Loading...
HomeMy WebLinkAbout2019-11-12 Parks & Recreation Agenda PacketADA. The City of Palo Alto does not discriminate against individuals with disabilities. To request accommodations, auxiliary aids or services to access City facilities, services or programs, to participate at public meetings, or to learn about the City's compliance with the Americans with Disabilities Act (ADA) of 1990, may contact 650-329-2550 (voice), or e-mail ada@cityofpaloalto.org This agenda is posted in accordance with government code section 54954.2(a) or section 54956. Members ofthe public are welcome to attend this public meeting. AGENDA IS POSTED IN ACCORDANCE WITH GOVERNMENT CODE SECTION 54954.2(a) OR SECTION 54956 REVISED PARKS AND RECREATION COMMISSION November 12th, 2019 SPECIAL AGENDA City Hall Chambers 250 Hamilton 7pm *In accordance with SB 343 materials related to an item on this Agenda submitted to the Commission after distribution of the agenda packet are available for public inspection at the Lucie Stern Community Center at 1305 Middlefield Road during normal business hours. Please call 650-463-4912. Attention Speakers: If you wish to address the Commission during oral communications or on an item on the agenda, please complete a speaker’s card and give it to City staff. By submitting the speaker’s card, the Chair will recognize you at the appropriate time. I.ROLL CALL II.AGENDA CHANGES, REQUESTS, DELETIONS III.ORAL COMMUNICATIONS Members of the public may address the Commission on any subject not on the agenda. A reasonable time restriction may be imposed at the discretion of the Chair. The Commission reserves the right to limit oral communications period to 3 minutes. IV.DEPARTMENT REPORT V.BUSINESS1.Park Improvement Ordinance for Utilities at Peers Park – Henry Nguyen – Action (45 min) ATTACHMENT 2.Foothills Park Access Pilot – Foothills Park Ad Hoc Committee – Action (45 min) ATTACHMENT 3.Other Ad Hoc Committee and Liaison Updates – Chair – Discussion (15 min) ATTACHMENT VI.TENTATIVE SPECIAL AGENDA FOR DECEMBER 10th, 2019 MEETING VII.COMMENTS AND ANNOUCEMENTS VIII.ADJOURNMENT PUBLIC LETTERS 1 TO: PARKS AND RECREATION COMMISSION FROM: HENRY NGUYEN DEPARTMENT: UTILITIES DATE: NOV 12, 2019 SUBJECT: PARK IMPROVEMENT ORDINANCE FOR THE INSTALLATION OF UTILITIES EQUIPMENT AT THE EXISTING PEERS PARK WATER PUMP STATION RECOMMENDATION Staff recommends that the Parks and Recreation Commission (PRC) recommend that the City Council adopt a Park Improvement Ordinance for the installation of electric utility equipment at the existing Peers Park water pump station (Attachment A). BACKGROUND Caltrain is electrifying its fleet to improve air quality, reduce noise, and increase ridership. In order for Caltrain to complete its electrification project, overhead utilities currently crossing the railroad must be either at a minimum height of 40 feet or placed underground. City of Palo Alto Utilities (CPAU) has two overhead electric lines above the railroad crossings near Peers Park (between Rinconada and Tennyson). By combining the two overhead lines into one and placing that new line underground (“the Project”), CPAU can meet Caltrain’s requirement and improve the aesthetics of the area simultaneously. DISCUSSION Two CPAU overhead electric lines cross the railroad near Peers Park, which are attached to 2 wooden utility poles. As part of the Project, the poles and overhead cables will be removed and replaced with 1 new pad-mounted switch (53” tall x 63” wide x 62” deep), 5 new underground vaults (1 that is 5’ x 10’, 2 that are 4’6”x 8’6” and 2 that are 30” x 48”) and new underground conduits connecting these vaults. These new facilities are shown in detail in the attached Exhibit A. The only visible addition will be the pad-mounted switch, which will be placed within the paved area at the park where the existing CPAU water pump station is located. The rest of the vaults and conduits will be underground. Park Impacts During Construction CPAU will use a horizontal drilling method, also called the bore method, to minimize impacts at the park. The bore method will require three bore pits (two 5’x 5’ pit for conduit that will run underground in the park, and one 6’x 12’ pit for the conduit that will cross beneath the railroad) connected by a channel, or casing. After the channel is established, the casing will be assembled and pulled into the channel all at once, to prevent the channel from collapsing. During this phase, which will take 1 to 2 days, the 2 casing will sit above ground. This process is repeated when the conduits are pulled into the casing. Utilities will fence off the area surrounding the bore pits, leaving the rest of the park open for use. Timeline and length of Construction Once permits are in place, CPAU plans to start construction in February 2020. The Project will take approximately 4-6 weeks. Traffic and Parking Impacts No street closures will be needed in the Peers Park area. Construction worker vehicles will utilize street parking during the day. Park Impacts After Construction Other than the pad-mounted switch, everything else installed as part of this project will be placed underground. The pad-mounted switch will be located directly in front of the existing CPAU water pump station near the train tracks, which is about 200 feet from the dog park. Once the Project is in place, CPAU will access the pad-mounted switch for maintenance approximately once per year. The cables that will be installed in the underground conduits are designed to last approximately 40 years. Thus, no CPAU access to these conduits will be required under normal operating conditions. The 2 underground vaults which will be inside the dog park do not require ventilation and will have mulch placed on top of their covers, which will permit full access to the area by park goers. The other 3 vaults will be placed beneath the paved area and will not limit park access. Impact to CPAU’s Electric System By reducing the number of overhead electric line crossings from 2 to zero, CPAU will eliminate the risk of overhead faults and increase system reliability. Installing the pad-mounted switch will also increase the security and flexibility of CPAU’s electric distribution system. ATTACHMENTS Attachment A: Park Improvement Ordinance Attachment B: Diagram and Map of New and Existing Utilities Equipment at the Peers Park Water Pump Station. Draft for Discussion and Proposed PRC Action on Nov. 12, 2019 1 To: City Council From: Parks & Recreation Commission Re: Report and Recommendation for Foothills Park Access Pilot Program Overview The Parks & Recreation Commission (“PRC”) and its Foothills Park ad hoc committee (the “Committee”) have studied options for providing non-residents with access to Foothills Park (the “Park”) for over a year, with public PRC meetings on the topic in July, September and November 2019. The PRC and the community recognize that Foothills Park is a special place and the pilot program outlined herein utilizes robust visitation information to ensure that the Park retains its special character. At the same time, the PRC recognizes that current policy requires staff to turn away several thousand would-be visitors each year—approximately 60 people per week—and that there are means available to responsibly share the park with those visitors. Key parameters of the pilot program proposal: • One-year pilot program to test the concepts of providing (1) a limited and adjustable number of Park passes for non-residents, and (2) broader availability for student fieldtrips. • Non-resident passes would be available on the City’s new online reservation portal. This system will allow us to gather information about those seeking to visit the Park. • Staff will use robust historic visitation data to adjust the number of non-resident passes available per day, with a maximum cap of 50 passes for any given day. • City will encourage and formalize a school field trip program and reservation process, which is not presently anticipated by the Municipal Code for nonresident students. • $6 fee for non-resident passes will allow the City to recover a portion of the expenses associated with the existing cost of staffing the entry gate. • Continue to prioritize resident access—no changes to current access policy for residents. • At conclusion of pilot, staff and PRC would review Park visitation and impact data, and recommend how to move forward, including potentially reverting back to the current policy, making the pilot program permanent, or making other revisions. The PRC has considered numerous alternatives (discussed below) and recommends this pilot program because it ensures close control of total visitation to the Park and allows the option to assess fees for non-resident passes to recover at least some of the significant personnel costs related to staffing the entry gate. Background The approximately 1,400-acre parcel comprising Foothills Park was acquired by the City in a favorably-priced acquisition from the Lee family in the late 1950s. The Park opened to Palo Alto residents in the 1965-66 fiscal year. Visitation when the Park opened was significantly higher than it has been in the past 30 years (peaking at approximately 372,000 visitors for two consecutive years Draft for Discussion and Proposed PRC Action on Nov. 12, 2019 2 in the early 1970s).1 In the past 17 years, visitation has been steady at approximately 152,000 persons visiting each year. One recent exception was 2011-2012 when the Park saw 202,000 visitors. Based on staff observation, the Park was a bit busier in 2011-2012, but that number of visitors did not negatively impact the Park’s resources and infrastructure. Enacted in 1969, the Municipal Code makes it a misdemeanor for any non-resident to enter the Park unless they are a guest of a City resident or employee, or are traversing the Bay-to- Foothills Trail on foot. (PAMC § 22.04.150 (a)-(b).) In addition to the residency restriction, the Municipal Code imposes a cap of 1,000 persons in the Park at any time. (P.A.M.C. § 22.04.150.) This limit has not been approached except in the case of a special event many years ago. During most weekends and holidays, the single point of entry on Page Mill Road is staffed regularly and persons not able to demonstrate Palo Alto residency are turned away from the Park. The exception is that during winter weekends and holidays, when staff is constrained and park visitation rates are lower, entry gate enforcement of the residency requirement is less frequent. In the last five years, approximately 2,800 non-residents have been turned away on weekends each year, which is an increase from the last decade. For the most recent year with complete data, more than 3,700 persons were turned away at the gate. Enforcement of the residents-only restriction requires that the Page Mill gate be staffed, with associated costs estimated by staff to be approximately $89,000 per year. As written, the Municipal Code provides no discretion for the City Manager or staff to allow unaccompanied non-residents, including school or volunteer groups. The PRC received public comment before, at and following the PRC’s July and September 2019 meetings. Comments at the July meeting, which included a range of options for discussion, were fairly evenly split between persons expressing support for the existing policy and those supporting expanded public access. However, public comments largely did not relate to the menu of options discussed for a pilot. The comments from persons speaking against expanding access expressed a general concern about overuse of the Park and potential impacts to the Park’s ecology, and changes to the existing Park experience, with some commenters citing concerns about their personal safety if non-residents are allowed access. Persons speaking in favor of a pilot mentioned their desire for inclusiveness and a sense of being good neighbors, concern about “elitism” and being “embarrassed” by the current policy’s exclusion of non-residents, that the City has lost economic diversity from the time when the residents-only policy was implemented such that the policy has negative effects not present when first implemented, and that a more effective policy could be crafted to ensure preservation of the Park while also allowing public access. During the September 2019 meeting, where the specific pilot program laid out here was presented, two commenters expressed strong support for the pilot, one commenter expressed a preference for allowing access for residents and non-residents only after they go through an orientation to the Park and one commenter noted that the pilot program would require a revision to the existing Municipal Code provision that generally bars non-residents. In addition to studying visitation data and other quantitative measures, staff have begun documenting a baseline for qualitative measurements to aid an assessment of the pilot program.2 1 A more complete discussion of the background and detailed history of the Park is set forth in the Committee’s memo to the PRC in advance of the July 2019 PRC meeting. 2 The qualitative measures include, but are not limited to, the following: (1) level of and frequency of restocking restroom supplies, (2) usage of parking and picnic areas during typical Draft for Discussion and Proposed PRC Action on Nov. 12, 2019 3 The Committee appreciates the extensive input of past and current leaders within the Community Services Department (“CSD”), particularly the Foothills Park ranger staff, Junior Museum & Zoo staff and the leadership of the Open Spaces, Parks & Golf Division, in developing this pilot program proposal. Details on the Pilot Program Proposal The following pilot program proposal is made in light of the principal comments from the public and staff feedback on implementation and operational considerations: 1. One-year pilot program using extensive historic visitation data to dynamically adjust the number of unaccompanied non-residents able to visit the Park. Non-resident passes would be required on all days, with continued staffing of the entry gate on weekends and holidays. 2. Purpose for pilot is to assess quantitative and qualitative impacts to the Park’s ecology, infrastructure and maintenance. As noted above, staff have begun documenting a baseline for qualitative measurements. Staff will measure and assist in analysis of visitor impact data. 3. Establish a pass system for non-resident visitors. Up to 50 vehicle/bicycle passes available per day, with staff adjusting number of passes available based on visitation patterns.3 (E.g., busy weekends would have 0-10 non-resident passes available.) a. Non-resident visitors accompanying a Palo Alto resident would still be allowed and would not need to obtain an online pass, pursuant to current policy. b. Over the course of the pilot, staff will track demand and explore dividing the total number of passes available among non-resident student and volunteer populations and the general public (e.g., 10 passes reserved specifically for non-resident students, 10 for non-resident volunteers and the remainder for the general public).4 4. All passes would be available online through the City’s new Parks & Recreation reservation system. The Committee has been advised that staff at Mitchell Park and Lucie Stern Community Centers would be available to assist people with the online reservation system. summer weekends and holidays (including photos), (3) any impacts to the landscape, such as social trails (including photos), (4) notes on any impacts to staff resources, (5) frequency of barbeque cleaning and maintenance, (6) frequency of Greenwaste refuse and recycling pickups, etc. 3 For administrative ease, passes would be for each passenger vehicle or bicycle group. Using the historical average of ~2.7 visitors per vehicle on weekends, 25 passes would equate to approximately 68 visitors and 50 passes would equate to approximately 135 visitors (a lower historic ratio applies for weekdays). A passenger vehicle would be defined as one carrying up to eight people. For persons entering by bicycle or other non-motorized means, one pass would cover also cover eight people. 4 As used in this memo, “students” means preK-12 students, which is a key population to target for access as identified through academic research and community feedback; “volunteer groups” means those organized volunteer organizations that are strategic partners with the Community Services Department (as determined by staff), including but not limited to Grassroots Ecology, Canopy, Environmental Volunteers, etc. Draft for Discussion and Proposed PRC Action on Nov. 12, 2019 4 5. Formalize and promote City-authorized school field trip programs to the Park, which are presently not anticipated by Municipal Code. The pilot would lift the residency requirement for co-curricular fieldtrips. Staff are building upon their existing process for centrally coordinating school/co-curricular and volunteer group reservations to optimize the educational experience. 6. The existing 1,000 visitor cap would remain in place. Current restrictions on reservation of group spaces would also remain in place (i.e., restricted to residents). 7. $6 fee for non-resident access passes to aid recovery of costs related to current need to staff the entry gate on weekends and holidays. As part of CSD’s broader fee reduction program, fee waivers would be available through the online portal for targeted groups, including (1) students, (2) persons volunteering with City-supported programs, and (3) persons who certify that they have an economic hardship. Alternative Approaches Considered by the Committee and PRC Before landing upon the proposed pilot, the Committee and PRC considered numerous alternatives, including the following: (a) opening the Park with no visitation limits; (b) shuttle program (e.g., partnering with Stanford’s Marguerite system or another community partner to operate a free weekend shuttle from local libraries/community centers to the Park); (c) visitor orientation program (e.g., allow access to non-residents after participating in an “orientation to the Park”); (d) annual “memberships” for non-residents willing to pay a significant annual fee; (e) student-centric program that extended access to underserved students and their families; (f) taking no action with respect to the existing policy. Each alternative has benefits and drawbacks. On the whole, these alternatives were assessed to be operationally difficult and/or less conducive for a focused pilot program. However, elements of these alternatives may be considered in the future after the results of the pilot program are available to better inform those alternatives. Factors Supporting Proposed Pilot a) Effectively mitigates principal concern about overcrowding/overuse of the park. b) Incorporates focus for students and volunteers. c) Addresses public input that policy should be revised to allow reasonable non-resident access. d) Allows for experimentation and additional data collection during pilot program on the number of passes available (up to 50 but often fewer), distribution of passes among targeted groups, etc. e) Fees are expected to generate modest revenue that would help offset the cost of staffing the entry gate. f) Good policy: uses robust data to inform the policy and adjust its implementation. Quantitative data will be reinforced by the more qualitative information that ranger staff is developing for a baseline comparison and the information we collect from users via the online reservation system. Draft for Discussion and Proposed PRC Action on Nov. 12, 2019 5 Potential Risks As noted previously, the principal risk is that additional visitation will negatively impact Foothills Park’s natural resources and improvements, or otherwise tax park resources. This risk is viewed as a limited one in light of past experience with significantly higher visitation than is anticipated in connection with the pilot program and the effective controls on total visitation that are the core of this pilot. For the pilot program, no capital expenditure is anticipated. Incremental costs may be incurred, including CSD and Foothills Park staff time which may result in reduced staff attention to other projects. Finally, there are certain existing infrastructure needs within the Park (e.g., restrooms that need to be replaced in the next five years), but staff views those as pre-existing needs regardless of this pilot program. For the pilot program, staff have agreed to monitor both overall visitation and pilot-specific visitation to Foothills Park and to work with the Committee to prepare a report and recommendation concerning the pilot program and associated impacts after one year. Recommendation The PRC recommends to the City Council that it direct the City Manager and staff to move forward with the pilot project. To enable the pilot program, the PRC recommends that the City Council amend the Municipal Code as suggested in Enclosure A hereto and adopt any further resolution pursuant thereto. ENCLOSURE A to PRC Report and Recommendation re: Foothills Park PAMC 22.04.150: Foothills Park shall not be made available for the exclusive use by any persons except for Towle Camp and the Oak Grove Group Area, Pine Gulch Group Area, Wood Fern Group Area, and the Foothills Park Interpretative Center classroom. Foothills Park may be accessible to the general public for the purpose of using the Bay-To-Foothills trails. (a) Only (i) residents of the city and regular or part-time city employees, members of their households related by blood, marriage, or adoption, and their accompanied guests and (ii) such other persons authorized by a specific pilot program approved by resolution of the City Council are entitled to enter on foot or by bicycle or vehicle and remain in Foothills Park. No person who is not a resident of the city may enter on foot or by bicycle or vehicle unaccompanied by a person entitled to enter and remain in Foothills Park for the purpose of using the Bay-To-Foothills trails, except as provided in subsection (b). An "accompanied guest," as used in this section, is one who enters Foothills Park in the presence of a person resident of the city or regular or part-time city employeeentitled to enter and remain in Foothills Park. Each person resident of the city or regular or part-time city employee entitled to enter and remain in Foothills Park may be accompanied by no more than 15 guests, or two vehicles containing no more than 15 guests, at any one time. Upon the request of an authorized city employee or a member of the Palo Alto police department, a person seeking to enter Foothills Park at the main gate or a person within the boundaries of Foothills Park shall provide identification or information to satisfy the requirements of this subsection. The good faith judgment of the authorized city employee or police department member requesting identification or information shall be conclusive as to whether such identification or information provided satisfies the requirements of this subsection. No person shall enter or remain in Foothills Park in violation of this subsection. Violations of this subsection shall be an infraction misdemeanor. (b) Unless otherwise specifically authorized by the director, no person who is a resident of the city shall enter or exit from Foothills Park except through the main gate on Page Mill Road or at designated entry and exit locations on the park boundaries shared with the Enid Pearson Arastradero Preserve and the Los Trancos Open Space Preserve. No person who is a resident of the city shall enter or exit from the Bay-To- Foothills trails in the park except on foot. For the purpose of using the Bay-To-Foothills trails in the park, no person who is not a resident of the city shall enter or exit the park except on foot and at the designated entry and exit locations on the park boundaries shared with the Enid Pearson Arastradero Preserve and the Los Trancos Open Space Preserve. No entry by any person who is not a resident at these designated entry and exit locations on the shared park boundaries shall be permitted by horse or bicycle. Violations of this subsection shall be a misdemeanor. (c) Foothills Park shall be closed from sunset (the actual closure time to be prescribed in park regulations and posted accordingly) until 8:00 a.m. the following morning. No person shall remain in Foothills Park, other than duly authorized city employees and permit holders or participants in city-sponsored activities, during the hours of park closure. Violations of this subsection shall be a misdemeanor. (d) No person shall exceed the maximum speed limit for all vehicles in Foothills Park of twenty miles per hour. Violations of this subsection shall be an infraction. (e) No person shall leave an unauthorized vehicle in Foothills Park after the closing time designated and posted for closing of the park. Violations of this subsection shall be a misdemeanor. (f) No person shall operate a bicycle or a motorcycle except on the paved roads of Foothills Park. No person shall operate a skateboard or roller skates or blades or other coasting device in Foothills Park. This subsection shall not apply to a bicycle or motorcycle operated by a police officer or park ranger acting in the course and scope of his or her duties. Violations of this subsection shall be an infraction. (g) No person shall smoke on any trail in Foothills Park. Violations of this subsection shall be a misdemeanor. (h) No person shall make a wood fire in Foothills Park without a permit. Permits for wood fires within Foothills Park may be issued only for the Towle campfire ring. No person shall start or maintain any charcoal cooking fire within Foothills Park except in city-provided braziers and barbecues in areas so designated and posted. Violations of this subsection shall be a misdemeanor. (i) No person shall shortcut across trail switchbacks. Violations of this subsection shall be an infraction. (j) The city manager shall promulgate regulations for the use of Boronda Lake to protect the users, plants, animals, and structures of the lake. (k) No more than one thousand people shall be permitted in Foothills Park at any one time. (l) No person owning or harboring any dog shall allow or permit such dog to enter or be in Foothills Park on any holiday, as defined in Section 2.08.100(a) of this code, or any Saturday or Sunday. At all other times, no person owning or harboring any dog shall allow or permit such dog, whether licensed or not, to enter or be in Foothills Park except when held under leash by an able-bodied person. Violations of this section shall be an infraction. (Ord. 4865 § 1, 2005: Ord. 4435 § 70, 1997: Ord. 4368 § 2 (part), 1996) AD HOC COMMITTEE MEMBERS STAFF LIAISON 11/12 STATUS UPDATE Baylands 10.5 Acres Cribbs LaMere Reckdahl Daren Anderson Upcoming meetings with potential stateholders Baylands Comprehensive Conservation Plan (BCCP) Moss McDougall Reckdahl Daren Anderson Horizontal Levee project was discussed with the Baylands subcommittee and several recommendations were made as to how to move forward. CIP Input Moss McDougall McCauley Daren Anderson Ad hoc met with Daren to support his preparation for interdepartmental discussions of CSD submission for CIP. Cubberley Master Plan Moss McDougall Greenfield Kristen O'Kane Foothills Park Greenfield LaMere McCauley Daren Anderson Park & Facility Use Policy Cribbs Greenfield Reckdahl Adam Howard Pickleball courts opened last week, several weeks ahead of schedule. Ribbon cutting ceremony will be Nov 13th. Noteworthy that the cost was covered by budgeted court resurfacing funds, without requiring additional CIP funds. Park Amenities Cribbs McDougall Daren Anderson I think this is McCauley instead of Mc Dougall. Communty meetings for Ramos Park restrooms coming up in Nov. Park Dedication Greenfield McCauley Kristen O'Kane Park Rules & Regulations Greenfield McCauley Daren Anderson Recreation Opportunities Cribbs LaMere Reckdahl Kristen O'Kane Met 11/5 - discussion of additional sports and programs including cricket,skateboard,wall climbing and other. Survey to be developed. Urban Forestry Greenfield Daren Anderson Staff is working with Public Works to clarify guidelines for our new working relationship. UTREACH – PARKS AND RECREATION COMMISSION LIAISON & OUTREACH MEMBERS STAFF / CONTACT 11/12 STATUS UPDATE Aquatics Cribbs Jazmin LeBlanc Coach Carol Retiring -Reception in her honor on Sunday, Dec 8 - 1- 4 Commisioners are invited. Community Gardens Greenfield Catherine Bourquin Staff is continuing work the new Garden Rules. Friends of Foothills Park McDougall Met on 10/31 to discuss finalize next steps for the proposed Foothills Park access pilot; Received several updates and feedback from staff concerning logistics for proposed pilot. Friends of PA Parks McDougall Funding McDougall Kristen O'Kane GSI Moss Health and Wellness McCauley PA Recreation Foundation McDougall Jack Morton PAUSD / City Reckdahl Kristen O'Kane PAUSD Projects Greenfield McDougall Miguel Chacon Safe Routes Greenfield Rosie Mesterhazy Stanford LaMere McCauley Turf Management Greenfield Daren Anderson Engaging with Palo Alto Little League, along with staff and Commissioner Reckdahl, discussing potential solutions to support a 54/80 baseball field. The new Cubberley track and field was dedicated with several dignitaries, and is now in full use by a dozen stakeholder groups. Ventura Coordinated Area Plan Reckdahl Youth Council Cribbs 2019 AD HOC COMMITTEES – PARKS AND RECREATION COMMISSION