Item No. 2
Town of Atherton
CITY COUNCIL STAFF REPORT – STUDY SESSION
TO: HONORABLE MAYOR AND CITY COUNCIL
GEORGE RODERICKS, CITY MANAGER
FROM: ROBERT OVADIA, PUBLIC WORKS DIRECTOR
DATE: DECEMBER 4, 2024
SUBJECT: PROVIDE FEEDBACK AND DIRECTION REGARDING THE
HOLBROOK-PALMER PARK PLAYGROUND IMPROVEMENTS
PROJECT
RECOMMENDATION
It is recommended that the Council provide feedback and direction to staff regarding the design direction for the Holbrook-Palmer Park Playground Project.
BACKGROUND
The City Council approved funding for the design of the Holbrook-Palmer Park Playground Improvements Project as part of the FY23-24 Capital Improvement Program, and subsequently approved a Task Order with Interwest Consulting Group for the design, construction management and inspection services for the playground replacement at Holbrook-Palmer Park. Staff and the Park and Recreation Committee (Committee) created a public outreach survey to solicit input on desired playground elements. The survey was opened for public input in December 2023 through January 2024. Results from the survey were presented to the Committee at their February 7, 2024, meeting. Responses were received from 123 individuals providing preferences for the elements to be incorporated in the replaced playground. Following overall presentation to the Committee, the Playground Subcommittee of the Park and Recreation Committee (Subcommittee) reviewed the results and worked with Staff and Interwest on a variety of possible configurations for the new playground including how those would maintain the character of the Park and be delivered within the $1 million budget. The Committee then approved two conceptual design alternatives to be presented to the public for review and feedback. An open house meeting was held at the HolbrookPalmer Park Playground on May 29, 2024, to present the conceptual designs to the public and receive feedback regarding the designs so a preferred alternative could be recommended to the City Council for final design.
Approximately 35 residents and park visitors attended the open house. The conceptual design visuals were presented on display boards and allowed participants to identify their preferred alternative as well as to provide feedback on specific elements in each concept. General feedback Holbrook-Palmer Park Playground
DECEMBER 4, 2024
received was positive, with a preference towards what was Concept #2. There were comments asking for additional rubberized surfacing, in lieu of the engineered wood fiber, adding the fallen log feature from concept #1 into concept #2, amongst other general feedback.
Also, in attendance at the open house was Olenka Villarreal, from the Magical Bridge Foundation, who expressed an interest in working with the Town to develop a more inclusive playground that includes consideration of children and others with special needs. Following the open house, additional comments were received from the public regarding a desire for a Magical Bridge playground in Atherton, including the creation of a change.org petition.
Following the open house and summarization of feedback on the playground, Interwest met with the Subcommittee on Thursday, June 20th to discuss the results and possible changes to make the playground more accessible and inclusive. Staff along with Interwest and members of the Subcommittee also reached out to the Magical Bridge Foundation to get more information about how they operate and the types of playgrounds they create. Though most of their playgrounds are larger in scale, including Mitchell Park in Palo Alto and Red Morton Park in Redwood City, Magical Bridge has started development of some smaller scale projects, including one in Portola Valley (currently under design) and at CuriOdyssey in San Mateo, which has been completed.
Members of the Subcommittee visited some of the Magical Bridge playgrounds and the design team coordinated a virtual meeting with staff, the Subcommittee and Olenka Villarreal, on Thursday, June 20, 2024, to review what they do, the types of features they incorporate into their parks, and how they accommodate various needs in the playground. The Magical Bridge Foundation expressed a desire to work with the Town to redevelop the playground at HolbrookPlamer Park. The Magical Bridge Foundation provided a quote in the amount of $40,000 to develop a conceptual design for an inclusive playground at Holbrook-Palmer Park. At their July 3, 2024, meeting, the Committee had the opportunity to review a revised concept design and consider a recommendation to the City Council regarding a playground layout, a potential recommendation regarding a partnership with the Magical Bridge Foundation for a more inclusive design. Several members of the public expressed support for a partnership with the Magical Bridge Foundation. The Magical Bridge Foundation advised that they received a generous donation ($40,000) to support the development of a concept design for the Holbrook-Palmer Park Playground. The Committee deferred a recommendation to allow development of a generalized concept by the Magical Bridge Foundation.
A generalized concept developed by the Magical Bridge Foundation was presented to the Subcommittee, which provided feedback on the conceptual design. The Magical Bridge Foundation presented their initial conceptual layout for the Holbrook-Palmer Park playground to the full Committe at its September 4, 2024, Committee meeting. The conceptual layout showed a larger expansion of the playground area than that of the conventional design option. The Magical Bridge Foundation also suggested a potential partnership with the Town to solicit donations to fund the design and construction of a more inclusive design, totaling $3.5 million (including design development and other soft costs), more than the $1 million the Town had funded as part of the Capital Improvement Program. The overall construction cost was proposed at $3.3 million, including the Town’s approved construction budget of $1 million. PlayCore, the parent company of GameTime which had provided the Town with the conceptual designs of a conventional Holbrook-Palmer Park Playground
DECEMBER 4, 2024
playground and several modifications presented to the Subcommittee also made a presentation regarding additional inclusivity options associated with more conventional style playgrounds.
Both options presented by the Magical Bridge Foundation and PlayCore were significantly above the funding allocated by the Town for construction.
Public comments similar to those received previously were made in support of a further partnership with Magical Bridge Foundation to fund the more inclusive option. Deliberation of the Committee included consideration of design options, how the design alternatives address input previously received from the public, additional amenities outlined in the Magical Bridge concept, potential impacts to general park use, the need for shade over the playground, size of the playground and associated expansion, improvement costs. The Committee allotted additional time for Magical Bridge to further develop a proposal for a potential partnership on playground development and for the subcommittee to review how accessibility might be improved in the conventional design option as well as to review the proposal from the Magical Bridge Foundation, once received.
ANALYSIS
The Committee, at its November 6, 2024, meeting, received a report from staff regarding a revised conventional layout that addressed comments and recommendations from the Subcommittee, which aligned with the allotted Capital budget for construction, as well as an overview of the Magical Bridge Foundation Proposal.
The Subcommittee also made a brief presentation regarding their evaluation of options and recommendations (presentation attached). The Subcommittee recommended the conventional design option predominantly related to how it addressed public input received through the survey, prior to participation by Magical Bridge, delivery timelines and budget certainty and reduced risks in project delivery. The Magical Bridge Foundation also had an opportunity to provide additional clarification regarding their proposal.
The Committee had an opportunity to ask questions and public input was solicited. Public comments were again made in support of the Magical Bridge option and opined to the Committee that they were choosing between two different visions of the park – one more conventional (past) and more inclusive (future) and that residents shouldn’t have to travel to another town for a more inclusive play experience.
Summary of playground options presented:
Conventional (see attachment):
• Reversal of current layout, placing tot play area (fenced) on the left side and older playa area on right
• Expansion of the play area by approximately 2,200 sf
• Mix of poured-in-place rubber and engineered wood fiber surfacing o Additional play poured in place surfacing was desired to extend throughout the tot area, but would exceed the budget, and an additional allocation would be needed Holbrook-Palmer Park Playground
DECEMBER 4, 2024
• Play elements include slides (stairs), climbing structures, playhouse, spinners, swings, musical elements and sand play
o Though ADA compliant, would not be fully inclusive
• Fully expends Town’s construction budget of $1M
Magical Bridge (see attachments)
• Fully inclusive/accessible
• Expansion of play area by approximately by more that 50% • Poured-in-place (rubberized and/or cork) throughout for accessibility • Play elements include: ramped slides, swings, playhouse/stage, spinners, quiet zine, water play, recognition area
o Committee advised that water play features are finicky, difficult to maintain, ad should be revised to an alternate feature
o Would include additional community engagement during design development • Expands the construction budget to approximately $3.5M, with anticipation of community donations in the amount of $2.5M. Additional donations to support Magical Bridge Foundation efforts including design and other soft costs • Offered alternative delivery partnership options
Following public comment, the Committee unanimously recommended that the Town proceed with the conventional option, due to how it provided the desired play options requested/preferred by residents that responded to the public input survey, delivery timelines and budget certainty and reduced risks in project delivery. The Committee further recommended that both options be presented to the City Council for consideration and direction on the final design.
Following the Park and Recreation Committee meeting, the Magical Bridge Foundation reached out to staff regarding an alternate proposal which would fully fund the cost of the playground installation. The Park and Recreation Committee has not had an opportunity to have a meeting following receipt. The revised proposal includes the following revisions from the initial concept:
• Size/ footprint: base plan – shows a smaller footprint than the initial concept, approximately 8,600 SF, which is slightly smaller than the conventional design option • Community courtyard (optional), approximately 2,200 SF (10,800 SF total) in the event that there is donor and community support for this addition scope • Water feature removed to appease any concerns regarding ongoing maintenance o Alternative multigenerational and maintenance friendly sensory experiences incorporated (i.e., stone abacus, pleasant sounding, durable instruments, etc.) • Multigenerational fitness experiences added
• Relocation of spin and swing zones; increased variety of swinging options • Vertical climbers/ balance: this is provided throughout, including through the net spinner and hill climbing loops and mounds
The proposal includes community outreach to gather feedback from the community on the conceptual design, completion of design and construction documents in coordination of the Town and construction of the playground. Upon completion and acceptance, the playground would be donated to the Town.
Holbrook-Palmer Park Playground
DECEMBER 4, 2024
Direction feedback and direction is requested from the Council regarding the preferred option of a conventional playground, funded by the Town, or a Magical Bridge playground, funded by the Magical Bridge Foundation through community donations.
FISCAL IMPACT
None at this time. Fiscal impact would be dependent on the option chosen and would range from expenditure of the full Capital Improvement program budget for the playground construction ($1 million), or a savings of construction allocation in the Capital Improvement Program budget – a limited in-kind contribution associated with plan reviews, permitting, inspection and other soft costs associated with the project would be needed.
GOAL ALIGNMENT
This Report and its contents are in alignment with the following Council Policy Goals:
• Goal Area A – Maintain Fiscal Responsibility
• Goal Area B – Preserve Small Town Character and Quality of Life • Goal Area E – Strengthen Community Engagement and Transparency • Goal Area F – Be Forward-Thinking, Well-Managed, and Well-Planned
POLICY FOCUS
The policy focus for this item is regarding Council direction regarding the type of playground desired at Holbrook-Palmer Park, potential acceptance of a donation to cover the costs of improvement.
PUBLIC NOTICE
Public notification was achieved by posting the agenda, with this agenda item being listed, at least 72 hours prior to the meeting in print and electronically. Information about the project is also disseminated via the Town’s electronic News Flash and Atherton Online. There are approximately 1,200 subscribers to the Town’s electronic News Flash publications. Subscribers include residents as well as stakeholders –to include, but be not limited to, media outlets, school districts, Menlo Park Fire Protection District, service provides (water, power, and sewer), and regional elected officials.
COMMISSION/COMMITTEE FEEDBACK/REFERRAL
Park and Recreation Committee (meets each month)
ATTACHMENTS
Holbrook-Palmer Park Playground
DECEMBER 4, 2024
Attachment 1 – Conventional playground concept and renderings Attachment 2 – Original Magical Bridge concept and boards Attachment 3 – Original Magical Bridge Proposal
Attachment 4 – Park and Recreation Playground Subcommittee Presentation November 6, 2024 Attachment 5 – Updated Magical Bridge Concept and Boards Attachment 6 – Updated Magical Bridge Proposal