Administrative
Report
N.1., File # 24-1679 Meeting Date: 10/15/2024
To: MAYOR AND CITY COUNCIL
From: GREG KAPOVICH, WATERFRONT & ECONOMIC DEVELOPMENT
DIRECTOR
TITLE
DISCUSSION AND POSSIBLE ACTION ON THE DESIGN OF THE SEASIDE LAGOON
REHABILITATION PROJECT
CONSIDER THE SEASIDE LAGOON DESIGN OPTIONS AND DIRECT STAFF TO PURSUE
ENTITLEMENTS FOR ALL ELEMENTS OF THE SEASIDE LAGOON PROJECT AND PREPARE PLANS AND SPECIFICATIONS FOR THE CONSTRUCTION OF PHASE 1 WHICH WOULD REPLACE THE LAGOON’S WATER FEATURE AND REBUILD THE NECESSARY
INFRASTRUCTURE AND EQUIPMENT
EXECUTIVE SUMMARY
Seaside Lagoon is a one-of-a-kind, multi-purpose aquatics and special events facility located on oceanside State Lands in Redondo’s King Harbor. Seaside Lagoon’s infrastructure is wholly unique and is fed by ocean water that is piped through the AES powerplant to cool its turbines, chlorinated before entering the lagoon to meet County public health requirements, and then de-chlorinated before being discharged into the harbor in order to meet strict State and Federal standards related to water quality. Though this method of bringing water to the Lagoon was innovative at the time of its construction, the City now faces challenges maintaining antiquated and obsolete infrastructure in order to meet County health standards and the increasingly strict ocean discharge requirements.
The City received a $10M grant from the State to help design and build a new Seaside Lagoon. To begin this process, the City issued an RFP to procure a design expert, which resulted in the hiring of Nuvis. Following Nuvis’ selection, the consultant and City staff hosted three public pop-up events to solicit feedback from the community regarding the Lagoon’s layout, types of amenities, and architectural design options. In addition, staff sought input from a subcommittee, that was formed and met eight times, and received direct comments from various waterfront stakeholders. The design was also discussed with the Harbor Commission, most recently at their September 9, 2024 meeting.
After considering the feedback received from these efforts, staff recommends pursuing entitlements for the complete renovation of Seaside Lagoon and preparing plans and specifications for the construction and completion of Phase 1, which, would shift the water feature west towards the old Joe’s Crab Shack site, create a concrete bottom for the water feature (covered in sand), refurbish the existing bulkhead, install water slides, buoys, a splash pad, equipment room, and the associated piping, utilities, fencing, and equipment needed to operate the water feature. The cost estimate to
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construct Phase 1 is currently within the Project’s available budget.
BACKGROUND
The Lagoon serves hundreds of thousands of visitors each year from the surrounding region. The vast majority of visitors travel from inland Los Angeles communities such as Hawthorne, Gardena, Inglewood, and other cities that do not have immediate access to coastal recreational amenities. The Lagoon itself was initially constructed with funding from the State of California and was designed to introduce people to the ocean.
A complete redesign of the Seaside Lagoon has a number of constraints as a result of the City’s current Local Coastal Plan, State funding restrictions, the development of other amenities identified in the King Harbor Amenities Plan, and associated Municipal Code Zoning Regulations. These constraints include:
Measure C and the City’s Local Coastal Plan
Through a ballot initiative, the residents of Redondo Beach passed Measure C on March 7, 2017 which, following Coastal Commission approval, became part of the City’s LCP. This measure does not allow the footprint of the park or the water feature within the park to decrease in size. In addition, the number of parking spaces serving Seaside Lagoon cannot be decreased, and at least 40% of the existing views from Harbor Drive must be maintained. Measure C also requires any design to maintain the sandy beach entry and incorporate volleyball courts, showers, restrooms, a concession building, picnic area, and a play equipment area. Staff has ensured that the options depicted further below do not reduce the size of the park area, water feature, or parking supply. The proposal does include new buildings in a new location, with at least 40% of the existing views from Harbor Drive being maintained.
The City’s Local Coastal Plan requires that the new development remain accessible to the public and be designed to preserve the existing parking supply and maintain continuous public access to the waterfront, pedestrian promenade, and boating-related facilities, such as the hand launch and the future public boat launch. Proposed designs meet these criteria.
State Requirements
Seaside Lagoon was constructed to be an introduction to the ocean and must be accessible to all ages and abilities. As a result, a beach-like, sloped entry to the water element must be maintained so that all abilities have access to the water.
King Harbor Amenities Plan
The King Harbor Amenities Plan is a vision that involved community participation before ultimately being reviewed by the Harbor Commission and approved by City Council. The plan included a renovated Seaside Lagoon that lists the amenities preferred by the community for inclusion in a potential redesign. The Amenities Plan does note that space constraints could limit the inclusion of every amenity listed in the plan. The list includes improved year-round access, a lawn, reconfigurable fence, restrooms, rentable facility, new water feature, direct path to the oceanfront, flex open space, bus parking, a dining option, water park amenities, and a lap pool.
As proposed, the site layout accommodates a renovated water feature, water slides, splash pad, and associated equipment room. The site has been designed to allow for a reconfigurable fence to make better use of the space and help achieve year-round activation, as well as a lawn, fire pits, volleyball
N.1., File # 24-1679 Meeting Date: 10/15/2024
better use of the space and help achieve year-round activation, as well as a lawn, fire pits, volleyball courts, new programmable space, restrooms, and a children’s playground. New buildings have been included to facilitate a rentable venue. It has been designed to create a grand entrance to the lagoon while accommodating back of house for staffing needs. The new water feature has been designed to temporarily drain by up to 80% to accommodate larger events such as concerts or sports tournaments. The remaining 20% is sufficient in size and depth to accommodate year-round lap swimming. While there are no dining options included in the design, the site layout accommodates access to the adjacent California Surf Club and incorporates a wide second entry to allow for larger food service, and delivery trucks, to access the site as needed.
Redondo Beach Municipal Code Zoning Regulations
The Redondo Beach Municipal Code establishes minimum development standards that the project must adhere to. New buildings cannot exceed 30 feet in height and must adhere to a Floor Area Ratio of 0.25. There are also minimum setback (distance buildings must maintain from property line) and lot coverage requirements. The design must utilize drought tolerant plants and turf is limited to 20% of the open space area. Staff has considered these development standards and are confident the design can meet each. However, these details will be tackled once staff receives direction on project scope and moves to the entitlement phase of the project.
Seaside Lagoon Water/Open Space Infrastructure Improvements The project will completely upgrade the existing infrastructure with installation of a new concrete bottom, refurbishment of the existing concrete bulkhead, and replacement of associated pipes, mechanical equipment, and chemical treatment equipment to convert the Lagoon into a “modern system.” The new infrastructure would operate much like a residential pool in which fresh water from our water utility provider is utilized to fill the lagoon, treated, and then discharged into the storm drain instead of the ocean. In summary, the new Seaside Lagoon would no longer require that we draw ocean water to fill the water feature.
In an effort to maximize usable open space, the design proposes shifting the water feature to the west, towards the old Joe’s Crab Shack site. In doing so, the existing concrete bulkhead separating the lagoon water from the pedestrian promenade can be re-utilized (after refurbishment) to save project costs. By shifting the water feature northwest, the open space area between California Surf Club and the water feature is increased.
The water feature would be designed to drain to approximately 20% of its capacity to accommodate larger temporary events or to maximize the open space area during non-peak, cold seasons. The remaining water is considered the deepest portion of the new lagoon and could accommodate lap swimming year-round with the placement of two buoys to mimic open water swimming. The improved water feature requires a concrete bottom to adhere to minimum building code requirements and best practice for maintenance. The concrete bottom will be covered in sand to mimic the ocean within the area that can be drained. The cost to convert the facility to a recirculating system with no discharge to the Harbor, shift the water feature west, and refurbish the existing bulkhead is anticipated to cost approximately $6,217,560. An additional $750,000 is required to include new water slides, lap swimming buoys, and a splash pad, which would compete the fully renovated water feature for approximately $6,967,560.
The design maximizes the open space surrounding the water feature for other amenities, allows for lap swimming year-round, accommodates larger events with an ability to drain 80% of the water feature, and can accommodate a fence to separate the water feature from the open space areas
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feature, and can accommodate a fence to separate the water feature from the open space areas when the City desires to make the open space area accessible to the public free of charge.
Seaside Lagoon Buildings and Facility Improvements
The proposed design also includes two new two-story buildings shifted towards the northeast corner to accommodate a new grand entrance, ticket sales, employee office, concessions, restrooms, rentable venues, etc. The buildings would be situated in a manner in which trash, deliveries, and maintenance can be accessed from Portofino Way and the existing marina surface parking lot. The circular drop-off area along Portofino Way is eliminated and the area would now be incorporated for use by the lagoon. However, building placement will affect how the lagoon utilizes this annexed area as discussed below.
Site Layout (Building Location Option) - Staff has developed two building placement concepts. Each option shifts the building placement towards the northeast corner of the site. The first option is included as an attachment and places the new building at the northeast corner but not within the old bulb-out drop-off area. This option allows the old drop-off area to be utilized as a staging area for groups to gather before entry into the park. The second option is also included as an attachment and pushes the new buildings as close to the old drop-off area as possible. In doing so, the usable open space area of the lagoon is increased.
Staff seeks direction on which option to pursue but staff, the Seaside Lagoon Subcommittee and the Harbor Commission all favored the second option in order to increase the usable area between the building and water feature but also expressed a desire to ensure the location could accommodate a grand architectural entrance.
In addition to the two new buildings, the complete redesign includes a new restroom fronting the promenade just south of the water feature. The restroom would be dual facing to accommodate users of Seaside Lagoon as well as users of the hand launch and pedestrian promenade.
Furthermore, the restrooms’ location just south of the Lagoon would be within the open space area between the water feature and California Surf Club. The location ensures public restroom access if/when the water feature is closed for the off-season and the open space area made available for free to the public. The complete redesign also incorporates new landscaping, pedestrian pathways, a new perimeter fence, fire pits, volleyball courts, picnic tables, and a removable fence bifurcating the water feature from the open space to accommodate free year-round use of the open space area, when desired.
In total, the complete redesign is estimated to cost $31,088,572.
Seaside Lagoon Phased Approach (Staff, Harbor Commission, and Subcommittee Recommended)
The City worked with the Offices of Senator Ben Allen and Assembly Member Al Muratsuchi to obtain an appropriation of $10 million for the project. The City Council appropriated another $1 million for the project and selected Nuvis Landscape Architecture (Nuvis) to design the facility. Once the design is approved and direction is provided regarding the type of entitlements to pursue, Nuvis will perform the necessary environmental analysis and prepare the appropriate permit applications for City and Coastal Commission consideration. Nuvis will also prepare construction ready drawings, obtain building permits, assist in the selection of construction contractors, and help oversee the construction process. The contract with Nuvis to perform these services carried a not-to-exceed amount of
N.1., File # 24-1679 Meeting Date: 10/15/2024
$3,146,419, thus leaving an available project balance of $7,853,581.
The Harbor Commission, Seaside Lagoon Subcommittee, and staff recommend the City Council support a complete redesign approach, emphasizing the need to upgrade the infrastructure and recognizing that the existing buildings are in decline, which would direct staff to seek entitlements for the complete project. However, the proposal includes the preparation of plans and specifications and construction to occur over a series of phases. Construction of Phase 1 could be accommodated with the remaining balance for the project and could be executed immediately. Phase 1 would include the water feature and open space infrastructure elements listed above at an approximate cost of $6,967,560.
As noted, Phase 1 would shift the water feature west towards the old Joe’s Crab Shack site, create a concrete bottom for the water feature (covered in sand), refurbish the existing bulkhead, install water slides, buoys, a splash pad, equipment room and any associated piping, utilities, fencing, and equipment needed to operate the water feature. The existing buildings on site would remain as-is during Phase 1. A 20% contingency has already been built into the $6,967,560 estimate for Phase 1 to accommodate unforeseen costs and would leave a funding balance of $886,021 for the remaining phases of the project.
Phase 2 would focus on the park-like open space features and includes site grading, a new perimeter fence, a dual facing restroom, landscaping, hardscape, programmable spaces, site furnishings (shade structures, fire pits, volleyball courts, and a playground), and a 20% contingency for unanticipated costs for a total of $7,631,168. As proposed, staff would include this phase in the entitlement review stage and obtain the necessary Coastal Commission approval now, but would delay preparation of plans and specifications and execution of construction until additional funding becomes available.
Phase 3 would include demolition of the existing on-site buildings, construction of the two new twostory buildings at the northwest corner of the site, and the 20% contingency at a cost of $13,955,947.
As proposed staff would include this phase in the entitlement review stage and obtain necessary Coastal Commission approval now, but would delay preparation of plans and specifications and execution of construction until additional funding becomes available.
Phase 4 would include construction of the pedestrian promenade. Staff has explored several design options for the promenade (discussed further below). The cost of the promenade varies between $460,000 to $3,250,000 depending on the design chosen. For the purposes of providing a total project cost estimate of $31,088,572, staff utilized an estimate of $2,533,897 ($1,600,000 cost plus 20% contingency), which includes Option 2, the preferred option of staff, the Seaside Lagoon Subcommittee, and the Harbor Commission. As proposed, Phase 4 would also be included in the entitlement review stage and obtain the necessary Coastal Commission approvals, but preparation of plans and specifications and execution of construction would be delayed until additional funding is identified.
A phased approach, as recommended by staff, the Seaside Lagoon Subcommittee, and the Harbor Commission would accommodate a complete design from the onset that could be approved under one entitlement review process, one environmental review process, and one Coastal Commission process, thus eliminating the need to navigate additional entitlements in the future to accommodate future phases. It would also signal to potential donors and grant overseers that the City is moving
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future phases. It would also signal to potential donors and grant overseers that the City is moving forward with a complete redesign, has all the necessary approvals, and only requires additional funding to see future phases move forward. In addition, City representatives would know the total funding needed to see the additional phases constructed, which would be helpful when seeking grants.
Pedestrian Promenade and Hand Launch Access
Staff is also seeking direction from City Council on the design of the pedestrian promenade. The King Harbor Public Amenities Plan was approved by City Council with the direction to ensure vehicles with trailers could access the existing small boat launch located just west of Seaside Lagoon.
Currently, recreational boaters that want access to the hand launch do so from the marina parking lot.
They access the promenade near California Surf Club and head north along the promenade towards the small boat launch, stop to unload, and reverse back out south towards California Surf Club and into the marina parking lot. Best practice dictates that a design should ensure vehicles never reverse in a pedestrian heavy environment. Staff investigated many variations to improve overall safety. The promenade options have been included as an attachment and are described below. Staff, the subcommittee and Harbor Commission recommend the City seek entitlements for, and eventually build, Option 2.
Initial Promenade Design - Option 1
The design would accommodate pedestrians only and completely eliminates any pedestrian and vehicle conflict points. All costs for design would accommodate pavers, lighting, landscaping, signage, and any other placemaking detail. However, users of small boats such as kayaks (which can weigh up to 500 pounds) and stand-up paddleboards would have to walk or utilize hand carts from the parking lot to access the small boat launch which is over 400 feet away from the parking lot.
This could prove especially difficult for patrons of the hand launch that are in need of ADA accommodations, both of which were reasons that the City Council approved the King Harbor Amenities Plan with the requirement that vehicle access be maintained. The estimated cost of this option is $466,000.
Recommended Promenade Design - Option 2 (Supported by staff, the Harbor Commission and Seaside Lagoon Subcommittee)
Staff has developed a one-way circular approach starting from Portofino Way moving west through an existing 13-foot-wide alley, turning south on the 15-18-foot-wide promenade, stopping near the hand launch to unload, before continuing south to exit the promenade past California Surf Club and into the marina surface parking lot. The design includes widening the entrance point at Portofino Way and at the north west corner connecting the 13-foot-wide alley way to the promenade to ensure vehicles with trailers have appropriate turning radius to navigate the turns. This option also includes implementing bollards or some color change to the pavement along the promenade itself to assist in separating pedestrians from vehicles. Finally, the option includes a pull-out area on the west side of the promenade (near the small boat launch) for vehicles with trailers to unload out of the way of pedestrians. The estimated cost for this option is $1,600,000.
Promenade Design Option 3
This design would follow the same one-way approach outlined in Option 2 and would also widen the entrance point at Portofino Way and at the north west corner connecting the 13-foot-wide alley way to the promenade to ensure vehicles with trailers have appropriate turning radius to navigate the turns.
However, instead of a small pull-out area near the small boat launch for unloading, the option Page 6 of 7 N.1., File # 24-1679 Meeting Date: 10/15/2024
However, instead of a small pull-out area near the small boat launch for unloading, the option expands the promenade further west (over the rip rap) to accommodate a pass-through lane, a lane to stop a vehicle for unloading, and a protected pedestrian lane along a majority of the length of the promenade. The estimated cost for this option is approximately $3,250,000.
As noted above, staff, the Seaside Lagoon Subcommittee and the Harbor Commission recommend promenade design Option 2. While the Harbor Commission appreciates the safety provided by an all -pedestrian environment, they expressed concern that users of the small boat launch would be deterred from using the hand launch given the 400-foot separation between the parking lot and hand launch. In addition, future design criteria within the King Harbor Amenities Plan for the hand launch includes ADA upgrades that would require patrons with disabilities to carry or cart their boating equipment to the hand launch if a pedestrian only design was chosen. The Harbor Commission agreed that the one-way design shown in Option 2 improves the safety for both pedestrian and vehicle users over existing conditions and maintains vehicle access as originally approved by the City Council. The Harbor Commission and subcommittee dismissed Option 3 due to the high cost.
In summary, the Harbor Commission, Seaside Lagoon Subcommittee, and staff recommends a phased approach in which staff and the consultant seek entitlements for the entirety of the Seaside Lagoon project and utilize existing funding to construct Phase 1 as soon as possible. In addition, it is recommended that the phased approach include building placement option 2 and promenade design option 2.
FISCAL IMPACT
The City worked with the Offices of Senator Ben Allen and Assembly Member Al Muratsuchi to obtain an appropriation of $10 million for the project. The City Council appropriated another $1 million for the project and selected Nuvis to help design, entitle and prepare construction plans and specifications for the project. The contract with Nuvis was for a not-to-exceed amount of $3,146,419, thus leaving an available project account balance of $7,853,581. This balance is estimated to be sufficient to construct Phase 1 of the Project, leaving $886,021 available for future phases.
APPROVED BY:
Mike Witzansky, City Manager
ATTACHMENTS
· Seaside Lagoon Design/Phasing Plan
· Zoning Diagram - Seaside Lagoon Building Layout Option 1 · Zoning Diagram - Seaside Lagoon Building Layout Option 2 · Promenade Design Options