To: Honorable Mayor and Members of City Council
From: Breyana Brandt, Parks and Recreation Services Director
Prepared By: Breyana Brandt, Parks and Recreation Services Director and Ali Koenig, Management Analyst II
TITLE:
Title
Conceptual Parks Projects Discussion
LABEL
RECOMMENDED ACTION:
Recommendation
Receive a report on multiple conceptual park projects for future consideration and provide direction to staff.
Body
DISCUSSION:
The City of Napa has received interest from a variety of stakeholders regarding park projects either proposed as an upgrade for a specific park or as a new use within the City’s parks system. The objective of the Conceptual Parks Project Discussion is to provide City Councilmembers and the public with preliminary research of the anticipated processes, resource allocations and the estimated budgets related to each of these projects for further consideration.
• Amphitheater at Kennedy Park
• Sports Fields at South Jefferson
• Spray Ground (“Splash Pad”)
• Dog Park(s)
• Cradle Basket at Oxbow Commons
Current Work Plan Background:
The Department’s current workplan was developed to align with the Council’s infrastructure priority and approved as part of the operating budget and Capital Improvement Program which serves as the official mechanism to organize and prioritize capital projects for all City departments. Resource and staffing commitments from the Public Works Department, the City’s Five-Year CIP Program, and available funding and staffing resources were taken into consideration.
The FY2023-2025 workplan addresses high priority replacement of various park infrastructure identified as “failed” or “poor” through the 2023 Parks Conditions Assessment <https://www.cityofnapa.org/DocumentCenter/View/12033/Park-Infrastructure-Program-2023>. Department resources potentially allocated to new initiatives would have an impact upon the existing work plan and would potentially delay or stall current projects scheduled for City parks. The Department is currently managing over $4.2 million in park capital projects to be completed over the next 15 months as part of the current budget cycle.
Budgeted and Scheduled Park Projects (FY2023-2025)
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Project(s) Description |
Multiple Projects to replace aging Park Infrastructure: - Playground Replacements and Retrofits at (7) parks - Park Amenity Replacements - Park Pathway and Parking Lot Repair/Replacement at Lake and Klamath Parks - Las Flores Community Center Renovation - Alston Park Restroom - Sports Court Replacements - Main Street Boat Dock Repairs - Senior Center Parking Lot & Pathways Repair/Replacement |
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Park Locations |
Neighborhood Parks and Community Parks |
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Allocated Budget |
$4.2 million |
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Previous Planning Efforts |
2023 Parks Conditions Assessment and Social Equity Planning |
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Anticipated Planning Steps |
All projects are active and in various stages of implementation. |
Future Conceptual Projects for Discussion:
Given that the future projects being discussed are conceptual in nature and not currently budgeted or scheduled projects, the depth of the information provided is based upon preliminary research and intended to facilitate a discussion focused on the overall order of magnitude and community impact related to each project. Provided for discussion purposes, the following outlines anticipated processes, resources, and budget for each conceptual park project:
Amphitheater at John F. Kennedy Park
The Parks and Recreation Department has been approached by two potential operators expressing interest in Kennedy Park as a potential music venue for concert series productions.
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Project Description |
New City-owned amphitheater to support live music productions. |
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Park Category of Proposed Location |
Community Park, designed for active recreation, supported by facilities such as sport fields, outdoor courts, skate parks, and recreation centers. |
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Projected Budget Range |
>$3 million (dependent on overall scale) |
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Previous Planning Efforts |
Small-scale amphitheater considered in 2015 Kennedy Park Master Plan. |
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Existing Uses in City’s Parks System |
- Amphitheater at Veterans Park - Temporary stage in Oxbow Commons for limited event series |
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Anticipated Planning Steps |
- Site Selection - Analyze Feasibility & Define Scope - City Budget Processes - Conceptual Design & Community Input - Design Development - Environmental Review - Construction Documentation - Project Bidding - Project Construction - RFP for Site Operator - Ongoing Maintenance & Capital Investment |
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Specialty Project Items |
- Review of City leases with current operators within Kennedy Park to evaluate impact. - Additional costs for facilities include maintenance areas, restrooms and concession buildings to support amphitheater. |
Background:
Kennedy Park is the City’s largest, most heavily utilized community park with a variety of existing uses. The 2015 Kennedy Park Master Plan (Master Plan) includes a conceptual amphitheater in the design plan. Recent interest indicates an amphitheater at a larger scale than what is included in the Master Plan. To consider larger alternatives, conceptual designs that take into consideration both existing and future uses at Kennedy Park would need to be pursued with community and stakeholder input. The initial step would involve analyzing the feasibility given the proximity of the location to the Napa River, the existing wetlands and habitat, and the overall impact upon the site and the surrounding areas. As part of a feasibility assessment, the following items would be evaluated more closely:
- Traffic and Safety: Ingress/egress, emergency access, parking, lighting, and accessibility.
- Environmental Considerations: Impacts to or constraints of Kennedy Park wetlands and sensitive habitat.
- Existing Uses:
o Impact to Local Community: 3,000 permitted uses/community reservations at Kennedy Park annually including community groups, leagues, organizations, and residents.
o Existing Lease Agreements: Understanding of contractual obligations with current leaseholders who operate within the park (e.g. North Bay BMX, Napa Golf Course/Course Co.)
Additionally, the City is legally precluded from commencing an exclusive negotiation with one entity for use of City property without complying with the Surplus Land Act. There have been two potential operators interested in Kennedy Park specifically, as well as an additional operator expressing interest in partnership opportunities with the City related to any potential public music venues. A public process, likely through the release of a Request for Proposals would be considered to vet future operators if the project was deemed feasible.
Sports Fields at South Jefferson Park
The City recognizes the community’s interest in developing additional sports fields to provide adequate opportunities for Napa’s youth organizations to successfully operate. The City has been approached by Napa United regarding the potential use of land located at the end of South Jefferson Street for additional community sports fields.
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Project DescriptionNew City-owned sports fields to support youth sport organization(s) operations. |
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Park Category of Proposed Location |
Natural area and open space park, utilized primarily for its natural resource value, and secondarily for recreational use. |
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Projected Budget Range |
>$2 million per field (dependent on size). 4-6 Fields equivalent to $8 million to $12 million. Additional project costs include site selection/planning (dependent upon location), restroom facilities, lighting (~$500,000 per field), parking, and concessions. Per field per year: Annual operating costs estimated at $200,000; Annual capital replacement costs estimated at >$150,000 replacement costs (estimated at an 8-10 year replacement lifecycle). |
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Previous Planning Efforts (re: Sports Fields) |
- 2004 South Jefferson Site Specific Plan for Sports Fields (canceled with CEQA citing environmental issues). - 2010 Parks and Facilities Master Plan (consideration of overall quantity of sports fields). - 2015 Kennedy Parks Master Plan (multiple youth soccer fields and additional larger fields included as part of plan). |
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Existing Uses in City’s Parks System |
None. Long-standing partnership with NVUSD to provide sports fields for community. |
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Anticipated Planning Steps |
- Analyze Feasibility of Natural Area/Environmental Considerations (South Jefferson) - Expansion of City’s Rural Urban Limit Line (South Jefferson) - Annexation with Napa County LAFCO (South Jefferson) - Site Selection - City Budget Processes - Conceptual Design & Community Input - Design Development - Environmental Review - Construction Documentation - Project Bidding - Project Construction - RFP for Site Operator - Ongoing Maintenance & Capital Investment |
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Specialty Project Items |
- South Jefferson is not currently within City limits and requires legal action to provide rights to the City to permanently develop. - South Jefferson is wetland area, previous planning efforts were abandoned citing CEQA / environmental concerns. |
Background:
There are two initial factors to consider related to discussion of the future development of South Jefferson Park. The first is the existing General Plan Zoning for the property and the second is the location of the property outside of City limits.
The 2010 Parks and Facilities Master Plan and 2020 General Plan (GP) classify South Jefferson Park as a Natural Area and Open Space Park. Most recently, the GP adopted in 2022, zoned South Jefferson Park as a Natural Area/Open Space and recommended future improvements to contain trails and a nature education center to increase local nature access for residents while preserving the open space and natural habitat that currently exists on the site.
The South Jefferson parkland is not located within City limits. To gain permanent rights for development, formal applications, and coordination with Napa County Local Agency Formation Commission (LAFCO) would be necessary to annex the property into City Limits.
Other considerations include limitations to future development given the property’s Deed Restriction. The property was purchased with federal funding under a FEMA hazard mitigation grant which precludes any new structures unless they are open on all sides (except for a restroom). This would not allow building of concession stands, administrative buildings or other typical buildings that accompany sports fields without seeking authorization from the grantor.
The previous and current approach to meet the existing community need for sports fields prioritized coordination with NVUSD and other sports field / court operators. This approach has promoted the maximization of community financial resources, avoided the duplication of facilities, and aimed to provide equitable, nearby access to recreation facilities throughout the City given the distribution of school sites across the community. To implement these policies, since 1988, the City has entered into a series of existing cooperative agreements with NVUSD.
Alternatives: To meet the rising demand for sports fields in Napa, the City could consider creating additional sports fields at a number of alternate locations. As specified in the 2010 Parks and Facilities Master Plan and 2015 Kennedy Park Master Plan, a suitable location was identified at Kennedy Park to create an additional two, new competitive sports fields, where many of the supporting facilities (such as restrooms and parking lots) are already in place. Kennedy Park offers adequate space to develop a cluster of sports fields that could be used in multiple configurations. Additionally, other parks categorized as “community parks” could also be considered as part of this feasibility analysis. The costs associated with developing sports fields at a Community Park built to accommodate active uses could significantly impact the anticipated project budget given the difference in legal work and site planning/development.
A critical first step in considering South Jefferson Park, Kennedy Park or alternative locations for sports, would be scheduling the associated environmental work, including CEQA analysis to make a determination on the use of the property.
Spray Ground (“Splash Pad”)
Mentioned at various points within the Parks Master Plan, there is public interest in the addition of a Spray Ground, or more commonly referred to as a “Splash Pad”, in the City’s parks system. A Splash Pad is a recreation area for water play that has little or no standing water, which eliminates the need for lifeguards or other supervision.
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Project Description |
Addition of a Splash Pad in an existing City park. |
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Typical Park Category for Proposed Project |
Community Park, designed for active recreation, supported by facilities such as sport fields, outdoor courts, skate parks, and recreation centers. |
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Projected Budget Range |
>$2.5 million (dependent on scale, water treatment system, and existing drainage and utilities) |
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Previous Planning Efforts |
- 2010 Parks and Facilities Master Plan consideration of water play in City Parks. |
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Existing Uses in City’s Parks System |
None |
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Anticipated Planning Steps |
- Site Selection - City Budget Processes - Scope Definition & Community Input - Conceptual Design - Design Development - Environmental Review - Construction Documentation - Project Bidding - Project Construction - Ongoing Maintenance & Capital Investment |
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Specialty Project Items |
California building code requires adequate number of sanitary facilities provided for all Spray Grounds including restrooms, showers and drinking fountains and diaper changing facilities. |
Background:
The overall design of a splashpad includes ground nozzles or equipment for water play. The water provided for play is either freshwater, or recycled and treated water, that is treated to at least the same level of quality as swimming pool water standards. The pad that supports the water play are often surfaced in textured non-slip material. Capital costs include planning and environmental services, water play equipment, sanitary facilities, water management, drainage, utility infrastructure (water supply lines, sanitary sewer lines, electric, etc.), concrete, surfacing, fencing, site furnishings, site preparation and installation, and construction administration and inspections. Maintenance costs include annual inspections and service work to ensure functioning equipment and utilities.
The first critical step in this project would be to identify a suitable site for the addition of a Splash Pad. Typical scales are between 2,500 to 5,000 square feet for Splash Pad style facilities. This public amenity is a community draw and the footprint includes additional sanitary facilities to operate and meet health code. This requires restrooms, showers, drinking fountains, and diaper changing facilities. The planning of adequate parking, maintenance and ADA access should be factored into site selection. The mechanical system that provides the treated water for the amenity is dependent on the overall size and scale of the facility and impacts the overall budget significantly.
Dog Park(s)
There are currently two off-leash dog parks located in City of Napa parks, and there may be interest or desire in creating additional areas designated for off-leash dogs.
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Project DescriptionChange in Use of existing City Park to accommodate Dog Park Use and construction of dog park facilities. |
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Typical Park Category for Proposed Project |
Community Park or Neighborhood Park (dependent on scale) |
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Projected Budget Range |
>$500,000 (dependent on scale and existing drainage and utilities) |
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Previous Planning Efforts |
- 2010 Parks and Facilities Master Plan consideration of quantity of Dog Park’s |
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Existing Uses in City’s Parks System |
- Alston Park Off-Leash Dog Park - Shurtleff Park Off-Leash Dog Park - John F. Kennedy Park Off-Leash Dog Area |
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Anticipated Planning Steps |
- Site Selection - City Budget Processes - Scope Definition & Community Input - Conceptual Design - Design Development - Environmental Review - Construction Documentation - Project Bidding - Project Construction - Ongoing Maintenance & Capital Investment |
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Specialty Project Items |
Consideration of adjusting use over the entirety of one park or creation of areas within existing park amenities. |
Background:
A dog park typically consists of a designated off-leash area offering opportunities for dog-owners and their dogs to socialize and exercise in a sanctioned area. Dog parks provide an opportunity to satisfy the physical and social needs of dogs and their owners, while providing separation for non-dog owners. Most dog parks are built within larger parks while others are created as stand-alone parks.
Capital costs include planning and environmental services, ground surfacing and landscaping, dog park amenities, drainage, utility infrastructure (water supply lines, electric, etc.), concrete, fencing, site furnishings, site preparation and installation, and construction administration and inspections. Maintenance costs include annual inspections and service work to ensure functioning equipment and utilities.
The first critical step in this project would be to consider and identify a suitable site for the addition of dog park facilities. The minimum size for a dog park is one-half of an acre, with typical facilities ranging from one to three acres in size. Smaller spaces could result in overcrowding and conflicts, while a larger areas may present management challenges. Other considerations include adequate parking and access to infrastructure, such as water and electricity.
Site selection, scope definition and community input would drive future decision-making and budgetary decisions for this type of future project.
Cradle Basket at Oxbow Commons
The “Cradle Basket” proposal refers to the Indigenous Environmental Learning Center (IELC) project that is a conceptual design brought forward by a community member for the Oxbow Commons Park along the Napa River Bypass. The project consists of five boulders, each representing a local tribe with a history of trading along the Napa River.
• Miwok Tribe
• Ohlone Tribe
• Patwin Tribe
• Pomo Tribe
• Wappo Tribe
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Project Description |
Indigenous Environmental Learning Center (IELC) project along the Napa River Bypass. |
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Park Category of Proposed Location |
Natural Area & Open Space |
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Projected Budget Range |
>$250,000 |
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Previous Planning Efforts |
N/A. Non-profit led project. |
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Existing Uses in City’s Parks System |
N/A |
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Anticipated Planning Steps |
- Detailed Design and Installation Plan - Content Development and Review - Development of Donation Agreement - Project Budget |
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Specialty Project Items |
See additional detail under Next Steps, below. |
Background:
Under the project proposal, each of the five stones would include a carving to represent each tribe, and contain a QR code either upon the stone or directly adjacent to it that would direct the public to a website to learn more about the history of each tribe. The vision for this project identifies that the site would serve as a symbolic representation of the local Indigenous Tribes and recognize the history of the people while providing for an important platform for community education.
Given the proximity of the project along the river, the City has worked closely with the Napa County Flood Control District to provide overall guidance as the project has been conceptually developed to include impacts to the bypass channel. Both the City and the Napa County Flood Control District and Water Conservation District have provided conceptual support for this project.
Next steps for this project include the following:
• Detailed Design and Installation Plan: Typical project proposals include schematic drawings that outline the specific dimensions, placement, height, weight, and installation mechanisms for review by an engineer prior to the City accepting a design proposal. Such plans have not been developed by the committee submitting the Cradle Basket proposal.
• Content Development and Review: The educational component of the project will direct park patrons to a website containing the history of the tribes above. The City has an interest in reviewing the content scheduled for publication, and an interest in the ongoing maintenance plan to keep the content current into the future.
• Development of a Donation Agreement: Should the City Council desire to pursue the project, the City anticipates that project materials would be donated to the City through a donation agreement that would need to be negotiated and executed between the parties. City staff anticipates potentially challenging topics will need to be addressed in any such donation agreement given the importance of documenting the City’s right to remove or deinstall the donated materials on City property, as well as the City’s right to review and approve any message that is installed on City property.
• Project Budget: A project budget would also typically be submitted for review by the City identifying hard and soft costs associated with the overall project. The original fundraising goal of this project was $250,000 but may have included in-kind contributions that have not been clearly defined. A grant in the amount of $25,000 has been awarded to the proposing committee, but future fundraising efforts or an appropriation of City funding or City staffing may be necessary.
FINANCIAL IMPACTS:
There is no fiscal impact associated with this item. Informational only.
CEQA:
N/A.
NOTIFICATION:
None.