TO:
Honorable Mayor and Members of the City Council
THROUGH:
Bruce Moe, City Manager
FROM:
Mark Leyman, Parks and Recreation Director
Melissa McCollum, Senior Recreation Manager
Eilen Stewart, Cultural Arts Manager
SUBJECT:Title
Consideration of the City of Manhattan Beach Historical Collection Policy and Action Plan and a Polliwog Pavilion Concept to Improve Access to the Historical Collection and Expand Eastside Library Services (Parks and Recreation Director Leyman).
(Estimated Time: 45 Mins.)
DISCUSS AND PROVIDE DIRECTION
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Recommended Action
RECOMMENDATION:
Staff recommends that the City Council take the following actions on the City of Manhattan Beach Historical Collection Policy and action plan and a Polliwog Pavilion concept to improve access to the historical collection and expand eastside library services:
1. Accept the Collection Policy for the City of Manhattan Beach Historical Collection;
2. Direct staff to begin implementing Phases III and IV of the Action Plan for improving the care and management of the Historical Collection;
3. Direct staff to continue to develop a Polliwog Pavilion concept in partnership with the Los Angeles County Library to improve access to the Historical Collection and expand eastside library services.
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FISCAL IMPLICATIONS:
The Action Plan prepared by History Associates Incorporated (HAI) based on the condition and needs of the City of Manhattan Beach Historical Collection is outlined in the following five phases:
Phase I Policy Development up to $65,000
Phase II Inventory and Survey Collections up to $110,000
Phase III Process, Catalog, Rehouse Collections up to $450,000
Phase IV Digitization determined by size and scope
Phase V Maintain Collections determined by size and scope
Los Angeles County Library approved use of surplus library funds to fund implementation of Phases I and II of the Action Plan. Los Angeles County Library is supportive of using additional surplus library funds to implement Phases III and IV.
Manhattan Beach has a branch of the Los Angeles County Library system. Property taxes paid into the system by Manhattan Beach residents exceed the cost of operating the branch, including the debt service on the library building. The surplus funds accumulate for the benefit of the Manhattan Beach library branch. Currently, there is an accumulated surplus balance of $9.5 million. Most recently, the for Fiscal Year 2021-2022, the library generated a surplus of $1,559,784.
BACKGROUND:
Collections Assessment Report and Historical Collection Action Plan
On July 15, 2022, City Council received the attached Collections Assessment Report from HAI and approved an agreement with the firm to help implement Phases I and II of an Action Plan for improving the care and management of the City of Manhattan Beach’s historic artwork, objects, and archives. The historical collection, consisting of approximately 1,550 objects and 165 linear feet of archival material, is housed at the historic Beach Cottage, an external rented trailer, and old restroom facilities in Polliwog Park, the Manhattan Beach Art Center (MBAC), and the Manhattan Beach Library.
Based on interviews with key stakeholders, including members of the Manhattan Beach Historical Society, as well as observations and research, the HAI team identified a list of issues and challenges with the status of the collection, including the following:
• Lack of collection policy and procedures
• Out of scope material present in the collections
• Backlog of uncatalogued materials
• Limited staff resources
• Inadequate environmental and exhibit conditions
• Lack of formalized roles and responsibilities for fire protection, security, and emergency preparedness
Establishment of governance and associated policies for administrative oversight are essential for an effective collections program that successfully preserves and promotes the history of Manhattan Beach. Collection policies help ensure the ongoing support and safety of the museum collections and serve as the foundation for establishing a responsibly managed and accessible collection.
Polliwog Pavilion Concept and Eastside Library Services
The City Council directed the Library Commission on January 11, 2022, to assess library services in Manhattan Beach as part of their Work Plan for 2022. Highlights from the Library Commission’s survey of 129 respondents include:
• 48% said a small, satellite location in East Manhattan Beach would improve library services
• 38% said it is difficult to access the Manhattan Beach Library
• Parking (46%) and location (33%) were identified as top challenges to accessing the Manhattan Beach Library
• 62% identified checking out items as their top reason for visiting the library
• 53% reported using digital library services in the past year
The Polliwog Pavilion concept consisting of a new multifunctional library/museum building in Polliwog Park was developed in partnership with Los Angeles County Library in response to interest in expanding eastside library services in Manhattan Beach and improving management, preservation, and access to the City’s Historical Collection.
DISCUSSION:
Historical Collection Action Plan - Phase I - Policy Development
The attached Collection Policy developed by HAI provides guidance for the types of records and objects the City will preserve in the historical collection and the process for obtaining new material. The policy addresses various aspects of collection-management in detail, including acquisition, accession, deaccession, documentation, and care.
Historical Collection Action Plan - Phase II - Inventory and Survey Collections
This phase includes HAI review of the approximately 1,550 objects and 165 linear feet of records using museum documentation and Manhattan Beach Historical Society records. Tasks include the following:
• Complete a survey spreadsheet at the box level, folder level, or item level, as appropriate
• Examine materials and determine applicable disposition and identify non-collections material
• Conduct background research as necessary to understand the nature of the non- museum collection, their function, legal status, order, and the context of their creation and use
• Develop a processing plan to use for future archives work
• Develop a cataloging manual to use for future object collections work
• Monitor collections environment, as needed
Historical Collection Action Plan - Next Steps
Nearing the completion of Phases I and II, staff recommends implementation of the new Collection Policy with the assistance of a contract archivist and moving forward with Phases III and IV of the Action Plan in partnership with Los Angeles County Library and the Manhattan Beach Historical Society.
Priorities for Phase III (Process, Catalog, and Rehouse Collections) and Phase IV (Digitization) include:
• Item-level cataloging of all objects in the Historical Collection currently owned by the City
• Folder-level descriptions for the archives collection to improve accessibility of the collection
• Housing objects and paper materials in preservation quality containers, folders, and enclosures
• Digitizing newspapers and photographs of items related to the history of Manhattan Beach
If directed to move forward with Phases III and IV utilizing library surplus funds, staff will return for City Council approval of an agreement for a contract archivist and additional support to process, catalog, rehouse, and digitize select collections.
Polliwog Pavilion Concept
In partnership with City staff, Los Angeles County Library developed the attached conceptual drawing in fall 2022 for a 2,970 square foot structure comprised of a glass pavilion and a service core with a 1,840 square foot courtyard in Polliwog Park. An existing 1,186 square foot building housing electrical and mechanical elements for the park as well as storage space for the historical collection is currently located on the proposed site.
Los Angeles County Library provided the attached second drawing, with additional space for history storage, display, and a meeting room, in February 2023. The larger proposed project includes a 3,564 square foot interior and a 1,633 square foot courtyard.
High impact library services at the new location would include picking up holds, browsing for bestsellers and children’s books, book drops for returning items, access to WiFi and other technology, and programming for all ages. Benefits for the historical collection include enhanced care, management, and preservation of records, expanded staff and volunteer assistance with accessing the collection, digitized newspapers, photos, and select collections, expanded meeting and programming space, and temporary, permanent, and digital displays.
If City Council approves additional development of the Polliwog Pavilion concept, staff will work with Los Angeles County Library and the Manhattan Beach Unified School District (owners of the Polliwog Park site) to determine ground lease and joint use requirements as well as budget estimates for planning, designing, constructing, and operating a new library/museum facility. As mentioned previously, there is an accumulated library surplus of $9.5 million. Manhattan Beach Library’s surplus has averaged over $1 million per year for the last five years. Funding must be used for library services.
PUBLIC OUTREACH:
The City Council considered the Collections Assessment and Action Plan on July 15, 2022. The Manhattan Beach Historical Society contributed to development of the new Collection Policy during implementation of Phase I of the Action Plan in addition to the Collections Assessment.
The Polliwog Pavilion concept was discussed with the Manhattan Beach Unified School District Ad Hoc Committee on November 1, 2022, and with representatives of the Manhattan Beach Historical Society on October 6, 2022, and November 9, 2022. Staff presented the Polliwog Pavilion concept to the Library Commission on November 14, 2022, the Cultural Arts Commission on November 21, 2022, the Parks and Recreation Commission on November 28, 2022, and the Friends of the Manhattan Beach Library on January 11, 2023. Staff has been unsuccessful scheduling a meeting with Friends of Polliwog Park to date.
Preliminary feedback regarding the Polliwog Pavilion concept is positive with enthusiasm about an eastside library location and improved access to the Historical Collection. Proximity to the Manhattan Beach Middle School is viewed as an advantage. Some community members expressed concern about loss of open space in Polliwog Park if a new facility is built and asked questions about potential parking impacts. These issues will be addressed as the project proceeds.
ENVIRONMENTAL REVIEW:
The City has reviewed the proposed activity for compliance with the California Environmental Quality Act (CEQA) and has determined that the activity is not a “Project” as defined under Section 15378 of the State CEQA Guidelines; therefore, pursuant to Section 15060(c)(3) of the State CEQA Guidelines the activity is not subject to CEQA. In the event that City Council directs staff to proceed with development of the Polliwog Pavilion conceptual plans, that project would be independently subject to evaluation under CEQA.
LEGAL REVIEW:
The City Attorney has reviewed this report and determined that no additional legal analysis is necessary.
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ATTACHMENTS:
1. Collections Assessment Report (January 2022)
2. Draft Collection Policy for the Historical Collection (March 2023)
3. PowerPoint Presentation (History Associates Incorporated)
4. PowerPoint Presentation