Item No. 6
Town of Atherton
CITY COUNCIL STAFF REPORT – REGULAR AGENDA
TO: HONORABLE MAYOR AND CITY COUNCIL
GEORGE RODERICKS, CITY MANAGER
FROM: ROBERT OVADIA, PUBLIC WORKS DIRECTOR
DATE: JULY 15, 2026
SUBJECT: PICKLEBALL PROGRAM AT HOLBROOK-PALMER PARK AND
CONVERSION OF THE CLAY COURT TO A HARD COURT
RECOMMENDATION
It is recommended Council review the Pickleball Program at Holbrook-Palmer Park and provide direction regarding any changes to the program including any changes in hours or operations of the pickleball courts, and any related changes to the tennis program and courts at Holbrook-Palmer Park. It is further recommended that the Council consider creation a project in the Capital Improvement Program for and appropriate funds for implementation of any desired physical improvements at the courts, inclusive of changes to the clay court.
BACKGROUND
The pickleball program at Holbrook-Palmer Park was established as a shared-use program utilizing Tennis Court #1. Currently, the reservable pickleball hours on Court #1 are as follows:
• Mornings (until noon) – daily
• Evenings (after 4:00 p.m.) – Tuesdays and Thursdays
• All day – Sundays
The remainder of the time, Court 1 is available for tennis reservations.
To accommodate the desire for additional pickleball time, in October 2025, the Town restriped Court 1 to provide four (4) pickleball courts over the tennis court.
Player Capital Tennis (PCT) has been opening the court for additional pickleball reservations, approximately 24 hours in advance, if there are no conflicting tennis reservations on the court.
Demand for pickleball continues to increase, creating challenges with availability due to the limited number of pickleball courts and shared tennis use. Court 1 is available approximately 144 hours per month for tennis reservations and approximately 720 hours per month for pickleball, before additional hours are opened for pickleball. Note that as the tennis court is over-striped with Pickleball Program at HPP
JULY 15, 2026
4 pickleball courts, 1 hour of time equates to either 1 hour of tennis time or four court hours for pickleball. Total available hours are approximately 324 hours per month.
Pickleball reservations on Court #1 have reached approximately 250 court hours per month in the summer, with approximately 198.5 pickleball hours and 239.5 pickleball hours reserved in April and May 2026, similar to 2025 (see table below).
Some pickleball users have expressed concerns with regards to the ability to make court reservations and have requested adjustments to pickleball reservation hours to increase availability for pickleball use of the courts. As utilization is approximately 35%, such ability could be related to existing court demand during certain hours and/or restrictions on court reservation hours. The community has also expressed interest in expanding access while balancing other court users and maintaining availability for tennis.
The Committee and the Council have previously discussed potential facility improvements to increase pickleball capacity. These included conversion of the handball courts to two pickleball courts, and the conversion of the existing clay court to a hard court, which could allow for permanent conversion of Court 1 to pickleball use. As shown in the table below, clay tennis court reservations are limited, as compared to availability and as compared to Court 1 for both pickleball and tennis. The predominant use of the court is by Player Capital Tennis for instructional and camp uses. The conversion of the Clay Court may provide a more efficient use of the space at the tennis courts and more availability of Court 1 for pickleball.
As noted above, there is a heavy demand for pickleball at Holbrook-Palmer Park. The following chart, excerpted from May 2026, Parks Division Report, depicts the usage of the courts at Holbrook- Palmer Park beginning in October 2024:
Month
PC
Court
Hours
Private
Lessons
Key
Holder
Hours
Clay Court
Hours
Pickleball
Court Hours
24-Oct 797 397 325 22 132.5
24-Nov 667 415 362 6 169
24-Dec 642 367 322 15 125
25-Jan 597 351 321 9 167
25-Feb 660 433 395 12 188
25-Mar 676 408 323 19.5 187.5
25-Apr 693 452 365 18 195.5
25-May 698 455 353 15 255
25-Jun 787 475 320 20 206
Total FY-24-25 8,536 5,306 4,326 254.5 1,754
25-Jul 766 492 282 14.5 244.5
25-Aug 675.5 441 325.5 11 216.5
25-Sep 707 403 341.5 20 203
Pickleball Program at HPP
JULY 15, 2026
25-Oct 682 372 362.5 9 153
25-Nov* 654 365 266 20 207.5
25-Dec* 625 351 214 8 167.5
26-Jan* 601 332 261.5 19 166
26-Feb* 655 321 255.5 11 150.5
26-Mar* 641 283 291.5 16 199
26-Apr* 647 267 303.5 12.5 199.5
26-May* 678 301 377.5 20 239.5
26-Jun*
Total FY-25-26 7,331.5 3,862 3,308 161 2,153.5
*Note that hours were adjusted following the July 25 Council meeting to include all day Sunday and the number of available pickleball courts doubled (from 2 to 4) in October 2025.
As shown in the above chart, demand for pickleball reaches approximately 250 court hours per month during the summer, while clay court reservations peak at approximately 20 hours per monthly, not including Player Capital Tennis instructional and clinic time on the court.
ANALYSIS
At its meeting on July 1, 2026, the Park and Recreation Committee discussed the pickleball program and options/opportunities to increase availability, improve access and maximize use of existing park facilities. Discussions centered around the following options:
1. Increase Pickleball Reservation Hours on Court #1 – Current pickleball reservation hours are as follows:
o Mornings (until noon) – daily
o Evenings (after 4:00 p.m.) – Tuesdays and Thursdays
o All day – Sundays
2. Convert the Existing Clay Court to a Hard Court – This option would convert the clay court to a hard court (tennis only). This would improve the overall flexibility and availability of court facilities at Holbrook-Palmer Park and could augment tennis court availability and shift tennis demand from court 1 and allow an increase in availability for pickleball.
The rough order of magnitude (ROM) cost developed in 2025 for removal of the clay surface and reconstruction as a hard court was approximately $150,000–$200,000.
Additional costs would be incurred to convert court 1 to a pickleball only court, if desired. Costs include resurfacing and restriping, installation of permanent nets, court separators, etc. The Pickleball Subcommittee, of the Park and Recreation Committee, estimated that if completely funded and implemented by private donors, the cost could be closer to $100,000 for construction. The private project would need to be donated to the Town upon completion.
Pickleball Program at HPP
JULY 15, 2026
3. Convert the Handball court to Pickleball Courts – This option would demolish the existing handball court and construct two dedicated, enclosed pickleball courts. The rough order of magnitude cost range developed in 2025 for removal of the handball court and construction of two pickleball courts was approximately $250,000–$300,000. Note that the new courts would supplement the shared use of court 1, as two dedicated courts would be insufficient to satisfy demand on their own. The Pickleball Subcommittee, of the Park and Recreation Committee, estimated that if completely funded and implemented by private donors, the cost could be closer to $200,000 for construction.
Again, upon completion, the project would need to be donated to the Town.
Note that the estimates above are for construction only. Additional funds would likely be needed for design, project management and inspection depending on how the projects are intended to be funded and implemented. If any public funds are used toward the project, the project becomes a public project and public bidding and prevailing wage requirements apply.
Following public input and discussion, the Committee recommended the following:
1. Increase Pickleball Reservation Hours on Court #1
The Committee recommended that staff work with Player Capital Tennis to open the tennis hours on Court 1 to pickleball reservations up to 4 days in advance, if the court has not been reserved for tennis during that time.
2. Conversion of the Existing Clay Court to a Hard Court The Committee recommended that the Council consider the conversion of the clay court to a hard court to allow for increased reservation/usage of the court, and therefor may lead to more availability of Court 1 for pickleball usage. Though no recommendation was made at this time, such a conversion could potentially lead to full-time pickleball use of Court 1 in the future.
Though not under the direct purview of the Committee, and no recommendation regarding funding was made by the Committee, some members of the Committee expressed concern regarding the use/depletion of the Tennis Fund to fully fund the conversion. It was noted that any use of Town Funds/Resources for the project would trigger prevailing wages. If fully funded, constructed and managed by a private entity/donation, the work may be exempted from prevailing wages.
3. Convert the Handball court to Pickleball
The Committee continues its support for future conversion of the handball court area to dedicated pickleball courts. This is recommended as a second-tier priority, following conversion of the clay court. Though not under the direct purview of the Committee, the Committee recommended that such conversion be fully funded by outside resources via donations.
Additionally, there was mention by one member of the Committee for staff to work with PCT to better define instructional use of the courts and limit court usage in an amendment as part of the PCT contract extension. There was a concern raised by other members regarding opening the Pickleball Program at HPP
JULY 15, 2026
conversation mid-stream in the agreement term and potential impacts to PCT operations and associated request in reduction of PCT payment to the Town.
Staff is requesting Council direction regarding any desired adjustments to the pickleball program, including hours of availability, facilities and the ongoing negotiations with PCT for contract extension. Council direction regarding facility changes, such as conversion of the clay court, should include the requisite budget amendments to the Capital Improvement Program and the associated appropriation of funds.
If the Council directs changes to the Capital Improvement Program and appropriation of funds, a budget amendment would be returned for approval at a future meeting.
FISCAL IMPACT
Fiscal impact will depend on the options selected and if a donor or donors can be found to offset costs.
The FY 2026-27 Capital Improvement Program does not include any projects or allocated funds associated with improvement to the tennis and/or pickleball courts. If improvements to the tennis/pickleball facilities are desired, and to desired to funded by the Town, a budget amendment and appropriation of funds would be needed. The estimated available fund balance for the Tennis Fund is approximately $200,000.
It is noted that changes that affect Player Capital Tennis operations has the potential to impact the current services agreement.
GOAL ALIGNMENT
This Report and its contents are in alignment with the following Council Policy Goals:
• Goal A - Preserve Small Town Character & Quality of Life • Goal D - Be Forward Thinking
• Goal E - Maintain and Improve Public Infrastructure
POLICY FOCUS
The policy focus for this item is regarding potential adjustments to the pickleball program and improvements to the tennis and pickleball facilities at Holbrook-Palmer Park.
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 Pickleball Program at HPP
JULY 15, 2026
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
None.