Recommendation of the PROS Master Plan - Staff Report
STAFF REPORT
Meeting Date: July 12, 2022
Agency: City of Belmont
Staff Contact: Brigitte Shearer, Parks & Recreation Director, (650) 595-7488, [email protected]
Agenda Title: Review and Adoption of the Parks, Recreation, and Open Space Master Plan Agenda Action: Motion
Recommendation
Review and adopt a motion to approve the Parks, Recreation, and Open Space Master Plan.
Strategic Focus Area
Quality of Life
Background
Belmont’s prior Parks and Open Space Master Plan was developed in 1992. Many of the goals within that plan were realized over the past three decades to develop the robust network of parks, fields, and open space that the City enjoys today. Semeria Park, Davey Glen Park, Belameda Park, College View Park, Patricia Wharton Park, Hastings Tot Lot, the Alexander Park permanent restroom, and open space trailheads are all results of that effort.
The City’s 2035 General Plan, adopted in 2017, calls for an updated Master Plan to be developed to guide Belmont’s park, open space, and outdoor recreation vision, given current and future trends, constraints, and community needs.
As directed by the City’s 2035 General Plan, the Parks & Recreation Department’s Parks, Recreation, and Open Space (PROS) Master Plan project has culminated in a draft Plan document. The process undertaken to achieve this goal included:
• Site inventory and assessment
• Community outreach in multiple forms, including a community survey, project website, stakeholder and focus group discussions, an open house, and regular updates at Parks & Recreation Commission meetings, along with periodic presentations to City Council • Benchmarking and current and projected gap analysis for park sites and amenities • Establishment of an advisory committee to provide feedback to the project team and consultants • Engagement of an environmental consultant to develop an Open Space Management Plan • Outdoor recreation programming recommendations
• Park and open space improvement recommendations
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Recommendation of the PROS Master Plan - Staff Report
Vision, Guiding Principles, and Big Ideas of the Master Plan Development of the PROS Master Plan began with an overarching framework, including identifying the Vision and Guiding Principles below. Throughout community engagement, four “Big Ideas” also emerged, influencing more specific Plan Goals, which incorporated Guiding Principles and findings of the Plan’s needs assessment. The Vision, Guiding Principles, and Big Ideas are laid out below, with specific Plan Goals detailed in the Executive Summary of the PROS Master Plan (attached to the Resolution as Exhibit B).
Vision
Reimagine the Belmont parks, recreation, and open space system to create the City’s backyard that fosters inclusive, experiential, and nurturing public spaces by setting the framework for decision makers in the planning, maintenance, development, and/or rehabilitation, implementable over a 15-year horizon.
Guiding Principles
• Provide equitable access to resources and activities across the entire city • Promote inclusion to people of all backgrounds, regardless of race, gender, sexual orientation, socioeconomic position, or physical/cognitive ability
• Make all users feel welcome and safe
• Offer services and activities across a range of interests, abilities, and ages • Reflect our commitment to environmental resilience and sustainability • Respect the beauty and importance of our natural resources • Advance community health and well-being
• Foster a sense of community and encourage social interaction • Provide well-maintained and actively managed facilities • Adapt to changing conditions and needs
• Utilize transparent community process to inform decisions Big Ideas
• The City as Your Backyard
• Outdoor Recreation for All
• Celebrate the Outdoors
• Environmental and Financial Sustainability
Analysis
The planning project, originally anticipated as a twelve-month effort beginning in December 2020, was extended by over six months to accommodate community outreach and engagement challenges due to the COVID-19 pandemic. Because of stakeholder input, the effort also included engagement of a consultant specifically to conduct an environmental and recreational use assessment of the open space, and to provide policy and management recommendations. Concurrently, further community input was instrumental in revising park-specific improvement recommendations at several sites. 185
Recommendation of the PROS Master Plan - Staff Report
For the duration of the project, community engagement was paramount as summarized in the table to the left. In addition to maintaining a project website including a catalogue of resource documents, presentations, and draft documents, the PROS project conducted focus groups, stakeholder meetings, advisory committee meetings, an online survey, outreach events, and updates at Commission and City Council
meetings. Community input resulted in, among other things, inclusion of park opportunity sites, revisions to undeveloped park designs and amenities, an additional advisory committee meeting, and comprehensive open space management plan
alternatives and recommendations.
The resulting draft PROS Master Plan includes several types of recommendations for park, open space, and recreational programming improvements including the following:
• System-wide strategies impacts the entirety of the PROS system.
• Strategic actions are how to implement identified Goals and Strategies.
• Park-specific recommendations provide guidance for the improvements at each park site and potential park opportunity sites to address deficiencies in park access within Belmont. • Prioritization and implementation plan provides a structure by which to evaluate and order the recommendations as construction and improvement funds become available. • Open Space objectives, policies, and implementation action recommendations are included in the Open Space Management Plan (OSMP) developed by WRA, Inc, environmental consultants specifically engaged to address the three main issues related to environmental assessments/sustainability, balanced recreational use, and mitigation of natural hazards guidance.
The executive summaries of the over-arching PROS Master Plan and the OSMP component of the Master Plan are included as Exhibits to the attached Resolution. Full final draft documents, including appendices, are available at www.BelmontPROSplan.com (Direct link to Full draft PROS Master Plan and Appendices, including the OSMP).
Note: The Plan’s initial analysis, conducted in 2021, referenced population projections from the City’s 2035 General Plan (30,500 in 2035). Recent housing legislation and the City’s resulting draft Housing Element document project a further population increase (an additional 4,463 by 2031). In the PROS Master Plan Appendix, Gates + Associates included an analysis incorporating these draft projections. The Plan also includes a recommendation that the analysis, recommendations, and prioritizations be reviewed every three to five years to more frequently evaluate the pace of development, the amenities provided by those developments, and the resulting projected impact on the City’s parks network. 186
Recommendation of the PROS Master Plan - Staff Report
At its July 6, 2022 regular meeting, the Parks & Recreation Commission reviewed the final draft Plan, recommending City Council approve the Plan with the following amendments.
1. Consolidate the Open Space Management Plan’s Base Plan and Management Alternatives objectives, policies, and implementation actions into a single plan.
2. Clearly present priority recommendations in the Open Space Management Plan more definitively by theme: environmental sustainability, balanced recreation use and trail management, and natural hazard mitigation.
3. Pursue opportunity sites for creation of additional parkland in the Belmont Village Specific Plan area in response to potential residential density increase in the area due to anticipated housing unit development as outlined in the 2023-2031 Housing Element update.
4. Apply consistent terminology to remove ambiguity.
5. Refine specific graphics for clarity.
Following discussion by Council, these and any further amendments and updated final Plan documents, including executive summaries and appendices, will be posted at www.belmontPROSplan.com.
ENVIRONMENTAL REVIEW: Categorically Exempt from the California Environmental Quality Act (CEQA) by operation of Section 15262 of the State CEQA Guidelines (A project involving only feasibility or planning studies for possible future actions which the agency, board, or commission has not approved, adopted, or funded)
Alternatives
1. Provide staff with alternative direction
2. Take no action
Attachments
A. Resolution
B. Resolution Exhibits A-C (Amendments to the PROS Master Plan, Executive Summary of the PROS Master Plan, and Executive Summary of the Open Space Management Plan Components of the PROS Master Plan)
C. Full copies of the draft PROS Master Plan and Appendices, including the Open Space Management Plan, are available at the City Clerk’s Office (City Hall, One Twin Pines Lane, Belmont, CA) and Parks & Recreation Office (30 Twin Pines Lane, Belmont, CA) Fiscal Impact
☒ No Fiscal Impact:
Approval of the PROS Master Plan does not commit the City to any specific financial obligations. Future PROS Plan
implementation projects will be subject to budget authority and City Council approval.
☐ Funding Source Confirmed:
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Recommendation of the PROS Master Plan - Staff Report
Source: Purpose: Public Outreach:
Staff Council Vision/Priority Posting of Agenda
188
RESOLUTION NO. 2022 –
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF BELMONT ADOPTING
THE PARKS, RECREATION, AND OPEN SPACE MASTER PLAN
WHEREAS, Belmont’s prior Parks and Open Space Master Plan was developed in 1992, with many of its goals realized over past three decades to develop the robust network of parks, fields, and open space that the City enjoys today; and, WHEREAS, The City’s 2035 General Plan, adopted in 2017, calls for an updated Master Plan to be developed to guide Belmont’s park, open space, and outdoor recreation vision, given current and future trends, constraints, and community needs; and, WHEREAS, In September 2020 the City entered into a service agreement with Gates + Associates to develop a Parks, Recreation, and Open Space (PROS) Master Plan; and, WHEREAS, Over the past year and a half, PROS Master Plan development included a site inventory and assessment; benchmarking and gap analysis for park sites and amenities; establishment of an advisory committee to provide feedback to the project team and consultants; engagement of an environmental consultant to develop an Open Space Management Plan; and development of outdoor recreation programming, park, and open space improvement recommendations; and,
WHEREAS, For the duration of the project, community engagement was paramount, including a project website, www.belmontprosplan.com, which includes a catalogue of resource documents, presentations and recordings of 5 advisory committee meetings, 11 focus group meetings, 5 pop-up events, an online community survey (with over 2,800 responses), discussion at 19 Parks & Recreation Commission meetings, presentations at 4 City Council meetings, and review of over 1,500 public comment emails; and,
WHEREAS, A draft Plan has been made available to the public and was presented to the Parks & Recreation Commission at their July 6, 2022 regular meeting; and, WHEREAS, On July 6, 2022, the Parks & Recreation Commission adopted a motion recommending the draft Plan to City Council with the following amendments:
1. Consolidate the Open Space Management Plan’s Base Plan and Management Alternatives objectives, policies, and implementation actions into a single plan.
2. Clearly present priority recommendations in the Open Space Management Plan more definitively by theme: environmental sustainability, balanced recreation use and trail management, and natural hazard mitigation.
3. Pursue the creation of dedicated parkland in downtown Belmont and the Belmont Village Specific Plan area in response to potential residential density increase in the area due to anticipated housing unit development as outlined in the 2023-2031 Housing Element update.
189
4. Apply consistent terminology to remove ambiguity.
5. Refine specific graphics for clarity.
NOW, THEREFORE, the City Council of the City of Belmont resolves as follows:
SECTION 1. The City Council adopts the Parks, Recreation, and Open Space (PROS) Master Plan with the recommended amendments. Attached hereto are Exhibit A (Amendments to the PROS Master Plan), Exhibit B (Executive Summary of the PROS Master Plan), and Exhibit C (Executive Summary of the Open Space Management Plan Component of the PROS Master Plan)
SECTION 2. Project is categorically Exempt from the California Environmental Quality Act (CEQA) by operation of Section 15262 of the State CEQA Guidelines (A project involving only feasibility or planning studies for possible future actions which the agency, board, or commission has not approved, adopted, or funded). * * *
ADOPTED July 12, 2022 by the City of Belmont City Council by the following vote:
Ayes:
Noes:
Absent:
Abstain:
ATTEST:
City Clerk Mayor
APPROVED AS TO FORM:
City Attorney
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The Parks, Recreation, and Open Space Master Plan (PROS Plan) was recommended by the Parks and Recreation Commission on July 6, 2022 to the City Council for approval with the following amendments.
1. Consolidate the Open Space Management Plan’s Base Plan and Management Alternatives objectives, policies, and implementation actions into a single plan.
2. Clearly present priority recommendations in the Open Space Management Plan by theme - environmental sustainability, balanced recreation uses and trail management, and natural hazard mitigation.
3. Pursue the creation of dedicated parkland in downtown Belmont and the Belmont Village Specific Plan area in response to potential residential density increase in the area due to anticipated housing unit development as outlined in the 2023-2031 Housing Element update.
4. Apply consistent terminology to remove ambiguity.
5. Refine specific graphics for clarity.
PARKS | RECREATION | OPEN SPACE
MASTER PLAN
191
EXECUTIVESUMMARY
PARKS | RECREATION | OPEN SPACE MASTER PLAN LET’S BUILD OUR BACKYARD 192
vi PARKS | RECREATION | OPEN SPACE MASTER PLAN
EXECUTIVE SUMMARY DRAFT
San Francisco Bay views from Belmont
PROS PLAN PURPOSE
The Parks, Recreation, and Open Space Master Plan
(PROS Plan) is a strategic, forward-looking document.
It studies the existing park system, outdoor recreation facilities and programming, and open spaces to identify a decision-making framework and recommendations
to plan, maintain, develop, and rehabilitate the City’s network of parks, recreation, and open space for the
next fifteen years.
GUIDING PRINCIPLES
1. Provide equitable access to resources + activities
across the entire city
2. Promote inclusion to people of all backgrounds,
regardless of race, gender, sexual orientation,
socioeconomic position, or physical/cognitive
ability
3. Make all users feel welcome + safe
4. Offer services + activities across a range of
interests, abilities, and ages
5. Reflect our commitment to environmental
resilience and sustainability
6. Respect the beauty and importance of our natural
resources
7. Advance community health + well-being
8. Foster a sense of community and encourage
social interaction
9. Provide well-maintained and actively managed
facilities
10. Adapt to changing conditions and needs
11. Utilize transparent community process to
inform decisions
BELMONT’S PROS SYSTEM
The City of Belmont offers 409 acres of parks and open
space - totaling almost fourteen percent (14%) of the
City’s land area. The parks and open space system
currently consists of seventeen parks (of which fifteen are developed), two open spaces, and four schools
under a joint-use agreement with Belmont Redwood
Shores School District. The parks and school sites are
distributed across the City, while the open spaces are
located only in the western hills.
Of the 409 acres of parks and open space, ninety-one
and a half acres - twenty-two percent (22%) - are parks or school athletic fields with joint-use agreements for public access, and 317.5 acres - seventy-eight percent
(78%) - are open space. The ninety-one and a half
acres of parkland consists of community parks (50%),
neighborhood parks (developed and undeveloped,
25%) and athletic fields at local schools (25%).
The parks range in size, from less than an acre to over twenty acres, and vary in intensity of use. While not
directly correlated, smaller parks tend to provide fewer amenities and therefore generate less use intensity.
Park Typologies, with associated intents and amenities, are used to organize all parks and create a baseline
service level that parks must provide.
Learn more about the Community Context and
Existing Conditions that served as the foundation
for this PROS Plan in Chapter 2 + Chapter 3.
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Executive Summary
CITY OF BELMONT | LET’S BUILD OUR BACKYARD vii
PARK, RECREATION, AND OPEN SPACE SITES
SITE SITE SITE
1 Alexander Park 9 Fox Elementary School 17 Ralston Middle School 2 Barrett Community Center 10 Hallmark Park 18 Ralston Ranch Park 3 Belameda Park 11 Hasting Tot Lot Park 19 San Juan Canyon 4 Belmont Sports Complex 12 Hidden Canyon Park 20 Semeria Park 5 Central Elementary School 13 McDougal Park 21 Twin Pines Park 6 Cipriani Park 14 Nesbit School 22 Wakefield Park
7 College View Park 15 O’Donnell Park 23 Waterdog Lake
8 Davey Glen Park 16 Patricia Wharton Park
SITE MAP
1 18
5 3
7 2
10 13
9 12
16 20
23 11
15 19
14 17
21 22
6 4
8 # Park # School (JUA) # Open Space
Figure ES-1: Belmont Parks, Recreation, and Open Space Sites Map DRAFT Executive Summary
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viii PARKS | RECREATION | OPEN SPACE MASTER PLAN
EXECUTIVE SUMMARY DRAFT
Semeria Park
Open Space
VISION + GOALS
The Belmont community recognizes the essential role
a well-designed PROS system plays in both individual
community health and well-being. Throughout the
community engagement efforts, Belmont residents
have been proud of their parks and open spaces and the
recreation opportunities they provide. Be it a baseball game at Belmont Sports Complex, a pick-up basketball
game at O’Donnell Park, time on the playground while
at Semeria Park, attending a movie in the park at
Twin Pines Park, or enjoying a hike through nature at
Waterdog Lake open space, Belmont’s parks and open
spaces are intrinsically linked to the community’s selfidentity.
The PROS system fosters positive social interaction.
For example, the presence of natural elements, like
trees, have been found to increase the likelihood of
social interactions in urban environments. Parks are
public spaces that provide convenient locations to
socially interact with friends and neighbors in planned and spontaneous ways. Increasing ease of access
to PROS sites with sidewalks and bike facilities can
also generate more users since site accessibility is
improved.
Parks, recreation, and open space contribute to our
economic vitality. An NRPA study found that in 2019,
parks and recreation agencies generated $218 billion in economic activity nationwide, with California benefiting from $23 billion of the total. Statewide, parks and
Recreation Departments are a significant employers,
and operations and capital spending positively
influence the local economy.
The PROS Plan complements the goals and strategies
of key City plan documents, such as the 2035 General
Plan. Thoughtful management of PROS sites has a
role in addressing climate change and furthering active transportation strategies, as outlined in the City’s
Climate Action Plan and Comprehensive Pedestrian
and Bike Plan. Together, the City’s planning documents
look towards the future of Belmont.
Learn more about the Vision + Goals that guided
this PROS Plan in Chapter 6.
VISION
RE-IMAGINE THE BELMONT PARKS,
RECREATION, AND OPEN SPACE (PROS)
SYSTEM TO CREATE THE CITY’S BACKYARD
THAT FOSTERS INCLUSIVE, EXPERIENTIAL,
AND NURTURING PUBLIC SPACES
BY SETTING THE FRAMEWORK FOR
DECISION MAKERS IN THE PLANNING,
MAINTENANCE, DEVELOPMENT, AND/
OR REHABILITATION, IMPLEMENTABLE
OVER A 15 YEAR HORIZON.
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Executive Summary
CITY OF BELMONT | LET’S BUILD OUR BACKYARD ix
Open Space
THE CITY AS YOUR BACKYARD
PROS Goal 1 Support a connected Belmont by
encouraging a robust pedestrian, bicycle, and public
transit network unifying PROS sites across the City.
PROS Goal 2 Foster a healthy community through
spaces, amenities, programs, and public art to
encourage physical activity, social interaction, and
highlight Belmont’s culture and History.
PROS Goal 3 Expand and enhance the existing
PROS system to meet evolving community needs by
establishing new uses, improved spaces, and recreation
amenities that highlight the natural environment.
OUTDOOR RECREATION FOR ALL
PROS Goal 4 Leverage assets of the pros system to
support community health providing diverse, equitable,
and inclusive spaces and amenities with accessible routes.
PROS Goal 5 Revitalize the pros system to be
adaptable, flexible, and supportive of many uses and
users now and into the future.
PROS Goal 6 Partner with a variety of agencies,
departments, volunteer groups, other entities, and the
community to actualize pros plan goals and policies.
CELEBRATE THE OUTDOORS
PROS Goal 7 Develop and implement an Open
Space Management Plan.
PROS Goal 8 Expand educational opportunities in
parks and open spaces to highlight the local ecosystems.
PROS Goal 9 Continue to enrich Belmont’s outdoor
recreation opportunities with trail improvements,
volunteer collaborations, and wayfinding features.
ENVIRONMENTAL + FINANCIAL SUSTAINABILITY
PROS Goal 10 Nurture the ecological strength of the
City’s natural resources through resource-efficient
landscapes and operations.
PROS Goal 11 Provide high-quality, activelymanaged, and well-maintained PROS assets supported by a range of funding sources.
PROS Goal 12 Prioritize sustainable, resilient, and
responsible management and maintenance practices,
improvements, and projects at PROS sites.
THE CITY AS
YOUR BACKYARD
OUTDOOR
RECREATION
FOR ALL
CELEBRATE THE
OUTDOORS
ENVIRONMENTAL
+ FINANCIAL
SUSTAINABILITY
BIG IDEAS
Through community input, four BIG IDEAS emerged
to define Belmont’s vision for their PROS system.
Learn more about the Vision + Goals that guided
this PROS Plan in Chapter 6.
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x PARKS | RECREATION | OPEN SPACE MASTER PLAN
EXECUTIVE SUMMARY DRAFT
Davey Glen Park
TIER 1
NEIGHBORHOOD PARK
TIER 2
NEIGHBORHOOD PARK
COMMUNITY
PARK
Character Nature and Neighborhood
Social Space
Nature. Group
Gathering, and Play
Nature, Community Gathering,
Recreation and Play
Uses +
Users
Passive
Individuals to Small groups
Passive + Active
Individuals to Medium groups
Passive + Active
Individual to Large groups
Standard
Baseline
Amenities
1.Natural Environment
2.Seating
3.Identifiable Amenity
1.Natural Environment
2.Seating
3.Play Amenity
4.Picnic Opportunity
5.Multi-Purpose Flexible Space
6.Recreation Amenity
1.Natural Environment
2.Seating
3.Play Amenity
4.Picnic Opportunity
5.Multi-Purpose Flexible Space
6.Recreation Amenity
7.Off-Street Parking
8.Permanent Restroom
9.Multi-Use Athletic Field
or Community Facility
Size No Size Requirements
Typically less than 1 acre
No Size Requirements
Over 2 acres should
provide off-street parking
No Size Requirements
Transport
Modes
Walking
Biking
Walking
Biking
Some Driving
Walking
Biking
Driving
Access
Radii
¼ mile ½ mile Entire city
Previous
Planning
Mini Park Neighborhood Park Community Park
Special Facility
Figure ES-2: Park Typologies
PARKS + OPEN SPACE
PARK TYPOLOGIES
Every park and open space has been categorized into
a specific Park Typology. Each typology has intrinsic
expectations and character, identified minimum
standards - called Standard Baseline Amenities - that
they must provide, anticipated methods of travel to
the site, and an access radii associated with the site’s intensity of use. The Access Radii - the area around
a park identified for prioritized bike and pedestrian
transportation access - is a means to address areas
of the City where residents are underserved by parks
spaces because it is not easily accessible. This not only identifies neighborhoods with low access to parks, but
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Executive Summary
CITY OF BELMONT | LET’S BUILD OUR BACKYARD xi
Neighborhood Park ¼ mile (Tier 1) or
½ mile (Tier 2)
Community Park Entire City
Undeveloped Park Based on Typology
School (JUA) ½ mile
Open Space
Figure ES-3: Park Access Radii Map by Neighborhood Trail head also heightens awareness for opportunities to increase
parkland in under-served and areas with low access to
parks.
NEIGHBORHOOD PARK TIER 1
A Neighborhood Park Tier 1 supports interaction with
nature and acts as a neighborhood gathering space. It
is the quintessential pocket of natural green space in a neighborhood, the hub of unplanned social interactions, and a peaceful place to talk or play. A Tier 1 Park has the lowest use intensity, meaning the few amenities at
the site are expected to be used by only a handful of
people at a single time.
NEIGHBORHOOD PARK TIER 2
A Neighborhood Park Tier 2 supports connection to
nature, social gathering of small groups, and recreation and play activities. A Tier 2 Park is more intense
in amenities and uses than a Tier 1 Park, but it still
oriented towards a single visitor or smaller groups of
less than twenty people. As such, there are at least two amenities - play and recreation - designed for use by
multiple and diverse visitors at a single time, as well as amenities that support small group gatherings - picnic
opportunity.
COMMUNITY PARK
Community Parks are notable parks within the City
- as they offer spaces and amenities for large group
gatherings, amenities that support dozens of users
simultaneously, and act as a community event venue.
Community Parks are heavily-used. They have highuse intensities and generate the most visitors because they provide the most amenities and programming.
SCHOOL (JOINT USE AGREEMENT)
The City entered into Joint Use Agreement (JUA) with
the Belmont Redwood Shores School District (BRSSD)
for the explicit right to use recreational spaces in
exchange for a maintenance commitment by the city.
UNDEVELOPED PARK
Undeveloped sites are designated park sites owned
by the City that currently have limited or no park
improvements. The sites identified as Undeveloped
are considered parks and slated to be developed into
amenitized parks.
OPEN SPACE
Open spaces are minimally improved or undeveloped
spaces open to the public for various recreational activities.
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xii PARKS | RECREATION | OPEN SPACE MASTER PLAN
EXECUTIVE SUMMARY DRAFT
Bike rack at Belameda
ACCESS + CONNECTIONS
Access Radii identify areas around a park site that are considered accessible to a park, and highlight portions of the City where parks are not easily accessible. The
Access Radii are dependent on intended use intensity,
per the Park Typology.
Overall, Belmont provides a high-level of access
to parks, with almost ninety percent (90%) of the
population living within a 10-minute (1/2 mile) walk of a park. The national average for the percent of population that lives within a 10-minute walk of a park is fifty-five percent (55%), based on data compiled by the Trust
for Public Land. Belmont well surpasses this average.
Due to the limited availability of land to create more
parkland, creating connections to support easy access
to existing parks is paramount for the City. In the 2016 Comprehensive Pedestrian and Bike Plan, parks are
identified as a destination and therefore prioritized for pedestrian and bicycle facility improvements.
Continuing to build upon this theme, creating safe and
enjoyable connections between parks reduces access
barriers. The City’s improvements on Ralston Avenue
and Safe Routes to School all align with reducing
conflict and increasing connections between parks for
non-motorized transport.
Further work can be done within a park to accommodate
pedestrians and bicyclists by adding looped walking
paths and bike racks, among other park amenities.
OPEN SPACE MANAGEMENT PLAN
The Open Space Management Plan (OSMP) provides
a programmatic framework to address environmental
sustainability, balanced recreation use, and mitigation of natural hazards in the city’s two open space areas
– Waterdog Lake (WDL) and San Juan Canyon (SJC)
Open Space. An Environmental Assessment and a
Recreational Use Assessment were conducted in both
Open Space sites.
Learn more about the Existing Conditions that
served as the foundations this PROS Plan in
Chapter 3.
Open Space
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EMAILS + COMMENTS
([email protected]
and/or P&R Commission, and
Comments via project website)
1,500+
(JANUARY 2021
THRU JUNE 2022)
FOCUS GROUPS 11 MEETINGS
75+ PEOPLE
ONLINE SURVEY 2800+
RESPONSES
ADVISORY COMMITTEE 5
MEETINGS
PARKS + RECREATION
COMMISSION
19 MEETINGS
CITY COUNCIL 4
PRESENTATIONS
POP-UP EVENTS
Concerts in the Park
Movies in the Park
Egg Hunt
Celebrate the Music
Open Space Open
House
Executive Summary
CITY OF BELMONT | LET’S BUILD OUR BACKYARD xiii
COMMUNITY INPUT
Community Input was an integral component of the
PROS Plan. A Master Plan is only as good as the
community behind the ideas. Beginning in Spring 2021,
community outreach and engagement was conducted
in a hybrid manner, utilizing virtual platforms and in
person participation opportunities to hear from the
Belmont community.
OUTREACH METHODS
Almost 5,000 instances of engagement were recorded
from participants utilizing the many outreach methods
to share their preferences, priorities, and identified
gaps for improvement in the PROS system. The
PROS engagement efforts employed a wide range of
outreach materials and input opportunities to maximize
project awareness and community participation,
including an Advisory Committee, an online survey,
in-person and virtual focus groups, community popup and open house events, neighborhood meetings, a comprehensive social media campaign, and public
meeting presentations.
COMMUNITY THEMES
Through the multitude of community inputs, themes
arose and Big Ideas were identified for the PROS Plan.
• Amenities For Social + Physical Activity
• More Seating Opportunities
• Physical Connections
• Amenities For Diverse Interests
• Accessible For All Abilities
• Create More With Less
• Connecting With Nature
• Available For Many Uses + Users
• Natural Resources
• Honor Belmont’s Unique Landscapes
Learn more about the Community Input that directed
the creation of this PROS Plan in Chapter 4.
Pop-up event at Twin Pines Park
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xiv PARKS | RECREATION | OPEN SPACE MASTER PLAN
EXECUTIVE SUMMARY DRAFT
Alexander Park playgrounds
STRATEGIES
The strategies are broad recommendations intended
to impact the entirety of Belmont’s PROS system.
Organized under the Big Ideas and Goals, there
are seventy-four system-wide strategies for parks,
recreation, and open spaces; twelve open space
objectives; and forty-eight open space policies.
SYSTEM-WIDE STRATEGIES
The strategies provide a guide for City action to
provide a first class PROS system. The PROS Plan
Strategies are furthered by strategy actions, specific
recommendations for park and school sites, open
space recommendations, as well as ongoing Parks
and Recreation Department management. Example
strategies include:
Strategy 1.B Develop and implement an
“Interconnect Toolkit” to facilitate active transportation to and between parks. The Toolkit should consider bike
racks, water stations (with bottle-filling and dog bowls), bike repair stations, seating, and route information, at a minimum. (PROS Goal 1)
Strategy 2.C Prioritize upgraded or new amenities
or programs that promote physical activity and mental
health for all ages, abilities, and interests. (PROS Goal 2) Strategy 3.A At all opportunities, increase the
experiential qualities of PROS sites. (PROS Goal 3)
Strategy 4.E All amenities and spaces within a park
should be accessible by a safe path of travel. (PROS Goal 4) Strategy 5.F Promote multi-use and multi-purpose
spaces and amenities in all upgrades, designs, and
improvements to PROS sites. (PROS Goal 5)
Strategy 6.A Provide public engagement
opportunities in all PROS planning and design projects
to capture community desires for their City’s backyard. (PROS Goal 6)
Strategy 8.D Promote public awareness of
Belmont’s PROS system and the sustainable practices
being implemented. Consider methods to increase
public knowledge about how the public can support the
environment with their choices. (PROS Goal 8)
Strategy 9.B Offer areas of respite - such as benches
with shade and trail rest points - along paths and trails to support outdoor recreation for all. (PROS Goal 9)
Strategy 10.C Increase shade and tree canopy
across the City with succession tree planting, volunteer planting events, and monitoring of existing trees for
health and longevity. (PROS Goal 10)
Strategy 11.A Prioritize funding towards
improvements and projects that increase equity and
inclusivity at PROS sites. (PROS Goal 11)
Strategy 12.A Maximize water and energy efficiency
in all PROS decisions. Support energy- and waterefficient “smart” upgrades, including installation of solar (photovoltaic) panels, infrastructure for EV charging
stations, and rain-sensing irrigation systems, in all new or upgraded sites. (PROS Goal 12)
OPEN SPACE OBJECTIVES + POLICIES
The Open Space Management Plan have grouped
the identified objectives, policies, and implementation actions into three themes:
• Environmental Sustainability
• Balanced Recreation Uses + Trail Management
• Natural Hazard Mitigation
Learn more about the Strategies proposed by this
PROS Plan in Chapter 7.
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RECOMMENDATIONS
The Recommendations chapter compiles PROS
Plan future improvements, upgrades, and proposed
changes derived from the existing conditions analysis,
community input, needs assessment, goals, and
strategies.
STRATEGIC ACTIONS
Strategic Actions are ways to implement PROS
Goals and Strategies. Strategic Actions include an
Interconnect Toolkit, Inclusive + All-Abilities Play, Social Gathering Space, a PROS Activation Plan, “Pop-up”
Park Installations, and a Usage Study.
PARK-SPECIFIC RECOMMENDATIONS
The park-specific recommendations provide guidance
for the improvements to provide an equitable distribution of facilities throughout the community. Each park site
in the City was evaluated for access, proximity, and
available space to host new, upgraded, or revised
amenities. In many instances, the proposed location of
an amenity at a site is meant to serve a portion of the City larger than the access radius.
The park-specific Recommendation Spectrum identifies
the possible magnitude of recommended changes to a
park site. The Spectrum only applies to park sites - there is no magnitude for Schools (JUA) or Open Spaces. Magnitude
EXISTING
MASTER PLAN
MINOR
IMPROVEMENT
UPGRADED OR
NEW AMENITY
PARK
REDESIGN
UNDEVELOPED
PARKS
NEW PARK
OPPORTUNITY
Existing Condition
Master Plans
recently
adopted
Created with
extensive
community input
Parks recently
developed or
in Very Good
condition
Current park
functioning well
Rethink
accessibility
and park layout
No changein-use
Existing park is
undeveloped
Add Parkland
To fill gaps in
park access
City-owned
property
Recommendation
Implement
Existing
Master Plan
Minor
improvements
identified
to maintain
high-quality
Upgrade
existing
amenity or
new amenity to
meet identified
needs or gaps
Undertake Park
Design Plan
Develop and
amenitize site
Create,
develop, and
amenitize site
Figure ES-4: Intensity of Recommendations Spectrum
INCREASING MAGNITUDE OF RECOMMENDATIONS
Schools are excluded because the sites are owned by
the Belmont-Redwood Shores School District. Open
Space is excluded because management of these sites
are covered in the Open Space recommendations.
The Recommendation Spectrum is broad. At the
most intense, the recommendations create brand
new parks. At the least, the recommendations
support implementing existing park concepts that the
community has reviewed and accepted as appropriate.
NEW PARK OPPORTUNITIES
The PROS Plan identifies three potential sites for
new parks in Belmont. As an almost completely builtout City, there are limited opportunities for new park sites. All sites are on land currently owned by a public entity. These sites should be seriously considered as
opportunities to provide additional park acreage to
Belmont residents.
• Ralston Avenue & Old County Road
• Oak Knoll Drive
• Alameda de las Pulgas
POTENTIAL OPPORTUNITIES
The City should pursue a Joint Use Agreement with the
following schools to facilitate or enhance public access. • Carlmont High School
• Crystal Springs Middle School
• Notre Dame High School
• Notre Dame de Namur University/Stanford University
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Belmont Sports Complex
• Western Hills Open Space
• Belmont Village Specific Plan Sites
RETHINKING STREET RIGHT-OF-WAY
Over 18% of Belmont land is public right-of-way.
This public space is mostly dedicated to automobiles
(streets, travel, lanes, and parking). Rethinking the
use of public right-of-way to prioritize and encourage
pedestrian and bicyclist movement can further PROS
goals for a connected and healthy community.
Aligning with other City planning documents and goals,
rethinking how we allocate and use our public right-of-way land is imperative to increasing the importance of active transportation, like walking and biking, as a means to
move about the City. Additionally, transitioning our streets to prioritize people and their movement over vehicular
movements begins to increase public space for people.
RECREATION RECOMMENDATIONS
Outdoor recreation recommendations are embedded
in the park-specific recommendations and the open
space recommendations as outdoor recreation occurs
in spaces and amenities identified at the PROS sites.
OPEN SPACE RECOMMENDATIONS
The open space recommendations are aimed at
improving the condition of existing trails, managing
existing and future recreation use, and environmental
resource protection. These recommendations describe
a variety of methods by which these objectives can be
achieved.
Habitat + Species Although the habitat within the
open space areas appears to be in good health, there
are still management considerations and actions that
should be taken to ensure this valuable community
resource continues to thrive, for both residents and
wildlife alike. Recommendations focus on sudden oak
death, invasive species, conducting additional surveys, enhancement and restoration.
Wildfire Reduction Hazard The OSMP
recommends four actions for wildfire hazard reduction.
Trail Condition Address stream crossings
and high levels of erosion. Incorporate/Decommission
previously unmapped trails.
Trail Use + Management Implement a pilot
policy regarding the use of e-bikes and other electric
transportation devices which adheres to ADA
regulations. Improve wayfinding and site identification signage. Survey to gather information on the effect of
management actions on visitor experiences. Measure
recreation use in open spaces. Manage multi-use
trails to improve visitor experiences. Trail user speed can effectively be reduced through biking-specific trail design features. Educate visitors on trail etiquette can help improve feelings of safety.
Trail Standards + Guidelines All trail maintenance,
erosion control, stream crossings, and safety features
should be conducted and constructed in accordance
with recommended trail design, operations, and
maintenance guidelines and standards, ADA
requirements, and sensitive resources best practices.
Learn more about the Recommendations for
improvements to the PROS system in Chapter 8.
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IMPLEMENTATION
Implementing the PROS Plan’s goals, strategies,
policies, and recommendations will require use of
multiple funding sources over many years. As such,
prioritizing actions to meet the most pressing needs
will be necessary to successfully improve the existing
PROS system. Proposed park-specific Improvements
are prioritized based on the degree to which they meet
the PROS Plan’s Goals. Open Space implementation
actions are categorized by need and feasibility to meet identified needs.
The PROS Plan is intended to be a living document to
guide implementation over the next fifteen years. As
circumstances, opportunities, resources, and demands
evolve over the plan’s horizon, criteria to prioritize
implementation should be re-evaluated periodically,
but at minimum, every three to five years.
PRIORITIZATION
As funding to further develop PROS sites is limited and competitive, a prioritization approach is provided to
help guide the city in the gradual implementation of this PROS Plan goals, strategies, objectives, policies, and
recommendations as funds become available.
PRIORITIZATION CRITERIA
Within the overall PROS system, prioritization of
recommended projects is critical to ensuring that
the City provides parks, recreation, and open
space opportunities that maximizes availability and
accessibility to all. The following criteria also factored into the prioritization analysis:
• Funding availability
• Time-limited opportunity
• Advance diversity, equity, and inclusion
• Aligned with other projects
• “Quick win”
PARK-SPECIFIC RECOMMENDATIONS
Park-specific recommendations were prioritized using
metrics to holistically evaluate all improvements
proposed across the PROS system. The prioritization
matrix is a guide to implementation, not an absolute
directive for the order of PROS site development. The
analysis assigned values to rank each recommendation
by four criteria:
• To further PROS Plan goals
• To respond to community priority
• To serve an existing deficiency
• To address an existing condition
The sum of all values across each metric informs the
recommendation rating, with higher values equating to
higher priority. Prioritization does not exactly equate to implementation order.
PARK SITE PRIORITIZATION
As a means to focus the City’s efforts when determining which park site to improve first, the average value
of points assigned to all recommendations at a park
site was calculated to highlight parks with the highest potential to positively impact the community.
PARK SITE PRIORITIZATION RANKINGS *
SITE (PARK + JUA)
AVG
POINTS1
SITE
RANK
Opportunity: Ralston + Old County1 21.9 1
Opportunity: Oak Knoll Dr 18.8 2
Ralston Ranch 18.0 3
Opportunity: Alameda de las Pulgas 17.4 4
Alexander 14.5 5
O'Donnell 12.2 6
Hidden Canyon 12.0 7
Belameda 11.5 8
Twin Pines 11.4 9
Barrett Community Center, McDougal 10.9 10
Cipriani, Hallmark, Wakefield 10.4 11
Hastings Tot Lot 10.2 12
Patricia Wharton, JUA: Central 10.0 13
College View 9.9 14
Belmont Sports Complex 9.4 15
JUA: Fox, JUA: Nesbit, JUA: Ralston 9.0 16
Davey Glen 8.0 17
Semeria 7.8 18
* Open Space Sites not included in rankings
1 Avg Points calculated by dividing the total points for all recommendations at a site by number of recommendations for the site 2 Improvements at this Opportunity site would be temporary due to expected development of the property
Table ES-1: Park Site Prioritization Rankings
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FUNDING STRATEGIES
The PROS Plan describes a comprehensive range
of PROS strategies, recommendations, and actions
desired by the community to maintain the quality of the current PROS system and address current and future
unmet needs. In order to work on fulfilling the PROS
Plan goals, the City will require a portfolio of funding strategies for capital improvements, maintenance, and
operations. A variety of funding strategies are outlined here. This list is not exhaustive - at every opportunity, the City should explore funding alternatives to continue to provide a first-rate PROS system.
PARTNERSHIPS
Partnerships within the City, with other government
agencies serving Belmont residents, with a park
and recreation foundation, volunteer organizations,
or with civic organizations are all opportunities for
the Parks and Recreation Department to further the
implementation goals of this PROS Plan.
ACTION PLAN
The Action Plan is a tool that is intended to be updated over the life of the PROS Plan as circumstances,
resources, opportunities and needs change. This
version of the Action Plan is a snapshot of priorities as of the time of the PROS Plan adoption. At minimum,
the Action Plan and prioritization matrix should be
reviewed and revised every three to five years.
Twin Pines Park
The Action Plan is correlated to the prioritization
of system-wide strategies and park-specific
recommendations in so much as projects that resolve
identified deficiencies or repair unsafe conditions are implemented sooner than those recommendations that
are solely for enhancement.
The Open Space Implementation Actions are identified
as easy, medium or hard to implement. Easy, medium,
and hard categorizations are not strictly correlated to implementation time frames, as some implementation
Implementation Actions identified as hard should
commence in the short term, but will require more time
to complete, and therefore finish in the longer term.
Learn more about Implementing this PROS Plan in
Chapter 9.
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APPENDIX X
BELMONT OPEN SPACE MANAGEMENT PLAN
CITY OF BELMONT, SAN MATEO COUNTY, CALIFORNIA
Open Space Mgmt Plan
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1.0 Executive Summary
The Open Space Management Plan (OSMP) provides a programmatic framework to address environmental sustainability, balanced recreation use, and mitigation of natural hazards in the city’s two open space areas – Waterdog Lake (WDL) and San Juan Canyon (SJC) Open Space. Based upon the City’s existing goals and policies for protecting and managing open space areas, public comment, and an Environmental Assessment and a Recreational Use Assessment, the OSMP identifies objectives, policies, and implementation actions for eight categories:
1. Environmental sustainability
2. Balanced recreation use
3. Natural hazard mitigation
4. Vegetation protection
5. Wildlife protection
6. Water resources
7. Science based management (adaptive management)
8. Expanded ability (human, financial resources)
This OSMP consists of the Environmental Assessment (Section 2) and Recreational Use Assessment (Section 3), which were utilized to inform a management plan and set of management alternatives (Section 4). The Base Plan includes a comprehensive set of objectives, policies, and implementation actions, while the management alternatives provide augmentations or additions to the Base Plan that emphasize recreation or habitat restoration.
1.1 Methods
Both site visits and desktop research were conducted to assimilate the information provided in the documents. For the Environmental Assessment, data regarding sensitive biological communities, specialstatus species, and trail conditions were provided. For the Recreation Use Assessment, data regarding recreation use and trends, as well as measurement techniques were provided. In addition, both the Environmental Assessment and Recreation Use Assessment supplied a set of recommendations for continued habitat protection, wildfire hazard reduction, as well as trail condition and trail use management. For the Management Alternatives, options were developed based upon community and stakeholder input, and decision-maker guidance on management priorities for recreation and habitat restoration.
1.2 Environmental Findings
Across both WDL and SJC Open Space areas, 11 special-status plant species and 7 special-status wildlife species have moderate/high potential to occur or are present within the open space areas. Except for developed portions of the site, eucalyptus groves, and the non-native annual grassland, the plant species observed are mostly native. Indeed, over 90 percent of the open space lands consist of native biological communities and both non-sensitive and sensitive communities exist. Invasive species were observed but this was generally limited to patches of less than 50 square feet and represented a small portion of the overall area. As such, the overall habitat quality of the open space lands is determined to be of high quality to moderate quality, with the areas adjacent to trails and residential development generally being
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moderate quality. Areas with limited anthropogenic influence (set back from residential uses and major trails), have high quality habitat.
WRA mapped trail conditions for approximately 13 miles of trails; trails that are found on city maps as well as previously unmapped trails. These trails have a relatively small “footprint,” representing approximately five acres of open space, i.e., of 1.3 percent of the total open space acreage. Most trail erosion locations were found in the larger WDL Open Space area, and among those locations, the majority were assessed as exhibiting a “low” level of erosion. For both WDL and SJC the number of locations assessed as having “high” erosion were about one in ten; 8-11 percent for WDL, and 0-8 percent for SJC.
These results demonstrate that the trail systems in each open space area are in relatively good condition overall, but that there are specific locations of “high” erosion that should be addressed immediately. In addition, approximately 50 stream crossings were identified along existing trails with varied crossing mechanisms, ranging from a free-span wooden footbridge to a plank placed across the stream, to stepping stones. Many of these crossings should also be improved in the near term to provide better protection of the riparian habitat below.
The majority (approximately 147 acres) of vegetation in the WDL area is coastal live oak, which has a low hazard rating and ignition potential, since it is associated with oak-Bay woodland. This situation also applies to the SJC open space area, with the majority of vegetation there mapped as coastal live oak.
However, based on the San Mateo County Hazard Mitigation Plan, Calfire has rated Belmont’s two open space areas as having very high wildfire hazards for WDL, and high hazards for SJC based on factors including steep topography, weather, and the potential to damage human life and structures.
1.3 Recreation Findings
The population of Belmont and San Mateo County is increasing and the rates of participation in naturebased recreation activities are expected to continue to increase. Indeed, residents from Belmont, as well as neighboring cities like San Mateo, San Carlos, and Redwood City participate in walking, running, biking, and dog-walking on Belmont’s open space trails.
Both the WDL and SJC Open Spaces have trail systems that are similar in density when compared to nearby open space areas.
According to the 2021 Belmont Parks, Outdoor Recreation Programs and Open Space Community Survey, most respondents visited open space areas multiple times per week, typically for a duration of 1-2 hours or more, and typically for the purposes of exercising, communing with nature, and experiencing peace and quiet (“Belmont Parks, Outdoor Recreation Programs and Open Space Community Survey,” 2021).
Survey respondents reported living primarily in the City of Belmont, but also in nearby neighborhoods in San Mateo, San Carlos, and Redwood City. Belmont Parks and Recreation Department staff indicated that common activities on open space areas are walking/running, biking, and dog walking. These types of activities are generally referred to as passive, which makes the recreation use occurring on Belmont’s open space lands consistent with existing policy on all parcels, including the John Brooks parcel.
In general, cycling participation has been rising in recent years especially in large cities like San Francisco (San Francisco Municipal Transportation Agency, 2022). One likely contributor to cycling participation is the growing use of electric pedal assist bicycles (e-bikes) which have had sales increase nearly 50% per year since 2013 (PeopleForBikes, 2017). In addition, e-bike use on trails within parks and protected areas Open Space Mgmt Plan
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appears to be increasing (PeopleForBikes, 2017). Though mountain biking participation is also increasing nationally (Newcomb, 2020), whether e-bikes are driving this increase is actively being researched (Federal Highway Administration, 2022).
1.4 Management Alternatives
The OSMP has been prepared as a programmatic document. It provides a framework to address the three main issues environmental sustainability, balanced recreation use, and mitigation of natural hazards, that are the impetus of this OSMP. The hierarchy of the OSMP includes objectives, policies, and implementation actions. The objectives are general statements that articulate a desired outcome. Policies are more specific statements that state what steps the city will take to achieve a desired outcome.
Implementation actions are measurable actions that specify how a desired outcome is achieved.
During the planning process city and WRA staff worked on a Base Plan and two alternatives in addition to the Base Plan. The purpose of considering and developing two management alternatives was to give the city the option of adding emphasis to topics of interest to the community. The Base Plan builds on existing City planning document objectives, policies, and implementation actions to protect sensitive resources, guide trail maintenance and manage recreation, and mitigate the risk of natural hazards. The Recreation Emphasis Alternative would supplement the Base Plan by augmenting trail and recreational use policies and implementation actions. The Habitat Protection Emphasis Alternative would enhance the Base Plan by including additional policies to prioritize the protection of native plant communities and wildlife.
1.5 Priority Recommendations
The following implementation actions have been determined to be top priorities once the plan is adopted.
Tier 1: Legal Requirements and Main Environmental Recommendations ● Stream crossing improvements: WRA identified multiple stream crossings requiring improvements. In addition, WRA prioritized the top seven crossings most in need of improvements.
● Seasonal / weather dependent restrictions on maintenance activities: This recommendation has been included to ensure the City’s routine trail maintenance actions avoid nesting bird season to the extent possible, and avoid working in wet weather conditions (emergencies excepted) to the extent feasible.
● Fuels reduction plan: The fuels reduction plan would prioritize fuel break areas to be treated as shown and figures 4 and 5, and would highlight additional areas that would benefit from fuels reduction.
● Monitor use and survey visitors during e-bike pilot: WRA is recommending the city take an approach similar to what Midpeninsula Regional Open Space District has done to develop a policy for e-bike use. The district studied use levels and visitor responses for a year before making policy recommendations to their Planning and Natural Resource Committee. ● ADA Compliant Trails: The city will identify three trail segments that offer distinctive recreation experiences and ensure those segments comply with the California State Parks Accessibility
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Guidelines. One segment will offer the experience to travel along a ridgeline, another segment will offer an experience to travel along a canyon floor, and a third segment will offer opportunities for panoramic views.
Tier 2: Main Visitor Experience Related Recommendations ● Nature-based recreation programs: These programs were recommended to respond to the community’s interest in environmental education focused programs that, among other things, could help reinforce support for protecting the two open space areas, and to create “citizen scientists.”
● Volunteer restoration programs: These programs which have been informally carried out would be codified and respond to the interests and actions of environmentally focused community members.
● Trail calming features: These features would be implemented in targeted locations to respond to community comments about feeling some sections of trails are unsafe due to blind turns, steep slopes, narrow trails, or a combination of all three.
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