REPORT TO COUNCIL
SUBJECT
Title
Feasibility of Entering Into a Joint-Use Agreement with the Santa Clara Unified School District for Open Space Areas at Peterson Middle School (Study Issue)
Report
BACKGROUND
Peterson Middle School is located at 1380 Rosalia Avenue in the City of Sunnyvale and is an active public school operated by the Santa Clara Unified School District (SCUSD). The open space area includes an 8.08 acre multi-purpose, natural grass athletic field with one baseball diamond, a 4.99 acre natural grass football field and track area and a 1.6 acre tennis facility with eight courts (See attachment 1). Another area of the site has been developed into a soccer field and is currently leased to the Sunnyvale Alliance Soccer Club and not open to the public.
Sunnyvale's Raynor Park is adjacent to the property parcel occupied by Peterson Middle School with Dunford Way separating the north end of the park from the southern border of the school parcel which is currently occupied by Full Circle Farm through an agreement with the SCUSD (See attachment 2). The City is in the process of selling the Raynor Activity Center, located immediately adjacent to the park, to a private school. Neighbors and park users are concerned about the anticipated increased use of Raynor Park by the private school and are interested in the possibility of the City entering into a joint-use agreement with the SCUSD for the open space area at Peterson Middle School as one way to provide more recreational opportunities in the neighborhood.
This report was considered by the Parks and Recreation Commission on September 10, 2014.
EXISTING POLICY
General Plan - Land Use and Transportation - Adequate and Balanced Open Space
GOAL LT-8: Provide and maintain adequate and balanced open space and recreation facilities for the benefit of maintaining a healthy community based on community needs and the ability of the city to finance, construct, maintain and operate these facilities now and in the future.
POLICY LT-8.7: Conduct a cost/benefit analysis to determine whether the general community would be well-served during non-school hours by capital improvements to school-owned open space and/or recreational facilities. The cost/benefit analysis should take into account ongoing maintenance costs and responsibilities. When it is determined that the community would be well served by the capital improvement, the city will consider funding a share of the costs of those improvements proportionate to the City's use.
POLICY LT-8.8: Support the acquisition or joint use through agreements with partners of suitable sites to enhance Sunnyvale's open spaces and recreation facilities based on community need and through such strategies as development of easements and right-of-ways for open space use, conversion of sites to open space from developed use of land and landbanking.
POLICY LT-9.3: Encourage school districts to make available school sites in and around Sunnyvale for community open space and recreation programs.
ENVIRONMENTAL REVIEW
N/A
DISCUSSION
SCUSD Interest
On June 14, 1994 the City entered into a 25 year joint-use agreement with the SCUSD for the maintenance, improvement and use of open space areas adjacent to Braly and Ponderosa Elementary Schools that are located in Sunnyvale. That agreement is scheduled to expire on June 30, 2020. The basic terms of the agreement called for the City to improve and maintain 4.0 acres of open space at Braly School and 4.0 acres of open space at Ponderosa School and receive exclusive use of those areas during non-school hours and special acquisition rights.
The City has been communicating regularly with the SCUSD since Council approved the study issue. They have consistently expressed a general openness to discussing the possibility of a joint-use agreement but are currently not ready to make a decision because they are embarking on a strategic planning process. A school bond for capital improvements is planned for the ballot in November 2014. At this time they have not determined the specific scope of work for potential bond projects at Peterson. SCUSD has indicated that part of its strategic planning process will consider whether to re-open Patrick Henry Elementary School which is adjacent to Peterson. Re-opening an elementary school on the campus could change how existing open space areas are used so the District wants to complete its evaluation of academic needs for the campus before considering a joint use agreement with the City. Under these circumstances staff was unable to complete a comprehensive analysis of alternatives for a potential joint-use agreement. For Council's benefit staff is providing a cursory review and summary of issues related to the site.
Public Access
The open space areas at the Peterson Middle School site are not locked and can be accessed from a gate off Dunford Way that leads to the track field, an alley way off of Teal Drive and also off of Rosalia Avenue via a school parking lot (See Attachment 1). Although there are signs in multiple areas stating that access is restricted and all visitors must register in the office, they are not routinely enforced. Members of the public have been observed using different areas of the open space at all times and days of the week. There is also a sign in a par course type area with exercise equipment that states the community is welcome to use the area.
Current Conditions and Improvement Needs
The conditions of the various open space and recreation facilities range from fair to unusable. All of the facilities are in need of some level of capital improvement, up to and including complete replacement to make the facilities comparable to other school joint use areas maintained by the City. Pictures of the following areas can be seen in Attachment 3. General conditions in each area are:
· Track Field- The athletic field inside the track is in fair condition and requires some repair including modification or replacement of the irrigation system, some grading work and renovation of the grass. A limited number of gophers have created tunnels and holes presenting a potential trip/fall hazard that also needs to be abated. The track is made of decomposed granite fines and is level and usable. This area appears to receive regular but limited maintenance.
· Multi-purpose sports field- This area is in poor condition and is currently unusable for any type of recreational use and needs to be completely redone. There is a severe infestation of gophers and a very uneven grade with numerous holes caused by a lack of irrigation, collapsed tunnels, expansive clay soil and dearth of healthy grass. It appears that this area receives no or very little regular maintenance.
· Tennis Courts- The courts are in fair condition but they need to have all cracks repaired and the entire area resurfaced. Courts appear to receive limited regular maintenance.
Open Space Need
Open space need was last analyzed in the Open Space and Recreation Sub-Element of the General Plan in 2006 and as part of the Parks of the Future Plan in 2008. Based on distance to open space from residences and park acreage per capita in a neighborhood, both documents determined that the Raynor Park neighborhood was not under-served regarding parks and recreation facilities in general and joint use of Peterson Middle School open space was specifically identified as being a low priority. On a community-wide basis the level of service or acres per capita of open space has fluctuated due to the addition and subtraction of open space and population growth. It is currently estimated that the level of service for Sunnyvale is 5.5 acres per 1,000 residents. The City is required to maintain a minimum of 5 acres per 1,000 residents to meet the requirement of parkland dedication fees charged for the development of subdivisions and rental housing projects.
Public Response
Surveys completed by those attending public meetings indicated that 80% used Peterson Middle School open space for recreation and 60% felt the City should enter into a joint-use agreement for the possible use, maintenance and improvement. Surveys completed online showed that 56.2% used the open space at the site and 92.3% felt the City should enter into a joint-use agreement. Respondents shared a variety of additional comments including concern for parking, traffic and noise currently and related to any future development or use.
Board and Commission Review
The Parks and Recreation Commission considered this item on September 10, 2014 (RTC14-0699). Commissioners voted 4-0 to recommend Alternative 1: Direct staff to stay in communication with the SCUSD and discuss the possibility of a joint-use agreement for the open space at Peterson Middle School at the initiation of the District.
The Parks and Recreation Commission discussed their support for creating an open space agreement. They agreed that the city has successful models for joint-use agreements for open space and desired to secure additional open space for public use.
Concern over the current condition of the open space and the need to make improvements to ensure the safe use of the facilities by the community was expressed
FISCAL IMPACT
Fiscal impacts are unknown at this time. Cost for renovations would vary significantly depending on the scope of renovation work and the level of District participation. Improvements could range from a modest renovation of the track field to make it usable for local sports teams to a complete renovation of the open space areas including restrooms, concession stands and children's play areas. If the SCUSD completes its strategic planning efforts and remains open to discuss a possible joint-use agreement then a landscape architect would need to be hired at an appropriate point in the negotiations to determine scope and cost of work for improvements and maintenance. Consulting costs are estimated to be approximately $50,000.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City's official-notice bulletin board outside City Hall, at the Sunnyvale Senior Center, Community Center and Department of Public Safety; and by making the agenda and report available at the Sunnyvale Public Library, the Office of the City Clerk and on the City's website.
Community input meetings were held on Thursday, June 19, 2014 and Saturday, June 21, 2014 in the recreation building at Raynor Park. All residents residing within 1,000 feet of the Peterson Middle School property line received a mailed notification and all stakeholder groups including youth sports groups, neighborhood associations and the Friends of Parks & Recreation received e-mail notification. A total of 37 people attended the meetings at which a presentation on the study issue was given, public input was received and attendees completed a short survey. The same survey was provided to the community online through the City's web page and 252 surveys were completed (See attachment 4). SCUSD representatives attended the public input meeting on June 19, 2014.
This report was considered by the Parks and Recreation Commission on September 10, 2014.
ALTERNATIVES
1. Direct staff to stay in communication with the SCUSD and discuss the possibility of a joint-use agreement for the open space at Peterson Middle School at the initiation of the District.
2. Other direction as council deems appropriate.
BOARD/COMMISSION AND STAFF RECOMMENDATION
Recommendation
Alternative 1: Direct staff to stay in communication with the SCUSD and discuss the possibility of a joint-use agreement for the open space at Peterson Middle School.
As evidenced by the public survey, Sunnyvale residents and the general community is interested in the current and future use of the open space at Peterson Middle School and the possibility of the City entering into a joint-use agreement with the SCUSD for the maintenance, improvement and use of that open space. However, the SCUSD is currently not in a position to discuss a possible joint-use agreement until they have completed their strategic planning process.
The Parks and Recreation Commission voted unanimously to recommend Alternative 1. The Commission agreed that the City has successful models for joint-use agreements for open space and desired to secure additional open space for public use.
Staff
Prepared by: Scott Morton, Superintendent of Parks and Golf
Reviewed by: Manuel Pineda, Director, Public Works
Reviewed by: Lisa Rosenblum, Director, Library & Community Services
Reviewed by: Robert A. Walker, Assistant City Manager
Approved by: Deanna J. Santana, City Manager
ATTACHMENTS
1. Site map of Peterson Middle School.
2. Area map of Peterson Middle School.
3. Site pictures of open space areas and recreational facilities.
4. Online survey results.
5. Excerpt of the September 10, 2014 draft meeting minutes of the Parks and Recreation Commission.