REPORT TO COUNCIL
SUBJECT
Title
Consideration of the Schematic Design-Master Plan for the New Public Neighborhood Park proposed to be located at 1205 Coleman Avenue (Gateway Crossings Hunter Storm & Holland Partner Group Residential Project)
Report
COUNCIL PILLAR
Enhance Community Sports, Recreational and Arts Assets
BACKGROUND
On July 9, 2019, the Santa Clara City Council approved the Hunter Storm Gateway Crossings mixed-use development located at 1205 Coleman Avenue (Project). The Project encompasses approximately 21.4 acres and is bounded by Brokaw Road to the north, Coleman Avenue to the east, a parking lot and undeveloped land to the south, and a storage area and railroad tracks to the west. Most of the Project site is in the City of Santa Clara and is part of a larger 244-acre Santa Clara Station Focus Area in the City’s General Plan. The Santa Clara Station Focus Area will serve as a gateway into the City with office, hotel, retail, and high-density residential uses that maximizes the use of existing and planned transit and provides for improved pedestrian, bicycle, and transit connections.
The Project is approved to construct 1,565 apartment units and will meet its parkland dedication requirements through a 2.01-acre public neighborhood park (Phase I) and a 0.53 acre (22,972 sf) mini park (Phase II), as well as private on-site recreational amenities, and payment of City Mitigation Fee Act fees due in-lieu of parkland dedication in compliance with City Code 17.35. Both public parks will be designed and constructed by the developer and dedicated to the City in fee title and will be maintained by the developer after dedication for the life of the project per the Development Agreement.
Initial Park Schematic Design Review & Approval
In 2019, an initial schematic design for the two-acre public neighborhood park parcel was developed by The Guzzardo Partnership, Inc., landscape architects (Attachment 1). The schematic design proposed: a natural grass play field, an enclosed off-leash dog area, play apparatus for children ages 2-5 and 6-12, benches, basketball court, fitness area, family picnic area with tables and BBQs, pathways, trees, and landscaping. The park design was reviewed by the Parks & Recreation Department as part of the City’s project application and review process. The proposed schematic design met the Parks & Recreation Department’s public park design requirements: an inclusive, age-friendly, sustainable design; playgrounds for ages 2-5 and 6-12, that contain all developmentally appropriate elements of play; provision of safe routes to and through the park and connectivity to adjacent uses with public access from public right of way; off street parking; an adjacent restroom; place-making & art features; natural habitat value; use of an approved plant palette; support of a diverse/active recreation program for the immediate neighborhood needs; and, addresses efficient operation and lifecycle maintenance considerations.
On October 15, 2019, the Parks & Recreation Commission reviewed the developer’s entitled park elements and schematic design. The design was found to be in conformance with the Development Agreement section 4.12, the Landscape sheets L1.1 and L1.2, and Project Conditions of Approval PR1-PR7 and met the Department’s park design criteria. The Commission recommended Council approval of the proposed schematic design as presented without a basketball court.
On January 15, 2021, Council deferred the Commission recommendation to allow for further community outreach and input on the schematic design of the Neighborhood Park. The new project developer for Phase I of the mixed-use development, Holland Partner Group, hired Petersen Studio to conduct additional community outreach and to develop a new schematic design while addressing the existing project entitlements, site constraints, and City park design standards.
Additional Community Input
On July 7, 2021, Holland Partner Group and Petersen Studio held a community meeting via a remote meeting platform. The meeting was advertised on the City website, through communication channels, and public notices were sent to Old Quad, interested parties, and to identified properties within 1,000 feet of the project location. There were over 30 attendees and panelists. The meeting included a presentation (Attachment 2) and opportunities for questions and clarification. On July 20, 2021 the developer made a presentation to the Parks & Recreation Commission (Attachment 3) and received public comment.
A community input survey was posted on the City website from July 8, 2021 through August 4, 2021, with a link to the Community Meeting presentation. The survey had 362 visitors with 280 responses which accounts for 14 hours of public comment. The Project team also attended the August 21, 2021 “Celebrate Santa Clara” special event in Central Park recording over 250 additional community contacts. The design team printed the survey questions and images on boards, and community members were asked to add a sticker on their preferred response. The pattern of responses on the survey boards was similar to the on-line survey responses.
Respondents favored the following: increasing the shade at the edges of the park (44%) and integrating active park elements with the lawn (38%); utilizing natural features for the play areas such as rocks, hills and logs (64%); and including interactive art element to engage visitors (62%). The responses were more diffuse on the type of garden planting to be included in the park design, with slightly more respondents favoring rain gardens/stormwater infiltration areas (28%), and an herb garden at dining/BBQ areas (28%). Overall, respondents favored an “informal” park design (53%). Demographically, the online survey indicated that respondents were 37% aged 35-49, and 51% were aged 50 and older, while 54% of respondents reported being in the 95050 ZIP code area.
On November 16, 2021, the Holland Partner Group provided the Parks & Recreation Commission with a presentation (Attachment 4) summarizing the community feedback received to date and requested additional public input on two Park Program Diagrams that integrated the community feedback for the Neighborhood Park. The Commission had the opportunity to ask questions, receive public comments, and provide input.
On April 19, 2022, the Parks & Recreation Commission received a presentation (Attachment 5) by Petersen Studio with the proposed schematic design master plan. A notification about the meeting was sent to stakeholders by email on April 14 and 15, 2022. The City was informed that there was inadequate communication to all stakeholders and those who had requested notification did not receive it. In an effort to allow for more outreach and additional time for public review of the proposed schematic design, the Commission tabled the item for consideration on May 17, 2022.
DISCUSSION
On May 17, 2022, the Parks & Recreation Commission received a presentation by Petersen Studio of the proposed schematic design master plan (Attachment 6). Ahead of the meeting, multiple communications were sent to various stakeholders and those opting in to receive notification regarding the park project. During the meeting, the public comments and questions summarized below were addressed:
1. Off Leash Dog Area. The off-leash dog area seems to be in a prominent location in the park. Can the off-leash dog area be moved to another location or phase of development? Doesn’t the location obstruct the connection between the future transit oriented linear park and the main neighborhood park? Could the Gateway Crossing neighborhood just use the Raymond G. Gamma Dog Park at Reed and Lafayette? One resident liked the integration of the off-leash dog area into the park.
o There will be a significant demand for an Off-Leash Dog Area at the Gateway Crossings Neighborhood Park based on approximately 1,500 residential units within a 2-minute walk of the park. Holland Partner Group (project developer) noted that approximately 40% of their typical residents are pet owners and over half tend to own dogs. This yields an estimated 300 dogs in the immediate neighborhood and translates into a few hundred visits to the Off-Leash Dog Area each day.
o An off-leash dog area is necessary to provide the new neighborhood residents a pet relief area. It is the experience of the developer, designer and Parks & Recreation Department that in dense residential neighborhood settings, if a well-defined and designed off leash dog area is not provided, then the entire park maybe used for this purpose which may create additional conflicts in use and difficulty in enforcement of leash and clean up requirements.
o The Off-Leash Dog Area is appropriately located and sized (perhaps slightly undersized) for this anticipated resident dog population. The schematic design addresses the visual concerns by providing a sufficiently thick planting/hedge area to buffer the adjacent park uses and taller trees for shade and corner prominence. Concerns regarding smell is ameliorated by using synthetic turf, and incorporating an irrigation/sanitary flushing system.
o All program elements at Gateway Crossings Neighborhood Park are designed and scaled to accommodate the recreational needs of the surrounding (future) neighborhood and designed considering prior community input and research based best practices, including the off-leash dog area.
§ The Community Input Summary presented on November 16, 2021 at the Parks & Recreation Commission Meeting demonstrates clear community demand for an Off-Leash Dog Area at the Neighborhood Park: “Dog Walking and Play” was the 3rd highest Community Priority for Activities to be integrated into the park.
§ While some neighborhood residents may enjoy long walks with their dogs, most community dog owners drive to the Raymond G. Gamma Dog Park and/or the Larry Marsalli Park Off Leash Dog Area). It is unrealistic to assume that Gateway Crossings residents will walk their dogs to a remote Dog Park a mile away (2-mile round trip walk) on a daily basis. Furthermore, there is no direct, easily navigable route to the Raymond G. Gamma Dog Park, which is located on the opposite side of the De La Cruz Boulevard-Coleman Avenue interchange from Gateway Crossings.
§ It is typical for neighborhood parks in high-density residential areas to integrate off-leash dog areas.
§ If a dedicated off-leash dog area is not provided in the park, the entire park and surrounding streetscapes will likely be used for pet relief and pet exercise, which will undermine the character and quality of the park experience for all park users and create significant maintenance impacts.
§ Regarding location and design, several park uses are incompatible with off-leash dogs such as outdoor dining (Tavern on the Green) the play area, and natural grass event lawn. Providing a separate dedicated fenced off-leash dog area is a best practice for minimizing park use conflicts and dog-related maintenance issues, as well as supporting the other park uses.
§ Pet ownership increased substantially during the pandemic with nearly 1 in 5 households nationwide adopting a pet during this period according to the American Society for the Prevention of Cruelty to Animals (ASPCA) https:www.washingtonpost.com/business/2022/01/07/covid-dogs-return-to-work/).
o The park design integrates strong circulation and programmatic connections to the Linear Park in two ways. First, a significant plaza has been integrated at the southeast corner of the park to serve as an activity stepping-stone that draws Linear Park activity into the Neighborhood Park. Second, a primary park path extends the Linear Park Promenade directly through the center of the park as a winding desire line that links all major park activities directly to the Linear Park Promenade. The Southeast Plaza is one of four large corner plazas at the intersection of Wondo Way and Chastain Avenue. The abundant programmable hardscape of these four corner plazas is complemented by the garden threshold surrounding the dog area, and by the activity of the dog area itself. The dog area will likely be one of the most active park areas and become another activity stepping stone linking the Linear Park to the Neighborhood Park. Locating this activity near the corner will help animate the 4-corner plazas and surrounding streetscapes. The dog area and surrounding garden threshold also provide a buffer between the Linear Park Promenade, which will have a more active urban character, and the more quiet and relaxing character of the Neighborhood Park.
§ The off-leash dog area has been designed and positioned to integrate with the overall park design and experiences.
§ The location maximizes separation from the outdoor dining at the future Tavern on the Green and from the environmental play area - to prevent park use conflicts. Any other location within the park would bring the off-leash dog area closer to these conflicting uses.
§ A garden buffer encloses all edges of the off-leash dog area - physically containing the dog activity while allowing for some visibility of the dog activity from surrounding streetscapes, the adjacent Southeast Plaza, and the central lawn.
§ Artificial turf surfacing allows for frequent washdown of surface to manage potential odor issues.
§ Fenced enclosure with double gate “airlock” prevents dogs from freely running throughout the park.
§ Access is provided from the perimeter of the park so dog owners can use the Dog Area without passing through the center of the park or utilizing interior park paths, thereby minimizing potential park use conflicts.
2. Are additional safety features integrated into the Rickabaugh Way mid-block crossing to provide park patrons safe convenient access to the park-serving restroom located in Building 1 (north of Rickabaugh Way)?
o The Rickabaugh Way mid-block crossing could receive significant pedestrian activity. The Project Design Team includes a Civil Engineer who will review the comment and integrate appropriate pedestrian safety enhancements at this crossing.
3. Sightlines from the grass lawn into the Picnic Pavilion could be improved by shifting or removing 2 trees. Clear sightlines are important when the Pavilion is used for community events, such as outdoor movies.
o The Picnic Pavilion and adjacent picnic lawn are explicitly designed to accommodate community activities and events. The Design Team will review sightlines in the 3D model and adjust trees as needed to preserve clear sightlines from key audience seating areas on the adjacent Picnic Lawn.
4. Several community members stated that they were pleased with the number of trees integrated into the park for shade, aesthetics, and mitigation of heat island effects.
o The Petersen Design Presentation emphasized the importance of tree shading to the park character and uses, and the concept of the park-wide grove of trees was derived from prior community input.
5. Will there be a drinking fountain with a bottle filler in the park?
o Yes, there will be an accessible drinking fountain in the park near the Picnic Pavilion and environmental play area. There will be a second drinking fountain with a dog bowl in the Off-Leash Dog Area. Both will be selected in Design Development Phase and approved by Parks & Recreation in conformance with ADA and City design standards and specifications for parks, which do include a bottle filler option.
6. Will recycled water be used to irrigate the park?
o Recycled water will be used for all park landscape irrigation, creating a high degree of water sustainability. Potable water use in the park will be limited to the drinking fountains and cleaning/sanitizing if needed.
7. Two comments were received related to the potential chemicals (PFAS) in the resilient safety surfacing at the Play Area and/or artificial turf at the Off-Leash Dog Area.
o The design team has reviewed the concern and will continue to follow research-based best practices in the identification and selection of appropriate park surfacing materials. Given that the Play Area and the Off-Leash Dog Area are high use/high traffic areas and have specific impact attenuation, ADA compliance, lifecycle wear and sanitation requirements, synthetic turf is an appropriate application. The other surfacing types such as sand, grass or natural fibar do not meet the use requirements and conditions of these two areas. All materials and products must meet the Federal Consumer Product Safety Commission guidelines as well as other health and safety codes. The City will continue to review synthetic turf-related research and product manufacturing concerns.
8. The Walking Loop is a wonderful way to activate the entire perimeter of the park.
o The Petersen Design Team noted that the Walking Loop will integrate social and recreational nodes and engage all park program areas. The walking loop was community priority.
9. The park design should anticipate Phase 2 buildout including significant additional retail as well as the future Tavern on the Green.
o The park has been programmed and designed in anticipation of the full buildout of the neighborhood, including the future Tavern on the Green. The primary purpose is to address the neighborhood residents’ public park needs. While the Tavern and other retail and commercial activities are located on private parcels adjacent to or across a street from the neighborhood park, private commercial activities are incidental to the primary purpose of the public neighborhood park program, uses, and schematic design.
10. Several community members conveyed their satisfaction with the extensive community input process, and significant progress that had been made over the past year; the park design clearly reflects the extensive community feedback.
o Speakers were thanked for their participation in the process.
After public comment and discussion, the Commission recommended that Council approve the proposed (new) Schematic Design-Master Plan for the New Public Neighborhood Park to be located at 1205 Coleman Avenue (Gateway Crossings Project) with the additional condition that additional safety and accessibility considerations be implemented for the crosswalk between the Park and the Restroom on Rickabaugh Way.
On June 21, 2022, Council will consider the Parks & Recreation Commission’s recommendation made on May 17, 2022. As noted above, on January 15, 2021, Council deferred action on the previous Parks & Recreation Commission recommendation and directed staff to allow for further community outreach and input on the schematic design of the Neighborhood Park, particularly from the City’s Old Quad area. The new schematic design as recommended by the Parks & Recreation Commission has included extensive additional public outreach, participation, and input. Overall, the recommended neighborhood park schematic design is supported by the community and staff. As designed, the new neighborhood public park will meet the needs of the new residents in the immediate neighborhood and reduce potential impacts on the City parks system. In addition, the previously approved private on-site recreational amenities complement the public park program.
ENVIRONMENTAL REVIEW
The action being considered does not constitute a “project” within the meaning of the California Environmental Quality Act (“CEQA”) pursuant to CEQA Guidelines section 15378(b)(5) in that it is a governmental organizational or administrative activity that will not result in direct or indirect changes in the environment. The activity covered by this residential development project is consistent with the FEIR that the City certified on December 4, 2018 (after January 1, 1980).
FISCAL IMPACT
There is no fiscal impact to the General Fund for the current action. The developer will develop the alternative design to City standards, construct the public park improvements to Code, and maintain the park in perpetuity, at no cost to the City.
COORDINATION
This report has been coordinated with the City Attorney’s Office and Finance Department.
PUBLIC CONTACT
Community outreach and input in 2021 included three (3) community meetings, one (1) community online survey with 362 visitors and 280 responses and one (1) community event at Celebrate Santa Clara in Central Park where feedback was received from an additional 250 members of the public. In 2022, there were two public reviews by the Parks & Recreation Commission with citywide notice and specific notice to persons opting in to receive a notification.
Public contact was made by posting the Council agenda on the City’s official-notice bulletin board outside City Hall Council Chambers. In addition, lists were compiled from previous public meetings, and requests and email and enotify were sent regarding the upcoming commission meeting(s). A complete agenda packet is available on the City’s website and in the City Clerk’s Office at least 72 hours prior to a Regular Meeting and 24 hours prior to a Special Meeting. A hard copy of any agenda report may be requested by contacting the City Clerk’s Office at (408) 615-2220, email clerk@santaclaraca.gov <mailto:clerk@santaclaraca.gov> or at the public information desk at any City of Santa Clara public library.
RECOMMENDATION
Recommendation
That Council approve the proposed Schematic Design-Master Plan for the New Public Neighborhood Park to be located at 1205 Coleman Avenue (Gateway Crossings Project) inclusive of added cross walk safety measures on Rickabaugh Way.
Staff
Reviewed by: James Teixeira, Director of Parks & Recreation
Approved by: Rajeev Batra, City Manager
ATTACHMENTS
1. Neighborhood Park Schematic Design October 15, 2019
2. Community Presentation July 7, 2021
3. Commission Presentation July 20, 2021
4. Schematic Design Presentation for November 16, 2021
5. 1205 Coleman Avenue Neighborhood Park - Schematic Design Update (05-17-22)