DATE: March 18, 2024
TO: Mayor and Members of the City Council
VIA: Stefan Chatwin, City Manager
Marlene Subhashini, Assistant City Manager
FROM: Derek Schweigart, Parks and Recreation Director
DEPARTMENT: Parks and Recreation
SUBJECT: RECREATION CENTER REBUILD PROJECT (CIP 301-678) –
RECREATION CENTER BOARDWALK AND WATERFRONT
MASTER PLAN
RECOMMENDATION
It is recommended that the City Council, by Minute Order, receive and accept the report on the Recreation Center Boardwalk and Waterfront Master Plan (Master Plan), as part of the Recreation Center Rebuild Project (Project) and provide direction on the preferred option to be incorporated into the City’s Parks Master Plan project that will begin in May 2024.
EXECUTIVE SUMMARY
During the Project’s first round of community engagement, the design team including Group 4 Architecture, Research + Planning, Inc. (Group 4) and City staff received input from members of the Project Task Force, Planning Commission, Parks and Recreation Committee and City Council that indicated a strong desire to integrate the new Recreation Center with the Leo J. Ryan Park boardwalk and waterfront along the lagoon frontage. As a result, at the regular City Council meeting on April 17, 2023, the City Council adopted a resolution approving contract Amendment No. 1 with Group 4 in the amount not-to-exceed $74,250 to provide boardwalk master planning services for the Project. The work was to be completed during the schematic design phase for the Project and include the development of two conceptual design alternatives.
The Project Task Force, Planning Commission and Parks and Recreation Committee helped to identify a range of waterfront features and activities which were included in the Project’s second community survey to determine the community’s preferences for the Master Plan. Informed by this input, several concepts were developed to show how these features and activities could be integrated into and transform the project site.
These concepts were further developed into preferred elements which are included in the Master Plan.
The Master Plan includes two variations for the City Council to consider which improves the connectivity of the highly used waterfront boardwalk, adds waterfront terraces that promote user engagement and socialization alongside the new Recreation Center, includes a signature southerly terminus and overlook for the popular boardwalk and expanded people-powered watercraft facilities at the boat shed. The Master Plan also includes a variation which further expands the waterfront terraces and further expands facilities at the boat shed and boat launch for both man-powered and electric watercraft.
Staff recommends that the City Council review and accept the report on the Master Plan and provide feedback on the preferred options which will be incorporated into the City’s Parks System Master Plan project that will begin in May 2024. Any recommended improvements will be considered and prioritized with other City Park improvements as part of this process.
BACKGROUND
At the City Council regular meeting on November 21, 2022, the City Council awarded an agreement with Group 4 for professional design, bidding, and construction support services for the Project.
On March 2, 2023, Group 4 and City Staff presented to the Planning Commission and Parks and Recreation Committee joint meeting. During the presentation, Group 4 received feedback on conceptual design layouts and features for the new Recreation Center and site plan. A common theme that developed from input from Planning Commissioners, Parks and Recreation Committee and community members was a desire to include the Leo J. Ryan boardwalk and waterfront in the planning for the new recreation center. There was much interest in connecting both the park and recreation center users with the City’s beautiful waterfront lagoon.
On March 6, 2023, Group 4 presented to the City Council the current conceptual designs and survey results regarding design features and priorities. During the meeting, City Council members directed staff to explore ways to improve the boardwalk area within the project area that would complement the overall Project. This item was listed in Group 4’s original agreement as an optional task that could be performed but was not included in the agreement’s budget.
At the regular City Council meeting on April 17, 2023, the City Council adopted a resolution approving Contract Amendment No. 1 with Group 4 in the amount not-to- exceed $74,250 to provide boardwalk master planning services for the Project and appropriate the amount of $74,250 from Fund 301 to the existing Project budget 301- 0910-678-4251 to fund the additional services. This work was completed during the schematic design phase for the new recreation center. The project scope for master planning services included the development of two conceptual design alternatives for the City’s review and direction which captures an overall design concept for the waterfront documenting in written and graphic form the layout and character of the project. The concepts were shared with the public during the community engagement phase of the Project. The image below includes a side-by-side rendering of the existing boardwalk waterfront and one with potential expanded use (Image 1).
IMAGE 1 – Sections of Existing Waterfront & Example Idea for Increased Activation Based on the feedback received during the schematic design phase for the Project, the design team identified a range of waterfront features and activities that would take advantage of the Foster City’s unique waterway and Leo J. Ryan Park’s lagoon frontage. Staff and the design team included these waterfront features and activities in the second community survey for the Project to help determine the community’s preferences. The features that received the most support included water events, steps and terraces into the water and natural planted edges. The most desired activities were walking/sitting/overlooking, kayaking, accessing the lagoon by “dipping your toe into the water” and deck lounging. Images 2 and 3 provide a summary of the survey data that was received.
IMAGE 2
IMAGE 3
The design team used this input to develop two Recreation Center Waterfront Master Plan concepts that were presented to the Parks and Recreation Committee at their regular meeting on August 1, 2023. The concepts were well received by the committee with committee members providing general feedback. Committee members were enthusiastic about the prospect of completing the continuous waterfront walkway around the lagoon side of the amphitheater stage which would be better for walkers and runners on the boardwalk path and avoid cutting through potential programming.
ANALYSIS
The Master Plan began with an analysis of the current use of the waterfront along the Recreation Center. Current use includes strolling, jogging, and bicycling on the boardwalk and sitting and picnicking overlooking the water. The lagoon is widely used by people enjoying man-powered watercraft such as kayaks, dragon boats, windsurfers, stand up paddle boards, and pedal boats, as well as electric watercraft such as Duffy Boats. Others lagoon users also sail or swim in the lagoon. The lagoon also hosts special events such as Dragon Boat races, Crew Rowing regattas, the Water Lantern Festival, and the Rubber Ducky Race. Some residents along the waterways use Duffy Boats to boat to the Recreation Center and adjacent events, and a portion of the lagoon edge includes cleats for tying up Duffy Boats.
The Master Plan was informed by other waterfront cities both regionally and globally on features and activities that Foster City could take advantage of for its unique waterway and the Leo J. Ryan Park’s lagoon frontage. These include sculptural terraces for sitting and lounging that extend into the water from adjacent walkways, planting interspersed along the paved waterfront edge, sunbathing on waterside decks or sandy terrace "beaches," swimming in pools placed within the waterway, larger docks for more man-powered and electric watercraft, and piers for a more immersive experience of the water. In certain cases, these waterfront activities are supported by adjacent clubhouses or recreation centers. Additional special events include parades of boats with holiday lighting, movie nights facing boaters on the water, and swimming races including triathlons.
Master Plan Concepts
To show how these features and activities could be integrated into and transform the project site, the Master Plan explored several plan and section concepts. Concepts ranged from adding:
1) Floating boat dock
2) Overlook at the terminus of the boardwalk
3) Floating "beach" or pool deck
4) Terracing with seating and vegetation into the Lagoon 5) Marina for Duffy boats
All the concepts strengthened the well-used and beloved waterfront boardwalk, by completing a continuous multiuse path inland of the amphitheater and completing the continuous waterfront walkway around the lagoon side of the amphitheater stage.
Master Plan Preferred Plan
After presenting the initial concept explorations to the Recreation Center Task Force, Planning Commissioners, Parks & Recreation Committee members and the public, the design team refined the preferred elements into the Master Plan shown in this report (See Attachment 1). The attached slide deck includes images contained in the staff report as well as others that show greater details and perspective. The Master Plan strengthens the connectivity of the well-used and beloved waterfront boardwalk, by completing a continuous multiuse path inland of the amphitheater and completing a continuous dockside path including around the lagoon side of the amphitheater stage.
The Master Plan also adds waterfront terraces for socializing and lingering alongside the Recreation Center, a signature southerly terminus and overlook for the popular boardwalk and expanded people-powered watercraft facilities at the boat shed. In terms of details, the Master Plan increases the length of the waterfront where Duffy boats can be tied up, adds seating and picnic clusters, and upgrades the waterfront lights to more efficient LED lighting. The Master Plan also includes a variation which further expands the waterfront terraces and further expands facilities at the boat shed and boat launch for both man-powered and electric watercraft.
There are two proposed variations to the Master Plan. The first variation includes improved water terraces, a boardwalk overlook, and a boat shed dock. The existing conditions and variation renderings are shown in Images 4-7.
Master Plan – Water Terraces + Boardwalk Overlook + Boat Shed Dock IMAGE 4 – Boardwalk and Waterfront Existing Conditions
IMAGE 5 – Master Plan: Water Terraces + Boardwalk Overlook + Boat Shed Dock IMAGE 6 – Enlargement: Water Terraces
IMAGE 7 – Enlargement: Boardwalk Overlook + Boat Shed Dock The second variation includes “grand” water terraces, a boardwalk terminus, and a watercraft dock.
Master Plan Variation – Grand Water Terraces + Boardwalk Terminus + Watercraft Dock
IMAGE 8 – MP Variation: Grand Water Terraces + Boardwalk Terminus + Watercraft Dock IMAGE 9 – Enlargement: Grand Water Terraces
IMAGE 10 – Enlargement: Boardwalk Terminus + Watercraft Dock Project Budget Estimate
The order of magnitude costs for the concept level budgets for the Master Plan and the two Master Plan variations are $8.7 million and $10.7 million respectively. The project cost captures design, construction, and owner's contingency (but not escalation) for the Master Plan components. The following is a cost estimate breakdown for the four Master Plan components with higher estimates for the Master Plan variation.
Boardwalk and Waterfront Master Plan Budget Estimate
Component MP Variation # 1 MP Variation # 2
Boardwalk Connectivity $ 1,900,000 $ 2,200,000
Water Terraces $ 2,200,000 $ 3,100,000
Overlook Terminus (pier) $ 2,500,000 $ 2,900,000
Boad Shed Dock (floating system) $ 2,100,000 $ 2,500,000 Total $ 8,700,000 $ 10,700,000
CEQA
The action to receive and accept the report for the Master Plan is not subject to review under the California Environmental Quality Act (CEQA) pursuant to Public Resources Code Section 21000, et seq. and the CEQA Guidelines (14 Cal. Code Regs. §§ 15000 et. seq.), including without limitation, Public Resources Code section 21065 and California Code of Regulations 15378 as this is not a “project” that may cause a direct, or reasonably foreseeable indirect, physical change in the environment.
FISCAL IMPACT
There is no fiscal impact for the City Council to receive and accept this report. Staff is seeking direction on the City Council’s preferences for the Boardwalk and Waterfront Master Plan which will help inform the City’s Parks System Master Plan project that will begin in May 2024. Any projects recommended in the Master Plan will be considered and prioritized along with other City Park improvements as part of that process. All parks improvement projects and the necessary funding are subject to City Council approval through the City’s annual budget process.
CITY COUNCIL VISION, MISSION, AND VALUE/PRIORITY AREA
Facilities and Infrastructure
ATTACHMENTS:
Attachment 1 – Recreation Center Boardwalk and Waterfront Master Plan Slide Deck