At the February 22 Brentwood City Council meeting, the Brentwood City Council approved its 2-year Strategic Plan which where they directed staff to fast track the Sand Creek Sports Complex, sound mitigation efforts for Highway 4 and address safety concerns at the parking garage.
By approving the funding overview and plan adoption, it will help staff move forward into locking in funds, provide direction and allows them to turn these estimates into reality later this spring–as well as apply for grants and seek funding opportunities for specific projects and placed in the capital operating budgets.
The council made it a priority to begin moving forward with the Sand Creek Sports Complex and opted to move senior center funding to the complex in order to save on project costs in an effort to work on Phase 1 and Phase 2 simultaneously–the cost is estimated at $15 million. The project is estimated to have multi-use fields, including 3 soccer fields plus other amenities. (Editors Note/Update/clarification) – total fields between Phase 1 & 2, will fit between 5 and 6 fields + potential overlay of softball/baseball and pickleball)
Councilmember Jovita Mendoza made the push to combine the phases into a single project to save taxpayer money and stated she would push the senior center project out and use that funding on the sports complex.
Councilmember Karen Rarey pointed out the fields had been discussed for 20-years but never had movement. She explained how the facility would bring people in, increase tax revenue and provide foot traffic to local businesses. She also pointed out with three fields, they could hold tournaments.
Mayor Joel Bryant asked what kind of revenue the sports complex could bring in.
Staff said they have not done a full economic development impact but noted it could be a “game changer” for Brentwood since its next to Streets of Brentwood and trail corridor, and connector to downtown Brentwood.
Rarey pushed to move forward with the project noting in the master plan in 2017-18 that Brentwood had almost 1,700 peak users per day that play soccer.
“That is a lot of kids and we have just 10 fields,” said Rarey noting kids are going to other places. She also said this can be used to improve quality of life not just for sports but use the funding for other things as well.
Staff said if they moved immediately with funding and planning, they could break ground with the Sand Creek Sports Complex within a 2-year period.
Councilmembers Mendoza, Meyer and Rarey pushed for changes to the Highway 4 traffic noise mitigation and stated they wanted an immediate solution to make it right for residents.
Rarey wanted to change the sound wall to “Sound study mitigation measures” so that it covered the sound wall and engaging the other agencies. The council agreed to place $600k in the budget for the sound wall (note – more discussion below in this section of the staff report )
Councilmembers Mendoza and Rarey blasted the Better in Brentwood campaign saying they were not happy with the quality of work and did not understand the direction. Both said they were fine with the $60k already being spent, but they would not support any additonal funding and declined to increase the budget by $20k.
Rarey said she did not want to give any additional money to Better in Brentwood until it is revamped saying that staff handles photos and marking of new businesses come to town for free which is part of the business license fee.
“It’s kind of surprising that we don’t have more businesses on there since we have had more businesses coming to town in the last six years” said Rarey. “
Based off discussion and direction from Council, Kerry Breen, Finance Director, highlighted that the finances were in order as they moved the senior center funding into the youth sport complex at Sand Creek and moved other numbers around based on council direction—the city was $580k short which could come from other funding sources to make it work from facility sales, budget stabilization fund, and other savings areas.
“I don’t think this is a hurdle we couldn’t get over,” said Breen.
The council ultimately directed staff to have early implementation of design for the Sand Creek Sports Complex and the sound study mitigation measures as well as improving safety at the city hall parking garage.
Staff Report Information + Council Discussion on Items
The discussion provided council with its 2022/23 and 2023/24 funding and staffing plan which includes six (6) new full-time positions as follows:
- Management Analyst, Human Resources Department
- Assistant City Attorney, City Attorney’s Office
- Accounting Specialist, Finance and Information Systems Department
- Information Systems Specialist, Finance and Information Systems Department
- Administrative Assistant I/II, Community Development Department
- Park Maintenance Worker I/II, Parks and Recreation Department; and
On December 1, 2021 staff presented potential Strategic Initiatives to the City Council for consideration. The PowerPoint fiscal overview memo from the workshop is attached to this report as Exhibit “3.” The City Council, through a ranked voting process, established their top 10 priorities as shown below:
City Council Ranked Priorities
- Sand Creek Sports Park Phase I
- Construct Innovation Center Infrastructure
- Engage agencies to help reduce Hwy 4 traffic noise
- (t). Preserve our streets (Pavement Management)
- (t). Downtown/Brentwood Blvd Specific Plan – Incentives:
- Sale of Successor Agency and City owned property
- Incentivize Brentwood Blvd/Dwntwn development
- Improve safety in the Parking Garage
- Improve Brentwood Blvd. corridor
- Enhance Marketing/Econ Development Programs:
- Enhance retail recruitment
- Boost Better in Brentwood Brand
Tech Center/Youth Center- Senior Center expansion
*no 9 has since been removed.
In addition to several initiatives not ranked as priorities, staff also presented several potential initiatives considered either mandatory or no-cost/previously funded. These initiatives, listed below, are also being recommended for inclusion in the Strategic Plan. The full draft Strategic Plan can be viewed as Exhibit “2” to this report.
Mandatory Initiatives
- Organics Management
- Ensure adequate water supply
- Conduct rate studies
- Implement Zoning Ordinance (SB 330)
- General Plan Conservation & Open Space
- General Plan Implementation Status
- Classification and Compensation Study
- IT Master Plan Implementation
No Cost / Previously Funded Initiatives
- Amphitheater Development
- Adaptive Recreation
- Pursue Measure X funding
- Police – Enhanced Community Engagement
- Housing Element
FUNDING OF THE STRATEGIC PLAN
Following the workshop staff evaluated each strategic initiative and determined the resources needed to complete the objective. This resource evaluation ensures that all initiatives have the funding and staff necessary for a successful completion of the Strategic Plan. In addition to the implementation costs of the various initiatives, where applicable, the resource evaluation also includes the anticipated legal support and review related to the strategic initiatives. A one-page matrix outlining the Strategic Plan’s estimated costs and proposed draft funding sources has been included in the Strategic Plan FY 2022/23 – 2023/24 Funding Summary, Exhibit “1,” to the attached Resolution.
Cost and funding adjustments will likely be necessary as more information regarding the availability of grants and the scope of projects becomes better known. Staff will inform the Council of any adjustments to funding sources or cost amounts prior to the adoption of the associated budgets in the Operating or Capital budgets. Highlights of the draft plan include:
- Utilizing $985,000 of the projected current year General Fund surplus of $1 million
- Utilizing approximately $995,000 of the ongoing annual $1 million General Fund capacity (after accounting for all staffing requests)
- Utilizing the entirety of the American Rescue Plan Act funds of $6.9 million
- Utilizing $1.64 million of the $2.67 million bond refinance dollars which are being received over the next ten years.
Focus Area 1 – Public Works
Construct Innovation Center infrastructure – One-time cost of $5.2 million. Funding source is East Contra Costa Regional Fee and Financing Authority (“ECCRFFA”) which is expected to fund at least $3.5 million, and possibly up to $5.2 million. If full funding is not received, funds from the Bond Refinance and/or reallocating American Rescue Plan Act (“ARPA”) funds could be undertaken without compromising any other Strategic Initiatives. This would; however, reduce the availability of those alternate funding sources for future projects.
Add funding to preserve our streets (Pavement Management Program) – Ongoing cost of $325,000. Funding of $125,000 from the available ongoing General Fund capacity and $200,000 from State Gas Tax increases. State revenue analysts have recently updated their Gas Tax revenue projections, resulting in the increased funding. This increase was not known at the Strategic Plan Workshop in December 2021, and utilizing those funds to increase the City’s Pavement Management Program is an allowable use of that revenue source. This is proposed to be an ongoing, annual funding commitment, although the City Council can amend the funding amounts in the future at their discretion
Pursue grant funding to improve the Brentwood Boulevard corridor (e.g. underground existing utility lines, widen portion of Brentwood Blvd., etc.) – One- time cost of $7 million. Funding of $3.5 million is requested through a state grant already submitted. Matching funds of $3.5 million would be required, which would be funded with $3.1 million from Development Impact Fees and $400,000 from an existing General Fund Reservation for Brentwood Boulevard (would not impact the 30% reserve). If the state grant funds are not received this project may be delayed, or the scope revised and brought back to the City Council. Early implementation of this initiative is already occurring in the current fiscal year pending the state grant award.
Engage agencies to help reduce Highway 4 traffic noise – One-time cost of $5,000 for legal services to be funded from the General Fund FY 2021/22 projected surplus. Early implementation of this initiative is already occurring in the current fiscal year.
Staff explained Tuesday that they are looking at raising the existing wall which is under evaluation and within the next two weeks a contractor will be on site to inspect the foundation. The CALTRANS side of the wall will still be delayed, but looking at a 2-3 feet increase in height. In a worse case scenario, the wall would have to be torn down and re-built at a cost of $600,000—a worse case scenario.
Councilwoman Karen Rarey wanted to see the $600k included bringing the total to $605k to ensure the traffic noise solutions are implemented. Staff replied the $600k is the worse case scenario. Rarey said she knows it will come back and someone will say they didn’t have the funding approved by the council—so she wanted it in the Strategic Plan Initiative and listed.
Rarey continued by reading her notes from the December meeting regarding staffs words on raising the wall—at a cost of $600k in worse case.
“That was at the beginning of the discussion and no where did we say we did not want that,” stated Rarey who said if its less, the money could go back into the general fund. “That is what was asked to be brought to the Strategic Plan.”
City Manager Tim Ogden chimed in saying tonight’s discussion was less about finances but rather to get their best draft analysis.
“If we don’t have the initiative down correctly, like we say engage agencies to help reduce highway 4 noise. If you really want a sound wall to be built by the city, we need to change the name of that,” explained Ogden.
Councilmember Jovita Mendoza said the council didn’t change the name, city staff did, because that was not what they voted on.
Rarey said sound study mitigation measures are what they voted on
“Yea, and the understanding of staff was that it would be conducted by somebody other than the city, that is why it was phrased that way,” said Ogden. “If the city is on the hook to do this and the city wants to do that, we need to rephrase how that is worded.
Rarey said these were things we talked about during the sound study.
“We were going to look at several opportunities, to see if the developer could do it, CALTRANS could do it, if they could improve the sound based on the overlay of the road, several other things before the city has to come back and expend the funds and perhaps sets a precedence for other sound walls the city now would be obligated to build. If that is the council direction we can put it in,” said Ogden.
Mendoza then scolded Ogden.
“Tim, sometimes I feel like you are combative,” said Mendoza. “The whole council hears one thing, and you are fighting us on another. I remember Karen Rarey bringing this up, specifically talking about foam walls, she did her research on what to do. I don’t think you need to be combative on it, I just think listen to what we are saying and lets go from there.”
Rarey then went back to her transcribed minutes and read it back and was unsure how the wording got changed—everything forward was about the sound wall.
“I don’t put these forward in isolation so the whole executive team must have misunderstood as well,” said Ogden. “But we understand clearly now and we can make sure we change the verbiage before you vote tonight for the city to build that sound wall.”
Mendoza cut him off.
“Tim, I need you to stop deflecting,” said Mendoza. “You are the city manager, the buck stops there. Please don’t throw your team under the bus when it comes to this.”
Ogden replied, “No, if I don’t understand something I check in with the city attorney and directors to see if I misunderstood. Nobody clarified that with me, so it’s a team effort and we are going to make sure we do it right going forward. When we come back with the CIP Budget in April, we will have a CIP item that outlines the estimated cost of the sound wall and that will be when the official approval of that sound wall will occur with the cost estimate and project scope and no questions asked about what is being asked and what is being directed.”
Rarey argued this was the number 3 item in priority with the PA-1 and the soccer complex being above it.
“The fact that its not there is infuriating,” said Rarey.
Improve safety in the Parking Garage – One-time cost of $450,000 to be funded from the General Fund FY 2021/22 projected surplus. The Parking Garage Security and Safety Enhancement CIP project would install vehicle and pedestrian gates to address recent concerns related to safety and crimes such as vandalism and destruction of City property. The gates would control access to the upper floors of the parking garage while keeping the lower floors and electric vehicle charging stations open. Access to the gates will be electronically linked to the City’s existing access control system. This project may
be considered for early implementation in the current fiscal year.
On Tuesday, staff explained under the new scope, they reduced the cost from $700k to approximately $450k.
Councilmember Susannah Meyer wanted to know if they had data on the reduction of service calls in the garage since steps have even taken with more enforcement. Captain Herbert confirmed the calls have gone down with the enforcement.
Combat climate change through organics management – One-time cost of $40 million with unknown ongoing costs. This would be funded through a combination of solid waste ratepayers and a potential fee charged on new development.
· Ensure adequate water supply by expanding water treatment, storage, and distribution infrastructure– One-time cost of $100 million. This would be funded through Development Impact Fees and grants to the extent possible, with the remainder being funded by utility user fee revenues. A State loan would likely be necessary as well. These projects would take many years to complete.
Ensure fiscal sustainability by conducting rate studies – One-time cost of $230,000 to be funded from the Enterprise Funds
Focus Area 2 – Police Services
Enhanced Community Engagement – This is a no-cost initiative involving existing resources to more fully engage various segments of the community
Focus Area 3 – Economic Development
Encourage private re-investment through the sale of Successor Agency and City owned real properties – One-time cost of $75,000 to be funded from the General Fund FY 2021/22 projected surplus. There will be some reimbursement from the Successor Agency for costs relating to disposition of those parcels. There is potential revenue from the sale of parcels. The City would receive approximately 16% of the proceeds from the sale of Successor Agency parcels along with 100% of proceeds from City owned parcels
Incentivize higher tier, unique business and development to the Brentwood Blvd and Downtown areas – One-time cost of $125,000 to be funded from the General Fund FY 2021/22 projected surplus.
Enhance retail recruitment awareness and prioritize activities that display the
City’s efforts inducing new retail-commercial development – Ongoing costs of $30,000 to be funded from the available ongoing General Fund capacity.
Boost the Better in BrentwoodTM brand with expanded marketing services to promote local shopping and business support – Ongoing costs of $20,000 to be funded from the available ongoing General Fund capacity.
Rarey questioned this spending because this received 0 votes on their initiatives.
“I am concerned about the site and there is a focus on things that were in the Ag Core and while I think we should show that as a quality of life but I don’t think those things should be the businesses that we feature. We should be focusing on the businesses within the city,” said Rarey who questioned some of the content and many businesses are no longer even businesses and websites go nowhere. “The list for family friendly businesses included Brentwood Craft Beer and Cider and Boondogies and a vision place. I thought those were interesting things to have for family fun… they could have had Harvest Park Bowl or the trampoline place or other things.”
She continued.
“For being six years since its launch and having 170 business, some of which are out of the area, events that are taking place in Byron and Orwood, that is not Brentwood,” said Brentwood. “I am not sure why we are promoting events that are out in Byron or out by Orwood. Either we need to do a better job watching the website or get a different person to do it. We are already spending $60k on it, I’m not sure what the $20k is going to get for us when the site we have is not being updated properly.”
Assistant City Manager Darin Gale said Rarey brought up some great points and brought on a new group to help them with public information. They were spending time to improve the site and improve the posting and better represent the entire community.
“The $20k was to try and improve and recognize additional businesses” said Gale.
Rarey argued when COVID-19 hit, she created a page on her website for restaurants and gave hours, location, link and Doordash, Grub Hub, UberEats… it took about a week or more to contact all of them.
“I think I got 75 in restaurants and we have a couple doze on Better in Brentwood and I know there is well over 150 in our city, said Rarey. “When you look at it, there is not a whole lot. I do think we need someone for data entry and enter in all of these things, we have their business licenses or self populate… its really embarrassing.”
Focus Area 4 – Community Development
Implement Zoning Ordinance (SB 330 Compliance) – One-time cost of $450,000 to be funded from the General Fund FY 2021/22 projected surplus ($40,000), from funds already set aside in the project ($100,000) and from grant funds ($310,000).
General Plan Conservation and Open Space – This item will be discussed as a separate agenda item tonight. Current estimates are for one-time cost of $80,000 to be funded from the General Fund FY 2021/22 projected surplus. Ongoing costs of $50,000 to be funded from the available ongoing General Fund capacity. These numbers will be updated pending City Council direction.
General Plan Implementation Status Updates – One-time cost of $50,000 to be funded from the General Fund FY 2021/22 projected surplus. Ongoing cost of $25,000 to be funded from the available ongoing General Fund capacity.
Housing Element – Funded in FY 2021/2022, community workshops will occur and adoption could occur by the end of calendar year 2022. This initiative is funded, and will have early implementation in the current fiscal year.
Focus Area 5 – Community and Neighborhood Services
Complete Parks Master Plan carry over strategic initiatives – These initiatives (Creekside/Garin Park restrooms, Creekside Park pickle ball courts, Sunset Park hours expansion, trail enhancements) were removed from the budget when the pandemic hit, but subsequently restored once funding was available. These projects are already funded, and any unspent funds from the current year will be carried over to allow for the completion of the initiatives.
Sand Creek Sports Park design and development for city owned parcel, and funding and phasing plan for county parcel – Phase I includes one-time costs of $10 million which would be funded from ARPA ($4.7 million), Bond Refinance Savings ($1.3 million), and Development Impact Fees ($4.0 million). Ongoing cost of $100,000 to be funded from the available ongoing General Fund capacity. Phase II funding for adjacent land development has not yet been identified but may require debt financing depending on the size and scope of the project
Staff explained this sports park is on Sand Creek and Fairview which is 14.5 acres which is a city parcel which had been designated as a future sports park for several years—adjacent to that, is the Contra Costa County Flood Control Detention Basin which is 19 acres—potential for sports fields in the basin (phases 2)
“What we are talking about here is a community sports park,” said Bruce Mulder. “We are looking at 2-3 soccer or multi-use sports fields… with an interest from the council in artificial turf to maximize the use of the fields.”
In addition to fields, it would include sports fields, parking lot, restrooms additional community park amenities such as other features.
Rarey confirmed that this project would not include the 3-story community building. Staff confirmed.
“We have been waiting 20-years to get these fields built,” said Rarey.
Initiate Senior Center Expansion – One-time cost of $3 million to be funded from ARPA ($2.2 million), Bond Refinance Savings ($0.4 million), and Replacement Funds ($0.4 million). Ongoing costs of $30,000 to be funded from the available ongoing General Fund capacity. The amount of Replacement Funds utilized for this project would depend upon the final scope of work and are currently estimated at $0.4 million.
The council agreed this project could be discussed again in the future and opted to use this funding for the Sand Creek Sports Complex.
Mendoza said she believed the senior center was a long-term plan and urged the council to keep it as a long-term project while stating that they needed more analytics as to the cost of what it makes versus what they are spending–$55k in revenue but costs the city $200k to run.
She wanted to know if they expand it, what do new numbers look like forecasted out as they are losing $175k if not close to $200k if expanded. She also noted 30% of seniors who go to the senior center do not even live in Brentwood and come from out of town.
“It’s a big ask to ask Brentwood people to keep subsidizing this so we need to figure out why the parks and recreation have to be net zero but the senior center doesn’t have to be net zero,” said Mendoza who didn’t mind helping but wanted to understand the history.
Councilmembers Meyer and Rarey agreed.
Continue development of Vineyards at Marsh Creek Amphitheater Project– One-time cost of $9.5 million to be funded from Vineyards Development Impact Fees. Ongoing costs of approximately $400,000 were previously built in to the City’s General Fund Fiscal Model’s forecast. The project has been in the planning phase for several years and funding has been reserved.
Complete recreation carryover strategic Initiatives – This initiative (adaptive recreation programming) was removed from the budget when the pandemic hit, but subsequently restored once funding was available. The project is already funded, and any unspent funds from the current year will be carried over to allow for the completion of the initiative.
Pursue Measure X funding to renovate CD building for a Youth Center – This initiative currently has no cost. If funding is secured anticipated renovation and operating costs would be brought to the City Council for consideration. Early implementation of this initiative is already occurring in the current fiscal year pending funding award.
Mulder said they are in a “holding pattern” waiting on the county—they have identified the Guthrie Center as a place to move forward.
Rodriguez confirmed with staff that if they receive the Measure X funding, the Guthrie Lane would be reserved.
Meyer asked if the youth center is not approved, could they use money to increase programming elsewhere and overall engagement for youth.
Staff explained if Measure X is not approved, they would have to come back to council and find a recreational facility/community center/youth center to fit the needs of Brentwood—such as successor agency facilities, Windsor Way or other opportunities.
Focus Area 6 – Fiscal Stability and Operational Management
Classification and Compensation Study – One-time cost of $160,000 to be funded from the General Fund FY 2021/22 projected surplus.
IT Master Plan Implementation – One-time cost of $100,000 to be funded from the Information Services Fund. This initiative will address two high priority items which will be included in the upcoming IT Master Plan – Enhanced Cybersecurity and a Business Continuity Plan.
Council Approval
The resolution was approved in a 5-0 vote with the following amendments:
- Revised funding plan by the finance director
- Revise the strategic plan to the following:
- Sound Study Mitigation measures
- Remove Better in Brentwood funding
- Revise Sand Creek Sports Complex to reflect addition of phase 2 and advance RFP process
- Move senior center expansion to a future date
- Implementation of staffing plan
