REPORT TO PARKS AND RECREATION COMMISSION
SUBJECT
Title
Review and Recommendation of the Parks and Recreation Master Plan to the City Council for Adoption
Report
EXECUTIVE SUMMARY
In September 2023, City Council authorized an agreement with Wallace Roberts & Todd, LLC (WRT) to prepare a comprehensive Citywide Parks & Recreation Master Plan (Plan). The Plan is intended to guide the acquisition, development, operations, maintenance, and funding decisions of the City’s parks, recreation facilities, open space, and programming over the next 15-20 years. The final draft of the Plan (Attachment 1) and the accompanying presentation (Attachment 2) are now complete and are presented to the Parks & Recreation Commission for review and recommendation to the City Council for adoption.
BACKGROUND
The City of Santa Clara operates and maintains a comprehensive parks and recreation system that includes approximately 308 acres of parkland, five community centers, nine reservable park buildings, nine swimming pools, and number of sports fields, joint-use facilities, natural areas, as well as three regional trail corridors. Many of the City’s parks and facilities were developed decades ago. Several major facilities are more than 50 years old, and aging infrastructure has resulted in increasing repair, modernization, and lifecycle replacement needs.
To address these issues, in September 2013, the City Council adopted a goal to enhance community sports and recreational assets. However, the City did not have a comprehensive understanding of the system-wide parks and recreation needs and deficiencies.
In April 2017, the City hired Kitchell CEM to perform a Facility Condition Assessment Report (Kitchell Report) across 47 parks and 65 buildings. The report identified significant immediate and long-term capital repair needs with a 20-year life-cycle forecast. Following the report, operational safety repairs and replacements were performed, and capital improvement projects were submitted for consideration. However, funding constraints and the lack of a system-wide parks and recreation master plan created barriers to achieving Council goals and mitigating deficiencies outlined in the Kitchell Report.
The Kitchell Report, which identified specific infrastructure and lifecycle needs across the parks and recreation system, is now nine years old and considered outdated. Santa Clara continues to experience sustained population growth, increased diversity, higher-density housing development, and an aging community, all of which amplify the need for strategic program and facility investments to keep pace with these evolving community needs. Additionally, the City faces increasing demand for sports fields, aquatics facilities, fitness activities, walking loops and trail connectivity, and flexible recreation spaces; all with a continued emphasis on environmental sustainability.
Recognizing the issues and increase in demand, in September 2023, the City Council authorized an agreement with WRT to develop a comprehensive Parks & Recreation Master Plan to guide acquisition, development, operation, maintenance, and funding decisions for the next 15 to 20 years. The intent was to create an inclusive, data-driven roadmap that would:
• Establish updated park acreage level of service standards
• Evaluate park access and distribution across neighborhoods
• Assess facility capacity and condition
• Identify recreation programming gaps
• Develop policy guidance and capital improvement project strategies
• Align with the City’s General Plan, Climate Action Plan, Pedestrian and Bicycle Master Plans, and other adopted City policies
DISCUSSION
The Plan was developed over a two-year period through extensive community engagement, demographic and recreation trend analysis, and comprehensive assessments of the City’s parks and facilities. It presents a long-term vision for the City’s network of parks, recreation, and open spaces, shaped by identified community priorities and system needs. The Plan serves as a tool for setting priorities, directing funding resources, and providing a strategic framework for future initiatives. Implementation of this vision will occur incrementally over a 10- to 20-year planning horizon through a three-phase action plan, capital improvement budgeting, and ongoing operational planning.
The following provides a brief summary of the final draft of the Parks & Recreation Master Plan, including an overview of the planning and community engagement process, community and recreation trends, the parks and recreation system-wide assessment, the Plan’s goals, objectives and recommendations, and the three-phase action plan along with recommended funding sources.
Planning and Community Engagement Process
The planning effort launched in fall 2023 and included demographic analysis, asset inventory and assessments, recreation trend review, and coordination with related City planning efforts. Extensive community engagement was conducted throughout the process, including:
• Five pop-up events at the Concert in the Park, Art & Wine Festival, Northside Library, Pruneridge Shopping Center, and the Parade of Champions
• The involvement of focus groups such as Sports and Athletics, Community Organizations, Senior Advocates, Planning and Development, and Specialized Users
• Three surveys, with one being statistically valid
• A workshop with approximately 800 participants
Overall, more than 1,800 community members responded to the community engagement process. A key component of this outreach was a statistically valid community survey, which provided measurable data on resident priorities and satisfaction levels.
Community Engagement and Survey Findings
The statistically valid survey was conducted in 2024, with 342 households participating. The results indicated that:
• 92% of households reported visiting a park or facility within the past year, which is much higher than the national average of 81%.
• 51% of respondents were very satisfied or satisfied with the value of parks and recreation programs, activities, and events (compared to the national average of 62%), while 18% were dissatisfied or very dissatisfied (compared to 3% nationally).
• 9% of participants responded “excellent” when asked to rate the condition of parks and recreation facilities and amenities, far below the national benchmark of 35%.
• 89% of respondents support general repair and increased maintenance as a strategy to improve the existing parks and recreation system.
Key themes that emerged through community engagement included:
• High importance placed on safe, clean, and well-maintained parks
• Strong demand for additional indoor recreation space, including gymnasiums and indoor courts
• Interest in expanded and modernized aquatics facilities
• Desire for additional shade, seating, restrooms, and walking loops in existing parks
• Support for expanded fitness, outdoor recreation, and swim programming
• Interest in improved trail connectivity and safe pedestrian access to parks
The survey also highlighted areas where satisfaction did not match importance, particularly in indoor recreation capacity, aquatics modernization, and certain park amenities. The Plan’s recommendations are structured to address these identified gaps.
Community and National Recreation Trends
To plan for the future of Santa Clara’s parks, recreation, and open spaces, it’s important to understand the community’s needs relative to local and national recreation trends.
Santa Clara Community
Santa Clara’s population was estimated at 133,597 in 2023, having grown steadily over recent decades. By 2038, the population is projected to reach 154,569. In addition, the 55+ population grew from 19% to 24% of the population between 2010 and 2023. The City had a median age of 34.3 years old which is slightly younger than the U.S. median age of 38.5 years. Between 2010 and 2023, Santa Clara became significantly more diverse, with the Asian population emerging as the largest racial group at 49%. By 2038, this segment is projected to make up 58% of the community, while the White population is expected to decline to 16%.
National Recreation Trends
Recreation trends provide valuable insight into how the City residents recreate, and how our needs and interests may shift over time. Some activities have experienced large change, growth or decline in popularity, while others have remained relatively steady. For example, walking remains the most popular national recreation activity with 114,759,000 participants in 2022 but only experienced growth of 3.6%. As of 2023, participation in tennis, golf, and pickleball increased significantly nationwide, more than 25% in a five-year period. Swimming remained the leading aquatic activity in overall participation. Among fitness activities, trail running experienced the most substantial growth, increasing by nearly 50% over five years.
Parks & Recreation System Assessment
In addition to the analysis on the community and recreation trends, a comprehensive assessment of the parks and recreation system was conducted. Each park was evaluated in the spring of 2024 using a standardized scoring system measuring access and connectivity, condition, functionality, and safety. Trails, indoor recreation facilities, aquatics assets, sports fields, and programming capacity were also reviewed to assess how well the system meets current and projected community needs. The findings identified strengths as well as systemwide gaps, including aging infrastructure, limited indoor capacity, and connectivity deficiencies.
Goals, Objectives, and Recommendations
Building on the community engagement process, demographic and recreation trend analysis, and comprehensive system assessment, the Plan identifies goals and corresponding recommendations to guide the future of Santa Clara’s parks and recreation system in the following sections.
Goals and Objectives
Seven goals were developed to guide the future of the parks and recreation system:
1. Parkland: expand and improve parkland to ensure parks are inclusive, safe, accessible, and responsive to community needs; establishing a vision for a new park in North Santa Clara.
2. Indoor recreation facilities: provide adequate indoor recreation facilities to meet current and future demand.
3. Aquatic facilities: improve functionality of aquatic facilities to meet community demand and increase accessibility.
4. Paths and trails: create paths and trails to enhance connectivity to existing parks, open spaces, and recreation facilities, while supporting recreational walking opportunities.
5. Open space and conservation: integrate environmental resiliency into park design and operations through climate-ready landscaping and sustainable practices.
6. Maintenance and aging structure: maintain parks and recreation facilities by implementing capital improvement and replacement programs, best management practices, safety and accessibility standards, and adequate staffing and funding.
7. Program and events: expand and diversify programs and events to serve all ages and address unmet community needs.
Recommendations
The following recommendations outline actions to implement the established goals:
1. Parkland Level of Service and Access
The Plan evaluates whether current park acreage remains sufficient given projected population growth. As of 2025, Santa Clara provides approximately 2.3 acres of parkland per 1,000 residents. The Plan recommends increasing the target to 3.0 acres per 1,000 residents, consistent with the City’s General Plan framework.
Based on growth projections, the City would require approximately 156.2 additional acres by 2035 to meet the recommended standard. Planned projects are anticipated to provide 70.2 acres, leaving an estimated 86-acre shortfall.
In addition to acreage, the Plan evaluates walkable access. Several neighborhoods lack park amenities within a 10-minute walk. Recommended strategies to address access gaps include:
• Development of new parks in underserved areas
• Integration of park space into future development
• Strengthened joint-use partnerships with school districts, which collectively represent approximately 152 acres of potential shared recreational space
2. Park Quality and Amenity Improvements
Community feedback emphasized that park quality is as important as park quantity. Residents identified the need for comfort and modernization improvements, including completing park walking loops, increasing shade and seating, modernizing playgrounds and restrooms, improving lighting and wayfinding, and repurposing underutilized areas to meet current recreation demand.
3. Indoor Recreation Facilities
The Plan identifies indoor recreation as one of the most significant system gaps. Santa Clara currently provides approximately 0.67 square feet of indoor recreation space per resident, slightly below national benchmarks. Survey responses and outreach consistently ranked indoor facilities, including gymnasiums and indoor courts as high priorities.
Recommendations include modernizing existing facilities, evaluating expansion of indoor recreation capacity, and considering development of new multipurpose indoor facilities, particularly in North Santa Clara.
4. Aquatics
Aquatics services remain highly valued. However, existing facilities are aging and unevenly distributed, concentrated in southern Santa Clara with limited access in northern neighborhoods. The Plan recommends development of a long-term aquatics strategy that addresses modernization, improved geographic balance, and long-term sustainability.
Community feedback supports expanded access to swim lessons, water fitness, and family-oriented aquatic amenities.
5. Trails and Connectivity
The Plan highlights the importance of strengthening the City’s multiuse trail network to enhance connectivity between neighborhoods and parks, support recreational walking and biking, and improve safe access to amenities.
6. Recreation Programming Needs
The Plan emphasizes strengthening recreation programming to ensure offerings remain inclusive, relevant, and responsive to community needs.
Recommendations focus on increasing participation across all geographic areas, expanding high-demand programs while reducing low-interest offerings, and implementing evaluation tools to improve program quality and performance. The Plan also calls for refining program scheduling based on community feedback, enhancing marketing efforts, and formalizing partnership policies to maximize resources and community impact.
7. Maintenance, Operations, and Sustainable Delivery
The planning process underscored the need to align expansion with sustainable operations. Recommendations include:
• Implementing improved asset management systems
• Establishing lifecycle replacement planning
• Enhancing maintenance standards
• Ensuring adequate staffing levels
• Identifying sustainable funding sources to support long-term operations
These operational strategies are intended to prevent and/or limit future deferred maintenance and protect capital investments.
Action Plan and Funding Sources
The Plan’s recommendations are intended to be implemented strategically and incrementally, accounting for existing staffing levels and limited financial resources. The following sections summarize the phased action plan and the funding resources necessary to support long-term implementation.
Action Plan
The Plan structures its recommendations into three implementation phases: short-term (1-5 years), mid-term (6-10 years), long term (11+ years). The estimated total capital costs for full implementation range from $618 million to $850 million, with additional annual operating costs estimated between $4 million to $7 million. These planning-level costs are broken out across the phases as summarized below.
|
Cost Type |
1-5 Years |
6-10 Years |
11+ Years |
Grand Total |
|
Est. Capital Cost |
$185M-260M |
$248M-327M |
$185M-263M |
$618M-850M |
|
Est. Annual Operational Cost |
$0.7M-1.2M |
$1.2M-2.0M |
$2.2M-4.1M |
$4.1M-7.3M |
|
Total per Phase |
$186M-261M |
$249M-329M |
$187M-267M |
$622M-857M |
Totals are rounded to the nearest million.
The planning-level cost estimates are distributed across the following major categories:
|
Recommendation |
Capital Cost |
Operational Cost |
|
Improve Existing Parks |
$43M-63M |
Varies |
|
Provide New Parks |
$359M-499M |
$2M-4M |
|
Enhance Existing Indoor Facilities |
$63M-85M |
Varies |
|
Provide New Indoor Facilities |
$89M-107M |
$1.6M-2.3M |
|
Sustainable Aquatic Facilities |
$25M-46M |
Varies |
|
Connected Trail System |
$39M-50M |
$0.03M-0.05M |
|
Habitat & Conservation |
Aggregated in “Improve Existing Parks” |
Varies |
|
Tree Canopy |
$0.2M-0.4M |
Varies |
|
Sustainable Funding |
|
$0.02M-0.03M |
|
Improved Maintenance Practices |
$0.05M-0.08M |
$0.4M-0.6M |
|
New Programs & Events to Meet Needs |
|
$0.08M-0.2M |
|
Ensure Existing Programs Meet Needs |
|
$0.06M-0.1M |
|
Total |
$618M-850M |
$4M-7M |
Totals are rounded to the nearest million.
To support expanded facilities and service levels, approximately two-thirds of the projected $4 million to $7 million in Operational Cost is attributable to additional staffing, equivalent to estimated 32 to 55 full-time positions over time. These positions would likely include maintenance staff, recreation program staff, aquatics personnel, administrative support, and potentially capital project oversight, depending on the scope and phasing of implementation.
It is important to note that these cost estimates and staffing projections represent full build-out scenarios. Adoption of the Plan would not commit the City to immediate funding of these amounts. Implementation would occur incrementally, subject to future City Council direction, identification of funding sources, prioritization through the capital improvement planning, and annual budget approval processes.
Funding Sources
Meeting the capital needs of the Master Plan will require a layered funding approach that leverages federal, state, regional, and local resources. Many of these sources are used today; others may be explored in the years ahead. Some opportunities include:
• Ad valorem taxes on real property
• Dedicating portions of sales tax, hotel/motel, or restaurant taxes for parks and recreation.
• Improvement Districts or Community Facilities Districts (Mello-Roos) may fund capital and maintenance in growth areas.
• Parkland Dedication and Impact Fees (Quimby Act and Mitigation Fee Act) which are local development-based funding source requiring land dedication or in-lieu fees.
• Grants such as Land and Water Conservation Fund, California Natural Resources Agency Urban Greening Grants, Santa Clara Valley Open Space Authority Urban Grant Program, etc.
• User fees, including recreation service fees, ticket sales/ administration, special use permits, public facility reservations, equipment rental.
• External partnerships, donations, and volunteer support.
Additionally, in November 2024, Santa Clara residents voted to approve $400 million of Measure I General Obligation Bond, which allocates approximately $115 million for parks, recreation, and library improvements. This bond allows the City to make needed
maintenance and lifecycle replacement improvements, and it is a confirmation of residents’ belief in the value of parks and recreation.
ENVIRONMENTAL REVIEW
The development of a Parks Master Plan is an implementing action of Policy 5.1.1-P23 the 2010-2035 General Plan. The City Council certified the Environmental Impact Report for the 2010-35 General Plan on November 16, 2010 (Resolution 10-7797). As the proposed action falls within the scope of the Project analyzed by the General Plan EIR, no additional environmental review is necessary. When individual park development projects are brought forward in the future, any necessary additional environmental review will be conducted at that time.
FISCAL IMPACT
There is no direct fiscal impact associated with the Commission’s review of the Parks & Recreation Master Plan. The Plan will serve as a long-range policy and decision-making framework to guide the City in park acquisition, capital improvements, facility modernization, program delivery, maintenance standards, and funding approaches. The Plan does not authorize specific capital improvement projects or appropriate funding. Rather, it establishes strategic direction and service standards to inform future City Council actions, capital improvement planning, and annual budget decisions.
The Plan includes planning-level capital and operational cost estimates for long-term financial planning and prioritization. Full implementation of all recommendations will require cumulative capital investment ranging from approximately $618 million to $850 million over a 10- to 20-year horizon. Of this amount, approximately $194 million to $258 million is attributable to the acquisition of additional parkland needed to achieve the City’s park acreage level-of-service goal. Additional annual operations and maintenance costs are estimated at approximately $4 million to $7 million. Approximately two-thirds of this cost is associated with the additional staffing needed to support expanded or improved facilities, services, and programs which equates to an estimated 32 to 55 additional full-time positions.
Implementation of the Master Plan will require a layered funding strategy that leverages federal, state, regional, and local resources, including development impact fees, grants, user fees, special districts, partnerships, and other revenue mechanisms. In addition, the Measure I General Obligation Bond allocates approximately $115 million for parks, recreation, and library improvements. While Measure I provides a significant investment toward maintenance and capital improvements, full implementation of the Master Plan will require continued prioritization and identification of additional funding sources over time.
COORDINATION
This report was coordinated with the Finance Department, City Attorney’s Office, and Public Works Department.
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
It is recommended that the Parks & Recreation Commission review the Parks & Recreation Master Plan and the accompanying presentation, provide comments on the Plan, and adopt a resolution recommending that the City Council approve the Plan.
Staff
Prepared by: Thuy Pham, Management Analyst, Parks & Recreation
Reviewed by: Damon Sparacino, Director of Parks & Recreation
Approved by: Jovan Grogan, City Manager
ATTACHMENTS
1. Parks & Recreation Master Plan Draft December 2025
2. Master Plan Presentation March 2026