HomeMy WebLinkAboutStaff Report 8377
City of Palo Alto (ID # 8377)
City Council Staff Report
Report Type: Action Items Meeting Date: 9/11/2017
City of Palo Alto Page 1
Summary Title: Cubberley Community Center Master Plan RFP
Title: Approval to Release a Request for Proposals for a Consulting Firm to
Assist the City of Palo Alto and Palo Alto Unified School District with Master
Planning of the Cubberley Community Center and Discussion of the
Cubberley Master Planning Process.
From: City Manager
Lead Department: Community Services
Recommendation
Policy and Services Committee recommends that Council direct the Community Services
Department to release a Request for Proposals for a Consulting Firm to assist the City of Palo
Alto and Palo Alto Unified School District with master planning of the Cubberley Community
Center.
Background
The Cubberley Community Center is located on a 35-acre site in south Palo Alto that was
previously home to Cubberley High School until 1979. Of the 35 acres, the Palo Alto Unified
School District (PAUSD) owns 27 acres and the City of Palo Alto owns 8 acres. The City has
leased PAUSD’s 27 acres since January 1, 1990 and operates the community center on the
combined 35 acre site. The lease has been amended multiple times and the current
amendment will expire in December 2019. The lease amendment includes a condition that
the City and PAUSD will jointly develop a master plan for the entire site by December 31,
2019 and shall meet and confer to determine the scope and funding for the preparation of
the plan.
A Cubberley Citizens Advisory Committee (CCAC) representing a cross-section of Cubberley
tenants, city-wide neighborhoods, schools and city-wide representatives, and other relevant
organizations, was formed in 2012 to cooperatively explore all practical joint uses of the
Cubberley campus for both educational and community service needs. Several sub-
committees were formed focusing on school needs, community needs, facilities, and
finance. Additionally, a Policy Advisory Committee consisting of City Council members and
School District Board members was created. The result of the CCAC process was the
recommendation that the site be designed for shared City/School District use and for the
City of Palo Alto Page 2
City and the School District to work cooperatively toward a phased development to support
both school and community needs. The final report of the CCAC can be found at
http://www.cityofpaloalto.org/civicax/filebank/documents/33455.
On March 9, 2016, City Manager Jim Keene and PAUSD Superintendent Max McGee signed a
Cubberley Futures Compact to demonstrate the commitment between the City and the
School District to collaboratively plan for the future of the 35-acre Cubberley site. Since
then, City staff have had conversations with design thinking teams at Stanford’s d.school
and IDEO to better understand the role that design thinking techniques could have in
planning for the future of Cubberley. City and PAUSD staff have been working closely
together to develop a scope of work that will be used to request proposals from consulting
firms who are experienced in master planning, design thinking and stakeholder engagement.
The scope of work has gone through multiple iterations as the school district further
analyzed their enrollment projections and potential future needs for Cubberley.
The scope of work was presented to the City’s Policy and Services Committee (PSC) on June
13, 2017. A motion passed unanimously to “recommend the City Council direct the
Community Services Department to release a Request for Proposals for a Consulting Firm to
assist the City of Palo Alto and Palo Alto Unified School District with master planning of the
Cubberley Community Center, including a negotiated cost sharing agreement, and that the
negotiation will not cause a delay to the RFP.”
Following the PSC discussion, PAUSD staff presented a slightly revised version of the scope
of work to the PAUSD Board of Education where it also passed. The revisions included in the
draft that went before the Board of Education included some changes made by PAUSD with
respect to their potential needs for Cubberley in the Purpose section of the Scope of Work.
Discussion
Both the City and PAUSD have an interest in developing a plan for the 35-acre site to meet
the future educational, recreational, and community needs of PAUSD, Palo Alto and the
community and have committed to collaborating on the future use of the entire Cubberley
site. The City has a broad vision for a community center that provides a multi-cultural
learning environment and supports social, emotional and physical health for all ages and
abilities. The City is ready to define the function and form of a new center on its eight acres
and the City has established a Cubberley Community Center Master Plan Capital
Improvement Plan in the City of Palo Alto Fiscal Year 2017 Capital Budget (Project Number
CB-16001).
The overriding consideration to PAUSD regarding Cubberley is projected school enrollment,
administrative facility needs, potential PAUSD employee housing and other extended
educational needs. The current data for PAUSD enrollment projections do not support
development of Cubberley in the near- term or mid-term for an additional school. PAUSD
has expressed their commitment to collaborating on the Cubberley master planning process.
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Even though the time horizon for rebuilding parts or all of Cubberley may be different for
the City and PAUSD the two agencies are committed to developing a comprehensive master
plan that supports the interests of the community. City and PAUSD staff have drafted a
scope of work for the master planning process which is described below.
Scope of Work
With the assistance of a consulting firm experienced in creative and effective public
engagement design thinking processes, the City and PAUSD will lead a collaborative group of
staff from both organizations, as well as community stakeholders in a master planning
process that will include an evaluation of the community’s assets and opportunities related
to education, recreation and wellness. The master planning process will build on the
previous work of the CCAC to develop an effective and comprehensive master plan for the
Cubberley Community Center site. The goal is to create an inclusive yet flexible process that
can accommodate changing needs for the immediate and long term future of the site. The
outcome will be a process that is inclusive, adaptable, and synergizes multiple uses while
meeting our timeline and shared vision.
The tasks included in the scope of work are grouped into two separate phases. The first
phase is focused on developing a plan for efficient yet productive stakeholder and
community engagement, and developing conceptual designs for Cubberley. At the
completion of Phase One, we can expect to have three to six conceptual design scenarios
that will be reviewed by Council, PAUSD Board of Education and the community. These
scenarios will be developed with the stakeholder group, and will consider community input
and results of the asset and opportunity evaluation. Phase One includes the following
tasks:
TASK 1: DEVELOP WORKPLAN
TASK 2: REVIEW FINAL REPORT OF THE CUBBERLEY COMMUNITY ADVISORY
COMMITTEE
TASK 3: DEVELOP A STAKEHOLDER AND COMMUNITY ENGAGEMENT PLAN
TASK 4: COMMUNITY ASSET EVALUATION
TASK 5: VISIONING WORKSHOP
TASK 6: DESIGN THINKING WORKSHOPS
Phase two will consolidate what was learned in phase one into a Master Plan document,
including a preferred conceptual design alternative based on feedback received from
Council and the Board of Education. Phase two will only be initiated after the consultant has
successfully completed phase one. At the end of the second phase, we can expect to have a
Final Master Plan with preferred conceptual design, and a completed environmental review
that complies with the California Environmental Quality Act. Tasks included in phase two
are:
TASK 7: DEVELOPMENT OF CONCEPTUAL DESIGNS
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TASK 8: DRAFT CUBBERLEY MASTER PLAN REPORT AND SCHEMATICS
TASK 9: COMMUNITY MASTER PLAN REVIEW MEETING
TASK 10: CITY AND PAUSD COMMISSIONS, BOARDS AND COUNCIL STUDY SESSIONS
TASK 11: CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA) REVIEW
TASK 12: FINAL CUBBERLEY MASTER PLAN
Funding
The Cubberley master planning effort will be funded jointly by the City and PAUSD. It is
anticipated that the cost of the master planning effort will be shared equally between the
City and PAUSD. A cost sharing agreement with PAUSD will be finalized prior to executing a
professional service agreement for the master planning work. The Cubberley Community
Center Master Plan is included in the FY 2018 Adopted Capital Budget (Project Number CB-
16001) providing $414,877 from the Cubberley Property Infrastructure Fund.
Timeline
It is expected that a Request for Proposals will be released in late September 2017 with the
goal of having a contract in place by December 2017.
Attachments:
Attachment A - Cubberley RFP
Draft Scope of Work Attachment A
1
Master Plan and Visioning - Cubberley Community Center
The City of Palo Alto and Palo Alto Unified School
Goal
To collaboratively develop a community vision and master design plan for the Cubberley Community
Center that is innovative, flexible and adaptable.
Purpose
The Cubberley Community Center is located on a 35-acre site in south Palo Alto that was previously
home to Cubberley High School until 1979. Of the 35 acres, the Palo Alto Unified School District owns 27
acres and the City of Palo Alto owns 8 acres. The City leases PAUSD’s 27 acres and operates the
community center facility including athletic fields and tennis courts on the combined 35 acre site. The
current lease between the City and PAUSD will expire in December 2019. In March 2016, Palo Alto’s City
Manager and PAUSD’s Superintendent signed the Cubberley Futures Compact demonstrating their
“commitment to jointly and cooperatively work toward a vision for the future that has the maximum
impact for the common good” of the Palo Alto community and future generations.
Both the City and PAUSD have an interest in developing a plan for the 35 acre site to meet the future
educational, recreational, and community needs of the City of Palo Alto and PAUSD. We are committed
to collaborating on the future use of the entire Cubberley site so opportunities for maximizing and
sharing public space are included and the most benefit to the community is provided. The City has a
broad vision for a community center that provides multi-cultural learning environment that supports
social, emotional and physical health for all ages and abilities. The City is ready to define the function
and form of a new center on its eight acres and the City has established a Cubberley Community Center
Master Plan Capital Improvement Plan in the City of Palo Alto Fiscal Year 2017 Capital Budget (Project
Number CB-16001).
For PAUSD, the overriding consideration regarding Cubberley is the need to provide for potential future
school enrollment growth. Potential PAUSD employee housing, administrative facility needs and other
extended educational needs are also a consideration. Current PAUSD enrollment projections do not
support the need for an additional school within the next 5-10 years. However, both the proposed
Stanford GUP and the City of Palo Comp Plan carry with them the risk of enrollment growth and the
requirement for additional school facilities. While there are two discreet property-owners (City and
PAUSD) within the 35 acres, the master planning process should recognize the benefit of planning the 35
acres collaboratively, while at the same time acknowledging the differing potential time horizons for City
and PAUSD development.
With the assistance of a consulting firm experienced in creative and effective public engagement design
thinking processes, the City and PAUSD will lead a collaborative group of staff from both organizations,
as well as community stakeholders in a needs assessment and master planning process. The goal is to
create an inclusive yet flexible process that can accommodate changing needs for the immediate and
long term future of the site. The outcome will be a process that is inclusive, adaptable, and synergizes
multiple uses while meeting our timeline and shared vision.
The City and the PAUSD are seeking a design team that will partner with the community and build on
the previous work of the CCAC to develop an effective and comprehensive master plan for the
Cubberley Community Center site.
Draft Scope of Work Attachment A
2
Background
A Cubberley Citizens Advisory Committee (CCAC), representing a cross-section of Cubberley tenants,
city-wide neighborhoods, schools and city-wide representatives, and other relevant organizations, was
formed in 2012 to cooperatively explore all practical joint uses of the Cubberley campus for both
educational and community service needs. Four sub-committees were formed to focus on: 1) school
needs; 2) community needs; 3) facilities; and 4) finance. Additionally, a Policy Advisory Committee
consisting of City Council members and School District Board members was created. The result of the
CAC process was the recommendation that the site be designed for shared City / School District use and
for the City and the School District to work cooperatively toward a phased development to support both
school and community needs.
The Master Plan and visioning process will consider the prior work of the Cubberley Citizens Advisory
Committee (CCAC) including the Final Report of the CCAC that was completed in 2013.
(http://www.cityofpaloalto.org/gov/agendas/cubberley_community_advisory_committee.asp)
Scope of Work
Phase One
TASK 1: DEVELOP WORKPLAN
Consultant will work with City and PAUSD staff to finalize a detailed schedule of work for Tasks 2
through 5, including which tasks can be conducted in parallel, critical path tasks, key decision points
and frequency of regular project team meetings/conference calls. All existing information that will
be provided by the City and PAUSD will be identified in this task.
Meetings to Include:
• Meeting with City and PAUSD staff to review draft scope and schedule
Deliverables:
Draft scope and schedule
Final scope and schedule
Request for information letter
TASK 2: REVIEW FINAL REPORT OF THE CUBBERLEY COMMUNITY ADVISORY COMMITTEE
Consultant will review the 2013 Final Report of the Cubberley Community Advisory Committee and
all supporting and background material, meeting notes, including subcommittee meeting notes.
Meetings to Include:
• None
Deliverables:
None
TASK 3: DEVELOP A STAKEHOLDER AND COMMUNITY ENGAGEMENT PLAN
Draft Scope of Work Attachment A
3
Consultant will develop a stakeholder and community engagement plan that will guide community
outreach during the Master Plan process, including specific charge of the group, timing of
stakeholder participation, and number and format of stakeholder workshops and community
meetings. The stakeholder group will be created through a public application process with final
selection of the group by the City Manager and PAUSD Superintendent.
Meetings to Include:
• Stakeholder Advisory Group workshops (number of workshops identified in tasks 5 and 6)
Community meetings (number tbd)
Deliverables:
Stakeholder and Community Engagement Plan
Stakeholder workshop agendas and outcome summaries
TASK 4: COMMUNITY ASSET EVALUATION
Consultant will conduct an evaluation of the community’s recreational, educational and cultural
assets to identify opportunities for Cubberley that address community preferences and fill existing
gaps in services and programs, while maximizing public resources. The evaluation will use existing
information to be provided by PAUSD and City (for example; existing uses of Cubberley Community
Center, results of the City of Palo Alto’s Parks, Trails, Open Space and Recreation Master Plan
outreach efforts and Comprehensive Plan Update, PAUSD enrollment data and future projections,
the report of the PAUSD Enrollment Management Advisory Committee, PAUSD youth and
extracurricular programs), as well as other relevant data identified by Consultant (for example;
projected local, regional and national trends in education and recreation). Consultant will identify
where gaps exist and develop a plan to fill those gaps and obtain additional data, if needed.
Consultant will prepare a draft report and a final report that consolidates the findings and
recommendations of this task.
Meetings to Include:
• Stakeholder Advisory Group workshops (number tbd)
Community meetings (number tbd)
Presentation of final asset evaluation report to project team
Presentation to City/School Liaison Committee
Deliverables:
Draft memorandum summarizing findings of asset evaluation including inventory list of existing
data reviewed, gaps identified in data, and plan for collecting additional information
Draft memorandum summarizing findings of additional data collection efforts
Final asset evaluation report and recommendations approved by City and PAUSD
TASK 5: VISIONING WORKSHOP
Consultant will design and lead a workshop with the Stakeholder Advisory Group to develop the
vision, goals and guiding principles that will inform the direction and desired outcomes of the
master planning effort. Consultant will develop a decision-making process that will be used
throughout the master planning effort and will present this process at the workshop for discussion
and agreement.
Draft Scope of Work Attachment A
4
Meetings to Include:
• Workshop with City and PAUSD staff and Stakeholder Advisory Group (number tbd)
Deliverables:
Workshop agenda
Memorandum outlining decision-making process
Workshop notes to include, at a minimum, the vision statement and goals
TASK 6: DESIGN THINKING WORKSHOPS
Consultant will apply a design thinking approach to facilitate a series of workshops with City/PAUSD
staff and the Stakeholder Advisory Group. Using creativity and innovative tools, the workshops will
generate facility and program concepts that will ultimately guide development of the Master Plan.
Meetings to Include:
• Workshops with City and PAUSD staff and Stakeholder Advisory Group (number tbd)
Deliverables:
Workshop agendas
Workshop summaries
Three or more facility and program concepts for the 35 acre site
Presentation to School Board and City Council on facility and program concepts
PHASE 2
(Note: Scope and compensation for Phase 2 tasks will be negotiated following the successful
completion of Phase 1)
TASK 7: DEVELOPMENT OF CONCEPTUAL DESIGNS
Based on the results of Tasks 2 – 6, Consultant will prepare a minimum of three and a maximum of
six conceptual designs for a future Cubberley facility layout and type of programming the facility
layout would support. The concepts will reflect the outcome of the asset evaluation, visioning
workshop and design thinking workshops. Each conceptual design will identify the location of
different program elements such as education, recreation, and wellness. Multi-purpose, flexible
spaces as well as potential shared spaces will also be called out. The scenarios will be presented to
the community, commissions, City Council and PAUSD for review.
Meetings to Include:
• Project Team Meeting
• Stakeholder Advisory Group meeting
• Community Meetings
• Parks and Recreation Commission
• City/School Liaison Committee
• City Council
• PAUSD Board of Education
Deliverables:
Three to six conceptual designs in electronic, print and display formats
Presentation to School Board and City Council on facility and program concepts
Draft Scope of Work Attachment A
5
Meeting notes
TASK 8: DRAFT CUBBERLEY MASTER PLAN REPORT AND SCHEMATICS
Building off the conceptual designs and subsequent feedback received (Task 7), Consultant will
prepare a draft Master Plan for the 35 acre Cubberley. The draft Master Plan will include different
scenarios for maintaining, modifying, and reconstructing the site and facilities, including site
schematics and cost estimates to serve short, medium and long term needs of the community.
Potential funding scenarios will be included.
Meetings to Include:
• Stakeholder Advisory Group meeting
• Project Team Meeting
• Parks and Recreation Commission
• City/School Liaison Committee
Deliverables:
Staff project review meeting
Stakeholder Advisory Group meeting agenda, presentation and summary
City and PAUSD Staff Project Review Team meeting agenda, presentation and summary
Presentation to Parks and Recreation Committee
Presentation to City/School Liaison Committee
Administrative Draft Master Plan Report Outline
Administrative Draft Master Plan Report
Public Draft Master Plan Report
TASK 9: COMMUNITY MASTER PLAN REVIEW MEETING
Consultant will design a community-wide review meeting to solicit feedback on the Draft Master
Plan Report and schematics.
Meetings to Include:
• Community Master Plan review meeting (multiple meetings may be considered)
Deliverables
Community Meeting agenda, presentation and summary
TASK 10: CITY AND PAUSD COMMISSIONS, BOARDS AND COUNCIL STUDY SESSIONS
Consultant will develop a presentation and walk-through of the Draft Master Plan Report and
schematics for the City’s Parks and Recreation Commission, Architectural Review Board, Planning
and Transportation Commission and Historical Review Board for input and feed-back. Consultant
will incorporate feedback received and prepare a presentation for a City Council study session. A
PAUSD Board of Education will be scheduled if needed.
Meetings to Include:
Parks and Recreation Commission Study Session
Planning and Transportation Commission Study Session
Architectural Review Board Study Session
Historical Review Board Study Session
City/School Liaison Meeting
City Council Study Session (if needed)
Draft Scope of Work Attachment A
6
PAUSD Board of Education Study Session (if needed)
Deliverables
Meeting staff reports, presentations and summaries
TASK 11: CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA) REVIEW
Consultant will complete the appropriate programmatic CEQA review in parallel with Task 10 below.
Consultant will prepare for and lead all public hearings associated with the CEQA process.
Meetings to Include:
Project Team Meeting
Public Hearing(s)
Parks and Recreation Commission
Architectural Review Board
City Council Meeting
Deliverables:
CEQA Initial Study Checklist
Administrative Draft CEQA document
Public Draft CEQA document
Response to public comments
Final CEQA document
TASK 12: FINAL CUBBERLEY MASTER PLAN
Based on the combined input of City Boards, Commissions, City Council and the community,
Consultant and the Staff Project Team will identify the necessary revisions and update the Draft
Master Plan Report to reflect the input received. The site schematics will be revised in parallel as
part of this effort. This revised document will be finalized as the Revised Draft Cubberley Master
Plan. This version of the document will be presented to the City’s Commissions for their review and
recommendations and to City Council for adoption, along with the CEQA document prepared in Task
9.
Meetings to Include:
Project Team Meeting
Parks and Recreation Commission Study Session
Parks and Recreation Commission Meeting – Recommend Approval of the Master Plan
City Council Meeting
Additional City Commission meetings as needed
PAUSD Board of Education Meeting
Deliverables:
Administrative draft Cubberley Master Plan
Project Team meeting agenda, presentation and summary
Parks and Recreation Commission meeting agendas, presentations and summaries
City Council meeting presentations
Board of Education meeting presentations
Final Adopted Cubberley Master Plan