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APPROVED AS TO FORM AND LEGALITYr OLfe-BF
CITY ATTORNEY’S OFFICE
OAKLAND CITY COUNCIL
8914 2RESOLUTION NO. C.M.S.
RESOLUTION:
1) APPROVING THE CITY OF OAKLAND LANDSCAPING AND
LIGHTING ASSESSMENT DISTRICT FISCAL YEAR 2022-2023
PRELIMINARY ENGINEER’S REPORT; AND
2) DECLARING THE INTENTION TO LEVY AND COLLECT THE
ANNUAL LANDSCAPING AND LIGHTING ASSESSMENT DISTRICT
ASSESSMENT FOR FY 2022-2023; AND
3) SETTING MAY 17, 2022 AT 1:30 P.M. AS THE DATE AND TIME FOR
A PUBLIC HEARING
WHEREAS, pursuant to the California Streets and Highways Code, Sections 22500, et seq., known as the Landscaping and Lighting Act of 1972, the City of Oakland (City) established the Landscaping and Lighting Assessment District (“LLAD” or the “District”) on June 23, 1989; and
WHEREAS, pursuant to the California Streets and Highway Code Sections 22500, et seq., the City has renewed the District each subsequent year; and WHEREAS, annually, the City Administrator files with the City Clerk reports for the continuation of the District and levy of the assessments in order to raise revenues for the installation, maintenance, and servicing of public landscaping and lighting; and WHEREAS, Resolution No. 89079 adopted on March 15, 2022 initiated the Fiscal Year (FY) 2022-2023 LLAD assessment process and authorized the City Administrator to order the Preliminary Engineer’s Report; and
WHEREAS, the Preliminary Engineer’s Report for the District, attached as Attachment A to the City Administrator’s Report, includes a full and detailed description of the improvements, the boundaries of the assessment district, and the proposed assessments, and confirms the applicability of the existing assessment rates for fiscal year FY 2022-2023; and WHEREAS, as described in Section II, Part C of the Preliminary Engineer’s Report, the boundaries of the District coincide with the boundaries of the City of Oakland and encompass all parcels of land within the City; and
WHEREAS, the improvements are described in Section II Part A of the Preliminary Engineer’s Report; and
WHEREAS, the City desires to levy and collect the FY 2022-2023 LLAD assessment for properties within the District boundaries; now, therefore, be it RESOLVED: That the City Council hereby approves the FY 2022-2023 Preliminary Engineer’s Report for the District, on file with the City Clerk’s Office and attached as Exhibit A to this resolution, which describes the existing and proposed improvements and any substantial changes proposed to be made in existing improvements, for discussion purposes; and be it FURTHER RESOLVED: That the existing boundaries of the LLAD remain the same as those described in the FY 2021-22 Engineer’s Report confirmed by the City Council pursuant to Resolution No. 88650 C.M.S. on May 18, 2021; and be it
FURTHER RESOLVED: That the City Council hereby declares its intention to levy and collect assessments within the City of Oakland Landscaping and Lighting Assessment District for FY 2022-2023; and be it
FURTHER RESOLVED: That the assessment rates will remain the same as the FY 2021 - 22 assessment rates; and be it
FURTHER RESOLVED: That all the area of land to be assessed is in the City of Oakland, Alameda County; and be it
FURTHER RESOLVED: That a public hearing is set for May 17, 2022 at 1:30 p.m., or as soon thereafter as the item may be heard, in the City Council Chambers, Oakland City Hall, One Frank H. Ogawa Plaza, Oakland, California or by teleconference as indicated on the City Council meeting agenda, in order for the City Council to hear and pass upon said reports, together with all objections and protests by property owners to be assessed, and take final action regarding the levying of the proposed FY 2022-2023 assessments for the District; and be it
FURTHER RESOLVED: That, pursuant to California Streets and Highways Code, Sections 22500, et seq., the City Administrator is directed to publish a notice of the public hearing no later than ten days prior to the date of the public hearing. 3165231v2
IN COUNCIL, OAKLAND, CALIFORNIA,
APR 1 9 2022
PASSED BY THE FOLLOWING VOTE:
AYES - FIFE, GALLO, KALB, KAPLAN, REID, TAYLOR, THAO AND
PRESIDENT FORTUNATO BAS
-XNOES-
ABSENT -
ABSTENTION -
ATTEST:
City Clerk and Clerk of the Council of the
City of Oakland, California
Plfp% CITYOFMlr5^ OAKLAND
Landscaping &
Lighting Assessment District
Fiscal Year 2022-23
Preliminary Engineer’s Report
April 19, 2022
Prepared by
FRANCISCO
ANDfASSOCIATES
CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23 TABLE OF CONTENTS
Page No.
Agency Directory
iiiCertificates
Section I - Introduction 1
Section II - Engineer’s Report 2
Part A - Plans and Specifications
Table 1: Benefit Zone 1....
Table 2: Benefit Zone 2....
Table 3: Benefit Zone 3....
4 5
6 6
Part B - Estimate of Cost...................................................................................
Table 4: FY 2022-23 Estimate of Revenues & Costs...........................
Table 5: Assessment Revenue by Improvement Type & Benefit Zone 8 8
9 10Part C - Assessment District Diagram
Part D - Method of Apportionment of Assessment........................................
Table 6: Multi-Family Residential EDU Calculations..........................
Table 7: Area & Frontage EDUs by Land Use Category....................
Table 8: Summary of EDUs by Benefit Zone and Land Use..............
Table 9: Summary of Assessment Rates by Zone and Land Use....
Table 10: Summary of Assessment Revenues by Zone & Land Use 13 16
17 19
20 20
21Part E - Property Owner List & Assessment Roll
APPENDIX
Appendix A - Assessment Roll
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23 AGENCY DIRECTORY
CITY OF OAKLAND
CITY COUNCIL MEMBERS AND CITY STAFF
FISCAL YEAR 2022-23
MAYOR
Libby Schaaf
CITY COUNCIL MEMBERS
Dan Kalb, District 1
Council Member
Nikki Fortunato-Bas, District 2
Council President +
Council Member
Carrol Fife, District 3
Council Member
Sheng Thao, District 4
Council President Pro Tempore +
Council Member
Noel Gallo, District 5
Council Member
Loren Taylor, District 6
Council Member
Treva Reid, District 7
Council Member
Rebecca Kaplan, At Large
Council Member +
Vice Mayor
CITY STAFF MEMBERS
Edward Reiskin
City Administrator
Barbara Parker
City Attorney
Asha Reed
City Clerk
G. Harold Duffey
Director of Public Works
Erin Roseman
Director of Finance
ASSESSMENT ENGINEER
Francisco & Associates
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23 CERTIFICATES
CITY OF OAKLAND
LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT
FISCAL YEAR 2022-23
The undersigned respectfully submits the enclosed Engineer's Report as directed by the City of Oakland.
Dated: By.
Eduardo R. Espinoza, P.E.
RCE No. 83709
I HEREBY CERTIFY that the enclosed Engineer's Report, together with the Assessment Roll and the Assessment Diagram thereto attached, was filed with me on the , 2022.
day
of
Asha Reed, City Clerk
City of Oakland
Alameda County, California
By.
I HEREBY CERTIFY that the enclosed Engineer's Report, together with the Assessment Roll and the Assessment Diagram thereto attached was directed by the City Council of the City of Oakland, Alameda County, California, on the day of 2022.
Asha Reed, City Clerk
City of Oakland
Alameda County, California
By.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION I
INTRODUCTION
SECTION I
INTRODUCTION
ENGINEER'S REPORT
CITY OF OAKLAND
LANDSCAPING AND LIGHTING ASSESSMENT DISTRICT
FISCAL YEAR 2022-23
Background Information
The Landscaping and Lighting Assessment District (the “District”) was originally formed on June 23, 1989 and subsequently approved by the registered voters of the City of Oakland (the “City”) in 1994. This District utilizes direct benefit assessments as a funding source for the operation and maintenance of landscaping, park and recreation facilities, and street lighting within the City of Oakland.
V
An engineering analysis was performed in 1989 to ensure the costs for funding the operation, maintenance, and servicing of improvements were apportioned to each parcel within the City based upon the special benefits they received from the improvements.
Payment of the assessment for each parcel is made in the same manner and at the same time as payments are made for property taxes. All funds collected through the assessment are placed in a special fund and are only used for the purposes stated within this Engineer’s Report.
As required by the Landscaping and Lighting Act of 1972, the Engineer's Report includes:
(1) a description of the improvements to be operated, maintained, and serviced by the District, (2) a cost estimate for the District, and (3) a listing of the proposed Fiscal Year 2022-23 assessments to be levied upon each assessable lot or parcel within the District.
The City of Oakland will hold a Public Hearing on May 17, 2022, regarding the District which will provide an opportunity for any interested person to be heard. At the conclusion of the Public Hearing, the City Council may adopt a resolution confirming the assessment rates as originally proposed or as modified.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
ENGINEER'S REPORT
SECTION II
ENGINEER’S REPORT PREPARED PURSUANT TO THE PROVISIONS OF THE LANDSCAPING AND LIGHTING ACT OF 1972
SECTION 22500 THROUGH 22679
OF THE CALIFORNIA STREETS AND HIGHWAY CODE
CITY OF OAKLAND
LANDSCAPING AND LIGHTING ASSESSMENT DISTRICT
FISCAL YEAR 2022-23
Pursuant to the Landscaping and Lighting Act of 1972 (Part 2 of Division 15 of the Streets and Highways Code of the State of California), the Act, and in accordance with Resolution of Initiation, adopted on March 29, 2022 by the City Council of the City of Oakland in the State of California, and in connection with the proceedings for:
CITY OF OAKLAND
LANDSCAPING AND LIGHTING ASSESSMENT DISTRICT
Hereinafter referred to as the “Assessment District" or “District”, I, Eduardo R. Espinoza, P.E., the authorized representative of Francisco & Associates, Inc., and the duly appointed Engineer of Work, submit herewith the “Report” consisting of five (5) parts as follows:
PART A: PLANS AND SPECIFICATIONS
This part describes the improvements to be operated, maintained, and serviced within the District. For a more detailed description of the improvements, refer to the listing of improvements on file in the Oakland Public Works Department, which are incorporated herein by reference.
PART B: ESTIMATE OF COST
This part contains an estimate of the cost of the proposed improvements that are supported by assessment revenues for Fiscal Year 2022-23, including incidental costs and expenses. For a more detailed cost estimate of the improvements, refer to the cost estimate on file in the Oakland Public Works Department, which are incorporated herein by reference.
PART C: ASSESSMENT DISTRICT DIAGRAM
This part incorporates a Diagram of the Assessment District showing the exterior boundaries of the District, the boundaries of any zones within the District, and the lines and dimensions of each lot or parcel of land within the District, are incorporated herein and on file in the Office of the Oakland City Clerk. The lines and dimensions of each lot or parcel within the Assessment District are those lines and dimensions shown on the Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
ENGINEER'S REPORT
maps of the Assessor of the County of Alameda for the fiscal year when this Report was prepared.
PART D: METHOD OF APPORTIONMENT OF ASSESSMENT
This part describes the method of apportionment of assessments which was developed when the District was formed in 1989. The method of apportionment is based upon parcel classification of land, and location within the District, in proportion to the estimated benefit to be received.
PART E: PROPERTY OWNER LIST & FINAL ASSESSMENT ROLL
This part contains a list of the Assessor Parcel numbers of Alameda County, and the net amount to be assessed upon the benefited lands within the District for Fiscal Year 2022-
23. The Final Assessment Roll is filed in the Office of the Oakland City Clerk and is incorporated in this Report by reference. The list is keyed to the records of the Alameda County Assessor, which are incorporated herein by reference. /
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART A
PART A
PLANS AND SPECIFICATIONS
The facilities and improvements that have been constructed and those that may be subsequently constructed within the District, which will be maintained and serviced, consist of street lighting; landscaping; public park and recreation facilities; and appurtenant facilities including, but not limited to, personnel, electrical energy, utilities such as water, materials, contractual services, and other items necessary for the facilities.
Street Lighting:
The street lighting system includes all streetlights within the public right-of-way, easements, and other exterior lighting which is not part of a building system. Streetlights and appurtenant facilities include, but are not limited to poles, fixtures, bulbs, conduits, equipment including guys, anchors, posts, pedestals, and metering devices as required to provide safe lighting within the boundaries of the District. The locations of street lighting improvements are shown on a Street Light Base Map kept on file at the City’s Electrical Engineering Section. There are more than 38,000 streetlights on residential, arterial, and collector streets, plus several hundred other public lights along pathways and outside buildings. Undergrounding projects, in accordance with PG&E programs, when warranted, are also included in the District improvements.
As streetlights are installed and upgraded to LED (Light Emitting Diode), the District’s operating and maintenance costs are impacted. Cost estimates prepared by the Oakland Department of Transportation consider the projected reduction in energy and maintenance costs, and the increase to the debt service payment for the LED Lighting Conversion Lease for the replacement of the 31,000 high pressure sodium streetlights to LED.
In recent years, the annual costs to operate and maintain the streetlight system exceeds the LLAD assessment revenue available. The City reallocated costs commencing with the Fiscal Year 2022-23 budget process to align LLAD-eligible costs to the revenue source paying the streetlight costs. As an example, some streetlight costs are paid from non-assessment revenues like Gas Tax Funds, to maintain service levels and fund the historical LLAD shortfall associated with streetlights and utility costs.
Landscaping. Public Park and Recreational Facilities:
The public park and recreational facilities, and landscape improvements, which are located within the incorporated limits of the City of Oakland, will be operated, maintained, and serviced by the District. Public park and recreational facilities include, but are not limited to: landscaping; irrigation systems; hardscapes; plazas; trees; sidewalks; trails; fixtures; appurtenant facilities i.e. lights, tot lots, play courts, public restrooms, sports fields, sports courts, parkways, etc.; designated easements; and buildings or structures used for the support of park and recreational programs such as, but not limited to, recreation centers, swimming pools, picnic facilities, water-based recreation facilities, and nature oriented facilities.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART A
All landscaping maintained by the City on public lands - more than 140 parks and public grounds, 38 Park and Recreation facilities, 44 field restrooms, and recreational improvements in Oakland such as ball fields - are included in the District. The District includes approximately 2,500 acres of street, park, and plaza landscaping featuring scenic Joaquin Miller Park, Lake Merritt, Mandela Parkway and Union Point Park. The District also supports activities outside the Oakland Public Works Department such as community gardens, and other recreation related buildings and infrastructure.
Tables 1, 2, and 3 on the following pages, present a partial list of the District's landscaping, park, and recreational facilities by each Benefit Zone. This list is not exclusive and many small facilities (e.g., landscaped medians and islands) are not included. The benefit zones are those depicted on the Assessment Diagram for Residential and Nonresidential Zones.
Name of Park, Facility Address Name of Park/Facility Address 14th Street Pocket Park 14th Street / Wood Street Jack London Aquatic Center 115 Embarcadero West 25th Street Mini-Park 2425 Martin L. King Jr. Way John Marshall 3400 Malcolm Avenue 88th Avenue Mini-Park 1722 88th Avenue Josie de la Cruz / Sanborn Park 1637 Fruitvale Avenue Allendale Park/ Recreation Center 3711 Suter Street King Estates Playground 8251 Fontaine Street Arroyo Viejo Park/Recreation Center 7701 Krause Avenue Knowland Park/Zoo 9777 Golf Links Road Arroyo Viejo Tennis Courts 7921 Olive Street Lazear Playground 824 - 29th Avenue Athol Plaza and Tennis Courts Foothill Boulevard / Lakeshore Ave Lion Creek Park 6819 Lion Way Beaumont Park Beaumont Avenue / East 28th Street Lions Pool 3860 Hanly Road Bella Vista Park 1025 East 28th Street Live Oak Pool 1055 MacArthur Boulevard Bertha Port Tot Lot 1756 Goss Street Lowell Park / Playground 1180- 14th Street Brookdale Park / Recreation Center 2535 High Street Mandela Parkway 8th St. to 32nd St 2701 - 22nd AvenueBrookdale Tennis Courts 2535 High Street Manzanita Park/Recreation Center Brookfield Playground / Tennis Courts 525 Jones Avenue Marston Campbell Park 1704 West Street Brooklyn Plaza 14th Avenue / Foothill Boulevard Maxwell House Park and Playground 4618 Allendale Avenue Burckhalter Park 4062 Edwards Avenue McClymonds Mini-Park 2528 Linden Street Burckhalter Playground /Tennis Courts 4062 Edwards Avenue Morcom Rose Garden / Buildings 700 Jean Street Carmen Flores Recreation Center 1637 Fruitvale Avenue Morgan Plaza 2601 Highland Drive Cesar Chavez Park 3705 Foothill Boulevard Nicol Park 3042 Nicol Avenue Central Reservoir Park/Playground 2506 East 29th Street Oak Glen Park 3390 Richmond Boulevard Cleveland Cascade 395 Merritt Avenue Oak Park 3239 Kempton Avenue Clinton Square Park 1230 6th Street Oakport Field 5885 Oakport Street Columbian Gardens Playground 9920 Empire Road Officer Willie Wilkins Park 1990-98th Avenue Concordia Park / Tennis Courts 2901 64th Avenue Otis Spunkmeyer Field Harbor Bay Pkwy. & Doolittle Dr.
Curt Flood Field School Street / Coolidge Avenue Peralta Hacienda House and Park 2500 - 34th Avenue Cypress Freeway Memorial Park Mandela Parkway bet. 13th & 14th Sis. Peralta Oaks Park Peralta Oaks Court / 106th Avenue Davies Tennis Stadium 198 Oak Road Pine Knoll Park Lakeshore Avenue / Hanover Avenue Defremery Park / Recreation Center 1651 Adeline Street Poplar Park / Recreation Center 3131 Union Street Defremery Playground /Tennis Courts 16th Street / Poplar Street Poplar Playground 3131 Union Street Defremery Pool 1269-18th Street Raimondi (Ernie) Park 1800 Wood Street Dimond Park / Recreation Center 3860 Hanly Road Raimondi Field 18th Street / Wood Street Dimond Tennis Courts Fruitvale Avenue / Lyman Avenue Rainbow Park / Recreation Center 5800 International Boulevard Dunsmuir Estate Park 61 Covington Street Rainbow Teen Center 5818 International Boulevard Dunsmuir Ridge East of Lake Chabot Muni Golf Course Rainbow T ennis Courts 5800 International Boulevard Durant Mini-Park 675 29th Street Rancho Peralta Park 34 East 10th Street East Oakland Sports Center 9161 Edes Avenue Saint Andrews Plaza 32nd Street / San Pablo Avenue Eastshore Park 550 El Embarcadero / Lakeshore Ave San Antonio Park / Recreation Center 1701 East 19th Street Elmhurst Playground / Tennis Courts 1900 - 98th Avenue San Antonio Playground / Tennis Courts 1701 East 19th Street Estuary Channel Park 5 Embarcadero Sheffield Village Park / Recreation Center 251 Marlowe Drive Eula Brinson Mini-Park 1712-85th Avenue Sobrante Park / Playground 470 El Paseo Drive F.M. Smith Park 1969 Park Boulevard South Prescott Park 3rd Street/ Chester St F.M. Smith Recreation Center 1969 Park Boulevard Stonehurst Park / Playground 10315 E Street Franklin Park / Recreation Center 1010 East 15th Street Studio One 365 - 45th Street Franklin Playground 1010 East 15th Street Tassafaronga Park / Recreation Center 975 - 85th Avenue Fremont Pool 4550 Foothill Boulevard Tassafaronga Playground 975 - 85th Avenue Fruitvale Bridge Park 3205 Alameda Avenue Tomas Melero - Smith Park 1461 65th Avenue Fruitvale Plaza 1412 - 35th Avenue Union Point Park Embarcadero East / Dennison & Kennedy SL Garfield Playground 2260 Foothill Boulevard Upper Dunsmuir adjacent to Dunsmuir House & Gardens Glen Daniels / King Estates Park 8251 Fontaine Street Vantage Point Park 1198- 13th Avenue Glen Echo Creek Park Panama Court / Monte Vista Avenue Verdese Carter Park / Recreation Center 9600 Sunnyside Street Carter Gilmore Field 1390 - 66th Avenue Wade Johnson Park 1250 Kirkham Street Grove Shatter Park I, II, III Martin L. King Jr Way / 36th Street Waterfront Trail Fruitvale to High Heilman Estates 3400 Malcolm Avenue West Oakland Teen Center 3233 Market Street Holly Mini-Park 9830 Holly Street Willow Mini-Park 14th Street / Willow Ira Jinkins Recreation Center 9175 Edes Avenue Wood Park 2920 McKillop Road Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART A
Name of Park/Facility Address Name of Park/Facility Address Avenue Terrace Park 4369 Bennett Place Linden Park 998 42 St.
Beaconsfield Canyon end of Beaconsfield Place Marj Saunders Park 5750 Ascot Dr.
Bushrod Park / Recreation Center 560 - 59th Street McCrea Trout Pond 4460 Shepherd Street Bushrod Playground / Tennis Courts 560 - 59th Street Montclair Park / Recreation Center 6300 Moraga Avenue Caldecott Field 6900 Broadway Montclair Playgound/ Tennis Courts 6300 Moraga Avenue Chabot Park 6850 Chabot Road Mosswood Park / Recreation Center 3612 Webster Street Chabot Playground / Tennis Courts 6850 Chabot Road Mosswood Playground Tennis Courts 3612 Webster Street Colby Park 431 61st Street Ostrander Park 6151 Broadway Terrace 5707 Dover StreetDover Street Park Pinto Park (Jones Field) 5000 Redwood Road Garber Park Alvarado Road / Claremont Avenue Ranger Station 3450 Joaquin Miller Road Gateway Garden^ Redondo Ave. & Clarke St.Tunnel Road / Caldecott Lane Redondo Park Redwood Heights Park / Recreation
CenterGolden Gate Playground / Recreation Center 1075 - 62nd Avenue 3883 Aliso Avenue Grizzly Peak Open Space Grizzly Peak Blvd. Rockridge Park 6090 Rockridge Boulevard Along Temescal Creek,
Hudson St. to Redondo ParkHardy Park 491 Hardy Street Rockridge-Temescal Greenbelt Jefferson Playground 2035 49th St. Sequoia Park / Lodge 2666 Mountain Boulevard Joaquin Miller Community Center 3590 Sanborn Drive Shepherd Canyon Park 6000 Shepherd Canyon Road Joaquin Miller Park 3304 Joaquin Miller Road Temescal Pool 371 - 45th Street Leona Heights Park 4444 Mountain Boulevard Woodminister Theater 3304 Joaquin Miller Road Leona Lodge 4444 Mountain Boulevard Woodminister Cascade 3305 Joaquin Miller Road McCrea Park 4460 Shepherd Street
i
Name of Park/Facility Address Name of Park/Facility Address African American Museum & Library 659 14th St. Lakeside Nursery 666 Bellevue Avenue Bandstand Lakside and Lakeshore Lakeside Park Lakeside Drive along Lake Merritt Bowling Clubhouse 666 Bellevue Avenue Gardens at Lake Merritt 666 Bellevue Avenue Bowling Green 666 Bellevue Avenue Latham Square Fountain 15th Street / Broadway Channel Park 21 - 7th Street & 1 East 10th Street Lincoln Square Park 261 -11th Street Children's Fairyland 699 Bellevue Avenue Lincoln Square Recreation Center 250 -10th Street Chinese Garden /Hong Lok Center 275 7th Street Madison Square Park 810 Jackson Street Downtown Veterans Bldg. 200 Grand Ave. Main Library 125 14th street Duck Islands 666 Bellevue Avenue McElroy Fountain 666 Bellevue Avenue Fire Alarm Building 1310 Oak Street Necklace of Lights Lake Merritt perimeter Frank H. Ogawa Plaza (Civic Center) One Frank H. Ogawa Plaza Lake Chalet Restaurant 1520 Lake Chalet Restaurant \Garden Center 666 Bellevue Avenue Peralta Park 94 East 10th Street Lafayette Square Park 635- 11th Street Rotary Nature Center 600 Bellevue Avenue 468 Bellevue AvenueLake Merritt Sailboat House 568 Bellevue Avenue Lake Merritt Boating Center 568 Bellevue Avenue Snow Park 19th & Harrison Lakeside Park Improvements 12th Street
Maintenance means the furnishing of services and materials for the ordinary and usual operation, maintenance and servicing of the landscaping, street lighting, public parks, street and park trees and recreational facilities and appurtenant facilities, including: repair, removal or replacement of all or part of any of the landscaping, street lighting, public park and recreational facilities, or appurtenant facilities; providing for the life, growth, health and beauty of the landscaping, including cultivation, irrigation, trimming, spraying, fertilizing, and treating for disease or injury; and the removal of trimmings, rubbish, debris, and other solid waste. Servicing means the furnishing of water for the irrigation of the landscaping, the maintenance of any street lighting facilities or appurtenant facilities, and j
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART A
the furnishing of electric current or energy, gas, or other illuminating agent for the street lighting, public park, and recreational facilities or appurtenant facilities.
The plans and specifications for the improvements are on file in the Oakland Public Works Department of the City of Oakland.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART B
PART B
ESTIMATE OF COST
The City’s Fiscal Year 2022-23 Proposed Revenues and Cost Estimate Summary for the District is shown below in Table 4.
Estimated Revenues
Property Assessments
Port Revenue - Non Airport Parcels
Port Revenue - Airport Parcels
Recoveries for Damaged Lights
Tree Removal Permits
Collection from Delinquent Accounts
Revenues from Other Funds
Total Revenues
$18,482,996
$644,204
$153,813
$207,275
$78,081
$0
$0
$19,566,368
Estimated Expenditures (Cost Estimate!
Finance
Revenue Collections
Budget Analysis & Operations
$85,393
$16.000
$101,393Subtotal
Public Works
Administration & County Collection Fee
Parks, Grounds and Medians
Trees
Facilities Management & Development
Insurance Liability
Ball Fields
$311,188
$6,063,603
$984,649
$439,885
$3,528,770
$214.037
$11,542,132Subtotal
Transportation
Street Light Maintenance
Electrical Services: Administration
$2,680,110
$0
$2,680,110Subtotal
Parks & Recreation
Recreation, Cultural, Civic
Aquatics
$3,591,645
$509.628
$4,101,273Subtotal
Economic & Workforce Development
Marketing & Special Development $0
$0Subtotal
Non-Deparfmental
Debt Service $1,502,861
$1,502,861Subtotal
$19,927,769
($361,401]
($717,465]
($1,078,866)
Total Expenditures
Contribution to/(from) Fund Balance
Estimated Beginning Fund Balance (est. July 1, 2022)
Estimated Ending Fund Balance (est. June 30, 2023)
* Negative Fund Balances will not be eliminated by using future District assessments, but instead from other funds.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART B
The 1972 Act provides that the total cost for operations, maintenance and servicing of those facilities or improvements, which provide a “special benefit” to the parcels can be recovered in the assessment spread including incidental expenses. These incidental expenses include but are not limited to engineering fees, legal fees, printing, mailing, postage, publishing, etc.
In addition, LLAD revenues have not increased since the Assessment District was formed in 1989, more than 30 years ago. This has created an ongoing deficit in the District which can no longer be sustained without significant reductions in service levels. In order to address the difference between revenues and expenditures, the City reallocated costs commencing with the Fiscal Year 2022-23 budget process to align LLAD-eligible costs to the revenue source paying the landscape and park costs. As an example, some costs are paid from non-assessment revenues, like Gas Tax Funds and the Measure Q Parks Fund, to maintain service levels and fund the historical LLAD shortfall associated with landscape and park costs.
The District’s total assessment revenue allocation by improvement type and benefit zone is shown below in Table 5. The location of the zones of benefit and the method of apportionment are described in Part D of this Report.
Zone 1 Zone 2 Zone 3 Total
AllNon
Residential
Non
Residential
Non
ResidentialDESCRIPTION Residential Residential Zones
$653,729 $140,031 $2,539,080Lighting $1,153,138 $398,731 $193,451 $8,818,058 $2.363.481 $3,310,568 $549.943 $901,867 $15,943,916Landscaping $689,973$9,971,196 $3,017,210 $3,709,299 $1,095,317 $18,482,996Total Estimated Assessments The 1972 Act requires that a special fund be set up for the revenues and expenditures of the District. Funds raised by the assessment shall be used only for the purpose as stated herein. A contribution to the District by the City may be made to reduce assessments, as the City Council deems appropriate. Any balance or deficit remaining on July 1 must be carried over to the next fiscal year.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART C
PART C
ASSESSMENT DISTRICT DIAGRAM
Assessment District
The boundaries of the City of Oakland’s Landscaping and Lighting Assessment District coincide with the boundaries of the City of Oakland and encompass all parcels of land within the City. The District Diagram is located on the following pages of this Report.
The District Diagram presents the District boundary, the Zones of Benefit, and City streets.
The lines and dimensions of each parcel of land within the District, are those lines and dimensions of the Assessor’s parcel maps on file at the Alameda County Assessor’s office.
The Assessor’s maps are incorporated by reference into the Assessment Diagram. The Assessor’s parcel number is adopted as the distinctive designation of each lot or parcel.
Benefit Zone Boundaries
The District is divided by two benefit zone systems, residential and non-residential.
Consequently, the District Diagram is presented in two sheets, one depicting residential Benefit Zones 1 and 2, and the other depicting non-residential Benefit Zones 1,2, and 3.
For each sheet of the Assessment District Diagram, the dividing line between Benefit Zones 1 and 2 generally begins at I-580 and the northerly City Park District Limits, then continues easterly along I-580 and northerly along Piedmont Avenue to the City Limits of Piedmont. It then generally begins at Park Boulevard and the southerly boundary of Piedmont and meanders southerly to State Road 13 near Seminary Avenue, and easterly to the Oakland City Limits.
Non-residential Benefit Zone 3 encompasses the downtown business district generally bordered by Grand Avenue, El Embarcadero, Lakeshore Avenue, the Nimitz Freeway, Highway 24 and 27th Street.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART C
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART C
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
PART D
METHOD OF APPORTIONMENT OF ASSESSMENT
GENERAL
The Landscaping and Lighting Act of 1972 permits the establishment of assessment districts by agencies for the purpose of providing, maintaining, and servicing certain public improvements, which include the construction, maintenance, and servicing of streetlights, traffic signals, landscaping facilities, and park and recreational facilities.
Section 22573 of the 1972 Act requires that assessments be levied according to benefit rather than according to assessed value. This section states:
“The net amount to be assessed upon lands within an assessment district may be apportioned by any formula or method which fairly distributes the , net amount among all assessable parcels in proportion to the estimated benefits to be received by each parcel from the improvements. ” The 1972 Act permits the designation of zones of benefit within any individual assessment district if “by reasons or variations in the nature, location, and extent of the improvements, the various areas will receive different degrees of benefit from the improvements”.
SPECIAL BENEFIT DETERMINATION
Street Lighting
The proper functioning of street lighting is imperative for the welfare and safety of property located adjacent to or near the streetlights throughout the City. Proper operation, maintenance, and servicing of a street lighting system benefits the adjacent properties by providing increased illumination for ingress and egress to property, safe pedestrian traveling at night, improved security, and protection to the property.
Landscaping
Trees, landscaping, hardscaping, and appurtenant facilities, if well maintained, provide beautification, shade, and aesthetic enhancement of the surroundings to the adjacent properties, and therefore, directly increase property desirability and value. In Parkways and Land Values, written by John Nolan and Henry V. Hubbard in 1937, it is stated:
. . there is no lack of opinion, based on general principals and experience and common sense, that parkways do in fact add value to property, even though the amount cannot be determined exactly... Indeed, in most cases where public money has been spent for parkways, the assumption has been definitely made that the proposed parkway will show a provable financial profit to the City.” It should be noted that the definition of “parkways” above includes all roadway landscaping including medians and entranceways.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
Parks and Recreation
Park and Recreational facilities provide a special and direct benefit to properties located near or adjacent to the park and recreational facilities. These park and recreational facilities enable the adjacent property owners to participate in sporting events, leisure activities, picnics, organized social events, and other neighborly activities. Since these parcels are located within close proximity of the park and recreational facilities, these parcels realize a direct increase in property values. Property values increase more when the park and recreational facilities are in place, improved, operable, safe, clean, and well maintained near or adjacent to their parcels. Conversely, property values decrease when park and recreational facilities are non-existent, unsafe, or destroyed by the elements or vandalism.
Studies in a number of neighborhoods and communities, including counties and cities throughout the United States, have indicated that recreation and recreational facilities, if well maintained, have caused an increase in the property values within the community.
These studies confirm the opinion long held by planning authorities as to the economic value to parcels from park and recreational facilities located nearby. "The recreation value is realized as a rise in the value of land and other property in or near the recreation area, is of both private interest to the landowner and others holding an economic stake in the area, and of public interest to the taxpayers, who have a stake in a maximum of total assessed values.’’ (National Recreation and Park Association, June 1985)
BENEFIT ZONES
Benefit zones have been established to distinguish geographic areas with differing degrees of benefit received by parcels of similar size and use. These distinctions arise from variations in the nature, location, and extent of improvements. Within a benefit zone, parcels of similar size and use are estimated to receive the same degree of benefit. For the City of Oakland Landscaping and Lighting Assessment District, two benefit zone systems are used: one for residential parcels and one for non-residential parcels.
Street Lighting Improvements
The Oakland City Council established minimum standards for residential street lighting that are uniformly applied throughout the City. In addition, it was determined that residential properties receive additional benefit from the increased street lighting located on collector and arterial streets. Because all residences benefit from a portion of collector and arterial lighting, 30 percent of these lighting costs were attributed to residential properties and therefore included in the residential assessments at the time of formation.
In addition, for non-residential parcels, a distinction is necessary for benefits received from street lighting. Throughout the City, street lighting is similar among non-resideritial areas. One exception to this similarity in lighting among non-residential areas is the downtown area, which is more intensely lighted than other non-residential areas. To account for this difference in lighting intensity, Benefit Zone 3, encompassing the central business district, was created for non-residential properties.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
Landscaping Improvements
Because of the variation in density of roadway, median and parkway landscaping throughout the City, the District is divided into two benefit zones. Assessment rates for benefit zones were established at time of formation based on parcels located within their respective benefit zones paying for the landscaping costs located within that benefit zone based upon the methodology detailed within this Report.
Parks and Recreaticn
Finally, a long-standing system of City Park Maintenance Districts provides another basis for placement of benefit zone boundaries. These park and recreational benefit zone boundaries were established on the basis of location and density of park and recreational improvements, in an effort to establish areas requiring equivalent input of resources.
For residential and non-residential parcels, it is appropriate to make the same distinction between Benefit Zones 1 and 2 for benefits received from park improvements. In addition to distinguishing lighting intensity, the Benefit Zone 3 boundary serves another purpose:
the highest density of park improvements is in the downtown area. Downtown improvements include Lake Merritt. Clearly, areas outside Benefit Zone 3 also benefit from the downtown improvements. Portions of the Benefit Zone 3 park and recreational benefits were therefore attributed to Benefit Zones 1 and 2.
Assessment rates at the time of formation were derived off estimates of the benefits received from the park & recreational improvements located within Benefit Zone 3, based on interviews with City staff and other persons possessing extensive knowledge of City parks and their usage. Fifty percent of park & recreational improvements located within Benefit Zone 3 benefit the non-residential and residential parcels located within Benefit Zone 1, twenty-five percent of the park & recreational improvements located within Benefit Zone 3 benefit the non-residential parcels located in Benefit Zone 3, and twenty-five percent of the park & recreational improvements located within Benefit Zone 3 benefit the non-residential and residential parcels located within Benefit Zone 2.
In summary, several zones of benefit were established as follows:
Zone 1
Zone 1
Zone 2
Zone 2
Zone 3
Residential
Non-Residential
Residential
Non-Residential
Non-Residential
SPECIAL BENEFIT ALLOCATION
Each parcel is assigned Equivalent Dwelling Units (EDUs) in proportion to the estimated benefit the parcel receives from the lighting, landscape, and park improvements. The total number of EDUs is then divided into the annual revenue requirement to determine the cost perEDU.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
Calculation of the EDUs to be allocated to each parcel is based upon land use (intensity of development), street frontage and parcel size.
Single Family
Since the single-family parcel represents over 64% of the total assessable parcels within the District, it is used as the basic unit of assessment and is defined as 1.00 EDU (one Equivalent Dwelling Unit). Single-family parcels are defined as parcels that have a land use classification as single family residential with the Alameda County Assessor’s Office.
Condominium
Condominium parcels are considered 0.75 EDUs due to their reduced population density and size of structure relative to the typical single-family residence. Condominium parcels are defined as parcels that have a land use classification as condominium, attached planned unit development or co-op with the Alameda County Assessor’s Office.
Mobile Home Parks
Mobile home parcels are considered 0.75 EDUs due to their reduced population density and size of structure relative to the typical single-family residence. Mobile home parcels are defined as parcels that have a land use classification as mobile home with the Alameda County Assessor’s Office.
Multi-Family
Multi-family residential parcels are also given a reduction of EDUs because of their reduced benefit received as the number of units increase. By decreasing the equivalency factor as the number of units increases, a reasonable benefit assessment per parcel is achieved. The equivalency factors for multi-family parcels are shown in Table No. 6 below.
Multi-family parcels are defined as parcels that have a land use classification as multi family, which includes duplexes, triplexes, apartments, etc., with the Alameda County Assessor’s Office.
Numberor Range of
Units Per Parcel
Equivalency Factor
Per Unit
Number or Range of
Units Per Parcel
Equivalency Factor
Per Unit
31-342 0.700 0.514
3 0.650 35-39 0.511
4 0.600 40-44 0.508
5 0.550 45-49 0.505
6 0.547 50-59 0.502
7 0.544 60-69 0.499
8 0.541 70-79 0.496
9 0.538 80-99 0.493
10 0.535 100-129 0.490
11 0.532 130-159 0.487
12 0.529 160-199 0.484
13-15 0.526 200-249 0.481
16-19 0.523 250-299 0.478
20-24 0.520 300-349 0.475
25-30 0.517 350-500 0.472
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
Commercial and Institutional
The commercial and institutional land use category represents the largest non-residential category. Although the parcel area and frontage equating to the benefit received by a single-family residential parcel is incapable of exact determination, reasoned judgment establishes estimates resulting in fair assessments. Commercial and institutional parcels are generally defined as parcels that have a land use classification as commercial or institutional with the Alameda County Assessor’s Office. Institutional land uses include but are not limited to schools, churches, and hospitals.
Parcel area and frontage for an “average” single family parcel are approximately 3,200 square feet and approximately 40 feet, respectively. If one further estimates that the benefits received by a “typical” single-family parcel are attributable to one-half of its street frontage and one-half of its parcel area, the 0.50 EDUs should be allocated for each 3,200 square feet of parcel area and 0.50 EDUs should be allocated to each 40 feet of street frontage. It is this range of estimates that is applied to the commercial/institutional and industrial (see below) land use categories.
As noted in the following table and illustrated in the example calculation, one EDU benefit is attributed to a commercial/institutional parcel for each 80 feet of frontage and for each 6,400 square feet of parcel area.
Land Use Category Frontage (FT) Area (SF) Building Area (SF) Commercial/lnstitutional 80 6,400 N/A
Industrial 100 10,000 N/A
Public Utilities 1,000 100,000 N/A
Golf Course 1,000 200,000 N/A
Quarry 1,000 250,000 N/A
Tall Buildings > 5 Stories 80 6,400 5,000
Below is an example benefit estimation for a commercial or institutional parcel with a frontage of 160 feet and an area of 12,800 square feet:
Frontage Area
160 FT 12,800 SF
80 FT 6,400 SF 4.00 EDUs+
Industrial
Predominantly industrial areas are generally less intensely lighted than are predominantly commercial areas. This less intense lighting is accounted for by using larger frontage and area factors to represent the unit benefit. Moreover, basic differences in land use result in less benefit being received per unit area or frontage by industrial uses than for commercial or institutional uses. Industrial uses are typically less intense, requiring greater areas and Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
generating fewer occupants and pedestrians than commercial or institutional uses. In addition, the enhanced image created by the presence of parks and landscaping is generally more important to commercial and institutional uses than to industrial uses.
For the industrial land use category, estimates are taken from the other end of the range discussed above. One EDU benefit is represented by 100 feet of frontage and by 10,000 square feet of parcel area. It is estimated that, for a given increment of frontage or area, an industrial parcel benefits less than a commercial or institutional parcel. The distinction in frontage or area per unit benefit is designed to take this difference into account.
Non-Residential Condominiums
There are a number of condominiums with use codes in the commercial and industrial land use categories. Parcel area and frontage data from the Assessor’s parcel maps pertain to a condominium complex as a whole. This data was used to compute an assessment for the total complex. A third variable, each parcel’s percentage interest in the condominium, was derived from documents in the County Recorder’s Office and was used to prorate the assessment for the total complex to the individual condominium units.
Tall Non-Residential Buildings
Tall non-residential buildings make relatively intense use of public lighting, landscaping, and parks because of their high rates of occupancy and pedestrian generation. Because of the small ratio of building footprint to floor area for a tall building, the benefits received from this intense use are not fairly measured by parcel area and frontage alone. In estimating the benefits received by tall buildings, area and frontage measures are supplemented by net rentable area of the building.
A tall building is defined as a building of more than five stories. For tall buildings, the normal benefit computation is performed on the basis of parcel area and frontage. Added to that result is an estimated additional benefit of one EDU per 5,000 square feet of net rentable area. To avoid unreasonably large benefit estimates for tall buildings on large parcels, a maximum estimated benefit of 100 EDUs is established.
Public Utilities
Properties owned or leased by investor-owned public utilities are established as a separate land use category. Many of the parcels in this category have large areas and frontages and would receive unreasonably large assessments unless a distinction is made in the frontage and area representing a unit benefit. Most of these parcels contain equipment and facilities that receive relatively little benefit from public lighting, landscaping, and parks. These parcels were allocated 1.00 EDU of benefit for each 1,000 feet of frontage and for each 100,000 square feet of area.
Golf Courses
Golf Course parcels represent very large areas and frontages. Most of the area involving golf courses is permanent open space. Golf courses do contain clubhouses and other structures and do benefit from public lighting, landscaping, and parks, but estimation of their benefits requires a formula different from that applied to other land uses. The golf Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
courses are allotted 1.00 EDU of benefit for each 1,000 feet of frontage and for each 200,000 square feet of area.
Quarries
Quarry parcels are typically very large and derive little benefit from the District’s improvements. Among all use categories, quarries are estimated to receive the least benefit per frontage and area and are allotted 1.00 EDU of benefit for each 1,000 feet of frontage and 250,000 square feet of parcel area.
Exempt
Exempted from the assessment would be public streets, public avenues, public lanes, public roads, public drives, public courts, public alleys, public easements and rights-of- way, public greenbelts and public parkways, open space, and all other public property.
SUMMARY OF ASSESSMENTS
The methods described above are applied to estimate the benefits received by each assessable parcel in the District from lighting, landscaping, parks, and recreational improvements. These estimates are expressed as Equivalent Dwelling Units (EDU). The total of equivalent dwelling units for each Zone is then computed for both residential and non-residential land uses. A Summary of Single-Family EDUs by Zone and General Land Use is presented below.
Benefit Zone Residential Non-Residential Combined
1 97,147.27 26,748.31 123,895.59
2 33,255.33 5,655.52 38,910.85
3 N/A 4,751.92 4,751.92
Total 130,402.60 37,155.75 167,558.35
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART D
These calculated EDUs are then multiplied by the appropriate assessment rates to obtain the assessment for lighting and for parks and landscaping, for residential and non- residential uses in each Benefit Zone. A Summary of Assessment Rates for One Equivalent Dwelling Unit Benefit by Zone and General Land Use is as follows:
Zone 1 Residential Non-Residential
$11.87 $24.44Lighting
$90.77 $88.36Landscaping/Parks
$102.64 $112.80Total
Zone 2 Residential Non-Residential
$11.99 $24.76Lighting
$99.55 $97.24Landscaping/Parks
$111.54 $122.00Total
Zone 3 Residential Non-Residential
$40.71Lighting N/A
Landscaping/Parks $189.79N/A
$230.50Total N/A
The assessment for a particular parcel is computed by multiplying that parcel’s EDUs by the assessment rate shown above. The total assessment revenues for residential and non-residential parcels within each Zone are presented in the following table:
ienefit Zone on-Residentialiesidential ombinei
$12,988,4061 $9,971,196 $3,017,210
$3,709,299 $689,973 $4,399,2722
$1,095,317N/A $1,095,3173
$13,680,495 $4,802,500 $18,482,996Total
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23
SECTION II
PART E
PART E
PROPERTY OWNER LIST & ASSESSMENT ROLL
A list of names and addresses of the owners of all parcels, and the description of each lot or parcel within the City of Oakland Landscaping and Lighting Assessment District is shown on the last equalized Property Tax Roll of the Alameda County Assessor, which by reference is hereby made a part of this report.
This list is keyed to the Assessor's Parcel Numbers as shown on the Assessment Roll, which includes the proposed amount of assessments for Fiscal Year 2022-23 apportioned to each lot or parcel. The Assessment Roll is on file in the Office of the City Clerk of the City of Oakland and is shown in this Report as Appendix “A”.
Francisco & Associates
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CITY OF OAKLAND LANDSCAPING AND LIGHTING
ASSESSMENT DISTRICT FY 2022-23 APPENDIX A
APPENDIX ‘A’
FISCAL YEAR 2022-23 ASSESSMENT ROLL
(Under separate cover and on file with the City Clerk)
Francisco & Associates