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CITY OF CARSON
MEMO
TO: RICHARD ROJAS, SENIOR PLANNER
CC: SAIED NAASEH, PLANNING MANAGER
FROM: RYAN SHEPARD, INTERN
SUBJECT: FAIR SHARE FEE MITIGATION FOR BOULEVARDS SPECIFIC PLAN
DATE: AUGUST 4, 2016
Background
The Boulevards Specific Plan will generate development that will increase the amount of residents,
customers, and employees in the site plan area which will place strain on current public services and
facilities. Carson Municipal Code and County law mandate the improvement, expansion, or construction
of new public services and facilities as mitigation. The plan has identified the facilities required but not a
scheme to fund them. I have prepared this research on funding schemes for staff consideration:
Required Facilities and Services
The EIR and the Mitigation Monitoring and Reporting Program (MMRP) for the Boulevards Specific Plan
identifies the following public facilities and services as required mitigation (See Appendix Section A for
Mitigation Measures from MMRP and Sections B and C for Library and Park scaling methodology):
1. Community Safety Center to be staffed by County of Los Angeles Sheriff’s Department and other
private security forces
2. An expanded or new County of Los Angeles Public Library facility at a minimum of 3,485 square feet
and 19,195 collection items
3. 12 acres of new parks and recreation facilities for the City of Carson
4. Low-emission shuttle service between project site and other major destinations/transit connections
5. New/Enhanced facilities and services of the County of Los Angeles Fire Department
Projected Buildout and Impact
The EIR identifies the number of units and the amount of retail square footage that will be created by
the Specific Plan:
1. “The proposed Carson Marketplace project includes an estimated 1,995,125 square feet of
commercial and hotel floor space plus 1,550 housing units.”
2. “The proposed commercial components will include a combination of regional and local-serving uses
that will comprise approximately 79 percent of total project area. . . . The remaining square footage
will be allocated to entertainment and lodging uses.”

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Demand of Services and Facilities by Uses
Use Services and Facilities
Police Fire Library Parks and Recreation Shuttle
Shopping Center Yes Yes Yes
Value-oriented Retail Yes Yes Yes
Large-format Food/Grocery
Store
Yes Yes Yes
Specialty Retail Yes Yes Yes
Neighborhood Retail Yes Yes Yes
Restaurants Yes Yes Yes
Entertainment Yes Yes Yes
Hotel Yes Yes Yes Yes
Residential Yes Yes Yes Yes Yes
Quimby Act
Under the Quimby Act a city may exact development impact/fair share fees for enhancing parks and
recreation facilities if and only if the development is classified as a residential subdivision with for-sale
units. Development of rental units/apartments exempts a developer from paying exaction to a city. The
City of Carson can therefore only exact fair share fees from the developer of the Boulevards Specific Plan
for those residential units that are for sale. Under the current plan there will be 1,550 residential units
with 1,150 of those being for-sale units and the remaining 400 being rental units. The city can therefore
exact fees from the developer only for the 1,150 for-sale units.
Cost Allocation Methodology Option
In 2013, the City of Santa Monica published a report investigating methods to allocate costs of
development impact fees to fund a parks and recreation facilities refurbishment program. The report
first establishes the city’s existing facilities and estimates the increased service population that comes
with future development. The report measures the increase of service population for municipal facilities
by measuring the number of new residents and/or resident-equivalents (employees and hospitality
guests). Using this number, the report determines the amount of new parks and recreation facilities the
city needs to create to maintain its existing level of service which is expressed through the following
function:
Existing Parkland (in acres) / Estimated Service Population =
Existing Level of Service (acres/service population)
Land uses in development plans are then ranked from highest to lowest by the number of their residents
and resident-equivalents. These numbers are converted into percentages which are then used to
allocate development impact fee costs (i.e. if residential development consists of 78% of residents
and/or resident-equivalents it pays 78% of the cost to develop new parks and recreation facilities.) The

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report then establishes a fee schedule for each land use category based off those percentages.
Residential development pays the fees per unit while non-residential development pays the fees per
square foot.
Summary
Based off the Draft EIR and MMRP for the Boulevards Specific Plan from 2006, the developer will need
to pay a significant amount of fair share contribution fees to off-set the impact of increased demand on
public services and facilities. Provided there are for sale residential units, the City of Carson may exact
fair share fees from the residential component of the development. Based off the model that Santa
Monica followed to fund their parks and recreation refurbishment program, staff should consider
following a similar scheme for the Boulevards Specific Plan.

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Appendix
Section A: Mitigation Measures
1. Community Safety Center (Page 96)
1.1. Mitigation Measure I.2-2: The Applicant shall incorporate into the Project design a Community
Safety Center for use by the Project’s private security force and the Los Angeles County Sheriff’s
Department. It shall including the following features at a minimum: a front desk/reception
area, a community meeting room, work space for law enforcement and public safety personnel,
a video monitoring console, and restrooms. The Center shall be staffed either by a Sheriff’s
Department Community Services officer or personnel approved by the Sheriff’s Department.
1.2. Mitigation Measure I.2-5: The Applicant shall fund Deputy Sheriffs on an overtime basis to
augment security during peak periods, as jointly determined by the Applicant or its successor,
and the Sheriff’s Department.
2. County of Los Angeles Public Library (Page 98)
2.1. Mitigation Measure I.5-1: The Applicant shall pay a fair share contribution for the improvement
of library facilities that are required to off-set impacts of the Project, subject to approval of the
County of Los Angeles Public Library.
3. Parks and Recreation Facilities (Page 97)
3.1. Mitigation Measure I.4-1: The Project shall provide park and recreation facilities pursuant to
Section 9207.19, equivalent to three acres per 1,000 population, that would be met through
the provision of park space, on-site improvements, and/or, the payment of in-lieu fees.
4. Shuttle Service (Pages 76 and 85)
4.1. Mitigation Measure C-16: In coordination with the City of Carson Transit Authority and the
Metropolitan Transit Authority (Metro), the Applicant shall provide additional transit stops,
including benches and shelters, in and adjacent to the Project site. (Page 76)
4.2. Mitigation Measure C-17: The Applicant shall provide a fair share contribution for funding of
the Carson North-South Shuttle operations. (Page 76)
4.3. The Applicant shall pay a fair share contribution for a low emission shuttle service between the
project site and other major activity centers within the project vicinity (i.e. the Metro Rail Blue
Line station at Del Amo Boulevard and Santa Fe and the Carson Transfer Station at the South
Bay Pavilion). (Page 85)
5. County of Los Angeles Fire Department (Page 95)
5.1. Mitigation Measure I.1-13: The Applicant shall pay a fair share contribution for the
improvement of fire service facilities and equipment that is required to off-set impacts of the
Project, as determined by the County of Los Angeles Fire Department and the City of Carson.
***Text cited from the Mitigation Monitoring and Reporting Program (in references as: PCR Services
Corp. (Nov 2005). The boulevards

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Appendix
Section B: Methodology for Determining Size and Scale of Library (Page 500-504)
1. “The demand for library services is typically determined based on the size of the resident
population a library serves. As increases in population result in the need for additional facility space
and library materials, the impact of the Project on library services is based on the ability of the
existing or planned library facilities to serve the estimated residential population generated by the
Project. The assessment of potential Project impacts on library facilities is determined based on the
following steps: (1) identify the primary service library that would serve the Project’s site; (2)
forecast the number of residents generated by the Project and; (3) estimate the project’s demand
for library services and facilities. The analysis is limited to the Project’s potential impacts on the
Carson Library as the Project site has been identified by the County Library as being within its
service boundaries.”
2. “The analysis of potential Project impacts on library services is based on the following planning
guidelines established by the Los Angeles County Library system: 2.75 - 3.0 library items per capita;
2.5 reader seats, 2.0 meeting room seats (minimum of 75 seats), and 1.0 computer per 1,000
residents; 0.5 gross square feet of facility space. These guidelines are applied to the projected
increase in population attributable to the Project.”
3. “Based on County Library guidelines, the Carson Regional Library users are currently under served in
terms of facility size and library material items, with approximately 0.34 square feet of facility space
and 2.6 library items per capita, thereby, not meeting the County Library minimum guidelines of 0.5
square feet of facility space and 2.75 library items per capita. Therefore, any additional increase in
the Library’s service population would create a significant impact on its services and facilities.
Currently, there are no immediate plans to improve or expand the Library. The proposed Project
would generate the need for 3,485 square feet of library facility space, 19,165 library collection
items, 17 reader seats, 75 meeting room seat, 7 public access computers, and 14 standard size
parking spaces. Thus, without the incorporation of mitigation measures, the Project may have a
potentially significant impact on library services as the use of the Library by the Project’s residents
would contribute further to the current overutilization of the Library’s services and facilities. The
Project Applicant has proposed to pay a fair share contribution for library improvements to off-set
its impacts on the Library.”
***Text cited from the Public Services section of the Draft EIR (in references as PCR Services Corp. (Nov
2005). Carson marketplace )

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Appendix
Section C: Methodology for Determining Size and Scale of Parks (Page 495-496)
Parks and Recreation Facilities
1. As the Project is located at the site of a former landfill, landscaped areas would be limited onsite,
and the recreational activities of the Project’s residents are anticipated to occur predominantly off-
site.
2. According to the City’s General Plan, park area is currently provided at a ratio of 3.5 acres per 1,000
residents Citywide. This ratio does not meet the City’s target ratio of four acres of park area per
1,000 persons. The additional population generated by the proposed Project would cause the
existing ratio to decline incrementally, thereby, further contributing to the City’s shortfall in the
provision of park area to resident ratio such that significant impacts would result. Further, the City’s
target ratio of four acres of park area per 1,000 persons has been identified as a target, but at this
time has not been codified or set forth in the goals, policies, or implementation measures identified
in the Parks and Recreation Element; thus, the Project would not conflict with the provisions
specified in the City’s General Plan.
3. Section 9207.19 of the Municipal Code, as authorized under the State Quimby Act, applies to new
residential subdivisions and requires that every subdivider dedicate portion of land, or pay a fee, or
a combination of both. Currently the amount of land required to be dedicated equals the
proportionate amount necessary to provide three acres of park area per 1,000 residents. However,
as previously discussed, the City’s new target ratio is four acres per 1,000 residents. If a proposed
revision of Ordinance No. 94-1048, fees and/or dedication requirements is adopted the
requirements would be recalculated to reflect that.
4. Park acreage requirements are determined by the type of dwelling unit to be constructed and the
population density per unit. For the proposed Project, the amount of land required to be dedicated
is based on the multiple-family dwelling unit and presently requires 0.003 acres per person or
0.00825 acres per dwelling unit. In the case of the proposed Project this would equate to a land
dedication of approximately 12.80 acres.
***Text cited from Public Services section of the Draft EIR (in references as PCR Services Corp. (Nov
2005). Carson marketplace )

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Appendix
Section D: Square Footage of Retail Space

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References:
Economic & Planning Systems Inc. (2013). Report: parks and recreation development impact fee study.
Matrix Environmental (Jul 2009). Carson marketplace: addendum to the final environmental impact
report. Retrieved from
http://ci.carson.ca.us/content/files/pdfs/Avalon_at_Southbay/Carson_Marketplace_Addendum
.pdf
PCR Services Corp. (Nov 2005). Carson marketplace: draft environmental impact report volume i (section
iv: public services) Retrieved from:
http://ci.carson.ca.us/department/communitydevelopment/deir.asp?do=viewdoc
PCR Services Corp. (Nov 2005). The boulevards at south bay: final environmental impact report (volume
ii: mitigation monitoring and reporting program). Retrieved from
http://ci.carson.ca.us/department/communitydevelopment/viewdocument.asp
Starwood CPG Operations, LLC. (Aug 2013). Master site plan: the boulevards at south bay. Retrieved
from http://ci.carson.ca.us/content/files/pdfs/Avalon_at_Southbay/updatedSitePlan.pdf