HomeMy WebLinkAboutStaff Report 8582
City of Palo Alto (ID # 8582)
City Council Staff Report
Report Type: Consent Calendar Meeting Date: 4/2/2018
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Summary Title: Park Improvement Ordinance for Baylands Boardwalk
Title: Adoption of a Park Improvement Ordinance for Replacement of the
Baylands Boardwalk (PE-14018)
From: City Manager
Lead Department: Public Works
Recommendation
Staff recommends Council adopt and approve a Park Improvement Ordinance
(PIO) for the Baylands Boardwalk Improvement Project (PE-14018) at Lucy Evans
Baylands Nature Interpretive Center located within the Baylands Nature Preserve
(Attachment A).
Executive Summary
The Baylands Boardwalk Improvement Project (Project) includes replacement of
the existing boardwalk at the Lucy Evans Baylands Nature Interpretive Center
(Interpretive Center) with a new accessible boardwalk of the same length and on
the same alignment.
Staff presented the preliminary design of the proposed project in several public
meetings, including the Parks and Recreation Commission (PRC) and Architectural
Review Board (ARB). With extensive input received in these meetings and
discussions with regulatory agencies, staff developed a project improvement plan
containing the following key elements:
1. Demolition and replacement of the existing boardwalk
2. Observation platform and intermediate overlooks
3. Railings
4. Bird-safe intermittent viewing glass or wire mesh panels
5. Perch deterrent rollers attached to the top of railings
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6. Decking
7. Piles/posts and supports
8. Benches
9. Wood staining and metal painting
10. Rub rail/handrail
Section 22.08.005 of the Palo Alto Municipal Code requires that Council must
approve and adopt a plan covering the proposed improvements before any
substantial building, construction, reconstruction or development is approved on
dedicated parkland.
Background
The existing boardwalk was constructed in 1969 and rehabilitated in 1980. Due to
structural damage and safety concerns, the boardwalk was closed in March 2014.
After minor structural repairs, a 200-foot segment of the boardwalk between the
Interpretive Center and first overlook was opened to the public. In March 2016, a
feasibility study determined the existing boardwalk to be structurally unsound
and needs replacement. The PRC supported the findings of the study to replace
the existing boardwalk (Staff Report). In September 2016, Council approved a
contract with Biggs Cardosa Associates to provide design services for the
proposed boardwalk (CMR 6669).
In August 2017, staff presented the preliminary boardwalk design to the PRC
(Staff Report) and in September 2017, the PRC voted 4-3 to recommend approval
of the PIO to Council for the project (Staff Report). Commissioners voting against
the PIO had the following concerns:
1. The proposed higher boardwalk would not provide users the unique
experience they would get with a lower boardwalk, closer to the salt
marsh.
2. The raptor perch deterrent rollers, which will be attached to the top of
the railing, could potentially lead to slipping hazards as the rollers
move. PRC requested adding a handrail to provide additional stability.
3. The California Environmental Quality Act (CEQA) document was in
public circulation at the time of the meeting (from 9/15/2017 to
10/16/2017). The Commissioners were hesitant to recommend
approval of the PIO before CEQA completion.
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It was decided that staff would provide the PRC an informational update with
further clarifications on their concerns after the ARB hearing and upon CEQA
completion.
The ARB recommended Architectural Review (AR) approval of the project to the
Planning Director on October 19, 2017 (ARB Meeting Minutes). In November
2017, the Director approved the project and adopted the Mitigated Negative
Declaration (MND) prepared in accordance with CEQA. To address the PRC’s
September 26, 2017 concerns, staff provided an informational update to the PRC
on January 23, 2018, and discussed CEQA and ARB review comments, design
updates addressing the ARB and PRC comments, and regulatory requirements
and limitations governing the proposed design (Staff Report). The PRC was
satisfied with the information presented and supportive of the project, and
expressed a desire to complete construction soon, pending issuance of the
regulatory permits. (Meeting Minutes).
Discussion
The project includes demolition of the existing boardwalk, an approximately
850-foot long by 4-foot wide timber structure, and replacing it with a new,
Americans with Disabilities Act (ADA) compliant boardwalk of the same length
and on the same alignment as the existing boardwalk. The new boardwalk will
be 5 feet wide and at the same deck elevation as the Interpretive Center. The
new boardwalk structure (railings, decking, supports, piles, etc.) will be
constructed of various types of timber elements to match the existing structure
style and character, and is expected to have a life span of 50 to 75 years. There
will be one observation platform at the far end of the proposed boardwalk, and
four intermediate overlooks along the structure. Benches with back and arm
rests, viewing panels, and sign rails to mount interpretive signage (under a
separate future contract) will be provided at the intermediate overlooks and
observation platform. Similar to the existing structure, the new boardwalk will
have lockable gates to provide access at the interface of the existing Pacific Gas
and Electric catwalk where it crosses the existing boardwalk, roughly at 400 feet
from the Interpretive Center.
The project requires the following regulatory permits and guidance before
construction. All permit applications were submitted to the regulatory agencies in
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September/October 2017 and are under their review:
United States Army Corps of Engineers (USACE) Section 404 Nationwide
Permit
California Regional Water Quality Control Board (RWQCB) Section 401
Water Quality Certification
San Francisco Bay Conservation and Development Commission (BCDC)
permit
United States Fish and Wildlife Service (USFWS) endangered species
consultation
Discussions with the PRC during the approval process focused on the following
two areas:
Boardwalk height: In regard to the PRC’s comment on lowering the
boardwalk, staff explained the regulatory requirements and limitations that
governed the proposed boardwalk height. The proposed project is in the
BCDC jurisdiction and the BCDC policies mandate projects located within
their jurisdiction be designed to be resilient to accommodate projected sea
level rise. The proposed boardwalk height was determined in consultation
with the BCDC to comply with these policies. For context, the existing
boardwalk deck is approximately 2.1 feet above the ground surface,
whereas the proposed boardwalk will be approximately 5.7 feet above the
ground surface (i.e. the proposed boardwalk will be approximately 3.6 feet
higher than the existing boardwalk). A higher boardwalk will also lessen
impacts to the marsh by reducing shading and allowing more sunlight for
vegetation growth beneath the boardwalk.
Raptor deterrent rollers: Per the PRC and ARB suggestions, and to address
PRC’s concerns about the raptor deterrent rollers posing slipping hazards,
staff included a rub rail/handrail on the inside face of both sides of the
boardwalk railing to provide additional user stability. The rollers were
added to the top of the railing per input received from the USFWS as the
agency was concerned that the proposed higher boardwalk railing would
provide opportunities for raptor perching/predation.
Based on the input received from the public, PRC, ARB, and regulatory agencies,
the following improvements are included in the project’s PIO (Attachment A):
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1. Demolition and replacement of the existing boardwalk with a new
boardwalk of the same length (approximately 850 feet) and on the
same alignment. The new boardwalk will be 5 feet wide and at the
same deck elevation as the recently renovated Lucy Evans Baylands
Interpretive Center.
2. One observation platform at the San Francisco Bay end and four
intermediate overlooks along the length of the boardwalk.
3. Redwood railing on both sides of the boardwalk. Overlooks and
observation platform will have slanted railing cap to mount interpretive
signs (part of future project).
4. Bird-safe intermittent viewing glass or wire mesh panels incorporated
into the railings at the overlooks and observation platform.
5. Raptor perch deterrent rollers attached to the top of railings.
6. Redwood decking.
7. Alaskan Yellow Cedar piles/posts and supports.
8. Wood benches with back and arm rest on overlooks and observation
platform.
9. Wood/metal components staining and painting.
10. Rub rail/handrail attached to the inside face of railing on both sides of
the boardwalk.
Resource Impact
Funding of $346,353 for design services was approved in the FY 2018 Adopted Capital Budget
for the Baylands Boardwalk Improvement project, PE-14018. Construction funding in the
amount of $1,000,000 was planned as part of the 2018-2022 Capital Improvement Program
(CIP) in this project, and this amount will be recommended in FY 2019 as part of the FY 2019
Proposed Capital Budget process.
Timeline
Project schedule is as follows:
Community meeting on project design concepts: May 3, 2017
PRC recommendation for PIO approval: September 26, 2017
ARB recommendation for project Architectural Review (AR) approval:
October 19, 2017
Planning Director adoption of CEQA Mitigated Negative Declaration and
AR approval (Notice of Determination filed): November 2017
Council review/approval of the PIO: April 2018
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Agency permits/review: September 2017 - Summer 2018
Complete design/bid project pending permits: Summer 2018
Boardwalk construction (best case): September 2018 - January 2019*
Boardwalk construction (worst case): September 2019 - January 2020*
*To avoid nesting birds in the Baylands, the construction window is limited to
five months from September 1 through January 31. The project construction
may begin in September 2018, pending timeliness of permit issuance.
Policy Implications
The project is consistent with the Comprehensive Plan goals, policies and
programs.
Goal N-1: Protect, conserve and enhance Palo Alto’s citywide system of
open space, including connected and accessible natural and urban habitats,
ecosystems and natural resources, providing a source of public health,
natural beauty and enjoyment for Palo Alto residents.
Policy N1.1: Preserve, protect and enhance public and private open space
and ecosystems of Palo Alto from the foothills to the baylands. Respect the
role that natural and landscaped areas within the urbanized part of the city
play in a resilient ecological continuum, as illustrated on Map N-1.
Policy N1.2: Maintain a network of parks and urban forest from the urban
center to the foothills and Baylands that provide ecological benefits and
access to nature for all residents.
Policy N1.5: Preserve and protect the Bay, marshlands, salt ponds, sloughs,
creeks, and other natural water or wetland areas as open space,
functioning habitats, and elements of a larger, interconnected wildlife
corridor, consistent with the Baylands Master Plan, as periodically
amended, which is incorporated here by reference.
Environmental Review
Pursuant to CEQA, an Initial Study and Mitigated Negative Declaration (IS/MND) was prepared
and circulated for public review from September 15, 2017, to October 16, 2017. The MND
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concluded that, with mitigation incorporated, the project will have no significant environmental
impacts. The IS/MND was adopted by the Planning Director in November 2017 and may be
viewed at http://www.cityofpaloalto.org/news/displaynews.asp?NewsID=4113&TargetID=3 19
Attachment
Attachment A: Ordinance Approving and Adopting the Park Improvement
Ordinance for the Baylands Boardwalk Improvement Project
Attachments:
Attachment A: Ordinance PIO Baylands Boardwalk
1
Ordinance No. _____
Ordinance of the Council of the City of Palo Alto Approving and
Adopting a Park Improvement Plan For the Baylands Boardwalk at Lucy
Evans Baylands Nature Interpretive Center Located Within the Baylands
Nature Preserve
The Council of the City of Palo Alto does ORDAIN as follows:
SECTION 1. Findings. The City Council finds and declares that:
(a) Article VIII of the Charter of the City of Palo Alto and Section 22.08.005 of
Chapter 22.08 of Title 22 of the Palo Alto Municipal Code require that, before any substantial
building, construction, reconstruction or development is commenced or approved, upon or
with respect to any land held by the City for park purposes, the Council approve and adopt a
park improvement ordinance and a plan describing the proposed project;
(b) Baylands Boardwalk is a boardwalk within the Baylands Nature Preserve.
(c) Baylands Nature Preserve is dedicated to park purposes.
(d) The City intends to authorize certain improvements to the boardwalk at
Lucy Evans Baylands Nature Interpretive Center, as detailed in Exhibit “A” (the “Park
Improvement Plan” or the “Plan”), including:
(1) Demolition and replacement of the existing boardwalk with a new
boardwalk of the same length (approximately 850 feet) and on the
same alignment. The new boardwalk will be 5 feet wide and at the
same deck elevation as the recently renovated Lucy Evans Baylands
Interpretive Center.
(2) One observation platform at the San Francisco Bay end and four
intermediate overlooks along the length of the boardwalk.
(3) Redwood railing on both sides of the boardwalk. Overlooks and
observation platform will have slanted railing cap to mount
interpretive signs (part of future project).
(4) Bird-safe intermittent viewing glass or wire mesh panels
incorporated into the railings at the overlooks and observation
platform.
(5) Raptor perch deterrent rollers attached to the top of railings.
(6) Redwood decking.
(7) Alaskan Yellow Cedar piles/posts and supports.
(8) Wood benches with back and arm rest on overlooks and observation
platform.
(9) Wood/metal components staining and painting.
(10) Rub rail/handrail attached to the inside face of railing on both sides
of the boardwalk.
Attachment A
2
(e) The Project will be constructed in a manner to as to avoid sensitive natural
resources.
(f) The Project is consistent with park and recreation purposes.
SECTION 2. The Council hereby approves the Plan for replacement and construction
of improvements of the boardwalk at Lucy Evans Baylands Nature Interpretive Center and
hereby adopts the Plan attached hereto as Exhibit "A" as part of the official plan for the
construction of the park improvements at the Baylands Boardwalk.
SECTION 3. The City Council finds that the environmental impacts of the Project to
replace and construct the boardwalk at the Lucy Evans Baylands Nature Interpretive Center
have been analyzed in the Baylands Boardwalk Repair Project Mitigated Negative Declaration
(“MND”), which was prepared and circulated by the City of Palo Alto and adopted by the
Director of Planning and Community Environment prior to adoption of this ordinance, all in
accordance with the California Environmental Quality Act (“CEQA”).
SECTION 4. This ordinance shall be effective on the thirty-first day after the date of
its adoption.
INTRODUCED:
PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
____________________________ ____________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
____________________________ ____________________________
Assistant City Attorney City Manager
____________________________
Director of Community Services
____________________________
Director of Administrative Services
BAYLANDS BOARDWALK | SITE PLAN
Exhibit A - Site Plan