REPORT TO COUNCIL
SUBJECT
Title
Action on the Updated Park Master Plan with Preferred Playground Schematic Design for the Warburton Park Playground Rehabilitation Project, and Introduction of an Ordinance to Ensure Compliance with Measure R
Report
COUNCIL PILLARS
Deliver and Enhance High Quality Efficient Services and Infrastructure
Enhance Community Sports, Recreational and Arts Assets
BACKGROUND
Warburton Park & Pool (Park) is located at 2250 Royal Drive, bounded by Los Padres Boulevard to the west and residential properties to the east and south. The 3.95-acre Park was dedicated to the City in 1954 and has an existing master plan (Attachment 1) that contains an open field play area, playground, basketball court, and various park amenities. The pool and restroom building were funded by a 1959 bond measure and dedicated in August 1962. The 2018 Facility Condition Assessment (Kitchell CEM) found the playground and park amenities to be in poor condition, while the pool is in fair condition, and the building is in good condition. The City’s Capital Improvement Program (CIP) includes plans to rehabilitate the playground and park amenities. In FY 2020/21, the Parks & Recreation Department (Department) initiated the Warburton Park Playground Rehabilitation Project as part of the CIP program, with funding for the design phase drawn from Mitigation Fee Act funds.
On February 7, 2023, the City Council approved an agreement with O’Dell Engineering, Inc. (RTC 23-1517, Attachment 2) for engineering services to develop an updated park master plan and playground schematic design in support of the Warburton Park Playground Rehabilitation Project. The services include a consultant-led community input process, site assessment, development of a schematic design, and preparation of cost estimates. The scope of services for community input includes onsite community pop-up meeting(s), online surveys, Parks & Recreation Commission (Commission) and Council meetings.
On July 18, 2023, staff initiated the public input phase of the project at the regular meeting of the Commission. The Commission received a presentation by Westwood Professional Services, Inc. (formerly O’Dell Engineering, Inc., Consultant) on the project scope and timeline to develop the schematic design.
The public engagement process included two community pop-up input sessions: one at the Sunset Cinema event in Warburton Park on July 28, 2023, and one at the City’s Street Dance on August 4, 2023, to collect input from the community on the recreational needs, as well as to explore the playground design priorities. Concurrently, an online survey was made available to residents from July 19 to August 14, 2023, to provide input and feedback. The engagement process included approximately 275 participants/responses in the online survey and 550 responses gathered during the two outdoor events.
The survey results include priorities for site amenities, priorities for playground renovation, and priorities for additional recreation opportunities. The public reported their top five favorite activities at the park are:
1. Walking (58.7%)
2. Playing in the playground (57.6%)
3. Using the pool (53.9%)
4. Picnicking at the park (48.3%)
5. Enjoying nature (48.0%)
The top five preferred amenities for renovation included:
1. Playground rehabilitated with inclusive equipment (67.2%)
2. Updating of site furniture (47.6%)
3. Adding a looped walking path (47.3%)
4. Offering several small picnic areas (35.2%)
5. Nature areas with drought-tolerant landscaping (35.2%)
The top playground elements reported were:
1. Swinging (81.8%)
2. Climbing (81.0%)
3. Sliding (79.3%)
4. Balancing (62.0%)
5. Free play (52.9%)
6. Running (52.9%)
7. Musical equipment (45.0%)
Other key comments included the desire to not have wood or sand as safety surfacing, to provide shade, add more seating, and provide multi-generational activities. A few comments were received regarding off-leash dog areas and pickleball court options. These two elements were deemed unsuitable for this park due to the nearby dog park (Raymond G. Gamma Dog Park), the off-leash dog area at Marsalli Park, and noise concerns due to proximity to adjacent neighborhood homes. However, a pickleball court striping overlay on the basketball courts may be considered in the future to allow casual play for residents.
On February 10, 2025, the Commission received a presentation (Attachment 3) and reviewed the site analysis results, feedback from the community outreach, and design considerations. Two conceptual design options were presented, each designed to incorporate elements identified during community outreach, while meeting the goals of providing a unique and inclusive neighborhood park that welcomes residents of all ages and abilities while supporting Santa Clara’s growing population. The Commission made a recommendation to City Council for Option 2 (Warburton Park Master Plan Update, Attachment 4).
DISCUSSION
The recommended Warburton Park Master Plan Update provides zones for different types of recreation and includes key entry points from Los Padres Blvd, Royal Drive, the pool area, and the parking lot. The plan incorporates park features/amenities identified during the outreach process, with a central plaza area enclosed by seat walls at the intersection of pathways, forming a gateway to the pool area through playground and picnic area(s).
This concept adds the following features and amenities:
• Large shade sails over most of the playground area,
• Looped playground pedestrian pathway,
• Small picnic area pods,
• Preservation of a larger green space,
• Music station,
• Group picnic area with shade canopy,
• Open gardens adjacent to pedestrian pathways,
• Fitness course area for ages 13+, and
• Basketball court increase by ½ court,
The plan prioritizes the preservation of mature, healthy existing trees, while unhealthy and high-risk trees will be removed and replaced. New plantings are included to screen the pool areas and neighboring residential properties, aligning with the overall natural, low-water-use planting concept. Although the pool building, pool area and parking lot are not included in the renovation scope, their use, circulation requirements, and view corridors have been considered in the overall design. Renovation of the pool building, and pool area may be addressed using Measure I Bond funding in a subsequent phase of the project.
The Warburton Park Master Plan Update includes renovated picnic areas, site furniture such as benches, and access to ADA parking and pavement that meets current health and safety codes and best practices for public parks. Safety fencing will be installed along the street edge of the playground. To accommodate both people and pets, a hydration station will be added that features a drinking fountain, water bottle filler and pet bowl. Lighting will be upgraded to LED fixtures and shade will be provided through the addition of trees and canopies. Buffer planting is included along the pool deck edge and the property fencing along the adjacent homes. A looped walking trail is included to address the priority of increasing walking space. The remaining natural turf area is spacious enough to accommodate multi-use activities, such as Sunset Cinema and field games.
Upon Council approval of the Warburton Park Master Plan Update and preferred playground schematic design, the City will undertake Phase II design development work, preparing the playground construction plans and specifications in compliance with the City’s construction standards and the public bid process, and sole source the playground equipment that was approved by the Parks and Recreation Commission. An item for City Council consideration to amend the Consultant’s agreement for Phase II of design development is planned for the May 27, 2025, City Council Agenda.
Measure R Compliance
The recommendation for approval of an update to the Warburton Park Master Plan may be subject to Measure R. In November 2016, voters passed Measure R, which added Section 714.1 Protection of Parkland and Public Open Space to the City Charter. Measure R prohibits selling, leasing, or otherwise disposing of parkland for a period of one hundred eighty (180) days or more, and prohibits its use from changing, being abandoned, or discontinued without such sale, lease, disposal or changed use having first been authorized or ratified by a two-thirds majority vote of the electorate during a general municipal election for that purpose. Measure R also prohibits changes in park use for over 180 days without a majority vote of the electorate and substantial building, construction, reconstruction, or development upon dedicated parkland except pursuant to ordinance subject to referendum. The referendum process is set forth in the Elections Code.
The Warburton Park Master Plan update and the preferred playground schematic design, if approved, will include changes to the existing park that may be considered as “substantial building, construction, reconstruction, or development.” The approval of the proposed site master plan, playground schematic design and subsequent park rehabilitation project will require an ordinance to comply with Measure R that will be recommended for the Council’s consideration to be introduced concurrent with the master plan approval. The proposed project does not include a sale, lease, disposal, or change in use requiring a majority vote of the electorate. Therefore, staff recommends that Council approve the Warburton Park Master Plan Update, with the preferred playground schematic design, and introduce an ordinance (Attachment 5) to ensure compliance with Measure R. The ordinance authorizes the substantial building, construction, reconstruction, and development of Warburton Park per the Warburton Park Master Plan Update. The ordinance will be presented to Council for a second reading and adoption at a future meeting.
ENVIRONMENTAL REVIEW
The action being considered is categorically exempt from the California Environmental Quality Act (“CEQA”) pursuant to the following sections of the CEQA Guidelines:
Section 15302 (Class 2 - Replacement or Reconstruction), in that the project would replace and reconstruct existing facilities on the same site and with substantially the same purpose and capacity as the structure replaced.
Section 1503 (Class 3 - New Construction or Conversion of Small Structures), in that the project will construct limited numbers of new, small facilities or structures and equipment.
Section 15304 (Class 4 - Minor Alterations), and 15304(b) (Class 4(b) - Replacement of Existing Landscaping with Water Efficient Landscaping), in that the project will make minor alterations in the condition of land, water and/or vegetation which do not involve the removal of healthy, mature scenic trees.
FISCAL IMPACT
The City Council approved the outreach and design agreement with Westwood Professional Services, Inc. (formerly O’Dell Engineering, Inc. for Phase I) on February 7, 2023, with a maximum compensation amount of $128,425 (Attachment 6). The Warburton Park Playground Rehabilitation project has a current budget of $1,124,451 in the Parks and Recreation Capital Fund. The cost for Phase II detail design development and construction will be based upon the approved Warburton Park Master Plan Update for the Schematic Design and Project Scope from Phase I. Additional funding will be needed for Phase II and staff will present a recommendation to Council at the time of the construction contract award.
COORDINATION
This report has been coordinated with the Public Works Department, the Finance Department, the City Attorney’s Office, and the City Manager’s Office.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City’s official-notice bulletin board outside City Hall Council Chambers. 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 or at the public information desk at any City of Santa Clara public library.
RECOMMENDATION
Recommendation
1. Determine that the proposed actions are exempt from CEQA pursuant to Section 15301 (Existing Facilities); Section 15303 (New Construction or Conversion of Small Structures); Section 15304 (Minor Alterations to Land); and Section 15304 (Replacement of Existing Landscaping with Water Efficient Landscaping) of Title 14 of California Code of Regulations.
2. Recommend that Council approve the Warburton Park Master Plan Update with preferred playground schematic design.
3. Waive first reading and introduce an ordinance, in compliance with Measure R, authorizing the substantial building, construction, reconstruction and/or development of Warburton Park in accordance with the Warburton Park Master Plan Update.
Staff
Prepared by: Dale Seale, Deputy Parks & Recreation Director
Reviewed by: Damon Sparacino, Director of Parks & Recreation
Approved by: Jovan Grogan, City Manager
ATTACHMENTS
1. Existing Warburton Park Master Plan
2. RTC 23-1517
3. Presentation - Warburton Park Playground Rehabilitation Project
4. Warburton Park Master Plan Update
5. Draft - Measure R Ordinance for Warburton Park
6. O’Dell Engineering - Executed Agreement 2023