Submitted By: Community Development
Prepared By: Adam Atamian, Community Development Director
Andy Flores, Management Analyst
Subject:
title
CONSIDERATION OF A RESOLUTION ADOPTING THE REAL ESTATE ASSET MANAGEMENT PROGRAM (REAMP), APPROVING THE ASSOCIATED PROGRAM POLICIES AND PROCEDURES, ESTABLISHING THE CITY COUNCIL-DECLARED SURPLUS PROPERTY LIST, AUTHORIZING THE CITY MANAGER TO APPROVE FUTURE ADMINISTRATIVE MODIFICATIONS CONSISTENT WITH THE PROGRAM, AND FINDING THE ACTION NOT SUBJECT TO THE CALIFORNIA ENVIRONMENTAL QUALITY ACT body
Summary:
At the June 16, 2026 City Council meeting, the City Council received an introductory presentation of the Real Estate Asset Management Program (REAMP), including the preliminary program framework, proposed asset classifications, and beta Geographic Information System (GIS)-based REAMP Dashboard <https://sanclementeca.maps.arcgis.com/apps/dashboards/eb07b238a5e2456e862ef0c5726d81c6>. At that meeting, the City Council acknowledged the program and directed staff to continue development and return with final implementation recommendations. The minutes of the City Council meeting of June 16, 2026 are provided as Attachment 6.
Since the introductory presentation, staff has completed the comprehensive inventory of City-owned real property, finalized the asset classification framework, developed supporting policies and administrative procedures, expanded the REAMP Dashboard, and incorporated feedback received during the program's development. Staff also evaluated comments received from the City Council and conducted additional research to identify opportunities where the REAMP can better support long-term municipal planning. Key considerations include:
• Wildfire Prevention and Land Management - Staff conducted additional research into municipal wildfire prevention and vegetation management practices, including the strategic use of City-owned property to support fuel reduction, habitat management, emergency preparedness, and public education.
• Governmental and Private Agricultural Uses of City-Owned Property - REAMP provides a framework for evaluating City-owned properties not only for traditional municipal operations but also for future governmental and private agricultural uses that advance City priorities.
The proposed Resolution (Attachment 1) formally adopts the REAMP document (Attachment 2) as the City's comprehensive framework for managing municipal real property, and approves an update to City Policy 901-1, “Property Management Policies and Procedures for Lease and Sale of City Owned Property” (Attachment 3) and approves a new City Policy 901-2, “Property Acquisition Policies and Procedures” (Attachment 5). The program establishes standardized policies for inventory management, asset classification, acquisition, leasing, preservation, and disposition of City-owned property while improving transparency, supporting long-range financial planning, promoting compliance with applicable State laws, and providing a consistent framework for future real estate decisions.
The proposed Resolution also establishes Attachment 1, Exhibit A, “City Council-Declared Surplus Property List,” as the City’s official list of real property formally declared surplus by the City Council. Through the adoption of the Resolution, the properties included on that list are or will be determined to be not necessary for the City’s use and will be, or will continue to be, administered in accordance with the California Surplus Land Act and other applicable requirements. Establishment of the list does not approve the sale, lease, exchange, or other disposition of any listed property; it only declares the properties surplus or affirms that they have been previously declared surplus.
Additionally, the proposed Resolution authorizes the City Manager to approve future administrative modifications to the program document necessary to maintain the program, provided such modifications do not materially alter City Council-adopted policies or change the intended purpose of the program. Any such modifications would be published on the City’s website and reported to the City Council at its next meeting in connection with any REAMP-related item.
Background:
The City of San Clemente owns and manages a diverse portfolio of real property assets, including civic facilities, administrative offices, community centers, beaches, parks, open space, parking facilities, utility sites, leased properties, public rights-of-way, and other municipal assets. Figure 1, below, provides a map of the City showing the general location of City-owned real estate assets.
Historically, these assets have been managed through individual departments and programs, resulting in the absence of a centralized inventory and coordinated asset management strategy. While this decentralized approach has allowed departments to effectively manage individual properties, it has limited the City's ability to comprehensively evaluate its real estate portfolio, identify strategic opportunities, maximize revenue potential, ensure regulatory compliance, and align property management decisions with long-term City objectives. Recognizing these challenges, staff initiated development of the REAMP. The program establishes a City-wide framework for inventorying, classifying, evaluating, and strategically managing municipal real estate assets while promoting transparency, accountability, and informed decision-making, all in compliance with state law requirements.
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Figure 1 - Map of City-owned Parcels
Discussion:
The REAMP was developed to establish a comprehensive framework for managing the City's real estate assets and complying with the Surplus Lands Act (SLA). The program is intended to provide the City Council, staff, the public, and entities interested in purchasing or leasing City-owned property, with a centralized resource for understanding the City's real property portfolio, and current City Council direction on the use of City-owned properties.
As part of this effort, the REAMP seeks to provide a structured approach for evaluating the role of municipal real estate within the broader context of City operations, community needs, and long-term financial sustainability. It also formalizes a process to ensure regular review of those properties and compliance with the SLA.
REAMP Document
The REAMP is designed to assist the City in identifying which properties are essential to municipal operations, which assets should be preserved for future public use, where opportunities may exist to improve utilization of underperforming properties, and where properties should be declared surplus. In addition, the framework supports the evaluation of potential revenue-generating opportunities through leases, partnerships, and redevelopment initiatives, while also identifying properties that may be suitable for acquisition, or use for affordable housing, economic development, public facilities, open space preservation, or other public benefit purposes. Equally important, the REAMP establishes a consistent process for evaluating future surplus property determinations and ensuring ongoing compliance with the requirements of the SLA.
The proposed classifications of City-owned properties include:
• Core / Strategic Assets
• Open Space Assets
• Future Development Assets
• Under-Utilized Assets
• Surplus Assets
• Exempt Surplus Assets
• Temporary Holding Assets
The REAMP provides a definition and description of each classification status, as well as an operational directive to inform how such properties are to be treated. These classifications are intended to establish a consistent methodology for evaluating City-owned properties and determining how those assets should be managed over time.
Opportunity Sites
Staff wishes to call specific attention to the “Opportunity Sites Short-List” provided on pages 12-14 of the REAMP. This is an excerpted list to highlight the City-owned “Opportunity Sites” contained in the REAMP (Attachment 1, Exhibit A) that are identified as Surplus, Exempt-Surplus, or Future Development Assets, or, within the next two years, are likely to become an available Future Development Asset, or may be considered for a change in use or status of a Core/Strategic or Under-Utilized Asset. The “Opportunity Sites Short-List” is provided in Table 1, below, for ease of reference.
Table 1 - “Opportunity Sites Short-List”
|
Name |
APN |
Acreage |
General Plan Description |
Status |
Discussion |
|
Boys and Girls Club Building |
057-160-03 |
1.13 |
Open Space Public |
Core/Strategic |
Currently utilized and provides significant community benefit. City staff intends to work cooperatively in partnership with the Boys and Girls Club to facilitate potential Future Development Opportunities to renovate and expand the existing building, including identifying possible future lease agreement extensions. |
|
North Beach Vacant Lot |
057-192-04 |
0.43 |
Mixed Use 1 |
Future Development Asset |
Potential for conversion to a Core/Strategic asset providing additional public recreational amenities to be determined by future Council action. From results of a Council-directed public survey, the BPR Commission recommends developing the lot into a flexible, structure-free community space to host seasonal programming, fortified by a safety wall along El Camino Real. |
|
Senior Center 1 Senior Center 2 |
058-091-33 058-091-34 |
0.09 0.09 |
Residential Medium Density |
Core/Strategic |
Currently utilized and provides significant community benefit. City staff will review proposals, for Council consideration, to provide Joint-Use parking lot space leases/agreements for public parking purposes during times outside of Senior Center hours. |
|
Community Center |
058-111-55 |
1.89 |
Public |
Core/Strategic |
City staff will evaluate, for Council consideration, Future Development opportunities for additional public and Joint Use purposes, as such opportunities are identified, such as a parking structure, or additional leases for public-serving amenities within existing buildings on site. |
|
Library |
058-111-60 |
0.76 |
Public |
Core/Strategic |
Currently utilized and provides significant community benefit. City staff will evaluate, for Council consideration, Future Development opportunities for additional public and Joint Use purposes, as such opportunities are identified, such as a parking structure. |
|
Vista Hermosa Sports Park |
678-163-01 |
80.74 |
Open Space Private |
Core/Strategic |
City staff will evaluate, for Council consideration, Future Development opportunities for additional Joint Use purposes, similar to those already existing (e.g., Fire Station, Salty Turf lease, Goat Grazing lease, OCFA Helipad, and additional sports fields and facilities) to maximize community benefit and long-term asset value. |
|
Old City Hall 1 Old City Hall 2 |
690-012-01 690-012-02 |
2.9 1.68 |
Civic Center |
Surplus |
City staff will evaluate, for Council consideration, Future Development opportunities from qualified bidders through RFP or other marketing strategies deemed appropriate. (Note: The City has completed the Surplus Land Act Low- and Moderate-Income Housing Notice of Availability process, thereby making the property eligible for disposition to other parties.) |
|
Steed Park |
690-552-06 |
43.43 |
Open Space Private |
Core/Strategic |
City staff will evaluate, for Council consideration, Future Development opportunities for additional public and Joint Use purposes, as such opportunities are identified, to increase community benefit and asset utilization. Focus shall be placed on uses which provide public benefit through wildfire prevention, governmental and private agricultural uses, education, community outreach, public event and demonstration space, and similar facilities. |
|
Pico Park Lot (South) |
691-431-11 |
0.96 |
Coastal Serving Recreational |
Future Development Asset |
City staff will evaluate, for Council consideration, Future Development opportunities for public and Joint Use purposes, as such opportunities are identified, to increase community benefit and asset utilization. |
|
Parcel on Camino Vera Cruz |
679-152-03 |
3.31 |
Open Space Private |
Future Development Asset |
City staff will evaluate, for Council consideration, Future Development opportunities for public, private, or Joint Use purposes consistent with applicable Open Space zoning requirements, as such opportunities are identified, to increase community benefit and asset utilization. |
City Council-Declared Surplus Property List
As part of the proposed action, the City Council is requested to establish Attachment 1, Exhibit A, “City Council-Declared Surplus Property List,” as the City’s official list of real property formally declared surplus. The list consolidates the City’s currently designated surplus properties into a single Council-approved reference document and provides a clear basis for future administration of those properties under the California Surplus Land Act.
The properties included in the City Council-Declared Surplus Property List are determined to be owned by the City in fee and no longer necessary for the City’s use, including present or foreseeable operational, strategic, infrastructure, public-service, or other municipal needs. The Resolution therefore formally declares the listed properties surplus and directs staff to administer them in accordance with applicable law, while recognizing and affirming any Surplus Land Act procedures previously completed for an individual property.
The declared surplus property list is distinct from the broader asset classifications contained in the REAMP. Approval of the Citywide Real Property Inventory and Asset Classification Framework establishes the intended portfolio-management status of City-owned properties. Except for those properties expressly identified in Attachment 1, Exhibit A, adoption of a REAMP classification does not, by itself, constitute a formal declaration of surplus land or exempt surplus land under the California Surplus Land Act. Any future addition to, removal from, or modification of the City Council-Declared Surplus Property List will require subsequent City Council action and any findings required by applicable law.
The establishment of the list does not authorize or commit the City to a particular disposition or development outcome (except for the underlying surplus designation). A future sale, lease, exchange, development agreement, or other property-specific action will be presented separately to the City Council or other appropriate approving authority after completion of applicable legal, fiscal, environmental, and transactional review.
Policy Framework and Effect of Adoption
As the City takes these necessary steps to implement the REAMP, new and amended existing policies will continue to ensure consistency with the City's real estate asset management objectives, current operational practices, and applicable State laws. These efforts include the newly drafted policies governing the acquisition of real property and overall real estate asset management practices, as well as updates to existing real property policies related to the disposition of City-owned property and the ongoing leasing of municipal assets.
Implementation of the REAMP is supported by an update to existing City Policy 901-1 and the adoption of new City Policy 901-2. Together, these policies establish the procedures that will govern the City’s management, leasing, disposition, exchange, and acquisition of real property interests.
Updated Policy 901-1, “Property Management Policies and Procedures for Lease and Sale of City-Owned Property,” replaces the City’s existing 1994 policy with a modernized framework tied directly to the REAMP. A copy of this proposed policy is provided as Attachment 3, and the current version of the policy is provided as Attachment 4. The updated policy establishes procedures for periodic portfolio review and City Council assignment of asset classifications; compliance with the Surplus Land Act, CEQA, grant restrictions, and other regulatory requirements; evaluation of fair market value and fair market rent; use of competitive marketing or negotiated transactions when appropriate; and the preparation, approval, closing, and documentation of leases, sales, exchanges, and other real property transactions. The policy also recognizes that the highest monetary offer may not always provide the greatest overall public benefit and allows the City Council to consider proposed use, community benefit, transaction structure, financial return, and other municipal interests when evaluating a transaction.
New Policy 901-2, “Property Acquisition Policies and Procedures,” establishes a comprehensive framework for evaluating the acquisition or acceptance of real property interests by the City. A copy of this proposed policy is provided as Attachment 5. The policy requires identification of a public purpose, preliminary fiscal and strategic review, and appropriate due diligence concerning title, boundaries, environmental conditions, geotechnical conditions, buildings, infrastructure, maintenance obligations, risk, and long-term ownership costs. It also establishes additional protections for donated property and open space acquisitions, including lifecycle cost analysis, owner financial contributions, maintenance endowments, recorded maintenance agreements, easements, and other mechanisms intended to prevent the City from accepting unfunded or impractical long-term obligations. The policy further authorizes the use of qualified consultants, appraisers, brokers, engineers, environmental professionals, and other specialists when necessary to support an informed acquisition decision.
Adoption of the REAMP and its asset classifications establishes a portfolio-management framework and provides direction for future evaluation of City-owned property. The proposed action does not approve any specific acquisition, lease, sale, exchange, development project, land-use entitlement, expenditure, or physical improvement. Except where expressly stated in the proposed adopting resolution and supported by the findings required by applicable law, adoption of an asset classification does not independently constitute a declaration of surplus land or exempt surplus land under the California Surplus Land Act. Any future property-specific transaction or development proposal will remain subject to separate review and approval by the appropriate City authority, including applicable fiscal analysis, environmental review, public notice, regulatory compliance, and City Council consideration and approval.
The proposed authorization for future administrative modifications is intended to allow the City Manager, or designee, to maintain the accuracy and usability of the REAMP by correcting typographical errors, updating hyperlinks and statutory references, revising lease or ownership information following an independently City Council-approved transaction, updating dashboard data, and making similar non-substantive changes. The authorization would not permit administrative changes to City Council-approved asset classifications, Opportunity Site directives, adopted policies, legislative or property-specific approvals, or adding property to, removing property from, or otherwise substantively modifying the City Council-Declared Surplus Property List. Any administrative modifications would be published immediately on the City’s website and reported to the City Council in connection with the next item related to any REAMP issue.
Additionally, staff proposes new procedures related to surplus property administration in order to incorporate evolving requirements of the California Surplus Land Act and establish a more comprehensive framework for evaluating, designating, and disposing of Surplus and Exempt-Surplus properties. These policy updates will help ensure that future real estate transactions are administered in a consistent, transparent, and strategically aligned manner while providing clear guidance for staff, decision-makers, and the public.
As noted above, a significant component of the REAMP involves compliance with California's Surplus Land Act (Government Code Sections 54220 et seq.). The Act establishes specific procedures that local agencies must follow when declaring property surplus and disposing of publicly owned land. The current version of City Policy 901-1, “Property Management Policies and Procedures for Lease and Sale of City Owned Property,” indicates that, “All unused and marginally used City-owned property will be reviewed bi-annually to determine public facility or service needs and General Plan Element support needs.” Staff proposes to maintain this periodic review, which provides for City Council direction on the REAMP every two years, to ensure that City Council-direction on the City’s real estate portfolio remains current.
As part of the REAMP, staff has also developed the REAMP Dashboard utilizing GIS technology. The dashboard is intended to serve as the public-facing component of the program and provide relevant information regarding City-owned real estate assets. The dashboard provides additional property data, lease information, revenue analyses, opportunity site evaluations, asset classifications, and supporting documentation.
Considerations Identified by Staff:
As the Real Estate Asset Management Program (REAMP) transitions from development to implementation, staff has identified several ongoing considerations that will support the program's long-term success. Throughout the development process, staff carefully considered comments and recommendations received from the City Council, members of the public, and City staff, and incorporated those recommendations into the final framework whenever feasible and consistent with the program's objectives. As a result, the REAMP has been refined to better reflect the City's operational needs, policy priorities, and community values.
As a conceptual example, the City-owned property located behind Steed Park, which is currently utilized for construction storage, is recommended to be evaluated with a focus on wildfire prevention, governmental and private agricultural uses, education, community outreach, public event and demonstration space, and similar facilities. This focus would provide staff direction to investigate the use of this area as a potential location for a future wildfire resilience campus, or similar use. Such a facility could include an expanded goat grazing and vegetation-management operation to support vegetation management throughout the City, emergency and fuel-reduction related equipment and material storage, public education space focused on wildfire preparedness and defensible space practices, demonstration gardens, composting facilities for vegetation management byproducts, and a helicopter landing area (Helipad), and related facilities, to support emergency response operations. This example demonstrates how REAMP can assist, identify, and evaluate long-term opportunities for municipal properties while ensuring that future projects remain subject to separate City Council review, environmental analysis, funding availability, and all applicable regulatory approvals.
Looking forward, staff will continue to periodically review property classifications to ensure they remain aligned with changing municipal needs and Council priorities. Staff will evaluate opportunities for appropriate revenue generation through leases, partnerships, and other strategic uses of City-owned property, and assess under-utilized assets for potential public benefit or future municipal objectives. This program also allows staff to integrate the REAMP into future Capital Improvement Program planning and other long-range initiatives and ensure continued compliance with the Surplus Land Act and other applicable laws and regulations. Staff will maintain the GIS dashboard and real property inventory as accurate, transparent, and reliable resources for the City Council, staff, and the public. Staff believes these ongoing efforts will help ensure the City's real estate portfolio continues to be managed strategically, responsibly, and in a manner that advances the City's long-term vision and policy objectives.
Council Options:
• Adopt Resolution 26-135, which will approve and implement the Real Estate Asset Management Program, approve the associated program policies, establish Attachment 1, Exhibit A as the City Council-Declared Surplus Property List, and authorize the City Manager to approve future non-substantive administrative modifications consistent with City Council-adopted policies and the limitations contained in the Resolution.
• Adopt Resolution 26-135 with modifications identified by the City Council
• Do not adopt the Resolution 26-135 and provide alternative direction to staff.
Environmental Review/Analysis:
The proposed action is not a “project” pursuant to Section 15378 of the California Environmental Quality Act (CEQA) Guidelines because it involves organizational, administrative, and governmental planning activities that will not result in a direct or indirect physical change in the environment.
Establishment of the City Council-Declared Surplus Property List identifies the properties that will be administered as surplus under applicable law but does not approve or commit the City to any sale, lease, exchange, development, physical improvement, or other disposition. Any future property-specific transaction or development proposal will be evaluated separately for compliance with CEQA before approval, as required by law.
Any future acquisition, disposition, development, redevelopment, or entitlement action associated with individual properties will be reviewed separately for CEQA compliance, as required by law.
Fiscal Impact:
There is no immediate fiscal impact associated with the action. No new appropriation is requested as part of this action. Initial administration of the REAMP and maintenance of the GIS Dashboard will be performed using existing staff resources and approved departmental budgets. Future consultant services, appraisals, environmental investigations, title work, brokerage services, capital improvements, or other costs associated with individual property transactions will be evaluated and authorized through the applicable budget, purchasing, or City Council approval process.
Establishment of the City Council-Declared Surplus Property List does not itself generate revenue or authorize expenditures. Any future transaction costs, proceeds, brokerage expenses, legal expenses, environmental-review costs, or other fiscal impacts associated with disposition of a listed property will be evaluated and presented as part of the applicable property-specific action.
Potential Action(s):
If the City Council concurs with the contents of the staff report, the appropriate action would be to adopt Resolution 26-135 which will:
recommendation
1. Adopt the Real Estate Asset Management Program (REAMP) as the City’s comprehensive framework for the inventory, classification, evaluation, and strategic management of City real property assets;
2. Approve updated City Policy 901-1, “Property Management Policies and Procedures for Lease and Sale of City-Owned Property”;
3. Approve new City Policy 901-2, “Property Acquisition Policies and Procedures”;
4. Approve the Citywide Real Property Inventory and associated asset classifications for portfolio-management purposes, subject to the limitations and property-specific requirements stated in the Resolution;
5. Establish Attachment 1, Exhibit A, “City Council-Declared Surplus Property List,” as the City’s official list of real property formally declared surplus by the City Council, and find that each listed property is no longer necessary for the City’s use;
6. Direct staff to administer the properties identified in the City Council-Declared Surplus Property List in accordance with the California Surplus Land Act, other applicable law, City policy, and any applicable procedures previously completed for an individual property;
7. Authorize implementation and public use of the REAMP GIS Dashboard;
8. Authorize the City Manager, or designee, to make non-substantive administrative modifications necessary to maintain the accuracy and usability of the REAMP, provided that such modifications do not change City Council-approved asset classifications, Opportunity Site directives, adopted policies, the City Council-Declared Surplus Property List, statutory surplus or exempt-surplus determinations, or other legislative or property-specific approvals and provided that such modifications are published on the City’s website and reported back to the City Council in connection with the next REAMP-related item; and
9. Direct staff to administer the REAMP, maintain the real property inventory and GIS Dashboard, conduct a portfolio review in conjunction with the City’s biennial budget process, and return to the City Council with proposed policy amendments, asset reclassifications, modifications to the City Council-Declared Surplus Property List, and property-specific actions as appropriate.
end
Attachment:
1. Draft Resolution No. 26-135
Exhibit A - City Council-Declared Surplus Property List
2. Draft Real Estate Asset Management Program (REAMP)
Exhibit A - City-Owned Property Inventory
Exhibit B - City-Owned Wireless Facility Inventory
3. Proposed Updated Policy 901-1, “Property Management Policies and Procedures for Lease and Sale of City Owned Property”
4. Current Version of Policy 901-1
5. Proposed Policy 901-2, “Property Acquisition Policies and Procedures”
6. Meeting Minutes from June 16, 2026 City Council Meeting
Notification:
Interested members of the public, via email