(1) Water made available on synthetic turf for any needed cleaning

(2) Environmental impact / mitigation costs unknown and not included

Natural Turf Site	Acquisition & Installation	10 Year Maintenance	Total	10 Year Water Use	Addn'l Teams Served
**Highlands Soil Base (3)	$1,802,165	$616,570	$2,418,735	33,236,802 gallons	0
Highlands Sand Base	866,213	616,570	1,482,783	55,462,450	0
Heather	818,010	582,290	1,400,300	19,551,060	0
Tierra Linda	913,891	553,740	1,467,631	18,873,500	0
New 5.3 Acre Site	9,653,543	1,380,320	11,033,863	46,345,880	2,314

(3) The cost to replace Highlands sand based field with a soil based field is estimated at $1,802,165 due to the high cost of exporting and importing soil.

Synthetic turf replacement cost is approximately $3.75 per square foot. This is lower than initial installation costs because only the surface is replaced not the substructure.Calculations are based on a 10 year life span for synthetic turf although it is anticipated synthetic turf fields may last longer than 10 years.

Synthetic Turf Replacement	Cost
New 5.3 acre site	784,080
Highlands	$560,546
Heather	330,765
Tierra Linda	314,546

Natural turf can continue for an extended period of time assuming continued participation reductions & restricted use and current maintenance practices including six week closure periods.The reason that San Carlos has needed to periodically reconstruct, and in some cases, completely replace our current natural grass Athletic Playing Fields in the past is that they have been used at a rate of 200% or higher of normal play usage.It is unrealistic to expect that a natural grass field will be able to continue to withstand this level of play without restrictions and reductions of play.That is how we have kept current fields, like Highlands Park, operational in recent years.Further restrictions and reductions are envisioned in the future if we do not pursue a new direction.

Renovation of natural turf is included in annual maintenance costs.Replacement would occur if a field fails at costs noted above. Normal repairs, if any, on a synthetic turf field are not costly. Worn or damaged spots can be cut out and replaced with a piece of turf left over from construction having been placed on a roof top to always match the color of the field.Significant vandalism on natural or synthetic turf could be costly to repair.

Sports Complex Land Acquisition and Development

According to Laura Snideman, City of San Carlos Economic Development & Housing Director, there are several challenges to developing a sports complex on industrially-zoned land. The first is land availability. A four-acre parcel is approximately equal in size to the Allied Waste transfer station. Including the transfer station, there are only four sites in all of eastern San Carlos that are between 4 and 4.6 acres. Larger sites are relatively rare in San Carlos (most are smaller) and are available infrequently.

From approximately mid-2004 to mid-2005, a total of 10 commercial properties were sold, none of which approached this size. Therefore, obtaining the land needed for a sports complex would likely necessitate assembling multiple parcels which typically increases the total purchase price and might require the use of the City’s Eminent Domain authority if some of the needed properties were not obtainable through a voluntary purchase.

Secondly, there could be a number of land use changes required to obtain the entitlements for a sports complex. The General Plan, Eastside Specific Plan, and certain zoning regulations could all require changes. All three documents govern uses in the area and, with a few minor zoning exceptions along Industrial Road and east of Highway 101, none currently accommodate a sports complex.Staff would also note that the business and property owners in the East Side of San Carlos have historically opposed proposals to convert land zoned for business uses to entertainment and recreational uses.We believe a proposal to place an athletic field complex in this part of San Carlos would receive a similar response.

There are also economic development considerations should there be a significant land use change. Changing the land use to athletic fields eliminates the property tax and potentially eliminates sales tax, depending on the particular site. The area east of Old County road generates over 70% of the City’s sales tax and reducing the potential amount creates concern about the ability to continue paying for City services.In light of the City’s current General Fund deficit and the Council’s policy of pursuing Economic Development opportunities in this area of San Carlos, converting revenue producing sites to a field use may be challenging from a policy perspective.

Next are environmental considerations. An initial environmental assessment would determine whether or not a full Environmental Impact Report (EIR) would be required depending on the specific site and project scope. However, it is highly likely a full EIR would be necessary. Typically full EIR’s cost in the tens of thousands of dollars. These unknown dollar amounts were not factored into the estimated costs on page one.In addition, any ground contamination issues (either soil or water) would need to be resolved.

Land Costs and Chilton / Crestview Drive Properties

Ms. Snideman also provided information on the cost of land. During the recent economic downturn, residential land was more valuable than industrial land, possibly two to three times as valuable. However, as the economy becomes stronger and interest rates rise, land values are starting to equalize between the two uses, running approximately $1 to $3 Million per acre for either use depending on a number of factors.

Regarding the Chilton and Crestview Drive properties, they are currently designated as open space. There are significant questions about whether or not these properties could be developed for housing should they be sold and additional research is required.

In addition, neighborhood concerns and impacts are also a significant issue with a change in land use within this area. Should town homes similar to the existing ones on the adjacent property be allowed on the Crestview property, the Crestview property could be particularly valuable. However, professional appraisals would be required to clearly determine if selling the Chilton and/or Crestview properties would realize sufficient funds to purchase land, conduct an EIR, build new facilities, and/or maintain a new sports complex in the industrial area.

Background:

History of the Problem

Participation, accessibility and health and wellness are important to the San Carlos community. Children in California spend about 44 hours a week on recreational media use according to a Kaiser Family Foundation study released in March 2005.The average child in San Carlos spends approximately 5-6 hours a week on an athletic field for each team they are on.Adults typically spend even less time.More than $26 Billion is spent annually in California to address disease and health problems caused by overweight and obesity.Current health reports and statistics document that health problems are on the rise in our young people and with adults, due to increased sedentary activities and poor nutrition. The need to be more active is recognized in San Carlos and across the nation.

A shortage of athletic field space for community use has been a significant, long time problem. In the 1980’s sports user groups led a community effort and convinced the City to acquire part of the old San Carlos High School property for athletic fields.The user groups then contributed significant amounts of money, time and sweat equity in repairing and improving the fields at what is now Highlands Park until the City assumed maintenance of the fields. Soccer, baseball and softball organizations throughout the years have dedicated significant time and resources to improve, among others, Highlands, Stadium, Heather, Central Middle School and Tierra Linda Middle School Athletic Fields.

All fields and parks in San Carlos are heavily used.The need for additional play time on the City's athletic fields has significantly increased over the years San Carlos currently has approximately 7,500 users in organized field sports activities. This figure does not include special events, drop-in activities or casual use of the fields. The biggest demand for athletic field time is in youth sports participation with approximately 6,000 users in San Carlos today.Incremental housing units continue to be added in San Carlos.This produces an ever increasing strain on athletic fields.

The Mahady Report

The City Council recognized the athletic fields overuse problem and the need to protect the substantial monetary investment in athletic fields.Mark M. Mahady & Associates, Inc. was commissioned to analyze and provide field use and agronomic guidance to the City.The Field Use and Agronomic Specifications Report (Mahady Report) was received and accepted by the City Council in October 2001.

The report says that the usage of the City of San Carlos athletic fields in 2001 “represents 2.1 times as many hours as would be recommended to maintain a cool season grass sports field in good and safe condition.Based on the conservative data estimates presented in the 2001 Field Request Summary, the City of San Carlos would require approximately 31.2 acres of sports fields (20 sports fields measuring 1.5 acres), or approximately twice the 14.85 acres available today in order to reduce the number of factored hours to the recommended 425 hours per field.”

The report detailed four recommended solutions to our field condition problems:

1. Improve wear tolerance on existing sport fields by converting some of our natural grass surfaces to a synthetic surface.

2. Determine creative ways to expand and acquire new acreage for sports fields (roof top conversions, converting existing parking areas, partnering with schools.)

3. Protect our investment in our existing natural surface fields. This was to be accomplished by purchase of proper equipment, hiring part-time help to do routine tasks that free professional staff to concentrate on maintenance, rotating fields out of service for maintenance during the correct time of year, and installing fencing to insure that unauthorized use of fields when they are closed for inclement weather or for maintenance did not occur.

4. Limit program growth (only if absolutely necessary and if implementation of the first three recommendations could not be achieved).

Of the four recommendations, the Park and Recreation Department has implemented hiring a part-time employee to pick up trash and clean restrooms which frees up time for the professional staff to concentrate on maintenance. We have purchased the recommended equipment, used soil analysis to determine the nutritional requirements of our fields, and have worked with user groups to rotate fields out of service in the correct times of year to achieve optimum results. We review new buildings and projects and look for possibilities of acquiring field space. Even with these efforts, staff cannot keep pace with the demands placed upon our natural grass fields. The community has more field space needs than we can provide for at this time.

Athletic Field Use Reductions

Athletic field time allocation reductions have been necessitated in recent years to maintain safe, playable fields. Each sports organization was asked to reduce practice time on natural turf by 25% in 2002.No net increase in permitted athletic field use has been allowed since 2002. Additional reductions were implemented at the Highlands Park lower athletic field in Fall 2004.

Permitted hours at Highlands field for soccer were reduced from 1,634 to 965 and baseball from 1,372 to 853.Usage of the field at the 2003 level would damage the integrity of the field resulting in unsafe conditions or even failure of the field.Highlands Park lower athletic field was in danger of failing in Fall 2003 – Winter 2004.For the first time, we had to close down the field an additional 13 weeks, in addition to the six week summer maintenance period.This unbudgeted action was needed to make the field safe to play for the upcoming Little League, Pony-Colt and Adult Softball programs.

This means the field was open only 64% of that year to permitted as well as casual users.We have since reduced usage by up to 60% for soccer practice times to maintain a safe and playable field.Finally, the San Carlos Youth Softball Association (SCYSA) girls softball program notified us in 2004 that, unlike previous years, they need to increase their current use of City fields in addition to their space at Tierra Linda Middle School due to program growth.This need continues today and is expanding.

City Council and Parks & Recreation Commission Actions To Date

$1,180,000 was approved by City Council, in the FY 2003-2004 Fund 27 Capital Improvement Program (CIP) Unfunded List, for synthetic turf and athletic field lights.The City Council directed staff to pursue the idea of synthetic turf at their February 11, 2004 City Council Budget Study Session in order to achieve maintenance savings.The budget work program was developed reflective of this direction.

The Parks and Recreation Commission also recognized this ongoing problem.On January 5, 1994 the Commission adopted a Field Use Policy to help address this issue and has updated it over the years.At their regular meeting of April 7, 2004, the Parks and Recreation Commission voted 3-2 to recommend installation of synthetic turf with ball field lighting at Heather School Athletic Field.They recommended further study of Highlands for synthetic turf at their May 5 meeting. Specifically they were interested in the cost to replace the existing turf and sand based soil with new natural grass and soil (not sand base) and funding.This information is noted above.

Community Outreach

User groups, neighborhood groups and staff have discussed potential solutions for the past three years.Based on recommendations from the Mahady Report, staff met with user group representatives in 2003 to discuss the possibility of converting one or more fields to synthetic turf.This group determined that Highlands Park “Stadium” field (upper) and Highlands Park lower athletic field were the top priority. A meeting was conducted with Highlands Park neighbors on the evening of September 25, 2003 at Highlands Park.After discussion with the neighbors, staff withdrew the Stadium field proposal.Heather School field was then selected as an additional field to convert to synthetic turf and also to add ball field lights.A meeting was then conducted with Heather School neighbors on the evening of March 4, 2004 at Heather Elementary School.

Extensive effort has been made to communicate with all interested parties throughout the process.As of March 23, 2006 the following communications have been disseminated:

• 11,357 hard copy communications mailed
• E-mails notifications exceed 12,052
• Hundreds of phone calls, individual discussions and email responses

Fields Committee

Strong feelings in favor of and in opposition to the proposal to convert Highlands and Heather fields to synthetic turf and to add ball field lights at Heather continued. The City Council, to ensure the issue was properly vetted, directed that a broad based advisory committee be developed that included representation from residents throughout the City.

The City Council, at the meeting on Monday, December 13th, 2004 approved formation of the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions (Fields Committee) structure and committee objectives.Applications for the Fields Committee were solicited from a broad cross section of the community with representation from park neighbors, school representatives, sports user groups and members at large.The City Council interviewed applicants and made appointments of 28 community members to the committee.City staff served in a non-voting technical advisory role.The committee diligently worked on this project for nine months from March 24th to November 17, 2005.Numerous speakers and an extensive amount of data were considered in their deliberations.All information was thoroughly reviewed and discussed.The information received and accepted by the committee was provided to the City Council in a Fields Committee binder the beginning of March 2006.

The Fields Committee on April 21, 2005 unanimously agreed that there are substantial unmet requests for additional athletic field use in San Carlos.The committee on November 17th finalized their recommendations to go forward to City Council. By a majority vote of 16 – 6 (73%) the committee voted to recommend, in priority order:

1. Conversion of the lower Highlands Park athletic field to synthetic turf.This field already has ball field lights. The upper “Stadium” Field is to remain as is at this time.
2. Conversion of the Heather School athletic field to synthetic turf, with no ball field lights.
3. Conversion of the lower Tierra Linda Middle School athletic field to synthetic turf, with no ball field lights.

At the same time, the committee recommended a continued search for property to purchase and develop as a sports complex. Project funding was recommended to come from Measure G funds for park improvements, the sale of the Chilton Property and sale of the 4-acre vacant Crestview Drive property across the street from Vista Park.

A minority recommendation is also being presented. It recommends conversion of the field at Tierra Linda to synthetic turf and acquisition and development of a new sports field.A new sports field is the top priority in the Minority Recommendation.Converting Tierra Linda to synthetic turf is a short term priority to meet immediate needs.

After hearing the Fields Committee, Minority and staff recommendations, the Parks and Recreation Commission at their regular meeting of February 1, 2006 recommended installing synthetic turf with ball field lights at Tierra Linda Middle School lower athletic field with synthetic turf and no lights at Heather School athletic field as the backup location if an agreement for use of Tierra Linda cannot be reached between the City and School District.The Commission also recommended beginning the process to obtain more land adjacent to Central and Laureola or another site in San Carlos to have another field.The Commission expressed no interest in selling Chilton or Crestview Drive properties feeling the land is too valuable a resource to give up.

Comments from Commissioners included concern about a potential burden on the neighbors at Highlands Park.Concern was expressed about putting City funds into Tierra Linda since we cannot maximize usage there with existing community and middle school athletics use.Tierra Linda was mentioned as a preferred option because of the poor condition of the field, available parking, less traffic issues and service to the student body.It was felt whatever field was chosen would need lights to maximize the return on investment.Questions about where to put a sports complex and concerns over the cost and feasibility were raised.It was felt this should be pursued but a short term solution was also needed.

Parks and Recreation Director Barry Weiss stated he could not support the Commission’s recommendation of Tierra Linda as the short term solution.He felt it puts the City at financial risk with funds not available for the badly needed renovations to Highlands Park lower and Heather School athletic fields.

Staff Comments:

Working With The Community

Staff has continued to work for the community wide benefit that best serves all involved.Compromise is necessary in these situations.

• The original proposal included installing synthetic turf and ball field lights at the upper “Stadium” athletic field in Highlands Park.
  • This was withdrawn by staff after listening to neighbors concerns.
• Heather was originally proposed to have ball field lighting included with the synthetic turf.
  • The Fields Committee, Parks and Recreation Commission and staff are not recommending lights.
• The Fields Committee recommended selling Chilton and Crestview Drive properties.
  • Neither the Parks and Recreation Commission nor staff supports this action, feeling the land is too valuable a resource to give up.
  • Sports representatives have contacted a key Chilton representative to say they do not advocate sale of either property.

Staff is aware of neighbors concerns about increased usage and attendant noise and traffic and would include this in our planning and distribution of field time.There are ways to mitigate traffic and noise.The sports groups and staff, as well as the Parks and Recreation Commission, have a history of successfully working to mitigate traffic issues at Laureola and Highlands Parks.The sports groups during the current discussions developed a suggested 13 point program to mitigate traffic and parking issues and submitted it to the Highlands Park neighbors for review.Mitigating decreased participation on our athletic fields is also needed.

Highlands Park Lower Athletic Field as Staff’s Recommended 1^st Priority

The City owns, maintains and schedules Highlands Park athletic fields.The City maintains and schedules Heather School athletic field through a 5 year Joint Powers Agreement (JPA) with the San Carlos School District.The City has no involvement with Tierra Linda Middle School athletic fields.

Conversion of the lower Highlands Park field to synthetic turf is the first priority for Parks and Recreation staff.This action only changes the surface of the existing field.It is the largest and only full size, fully lighted field in San Carlos. It provides the most flexibility serving youth of all ages and adults.The size of the field and existing ball field lighting allows us to serve older youth and adults that most fields do not. It is not used to full capacity due to the structural weakness of the field.This option provides the largest increase in additional time of the existing site options noted on page one.It also has the largest amount of parking spots of any park with 95 in two parking lots and 43 street parking spots across the street from houses, for a total of 138 parking spots.The upper “Stadium” field and area with picnic tables would remain natural grass.

If Highlands lower field were to be converted to synthetic turf and Heather become unusable, Highlands could potentially accommodate a large portion of the usage.If Highlands were to fail, Heather could not support adult softball, Pony baseball or overflow Little League and soccer activity without lights and a full size field.To live without Heather would make things difficult, but not impossible, until it was restored.To be without Highlands would severely cripple most of our community programs.

Heather School Athletic Field as Staff’s Recommended 2nd Priority

Conversion of the Heather School Athletic Field to synthetic turf would be the second priority for staff due to its condition, large size and 109 parking spots available.Heather School athletic field continues to suffer from structural problems of poor drainage and irrigation, inherited when the City assumed maintenance of the field. Gophers pose an on-going maintenance dilemma and safety concern. This results in the field often becoming a quagmire preventing its use.This field may need to be closed in a year or two due to deteriorated condition.

While Heather would contribute even more additional play time with ball field lights staff can support the Fields Committee recommendation for no lights at this time.Should Heather be converted to synthetic turf an additional backstop would be added to help us serve the Girls Softball program that has outgrown the Tierra Linda facility.As noted on the chart in the Fiscal Implications section converting Heather to synthetic, without lights, provides the second most amount of increased capability after Highlands.

Potential problems with using Measure G funds on a school site are noted above.This would, at a minimum, require an agreement with the School District, providing the City with the effect of ownership which would allow the capital funds invested to be fully amortized.Also, as previously noted, this is a contested point and could lead to litigation should the City wish to use Measure G funds on a school field.Measure G funds can be used for Highlands Park lower athletic field improvements with no restrictions.To live without Heather would make things difficult, but not impossible, until it was restored.

Staff Does Not Recommend Renovation of Tierra Linda Fields As A Priority

If Tierra Linda were to be renovated first it could put the City at financial risk.The problems and associated costs with Highlands and Heather fields would still need to be resolved.These fields need attention and or renovation in the near future.Additional staff resources for maintenance and scheduling, in addition to the capital expense, would be required if the City were to develop, maintain and schedule the Tierra Linda field.

Since the installation figures were developed for the Fields Committee an increased cost has come to staff’s attention.Tierra Linda staff recently informed Parks and Recreation staff that rain causes considerable runoff down to the Tierra Linda lower field which would require additional expenditure to address.These costs are not known at this time and were not included in the estimates on page one.The Measure G obstacles noted above apply also to Tierra Linda as it is currently neither City owned, maintained or operated (Heather School Fields are City maintained and scheduled at this time through an agreement with the School District).

The Tierra Linda field is already blocked for school use from 3:00 – 5:00 p.m., September to June. This is the peak time for serving younger children.Although school teams are not always active during these times, an expansion in school use is a reasonable expectation. Girls softball and youth soccer already use the field much of the remaining spring, summer and fall times with only December, January and part of February relatively unscheduled.Without lights there is little time left to schedule.Additionally, Tierra Linda would not provide a needed full size soccer field to maximize the investment unless a portion of the asphalt were used, which the school has indicated they do not support.

Parking is a big concern for the Girls softball program at Tierra Linda.They do not use their small field for games any more stating they cannot absorb the traffic those games would produce.The intersection at Club Drive and Dartmouth Avenue continues to be a major traffic problem.

The search for property to purchase and develop for additional athletic fields is a long process with many obstacles and considerable expense.This is a worthy long term goal to pursue.As the first priority it delays solving the problem we experience today and have for many years.It should also be noted that acquiring the amount of land discussed could possibly never happen.

Staff Does Not Recommend The Sale of the Chilton and Crestview Properties

The sale of Chilton and Crestview Drive properties as recommended by the Citizens Athletic Fields Committee would remove open space/parkland from the City’s inventory.Significant community opposition to the proposed sale of this property has been noted.Additionally, legal constraints may restrict or prohibit sale of these sites.

Staff Recommendations

·1^st Priority – Development of a proposal, including funding and subject to full CEQA review and compliance as applicable, for City Council consideration for conversion of the City owned Highlands Park lower athletic field to synthetic turf.To be without Highlands would severely cripple most of our community programs.To live without Heather would make things difficult, but not impossible, until it was restored.

·2^nd Priority – Begin discussions with the school district to negotiate a long term lease with the effect of ownership and to negotiate a financial contribution by the school district for conversion of the Heather School Athletic Field to synthetic turf, with no ball field lights.

·A continued search for property to purchase and develop for additional athletic fields.

Alternatives:

The alternatives available to the City Council include:

1. Direct staff to develop a proposal, including funding and subject to full CEQA review and compliance as applicable, for City Council consideration reflective of the recommendations from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions; or

2. Direct staff to develop a proposal, including funding and subject to full CEQA review and compliance as applicable, for City Council consideration reflective of the Minority recommendations from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions; or

3. Direct staff to develop a proposal, including funding and subject to full CEQA review and compliance as applicable, for City Council consideration reflective of the Parks and Recreation Commission’s recommendations; or

4. Direct staff to develop a proposal, including funding and subject to full CEQA review and compliance as applicable, for City Council consideration reflective of staff recommendations; or

5. Take no action at this time.

6. Provide staff with alternative direction

Respectfully submitted,

Barry E. Weiss

Director

Approved for submission by:

Mark Weiss, City Manager

Attachments:

1. Fields Committee Majority Recommendation from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions.

2. Minority Recommendation from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions.

3. Letter from City Attorney Lanzone regarding Use of Measure G funds for Proposed Athletic Fields.

4. Determination of Athletic Fields Use Needs; Need for CEQA Compliance.