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Home My WebLink About0390.095. : , . , .'. . . , " . , / City of Palo Alto City Manager's Report ------ TO: HONORABLE CITY COUNCIL A Tl'FNllON: FINANCE COMMITTEE FROM: CITYMANAGER DEPARTMENT: CommunitySe~ AGENDA DA TE: ~pWmber 12, 1995 CMR: 390:95 SUB.JECr: Request ror Approval ofStafling Required to MainWn die Palo Ali<> Unified School DIstrId Athletic F1e1ds REQUEST As part of the 1995c96 budget, Council approved. pMtnership arrangement with the Palo Alto Unified School DUtrict (P A USD) foc the City 10 assume responsibility fur the maintenance or !be DistricI'S athle.tic fields at two middle schools aad one elementary school (CMR:202:95). Staff now requests autborization for Ille staffing required 10 implement this par<nersltip in January 1996. Funding fur this 5taffing allocation is included in the I99Sc% budget. BEro.~ATIQNS Staff recommeods that CounciJ approve Ille addition or lOur rull time ellli'loyees (FI'E's) (one Parks Supervis<r,oae sprinkler repair peroon, and two parts maintenance persons) \0 provide maintenance, renovation aad supervisioo of 20 acres or athletic fields and maintenance services for 25 tennis courts belonging \0 Ille Palo Alto Unified Schoo! District. In addition, staff recommeods "'at CouncIl approve the recl"';''ication or ooe existing Pad: Miiintenance posiOon 10 a Contracts Inspector. This person will oversee the Parks expanding cootracl wad< aad Wlll allow existing management staff 10 plan and eve""" the new partnership with PAUSD. POUCY IMPUCATIONS Approval or this proposed staffing plan is con;,lstenl with recent Council policy aOO direction fur the City assume responsibility fur ath!elic: field and lennis court maintenance at PAUSO facilities. UECUTIYE SUMMARY Council has approved funding fur. cooperative agreement with PAUSO foc City staff 10 assume athletic field renovation and mainteIlllllCe at JLS. Joroan, and Walter Hays Elementary, as wen as the lennis c'>Ult maintenance at G1lIl!I, Palo Alto. JLS, aad Jordan CMR:390:9S Pag.lof1 .. scllools. TOIaI C05IS foe this ~tive agreement are 10 be shared equally for all incumd expenses. Upon awroval of the 1995196 budge~ staff proceeded with the development of the PA USD fields maintenance program. Staff is in the pr=ss of preparing equipment specifications and supply and malelUll needs and ",ill re~JllI for IhJncil approval 0( the formal agreement ",lib PAUSDon Oct<:lb<.r 16, 1995. Staffwil1 also 1le ret>ll1ling 10 the Finance Gommitleeoo OcIOber 11, 1995 with • report outlining altemative funding sources 10 pay the iDcrea.<ed =!S Ibat were planned in die third and subsequen! years 0( this program, as .. ·.n as currenl and future capital c:osIS .. The request oow before !he Council is 10 aweve !he staff"wg needs '" implement this partnecship. Thejoint Ci;yIPAUSD study Il>at resulted in the cr""tion of. plan for the Cit-I'" assume the main!e1lJlllCe of athletic fields was based on the rollnwing premis--s: 1) there is • high nse 0( sdoo athletic fields by the community, both from orgRnrzed grou~ and walk OD use; 2} PAUSD does not have <ufficient staffing and resources 10 maintain the elementary and middle school athktic fields in • .uitable manner for sports field use par.cm._; (3) the Ci;y fields are maintained at • more intensive leveL providing much better field conditions for the community and llSU groups; and in order 10 bring the PAUSD sites up '" park-like standards, • higher level 0( maintenance effort would be required; and (4) CasIS would be sharedequally for maintenance am! proposed capital improvements. In order 10 ac.;ompfl5!!!he task of renovaling and maintaining the PAUSD fields, Ci;y staff will be assuming a significant additional wodload. Specifically, the additional PAUS!} woddoa<! is as roIle",s: • • • • 35% l20 acres)increaso in high-maintenance athletic fields; 100% increase in soccer fields (from 8 10 16); 25% incr'..ase in baseball field maintenance (from 8 10 10); 100% increase in tennis CQUr\S maintained (from 2410 49). The addition of the school facilities and the eventual incruse in contracting oot basi<: park maintenance work, pursuant '" ilIe organizational review, will clramatically cbange the Parks maintenance responsibilities. At Il>at time. ell)' staff will maintain only die more specialized and more intensive work: ie .• school and Ci;y athletic facilities. large City parks (141 acres) Rincooada. MitcbeIl. Greer, etc, and irrigation system repair and mai..tenance at all parks, fields, medians. and other landscaped areas.. The remaining landscape • .reas, small parks, community centen;, etc. will be contracted out (55 acres). Based on the above cbang~ !he addition 0{ ne ... employ""" properl)' trained for the bigr..,r intensity maintenance, is an importanI coosiderntioo. These changes will result in • complete restructuring of City Parks Services. More empllas'.s wiD be placed on twf and water manageme~ including centralized irrigation, large scale sports twf field renovation. CMR;390:95 Page 2 of? . ".-. fertilizer, S<ed and amendment appfi.cations, ond ope.-ating ;pecialized turf equipment (mcluding gang mowers, lop dreSS<'n, ~ drills, aerators tie.). Currently. Parks Servic<!s bas • coce group 0( spe.."ialIy trained staff wbo spend SO percen! O(!heir available work boors renov.ting just City athletie fields. The addition 0( the scbool sites creates a DeW dimension 0( supervisory issues. There ""il! ba ve '" be • great'" coordination 0( maintenance schedules'" "'o<k v.;th school programs ond community use. These sites will requiIl: regular con!act wi!/! scbool principals and !heir staff. PrA's, athletic groups, ond!he usual coordination O(City activities. Scbeduling will be different; main!e= programs will be dCkrent; ond positive public relatioos will be essential. The expectation for improved facilities will be mg. ... ond it will be Parks staff's responsibility 10 a!templlO meet that expectation. The use of pads and scbool fields bas continued 10 increase over the last decade. The level 0( effort, '<Cbnology, cost, ond IOOIs and materials required 10 maintain !hese facilities bas also cbanged 10 meet !he demands 0( continual renovatioos required 10 lI'.aintaill suitable playing surfaces. As!hese cbangos accelerated, stafrs1<nowledge and lraining requirements bave created specialty work groups. as maintenance bas evolved from • simple, smaIl scale. manual labor openItion 10 • much more c"'!'I'lex mecbanized, te<:bnological field with various specialties. in Ibis case sports turf management Staff bas bad 10 adjust and speci3Iize in areas other !han general urban paIl< maintenance, including golf cou= and laws bowl turf management, ornamental borIi<:ulture (i.e, Culmral Center). <>pen space management and sports turf management It is !be area of sports turf management that is expanding. as we assume its maintenance 0( the PA usn flelds. The additional special skills required for sports turf management wmeh differ from general park maintenance include !he following:: • Familiarity with openItioo and maintenance of large turf equipment. Ability 10 make mecbanical adjustments of equipment: on siu:. Such equipment includes: gang mo,,'ers, lOp dressing machines, aerators. and turf renovation equipment. • Knowledge 0( large scale turf fertillzation techniques and proper nse 0( fertilization equipment Ability 10 recognize turf stress patterns and adjust programs as required due SO environmental 01' use patterns. • Knowledge 0( turf renovation. All athleli<: fields receive be. vy sse ond 10 be able 10 properly maintain those facilities, the staff needs 10 use small windows 0( opportunity 10 refurbisb the stressed-out turf. so !bat it is in bealthy condition for year-round activities. This usually bas 10 be accompIisbed throughout the year ond i.o beN'een various programmed field activities such as soccer, baseball, 5oltball, ole. CMJU90:9S ' .. >';:{>~Q~~ ~ ~' i. " .-~ , , ' .. ~ Page 3 0(1 '.; ~" ,-.~, :--".-. -. "".", -- o The maintenan..'e renovation programs are even more critical at .. 0001 si"", where work can be accomplished only during eve" smaller windows of time. E.ten.<ive ongoing rellOV.tion programs will be required 10 attain park-Iil:e standards. FllIally. and mosI importantly. turf maru<gomen! staff must have I good too"'/edge oflhe users needs. II is preferred 10 b.ve staff wilh some sports/athletic bac\glOund so they can truly bow how turf is supposod 10 lock, feel. and be playable for our user and C()IIl--nunity gtOups. As Pa!I<s Ser.ices .. ~ these new roles. rt faces some new challenges. This bas bee!! an evolving program. clearly. different operation !han is farruliar, and represents signifkanl new challenges including: • • • • • The need 10 mainlaio the turf ,,'hile school is in ses sion. Because of the presence of scbool children and scbool programs, staff win face limi1ed and changing schedules {or completing reoova!ion, mainlenance, and ;rogation prevencaDv. and mainlenance work; There will be • need for ccnstant. consi.lenl rommunication wilh the school siles 10 deIllmline their schedules and cooolinate the activities of botlI PA USD and Parks Services; This program may require a map change in adjusting scheduling 0{ maintenance aclh1lies than is normal i.e. weekends. .fte[ scbool hours, elC_ AI the time of the transition, staff will be assuming responsibility for very aging iIrlgatioo systems, which will require immediate improvements i.e. raising most 0( the sprinkler beads, which involves III' to 500 per site. (Note: Capital ImprovemeDl foe krig.tion renovations are not included in lil;s initia! phase.) Upon initial as.wnption. staff .. ill undertake an aw",,';v. renovation progra", of lOp dressing, aerifying, and reseeding and resodding in ookr 10 have tI.e fields in the expected conditions. Although some improvements will be readily seen. long-term committed effor1s will require severa! years of inten.<;e maintenance and renovations \0 improve rOOl zone conditions related 10 y.,.,. 0{ rompac1ed soil<, as weD as ongoing repairs 10 make the krigation systems operable_ Because of the Scbool District', past limited ability 10 provide prevenunve a!Id renovation maintenance practices. staff must be prepared 10 [eact 10 unexpec1ed sib.ultions a Il()[lfL CMIU90:95 Page 4 of7 ---------,.-... -sq . -, £'1 . . '-. ,--=- _.", To do Ibis lask e<><reetly, appropriate staff and supervision are required. • The ocganizatiooal review identifled a need for additional park supervision slaffing resources. Assuming responsibility for tile PAUSD flelds bas intensifled tile need for • supervisory positioo 10 plan and maru>.ge tile field program; provide ~dination and commurrlcations with Scbool District staff; access and develop maintenance and reoovatioo programs; and comply with City administrative requirements regarding poIky and procedures, pe=nnel, inventc<y, regulatory requirements, purchasing, and equipmenl mainteIUlllCe and repairs. • The City parks inigation staff cannot take on additional responsibilities. Moin!eI!llllre and repain cl!be aging ell)' infrastructure requires Io!al commitmenl of tile existing two person staff. The required plumbing, ele<:trical, hydraulic and fIeld maintenance. testing experience, results in • nced for highly skilled and qualified staff. If " .• reassigo the seNice of one <Jr more of our CIL'fen! irrigation staff, boIb PA USD and City parks woold suff« inefficiencies, productivilY los...... and i.'l(Oreased waler usage and subseque!ll costs. A core of tile Parts Divisioo is specially trained in tile fIeld 0( sports turf managemenl <iOO afuletic field renovation program..<. A transilioo of existing Parks staff, wbe> are 004: lnowledgeab1e of sports lui! management would take up 10 two years of training and experience ga:hering. and would re,,,1l i.n an overall productivity and field condition decline in parts and at (be PAUSD. By not staffing adequately DOW as the program starts, va!uable I1aini.ng and expertise will be diluted. h is critical, as the c.ty lakes 00 !be PAUSD assignment, !hat the right peq>le be hired 10 fill Ihcse new roles and integrated into tile Park staff. Thea changes within the organization can be debbeJately made as atlritio!l occurs and services for more sites are cootra<ted out. Staff recommends !be foIJo-.,ing additions and cbanges as budgeleJ for i.., l'>e PA USD Helds Summary Report: Add one Park Supervis<Jr Add ODe Irrigation Repair P«soo Add two P2rks Maintenance Workers These positions need be filled in order 10 commence work on the scbool sites by January 2, 1996. This will bring the staffing level required 10 maintain the scbool fields properly al!be onset of the program. In addition, • Contr.><:( InspeclOr positioo nceds 10 be created '" oversee the existing contracts, the expanded !ennis COW1 maintenance contracts, and tile increased contracts that will OCCIH as attrition causes the organizational review changes 10 be implemented during the CMR;J90;9;S Pag.Scl? .. ; • I . , " ;..' :~ ~;~ --;. ~. "'.". ~~j~ii'i~,':';':; ,/;~ic':0~ '-.J~ .:d' .-:c . _._;,_~",,,,,,,,;,--,;,,,,;,,,,,".~,~c~. o la>t quarter of!he 19951% fiscal year. A reclassification of. Parks Maintenance position is requested 10 mate sure !hat contraclcn are adhering to specifICations. Staff is aware of !be CiIy CooDcil's decision 10 increase contra<;ting-<>UI park oervkes. The City Council made • coounitmen! 10 1be Paris staff that this would be a.:comprtSbed by anriticn. It is lroolc thai 1be inaeal;ed school fields responsibilitie5 requires an equal number of personnel 10 accotnpIi;;ll i!Ie task that have been slated for redoction by !be organizational re,·le.,. However, thougb this is a coiocideoce. it is l!OI an opportunity 10 speed lip !he organization review recommendation. The requirement I<l accommodate both !he addition of schoo! fields, retraining of existing staff, plus tile increased contract manage"",nt load at !be same time will be a major impa<:! on !he staff and !heir .. 'ock assignments. If this were 10 oc.cur, iI w'Jllake 100ger 10 improve !he scboolfields and our park main",nance will >lip in servke leveL We do D()( WanI this 10 occur. The attrition program for contracting out park m,;nlenance is proceeding on scbedule. Two parks staff members are scheduled for retirement in May and June of 1996, and !hey ",ill be !he first of four employees 10 be replaced by rontracL By proceeOUlg as staff recommends, providing suftkient staff at !he onset of the program. !here will be six mooL"s 10 get !he school project started in an appropriate manner and not have 10 shift and retrain si. months after startup. SUfI' can then go Ihrocgll!he process 10 expand contracting for the fiscal year 1996-97. Parks Services has an opportunity 10 approach !he addition of a cell' major workload in the proper fashion. Staff wants the opportunity 10 be able 10 lake on this nel>' asslgnmen! property so tha! !he Council, !he School District and !he community user groups decision 10 transfer Ibe field and lennis court maintenance activities 10 Parks Servkes is cornpJeled 10 !he satisfaction of all !he parties. Staff does OO! want 10 do it piecemeal "'ith unnecessary stress on staff, whicb will lead 10 less than effective performance resnlls. decreased efficiencies of day-to-<!ay operntiocs. and have I negative impact on etisting City parle sites. ALTERNATIVES Although funding for the required four fTE has been approved in !he 1995196 budget, the following alternatives 10 hiriIlg • fun complerneO! of staff (4 FfE} are presented for Cooneil cooskleration: I. Rather than hire all four DeW posiOO!l5, Parks Services would hire only three (!he Supervisor, !he Irrigation Repair Person and one Parks Maintenance Person). To accomplish this. probaNy one of !he City-s etisting a!hleti<: field mainten= .uff would be reassigned 10 the scbools staff. This would limit !he City', staff, while the transferred PI""'" is retained at the areas previously described. There would be • drop in !he quality of conditions of !be City's alhleti<: fields. Parks supervisory staff would have 10 immediately solicit bids on • contract 10 take over tile maintenance responsibilities of the transferred employee (9·1 0 acres). CMR:390:9S Page 6 0£7 • 2. Rather than hire ail four new positions, Parks Services would hire two staff (the ScpeMsor and lbe Sprinkler Repair Pe=n). Staff woold make the same reassignment as in the first alternative, and reassigR one ol the odtet existing Park Maintenru;ce Persons 10 the school staff. This ch.ange woold cause the same impacl as the fiN! alternative, and sta.ff would probably DQt gel the schools fields in good condition as quickly as expected. There woold be I drop in the quality ol the City', f,.,!ds and park sites, and the Parks Division would bave 10 imn>-..diately solicit bids on • contract 10 take over lIle mainte= responsibilities 0( the reassigned staff (18-20 acres). 3. Coon..--il could defer impleloentation ol1he field llll!inteDance program until attrition occurs aIlbe end ollbe fiscal year 1995.-96. after which time staff woold proceed with hlring a full complemenl ol staff (4FfE). The prcgram could begin in Ibe fall oll996. mCAL IMPACJ Funding for this program bas been budgeted and approved in the fi",al year 19951% Parks Division Budget in the major acti>ily. Athletic F,.,lds. ENYJRONMENJ'AL ASSF.SSMENT The hlticg ol staff is DOl coosidered • subject for purpose ol CEQA; tbere.fore. JIO eavironmental review is required. AUACBMENTS CMR,202:95 t:: Department Head Review:: city Manager Approval: Paul DiBs, Pa.<b and Golf Direcloc ./ PAUL THILTGEN DirecIo< ol Community Sen->ces Page 70[7 .. : -- .,", '-, -'-. o City of Palo Alto City Manager's Report TO: HONORABLE CIn" COL'NCIL A1TENTION: FINANCE COMMITI'EE FROM: CI1Y MANAGER DEPARTMENT: Community Servkes DATE; April 11, 1m CMR: 202:95 SUBJECr: Palo Alto Ullified School DistrictICity of 1'.10 Alto Joint Landscape Maio_nee REQUEST The City Council requested staff to investigate I pannersbip with the Palo Alto Unified School District (PAUSD) for impro.mg the maintenance of PAUSD atbleti<> fields. A proposal is being )nsenled as I budget issue. and lIlY decision would come as pan of the final bu4get deciBion. Rf£OMMpl!lA TIONS SIaIf =' .. iii"",,", dIat CouDI:iI approve in eoocept. the partnership with PAVSD. Althougll (;;fy and PAUSD staffhavc f'mnuIaIed !be main poiJI!s of an ogreemcn~ no fonn.aI COOInic( 40cumenl has beeB prepared f« approval. and no legal review of the agreemer.t bas occurred. As detailed in the aIIBcl1ed reporf, the City will assume respollsibility for _i,,/t:'wilGe ollbe District', 8IhJetic fields at two middle schools and one elementuy school in 1995-96 (expenses ue included in !be Proposed Budget) and 1996-97 with costs to be reimbmsed SO percent by the School District Prior to the !bird year of Ibe proposal, in which City mainteDance of remaining non-bigh school sitts is assumed. other funding sources will have 10 be pursued. POllCY IMPUCATIONS The JlI'CPOSed p81'IIItIShip does noI represenllIIY change 10 exisIing City po&ies. Assislanc:e and support 10 PAUSD. and provision of wen-mainrained pari< and alhleti<> field spaces f« the community are goals of!he City Coancil. EXECUTIVE SUMMARY Ia November of 1993. City staff and PAVSD repreSClltatives met to begin the process of gl:IIIing • parlDtnhip for impro>lng the maintenance of PAUSD athletic fields. The initial phase of this study included I complete inventOl)' of aD P AUSD facilities. Staff evaluated all site woditioos am! in1Tastructure, a detailed review of community use patterns. and a P,&" I cH , ',.;-'. ' ' ' .. " '::-::I'~" -.-111' , , study of the District', ~ staff; and wod< distribution ror@ landscape maintenance ,prc.snm. FcIlO'Ains this analysis, ic was concluded Chat: • School ficIds IIR ""~ heR,iIy by die commvruty. • PAUSD _ a1fcrd II> mo"""in all fields in • condition COIl'puab!. to City Parb or suitable Cor intmlsc &thletic use. • Thto fi<;1d, infIasIructure is old IIld detaio<aIed IIld needs 10 be replaced. A major ~1aI impro-..ent program is required It' bring the fields back. • Thto boIk of the PAUSO', landscape opcra!ing budget is spent 011 the high schools' facilities. • W11II the complexity of Ihe individual school'. ~UQ!iooaI program. any JIRlPO"O'IIII8inImm:e pat1!IOIShip would be limited 10 elc:=nrary and middle sebooI athletic ficIds ooIy. • Due II> IimiIa!ions of school funding, the ooIy viable alternative for improving sebooI athletic fields is 1hcough • partnership wid! Ihe City. &sed on these coaclusions, staff arWyz<d various approacbes 10 Ibis partnership. • The City provide funding for !he School DisIrict to improve their fields. • Partial, assump1ica of rcsponsmility by the City at the most beavily-used (.OmTDlmity sites. • C<lmplete assumplion of m&inteDallU of adtletic fields at the middle school and e!eu=tary Kbool sites by die City. In coosid<:ring these options. ic was decided that the mosI effective approach would be for the City to assume full main~ of DOlI high school athletic fields 01] I phased basis. This would be occompIisbed ill • parlnetShip with the school district on • fifty-fifty ro5I: sharing basis for bod> mainknarn:e and capital improvements. fiSCAL IMPACT Statr has prepared • five..year transition plan for assuming these sites as foUow.: 1995196 Secure nWnlerlan<:e suppor1, purchase equipment, C<>St and start main~ of two middle schools and one elementary school site, and all school tennis c:oorts effective IanWI!)' 1, 1996. To meet the requirements for providing this new service, it is auIicipated that this woddoad would necessitate the oddition of an equi>'alent of four full-time positions. (M) $372,000 P.,.ZoC4 . f ~ .:, • , '. . 1996197 1997198 Cootinue the same mainlellan« program u ill 1995-96 for !he full ealeodar year Add the remaining elemeutal y schools to the cxlsting malntmmce P"I!I am, and initiate the dcsip of the lint "pita] iIDprowmetrt projects. To meet !he roquimnenIs for providing this additioaaI service, iI is ..uicipalCcl durt this workIoacI WOIIId necessi_the addition of an equivalcm of two t\!ll-time posi1ions. Expand !he mlintenan<e prostiW 10 incJude same lIlAjot' field RllC)wtioD, and implement the first capilli improvement projects. 199912000 CooIinuc!he main~ and field renovation pogtllll, and ad<: !he next "pilll projects. . -~--. . o· . (M)S371,OOO (M) S$76,OOO o H7,OOO (M) $630,000 o $>01,000 (M) 5661,000 o $61S,OOO The phasing of this P08l am is based 00 .vailability of funding. first year funding is included in !he CiIy". 1995-96 proposed budget o:her funding source, z=d to be pursued prier to Ibe \bird year of this program. if addilion&J pbaseo are implemented. In the past. the City CounciJ bu di5cnsscd !he possibility of creating • JIII<Iscape and IightiDg .,ses_ district to SUJlPOI1 pari!: and '-mainteDancc and capital projects. This project may also be an ideal program to be considered for this IypC of funding. If CounciIIJlIl'OVtS of this poame:ship arrangement, in prin<:ipl., SIaff will i""P"R a fonnaI agreement with PAUSD, deI<nnine \be liability aod risk management issues, initiate porcbascs and se<:un: maintellance support, in order to commence maintenance of two middle ",boo! sites and oae elemen!my site e~ve January I, 1996, and begin investigation of aItaDative fimdiIIg sources to pay for the increased costs beginning in \be thirdy ..... ofthisprogram. El'<'VlRONMENIAL ASSESSMENT This is not a ~ u defined by the California Euvironmenud Quality AcI and is net subject 10 CEQA requirements. ", e;-;<',,' "~:""'"_ .('~"" l.·.; ',- • _ .. : c , , ~ --!;.-, .-;; A'ITACDME.."iTS PAUSIliCPA lobi Jands<:ape MainIelWlCe Summaty Report Prepared by: Paul 'l1Ii1ll1eR and Paul Diu Depmnnen!HddR~ I~~ PAUL T&IL TGEN DiRcIor of Ccmmunil)' Services CdR; 202:95 .. -~--;.. .• -,;