Consideration of Majority and Minority Recommendations Presented by the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions (Presented at 2/1/06 Parks & Recreation Commission meeting)

Recommendation:

It is recommended that the Parks and Recreation Commission consider the Majority and Minority Recommendations from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions and develop a recommendation(s) to forward to the City Council.

Fiscal Implications:

The estimated cost to install, maintain and water natural turf and synthetic turf at Highlands Park Athletic Field, Heather School Athletic Field, Tierra Linda Middle School Lower Athletic Field and a new 5.3 acre site is noted below.

Synthetic Turf Site	Acquisition & Installation	10 Year Maintenance	10 Year Water Use
Highlands	$1,693,886	$40,000	2,773,123 gallons
Heather	1,308,840	40,000	977,553
Tierra Linda	1,375,848	40,000	928,675
New 5.3 Acre Site	10,731,443	40,000	2,317,924

* Water is available on synthetic turf for any needed cleaning

Natural Turf Site	Acquisition & Installation	10 Year Maintenance	10 Year Water Use
**Highlands Soil Base	$1,802,165	$616,570	33,236,802 gallons
Highlands Sand Base	866,213	616,570	55,462,450
Heather	818,010	582,290	19,551,060
Tierra Linda	913,891	553,740	18,873,500
New 5.3 Acre Site	9,653,543	1,380,320	46,345,880

** 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.Natural turf can continue indefinitely assuming continuing participation reductions & restricted use and current maintenance practices including six week closure periods.

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

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.

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 and one of them is owned by the County. 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, a sports complex would likely necessitate assembling multiple parcels which typically increases the total purchase price.

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.

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.

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. In addition, any ground contamination issues (either soil or water) would need to be resolved.

Lastly, Ms. Snideman also discussed 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 $1-3M/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.

Selling the Chilton or Crestview Drive properties for residential development could be a net loss for the City.The average cost to provide municipal services to residential units is $1.16 for every $1.00 of revenue received.Many neighbors do not want to see these sites sold but left as open space or developed as parkland.

Staff believes funding may be possible in the near future for installation of synthetic turf on one field.This might include a combination of General Fund maintenance savings, Measure G funds, support from user groups, grants and donations.Individual athletic field user groups previously volunteered to donate money.They see this as a better investment than the $5,423 AYSO Soccer paid to use Carlmont High School field in 2004.An approved project is needed to secure grants, donations and other sources of outside funding.Collaboration with the San Carlos School District could provide expanded opportunities for grant funding and/or community bond measure support.This collaboration could also allow for an expanded use of resources, such as grant writing expertise of School District professionals.

Background:

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.The need to be more active is recognized in San Carlos and across the nation.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.

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 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 yearsSan Carlos currently has approximately 7,500 users in organized 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.

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 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.”

Athletic field time allocation reductions have been necessitated in recent years to maintain safe, playable fields. Each sports organization was requested 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 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.Finally, the San Carlos Youth Softball Association (SCYSA) 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.

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 field (lower) were the top priority. After discussion with Highlands Park neighbors the Stadium field proposal was withdrawn.Heather School field was then selected as the additional field to convert to synthetic turf and also to add ball field lights.A meeting was a then conducted with Heather School neighbors.Extensive effort was made to communicate with all interested parties throughout the process.Strong disagreement as to the best approach to solve the shortage of athletic field space occurred.

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 also requested the cost to replace existing natural turf and sand based soil with new natural turf and soil (not sand based) at Highlands’s field.This information is noted above.

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 Parks and Recreation Commission at their meeting of October 6, 2004 reviewed and recommended approval of the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions (Fields Committee) structure and committee objectives.The City Council, at the meeting on Monday, December 13th, 2004 approved formation of the Fields Committee.Applications for the Citizens Advisory 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 to the committee.City staff served in a non-voting technical advisory role.The committee diligently worked on this project from March 24th to November 17, 2005.Numerous speakers and an extensive amount of data were considered in their deliberations.

The Fields Committee on April 21, 2005 unanimously agreed that there is a substantial unmet request 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 is 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.

Staff Comments

The City owns, maintains and schedules Highlands Park athletic fields.The City maintains and schedules Heather School athletic field through a 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 maintenance and athletics staff.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.It is not used to full capacity due to the structural weakness of the field.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.Staff is conscious of the concern about increased evening use, increases in time the field might be used and attendant noise and traffic.We would include this in our planning and distribution of field time

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 would contribute even more additional play time with ball field lights.

If Tierra Linda were to be renovated first, the problems and associated costs with Highlands and Heather fields still need to be resolved.These fields will need attention and or renovation in the near future to maximize those resources.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.This would require a JPA with the School District, probably providing the City with the effect of ownership to justify the large expense and attract grants.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.

Staff fully supports, as recommended in the Majority and the Minority reports, a continued search for property to acquire and develop for additional athletic fields.Staff does not support the sale of Chilton or Crestview Drive properties.

Alternatives:

The alternatives available to the Parks and Recreation Commission include:

1. Recommend approval of Majority Recommendation from the Citizens Advisory Committee for Evaluation of Athletic Field Use Needs and Possible Solutions; or

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

3. Recommend approval of synthetic turf for Highlands Park Athletic Field, synthetic turf for Heather School Athletic Field and synthetic turf for Tierra Linda Lower Athletic Field, as per the Field Committee’s recommendation; no sale of Chilton or Crestview Drive properties; direct staff to return with a short range financing proposal for Highlands Park Athletic Field and long range financing ideas for Heather School Athletic Field and Tierra Linda Lower Athletic Field; and continued search for property to acquire and develop for additional athletic fields.This alternative would only involve changing the surface of existing athletic fields.This is the alternative staff recommends; or

4. Recommend that no further action is advisable at this time to address the shortage of athletic field space.If the City chooses to not take action, then continuing participation reductions and restricted use will be needed.In order to protect the City’s investment in athletic fields and maintain safe playing surfaces, the City will need to enforce strict use limits on natural turf fields.Protecting the City’s investment in athletic field resources may require the addition of a part-time position to monitor field use, check permits and enforce policies; or

5. Recommend alternative direction

Respectfully submitted,

Barry E. Weiss

Director

Attachments:

1. 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. Meeting Minutes - Parks & Recreation Commission Meeting of February 1, 2006