraded by the presence of the marina.
Ttc Increase In population of the affected area
will cr,.:atn a demand for new jobs and additional
commercial services, which should result in still
more taxable development in the form of small marine-
related indust-rles, shopping centers, household
repair and servicing facilities, etc., which in turn
cau:;(� :i disproportionately small increase in the need
for community- support services.
In p:eneral, the upgrading of the area will have
many incilrect and intangible benefits, which, though
dtffic:ul.t to evaluate, have a real worth which should
be con; ;idered In justification of the project.
1, r,
M
"f
ti
ATTACHMENT "B"
RECREATION AND OPEN SPACE ELEMENT
• SECTION 12 - 114PUlliiN TAT ION
• The proposals contained herein will cost money. A basic premise of
this Recreation and Open Space Element is that open spaces serve a
public need, provide public services, and are a necessary prt of a
high - quality living environment; and that, therefore, the expenditure
of public funds for preservai;ion and improvement of open space is
warranted. While it is anticipated that acquisition of land for all
of the park and trail proposals in the undeveloped areas will be
implemented through dedication of land by the developer, nany of the
open space proposals will require public purchase of the land or of
an casement. The City of Newport Beach has adopted an Open Space
Zoning District; however, privately -owned land can only be zoned as
open space with the agreement of the property owner.
It is obvious that public purchase of land for open space in an area
with the high land values of Newport Beach is going to be an expea-
sivh proposition. It is anticipated that land values are going
p to continue to increase. Therefore, the City should acquire these
lands as soon as possible and will consider the best possible use
�v
of existing City owned lands.
There are many possible means of raising the revenues necessary for
public purchase and improvement of open space lands, including
!wilding exist, tax, municipal bond insures, special assessmr-ni:
d,stricts, and grants from State and Federal agencies.
-66-
4 �
-41-
S
• Where the open space areas have region,l significance, the City
•will request the participation of the County, State, or Federal
Government.
urants f'rn-w Fodnr'al and Stiite Acencies
he City of Newport B -.,ch vii 1i apply to the Skate and Federal gr,vern-
r.:e 11i5 for fun(',, LO �55 `:lsi:
in acquisition and development of some of
its park end open- space, lr.nd. The most common grart source is the
Land and Woter CUnserv.7 .i411 Fund; however, 'there are some other
open -space grants from the Federal government that are available.
in addition, to these far- reaching grants, the City will also apply
to the County for matching funds in the development of a portion of
the bicycle trails system that coincides with the County Master Plan.
in addition to Federal and County grants, the City is also eligible
to receive monies through the Federal C • evenue- sharing program, both
from the Federal level and the County level. Wherever applicable,
the City will take advantage of these revenue-sharing funds.
State Perk Bond issue of 1974
Additional funds could conceivably be available to the City of Newport
Beach if the State Park Band ;Slue of i474 is approved by the voters
in June. "this is a $250,000,000 bond issue with $910,000,000 being
distributed to cities and counties. Based on the projected popula-
ion in 11180, NawliorL Roach 's ,ha re would he about $206,000. This
money would be used for both ucqu'iSition and de.velnnment of park sitos.
-•
..•
-67-
w f
-42-
• Exci_v Tax Fund
• 11 major portion of funds that will be utilized to implement park de-
velopment in the City of Newport Beach will come from the Building
Excise Tax Find. This is a fund that imposes a 15 cents per square
foot development tax on all residential, commercial, and industrial
developments within the City and is used exclusively for the develop-
ment of fire stations, libraries and parks. Since its inception in
1964, this Fund has accumulated $1,900,000 of which $1,500,000 has
been expended. Thirty -five percent of that amount has gone into park
development. These funds have been expended in accordance with City
Council Policy I -4 which is a cost - sharing policy on undeveloped land.
Council Policy I -4 identifies the responsibilities of the City and
private land owners when land developments are proposed, relating to
the acquisition and development of local parks, view parks, bicycle
trails, and other open -space elements.
Upper Bay
It is anticipated that the privately -owned lands designated as open
space within and adjacent to the Upper Bay will be acquired by the
State or Federal government as a wildlife preserve. If the State
or Federal government does not acquire all of the Upper Bay area in-
dicated as open space on the Open Space Plan, the City will explore
other po- sibilities for acquisition.
-43-
y
• Revenue. Pro; ections
• Figure 5 projects the various potenrial revenue sources by year until
1990 - 19," 1..
prior'itie5 1'!1l' i.l C1 en_ and Tmorovements
Pic!ure 6 indicates the open space areas end facilities for
cahich it is anticipated that City expenditures will be required, listed
in three priority groupings. These priority groupings are based on
three major factors: ,
1) the need to reduce activity park deficiencies in certain
sections of the City;
2) The ecological significance of the areas;
and
?) The probability that the opportunity for preservation of
opon space will be lost in the near future.
Also 'included, are suggested time phases for acquisition and improve-
~ ment, recognizing the fart that not all of these proposals can be
accorplished at once. However, if the opportunity arises to acquire
any of these areas sooner than indicated, this should be done. The
proposed means of acquisition, estimated costs, and funding sources
are also indicated on the chart. (Ail cost estimates are based on
constant dollars; ini- 'iation is not taken into account. Although in-
Nat-ion will increa• ;e octual c:ost%, it—ia ll also increase revenues
such that the rent effect on rclativa c00:5; .hould be negligible.)
- t;'1 -
-44-
•
•
The costs of those projects earmarked for local bond issue funding
(and State Bond Issue of 1974 funding if passed) add up to a total
of $3,136,000. If it becomes possible to lease the State -owned
property at low cost, the local bond issue would not be necessary.
?r ects proposed to Be Funded by Other Levels of Government
Following is a list of open space projects which are beyond _ the re-
sponsibility and scope of local funding, and for which the City will
seek County, State, and /or Federal funding:.
1. Upper Newport Bay flora and fauna reserve and associated
equestrian and hiking trails.
2.,,.._ Santa Ana River Greenbelt and associated equestrian and
hiking trails.
3. Land for public parking lots on State property on Coast
Highway.
4. Additional public restrooms for beaches.
5. Regional park north of Upper Bay.
-7o-
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