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Home My WebLink About0576.093November 10, 1993 THE HONORABLE CITY COUNCIL palo A!to~ Californi~ Attention: policy and services Committee PROnSION 07 PUBLIC R£STROCMS UI JOIINBOI! PARX AND TlIE DOWN'l'OWN AREA Members ot the Council: Report in Bri..,f on May 24, 1993, Council directed staff to investigate the possibility of providing public restrooms at the Dr~ Edith Johnson Park and/or the University ~venue downtown area. Staff presented a status report on this Cissignment to the Policy and Services Committee at its October 5, 1993 meetin9~ Since that time, staff implemented, as an interim measure, a ranger patrol at Johnson Park to deal ~ith the proble~s identified by Johnson Park neighbors~ Information fliers have been prepared and distributed stating park rules and the purpo$e of the patrols. Staff recommends that the ranqer patrol be continued on a &ix-month trial basis. staff does not recommend the installation of restroores at Johnson park or in the downtown area at this time. Staff bas found no ccnsensus regarding the need for restrooms, or tbe placement of restrooms in either location~ staff ~ill rep~rt back to Council at the end of the trial period~ Background In June 1992, Johnson Par}{ neigfW.orhood residents approached the Council to request that r-estrooms be installed at .JotUlson Park because neighboring front yards and apartment building stairwells were beinq utilized as restrooms by par-k users. At that time, Council directed staff to install a port~ble restroom facility at Johnson Park on a six-month trial basis. Prior to the actual instailation, several otber Johnson Park neighbors expressed opposition to the plan. Council re-directed staff to study the issue, broadening the scope of the assignment to include investigation of issues relatinq to publ ic restroom provision in the dowtltown area, as well as at .Johnson Park. CKR!576!93 '<-------- Page ~o DiscussjoB Staft has not found a relatiorJship between the problems at .Johnson Park ana the is~ues surrounding the p~ovision of restroo~s in the downtown area. There a.re differences in needs. as 'Well as differences in the possible impacts of installing such f~cilitie$~ If restrooms were placec within a block or two of Johnson Park, park users might use these facilities; however, a tacility placed at any other do .... ntown location would not address 30hnson Park concerns~ Various options have been explored to address this assignment, as outlined in Attachment -A". Issues ccncerning Johnson Park and the d~~ntown area vill be ~jdressed separately in this report. ~sop Jlark Staff conducted a survey of Johnson Park neighbors and held two neighborhood meetings in orde~ to hear concerns and solicit input for pcssible solutions. The results of the survey are included in Attachment -B-. Neiqhbors expressed two concer-ns that, in the minds of many, are related. One is that the lack of restroom facilities results in their yards or stairwells being used tor that purpose~ The ether is a strongly held opinion that the primary offenders are park users who come from outside the neighborhood to use the basketball court. Loud behavior l:l.1 basketball players an(j other park users was also cited. Many of the neighbors urged the City to remove the basketball standard I perhaps relocating it to El Camino Park. Since the last neighborhood :meeting, however, several residents in the neighborhood have called or ... ·ritten to oppose removal of the basketball standard. Johnson Park neighbors who ~ppo$e the provision of restroams are in the Dajority. Appro~i~ately 60 percent of the ngighbo~s surveyed opposed the addition of restrooms and 40 percent .ere in favor. Most ~ho opposed did 6~ out of ~oncern that restroo~5 would attract ~ore out-af-neighborhood use and might draw more of the homeless. Many who opposed the provision of restrooms in the park did support the concept cf providing them somewhere in the do~nto~n area. To address the concerns of Johnson Park neighbors, on October 2!~ 1993, staff instituted the use of ranger patrols in the park en a six-month trial basis. This approach has been used successfully in other Palo Alto parks. Ra,ngers have established direct contact 'With the basketball players and neighbors 'Who have been most impacted by the problems at Johnson Parle. They also have distributEld fliers outlining park rules and regulations. With the CKR:576:9J Page Three ~oming of 'Winter .. problems will undoubtably subside ter.tporarily~ In the spring, staff will be prepared to patrol the park and be highly visible in an att.empt to prevent reCllrrence of problems. Staff will maintain close contact ~ith the neighborhood and 'Will report back to Council if problems continue. staff believas that installing public restrooTi'ls and/or relfl.oving: "the basketball standard would be precature until after this first 6~ep is tp.sted. Downtown Area Many other cities have tried to deal with, or are in the process of dealing 'With, the issue of restrooms in their downtown areas~ Staff contactE!-d representatives of the cities of San Francisco, Berkele}r~ Santa Cruz and Mountain View. San Francisco and Berkeley reported significant pr-oblems regarding the homeless and many of their restroom issues are related to those problems. Santa cruz, after the 1989 earthquake, cons~ructed three restroom f~cilities and reports significant mai.ntenance costs. As Mountain Vie..., went through its downtown revitalization process, a conscious decision 'Was made not to install restr-ooDlS, due to concerns that were sintilar to the ones that have surfaced in staff's contact with other c.ities,. i.e.,. the cost of ongoing maintenance and the nuisance they can .create through undesirable activity and loitering. It has been found that downtown restrooms frequently do not meet the need they are created for, and the averag~ citizen will not u~e them if they are not well maintained~ st~ff met with downtown merchants, Senior Center at.aff. the senior Coordinating Council. the Oowntoyn Marketing Committee and the Chamber of Commerce. 1n addition, a survey of downtown merchants and University Avenue property owners -was'· conducted~ The groups expressed some concerns about the lack of accessihle facilities in the downtown area. Most of the merchants, ho~ever .. indicated an ability to handle the restroom needs of their customers and clients. While the senior Center considers the current use and abuse of their facility -reasonahly severe-j the Chamber-of Commerce is not aware of a demand for restrooros in the downtown area by either shoppers or merchaTits~ Senior Center staff and the Senior Coordinating Council expressed support of a clean, attractive restroom facility in Cogswell Plaza. Whil~ there is mixed support from merchants for and agair.st the installation of restrooms in the downto~n area~ t.here is consensus concerning the problems that such facilities ~ould create. Many teel that the restroom issue is really ancillary to the problems regarding th-e homeless population, and the addition of restrooms would exacerbate that problem in the downtown area~ • ,- / Page Four Based upon the input received from the doW'nto.-n merchants., University Avenue property ovner$, and residents, staff feels there is not enough support to recoruuend the installation of do..-ntown rest rooms at this time. Portable restrooms do not have the support of lIIerchants, foz-they believe the units ar-e unsightly ~nd inccmpatible with the downtown area: there is no agreed-upon site for a permanent facility; the construction ana maintenance costs are: significant: and there is no quarantee that such a facility lr.'ould be used by downtown shoppers:. There is support, ho,,"ever ~ for promoting use of ~xistin9 public facilities in the downtown area~ One alternative restroom solution that was considered is the use ~f the self-cleaning -French Toilets· (see Attachme~t ~A·) that are being consider-ed in San Francisco. These units are available on a lease basis only. The annu~l rental fee of $39,000 per unit may be p~rtially offset via the lease of advertisement space on the units. These units require a high level of skilled tlaintenance~ Seyeral problems have been reported with them and they do not appear to be a viable alterr.ative. If different information develops in the future, staff will look at these units agai~ as a possible future option. Boa_loas populatigh A collective concern e~pressed by Johnson Park residents, downtown merchant3 and senior Center staff was that provision of restrooms at any location in the dO\llntoYn area may attract the homeless. There has been general discussion about the issue of restrooms for the homeless, but little consensus as to ho~ or where they should be provided, or ~hether they should be provided at all. Becau~e a decision to install restrooms in the do'Wntc'TWn area 'Would 1 ikely impact service levels to the homeless. this would require policy decisions by Council as to what these service levels shOUld be. Should Council desire, staff will explore the possibility of building a re&troom facility outside the downtown area for use by homeless and transients4 This would not address the issue of providing downtown restrooms, and might not :be utilized by the intended population. Significant costs would be incurred in order to build, staff, maintain and repair such a facility. Staff requests that Council approve the continued use of ranger patrols at Johnson Park to diffuse the probl~ms identified by neighbors. Rangers have established, and ~ill maintain, regulae con~act ~ith neighbors ~nd par~ users; and fliers outlining park CMR:576:93 Page Five rules and the location of public restroom facilities in the downto'W'n area will be distributed. Particular emphasis will be directed to~ard basketball players at the park. The cost for a six-month trial is $5,000. Staff will report back to Council on or before completion of the six-month trial with any further recom mendations~ Respectfully sub?nitted, Dan Willi;e.ms Director of Recreation Paul Thiltgen ~DirectOMr ~ommunitY , / //J "I-' JIffi~ 1nq , .r ... ~ Attachlllents services Related Staff Report: CHR:S17:93 O!R: CKR:S76:9J .. '~.~~:':< . ~, . .', / • _. -'--~'~""""-""'111""""~_"'-~ AT,'J"ACHMBlffl' "A" OPTIONS rOR PROVISIOII or aBSTROOKS IBVI8~IGA~!D BY 8~arr LOCAnOIl Johrl.on Parkl Installation of restroom facilities. Install~tion of ~eBtroQm facilities at Cogswell Plaza with directional siqnaqe at Johnson Park. expansion or the dO~ltown ranger patrol to include Johnson Park during pe~k use periods .including weekend and S'.l1hlner hours. Removal of Johnson Park basketball standard and possible relocation to El camino Park. PROS Convenient for perk nSers; reduces impacts on noigl~orhood yards: e83ily install&d. Proximity to Johnson Park, Beniore are supportive; easily installed. Creates a staff presence in the park; rangers have an entab w lished contact with neighbors and park Users; approach hils been suooesstul 1n other Palo Alto parks. Support8d by n~ighborhood mp.eting attendees; reduces late night use/abuse of basketball court; dacreases use ot park by out ot neighborhood USers. COlfS May increase park USe by out ot neiqhborhood users; ~y attract undesirable/criminal activity; may Berve as a gathering place for homeless. Homeless concerns as expressed above; park users may not utili.ze them: visual impact. upon heiqhboring buslnesseD. Limited statt resOurces; recurrinq stait costs: increased service level at h@ighborhood park. Dacrea9~d recreational opporturli tieR at the park:: not supported by all survey respondentD; relocation costs; will not solve all the Johnson If-I Park neighbor concerns. Coq.v.l1 plaia, Installation of restroom facili ties. Downtown p.r~inq Lote inclu41nq Lot " at Kipllnq .n~ Lytton1 Lot P or R on Hiqb Street, Installation of restroom facilities. Convenient location. easily installed. Convenient locationr easily instalJ,l3d: less visual impact upon neighborl!l~ May serve as a gatherinq place for homeleso: shoppers may not wish to use; visual impact upon neighboring bUBinesses~ Reduced parking space and associated reVenue; shoppers may not wish to use; visual impact upon neighboring businesses. ','., .' ., ~,,-w , '\~~~ \ \ " !\ , "'\ ., , I I' " I I I I , I I I I 1 , t.OCATION .ity Kall, Downtown Library, El clLIIlino Parkt utilize existing facilities. Prench Toiletal Install self-contained, seit- clellrling units. Homele •• R.at~oo. Faoiliti.s, Install facilities adj~cent or close to Mitchell Lanel El Camino, or ext-end open hours of existing fact1.it~es. I Faoillty option •• Port.ble Toilets ~ Cost: S120/month; rental includes servicing. PrefabrioAtad Re.troom - Cost: $100,000 WQo4 Frame R.8troo~ - Cost: $130,000 Conor.te ~look Restroom - Cost: $250,000 PROS CONS Facilities already exist.; May Increase use by homeless; mer'chants and I.'esidents have may not address Johnson Park auggeated this option. issue: may result in "trashing-, incr.eased vandalism & graffiti; will require costly and lntense supervisioni limited to hours facilities currentl~ are 0een. Attractive; aelf cleaning: Not curr~ntly availablA from easily installed. sale u.s. distributor; available for lease, not purchase, due to high level of technical exper- tise required to maintain; very expensive--$39,OOO/year to lease, if and when available, although it 1G possible that the cost tiay be partially offset by the lease of advertising ~pace on 't.he unit. \' I~ittle impact upon neighbors; Services homeleas only; does not area used by and familia.r t.o serve need~ of downto~ shoppers the homeless. Or Johnson Par~ users; the EI Camino facility has had previous ex_parlance with undesirable/ criminal activity. Possible reduction or abuse of All permanent facility options public and private property; are expensive to build or portable units may be cleaned h'laintain; l'ndeslrable viuual and/or replaced easily. impact on neighboring businesses; May attrdct undesirable/criminal activ.i.ty which may r~duce use by shoppers. Coots reflect construction costs onlY, not ongoing Maintenance or supervision costs. I ! " ,-,-s,. ~~ ._ ,.-. "~/'- > ATTACHMENT "B:1 JOHNSON PARK RESTROOM SURVEY RESIDENT TOTAL SURVEY RECEIVED: 203 (COMPLETED S193) 1. Do you think that there is a need ror a restroom facility at Johnson Park? co_epts 84 117 -I~ fer families with small cbildren~ -Never thought of it. -Terrible ioea. -Would dra-. outsiders making wkdays/wkends noisy and conqested. 2. Would you like to see a permanent restroom facility installed at Johnson Park? AIL 64 123 Cogenta -Not without a trial basi~. -Would consider suing. -All week the streets are conqasted with downtown worKers parking in front of homes. -If there is an absolute nee~~ -Have homeless people there every night _ adding to the problem. -Use own home. It is a neighborhood park and there are 700 bathrooms ~ithin 8 blocks blocKs that are public . . 3. Would you like to see a temporary restroom facility (porta-potty) installed on a trial basis? 60 116 Co .. ents -Rather tacky. Only if used during months of 6p~inq and summer~ -Lets see vhat happens with the transients~ , " 3. JOHNSON PARK RESTROOM SURVEY -Cmn'D. Would you like to see a temporary restroom radlit), (porta-potty) installed on a trial basis? Cogent a -When Hawthorne was torn up due to sewer rehah~ these were constantly upended-messy situation -What would be th~ criterIa for the 'trial? -Smelly~ -Too easily vandalized. 4. If you would like to see a restroom at Johll5On Park, whpre would you propose it be located? ~ ot llespop,se 14 5 1 '1 5 1 11 6 2 4 5 1 12 13 1 Location Close/Near to basketball court. Near water fountain. Not in middle of open meadov. Well lighted area. out of sight .. At City Hall. Hear community/vegetable gardens. Middle of park with locking system for after park hours. Parking lot on corner of Lytton' Kipling or Lytton between Waverley ~ Bryant. Anywhere' wheelchair accessible. Amonqst the trees. Away from sidewalk areas. Corner of EVerett & Waverley, Everett & Cowper Lytton' CowperJ Hawthorne' Waverley and University , Cowper~ Near children's playground. Away from children's playground. S. If you perceive a need ror a restroom at Johnson Park, do you have any other possible solutions that you would like to propoS4!? No. or Respopse 6 1 1 3 Solutions Remove basketball hoop. Roofless open-air facility -discourage liveins. On University Avenue or the police station. Center of downtown. -2 - . ' JOHNSON PARK RESTROOM SURVEY -CONTD . 5. H you perceive a need for a rEStroom at Johnson Park, do you have any other possible solutions that you would like to propose? 110. 9( Be,pap'. l. 6 1 1 2 8 2 3 3 Solution. Better lighting at night and better drinking fountain. Hourly patrol and a shutdown if there are any problems. Commercial parking area. Recognize that security of housing complex is a privat~ property issue. Dovntown area near 1-11 and get rid of 7-11 for it only attracts miscreants. European self-cleaninq toilets~ .Fountains for -washing hands by toilet. Grow vines for camouflaqe and separate toilets for men and women. Surveillance of basketball players and arrest them when they urinate on private property. 6. Who do you think are the users or Johnson Park? AmCUAt ~ 34 Children 43 Basketball players 15 Mixed 5"2 Local Residcmts 49 Families 61 Neighborhood 1 Boys in the Hood 35 TransientS/Homeless 3 E. Palo Alto 2 Regular Park Boozers 1 Negro.es 9 Singles 29 Outsiders of, G.ardeners cop_pta -Deaiqned and built as neighborhood park, not community or local one -lets keep and try to maintain its original intent. -Not lIle. -Many days -no one for many hours4 -Kids have tried to use basketball courts but outsiders (adult men) are always using them .. -Will encourage people to sleep in the park at niqht if there are restrocms. -There are homeless people in residence. -Since neighbors are using th~ park, they can va lk home .. -3 - ."'i: ·.~~r~" JOHNSON PARK RESTROOM SURVEY -CONTD • . ' 7. How close to Johnson Park do you live? (By block) 1/2 1 2 3 4 5 6 NO. of People 5 122 54 21 8 o 3 8. Is there anything else you would like to tell the City about this issue1 110. of RespoDse 2 12 3 10 3 Additiqnal Comments -No need for a permanent or porta-potty. -Remove basketball courts -SOU1"Ce of all evil~ Place restrooms in a city-owned parkinq lot. -Toilets should be placed outside residential areas so as not to draw transients and drug users. -Brinqinq ir. facilities will only encourage people to stay late at night drinking. Parkinq is difficult across from house and please do not encourage erosion of neiqhborhood~ -No niE!ed to attr-act visitors trOfti farther than 6 blocks away -SMALL neighborhood park~ -Problem of the homeless and rough .outsiders playing basketball and using horrendous language~ -With restroom, it will require additional policing and maintenance -potential for it being a nuisance tar outweighs the potential for benefits and this can only be derived from non-residents. -4 - JOHNSON PARK RESTROOM SURVEY -COr..l'D . . ' 8. Is there anything else you would like to tell the City about this Issue? Mo .. of lespons4I 2 1 5 1 1 1 1 5 1 5 1 3 4 1 1 11 A44iticnal Co.-ent. -How costly will it be to lock up facility after after sundown and other maintenance measures? -Run home if need to use potty .. -Why does a ~genti~ park need the congestion that a community park brings? Existing problems are lack of sufficient 9~rbaqe cans -existing ones are always overflowing; we are already sharinq streets with workers who park all day in front ot homes; the homeless that we have to contend with -fix existing problems before looking for more. -Restroom would be an eyesore. -Restroom would lower property value. -Too afraid to use bathroom for fear of finding someone in there; 2 yrs. ago it took 5 mths. to repair the drinking fo~ntaini how lonq will it take for a restroom? -'I"hank you for banning alcohol. -Every downtown business area should have public restrooms paid for by downtown business owners. -Proposal of restroom is a vaste of $$. -What to do with lawbreakers -deadbeats from E. Palo Alto J vagrants scaring e.."lilclren. -Do not wish tor park to be a camp ground~ -Park chose to honor Dr. Edith Johnson by dedicating it in her memory -lets keep it that way -for the neighborhood. -Security and sanitary risk with restrooms. -What hours should a restroom be open? Limited hours please. -Not confident in City's ability to maintain or monitor such facility. -Magnet fer vandalism and crime -ugly and smelly. . -5 - \ .' 8. JOHNSON PARK RESTROOM SURVEY -CONTD. Is there anything else you would like to tell the City about this issue? 110. of 'espop •• 6 1 1 1 1 1 11 2 3 5 Additional Coament. -Make the park safer -fear of harassment. -The non-alcohol pollcy for the park does not seem to be posted anrlllhere -and is rarely enforced. -Hove basketball hoop to El Camino park~ Minimize sport use, maximize neighborhood use. -Have a friendlr "beat cop· patrol the area. -Will attract yinos and homeless to linger there. -A permanent plaza at Cogswell Plaza. -Too many people urinating in the park. -Impose fines for littering and put up signs. -Garbage cans need emptying regularly, dog leash laws need to he enforced and handicap accessible. -Get star-ted. -5 -