Fremont City Council Meeting: 12/06/22 07:00 PM
3300 Capitol Avenue Div/Dept: Landscape Architecture
Fremont, CA 94538 Category: Property Acquisitions & Dispositions
SCHEDULED
Sponsors:
STAFF REPORT (ID # 4628) DOC ID: 4628
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 1 DEDICATION OF PARKLAND - Consider Adopting a Resolution to Dedicate 8.84 Acres at the Corner of Paseo Padre Parkway and Stevenson Boulevard as Parkland and to find that no further environmental review is required for the parkland dedication pursuant to CEQA Guidelines 15307, 15308, 15162, 15163, 15678(b) and 15601(b)(3)
Contact Persons:
Name: Tara Bhuthimethee Suzanne Wolf
Title: Senior Landscape Architect Community Services Director Div/Dept: Landscape Architecture Community Services
Phone: 510-494-4738 510-494-4329
E-Mail: [email protected] [email protected]
Executive Summary: The City Council is being asked to consider the dedication of 8.84 acres of land at the corner of Paseo Padre Parkway and Stevenson Boulevard (Exhibit A of the attached resolution) in pursuit of park expansion at Central Park.
The 8.84 acres consists of the following two pieces of land: 1) a 4.24 acre parcel of land which hosts the Alameda County Main Library building (Library) and the majority of its parking lot, and 2) a 4.6 acre site on an adjacent parcel. The 4.6 acre site is part of a 96.21 acre parcel to the east of which the rest of the parcel (91.61 acres) is already dedicated parkland as a part of Central Park.
The dedication of the 4.6 acres as parkland will complete Central Park in terms of dedicated parkland both within the 96.21 acre parcel and Central Park as a whole. Dedication of the
4.24 acre library parcel as parkland will create a pedestrian connectivity between the Teen Center, the corner of Paseo Padre Parkway, and the Alameda County Library. Creating a seamless flow of parkland brings with it the advantage of facilitating grant opportunities and future park projects.
In order to dedicate the land as parkland, the site must undergo an evaluation to ensure that it complies with the City’s goals and policies, specifically the City’s General Plan and the Parks and Recreation Master Plan. The Parks and Recreation Master Plan outlines fourteen “Criteria for Selection of Park Sites” which each must be analyzed for compliance.
BACKGROUND: The approximately 430-acre Central Park is commonly known as the crown jewel of Fremont’s park system. Land for Central Park was originally dedicated beginning in 1959, with additional parcels added in subsequent years. Below is a brief history of the two pieces of land which comprise the total 8.84 acres under consideration.
4.6 Acre Site
Part of Central Park’s acreage includes a large 96.21 acre parcel at the corner of Paseo Padre Parkway and Stevenson Boulevard. Of that parcel, 8 acres was historically designated in the City’s General Plan as Public Facilities, which was planned to accommodate a performing arts facility. The remaining 88.21 acres is dedicated parkland at Central Park Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 2 and includes the dog park, Teen Center, softball diamonds at “the Wheel”, and a portion of Lake Elizabeth.
The 2011 General Plan relocated the potential performing arts facility to the downtown, adjacent to a future City Hall. As the 8 acres of Public Facilities was no longer needed at the corner location, Fremont City Council designated 2.5 acres of the 8 acre site as parkland in December 2013, and previously, Council dedicated an additional 0.9 acres as parkland.
On December 17, 2019, in anticipation of this dedication, the City Council adopted a General Plan Amendment via Resolution 2019-79 designating the remaining 4.6 acres of City land at the corner of Paseo Padre Parkway and Stevenson Boulevard as Open Space/Park in the General Plan, but the 4.6 acres has not been formally dedicated as parkland.
The 4.6 acre site includes the southern portion of the Alameda County Library parking lot, a large art sculpture at the corner of Stevenson Boulevard and Paseo Padre Parkway, a sidewalk, and vacant land.
4.24 Acre Alameda County Library Parcel
The Alameda County Main Library at Central Park was built on Central Park land and dedicated in 1989. In 2002, the parcel on which the library sits was delineated concurrently with a second parcel comprising the police building and animal shelter; both new parcels were zoned Public Facility. The sum of the two new parcels—approximately 15 acres— equaled that of the former City Government Building (City Hall) and former police building sites at Central Park, which were part of the originally deeded “Civic Center” land. Due to its location within Central Park, the approximately 15 acres of former “Civic Center” land became dedicated parkland and the two new parcels at the perimeter were zoned Public Facility.
DISCUSSION/ANALYSIS: The proposed dedication of 8.84 acres of City owned land as parkland is subject to the criteria for the selection of park sites identified in the Parks and Recreation Master Plan, the goals of the General Plan, and other City policies. The properties are located at the corner of Paseo Padre Parkway and Stevenson Boulevard, including a
4.24 acre parcel at the Library, and 4.6 acres of land south and east of the Library. The 4.6 acre site is a portion of a larger 96.21 acre parcel, the rest of which is dedicated parkland incorporated into the 400-plus acre Central Park. The 4.24 acre parcel hosts the Alameda County Main Library and the central portion of its parking lot. Libraries are an allowable use of parkland.
The Parks and Recreation Master Plan’s “Criteria for Selection of Park Sites” sets forth the requirements used to evaluate parcels for acquisition or dedication as City-owned parkland.
The specific criteria evaluated for the 8.84 acres in this report include the following:
Conformance with City of Fremont Policies; Physical Configuration; Topography; Encumbrance; Access; Environmental Constraints; Compatibility with Surrounding Land Uses; Maintenance Impacts; Recreation Commission Review; Capital Improvements, Operations, Maintenance, and Supervision Costs; Location; Current Use of the Property; Minimum Parcel Size; Connectivity; and the Ability to Leverage a Variety of Funding Sources for Acquisition. The criteria are excerpted from the Master Plan below followed by Staff analysis. Analysis of the two pieces of land is conducted below. Due to the adjacent and contiguous nature of the two pieces of land, they have been analyzed together as one.
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 3
Conformance with City Policies: The proposed dedication is aligned with City goals and policies and will not conflict with any applicable land use plan, policy, or regulation of the General Plan or the Parks and Recreation Master Plan.
Following dedication of the site as parkland, the City may choose to move forward with design and development of the land as part of Central Park, which is classified as a Destination/Special Use Park. The Parks and Recreation Master Plan describes a Destination/Special Use park as follows:
“Destination/Special Use Parks are intended to draw users from the greater region and can vary greatly in size, form, and intensity. They can be resource-based, user- oriented, or contain characteristics of both. More passive activities that can be supported in preservation-focused regional parks are activities like hiking, picnicking, and educational tours.”
General Plan Goals/Policies
The following General Plan goals and policies are applicable to the dedication:
• Goal 2-1: City form and structure
o Policy 2-1.4: Neighborhoods with safe and convenient access to services, schools and parks
• Goal 2-2: Directing change to ensure continued availability of public services, and also protects the natural environment.
o Policy 2-2.12: Land banking to utilize vacant or underutilized land for long term development of public facilities, parks and other uses for the public benefit.
• Goal 2-3: Complete Neighborhoods
o Policy 2-3.7: Green neighborhoods that integrate open space, parks, trees and natural features into Fremont’s neighborhoods to enhance their visual quality and improve access to nature and recreation.
• Goal 2-6: Open Space
o Policy 2-6.4: Parks should be recognized as fundamental to Fremont’s quality of life, and should be carefully managed to create balance between passive and active open space.
Parks and Recreation Element of the General Plan Goals/Policies
• Goal 8-1: A Wide Range of Parks and Recreational Facilities o Policy 8-1.1: Parks and Recreational Facility Guidelines to develop parks and recreation facilities consistent with the standards and guidelines in the General Plan and the Parks and Recreation Master Plan.
o Policy 8-1.3: Standards for New Parks and Recreation Facilities to acquire and develop new park lands and recreational facilities consistent with City standards
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 4 Parks and Recreation Element of the General Plan Implementation Actions
• Implementation 8-1.3.C: Land banking to consider purchasing land or accepting land dedication suitable for future park and recreational uses when the land becomes available (“land banking”), even if there are insufficient funds to develop and maintain facilities at the time.
Analysis: The land dedication would expand Central Park and fill in a void of parkland at the corner of Paseo Padre Parkway and Stevenson Boulevard. Dedication of this land completes Central Park at this corner and also banks and avails it to the long-term planning and development of the park, including potential grants for parkland. This land and Central Park provide nearby neighborhoods and Fremont residents access to nature and recreation through both passive and active recreation spaces while enhancing visual quality through the addition of green spaces, trees, natural features, and artwork.
Parks and Recreation Master Plan (Master Plan) – Criteria for Park Site Selection:
The Parks and Recreation Master Plan includes fourteen criteria for site selection of parkland. The criteria are outlined below, followed by Staff analysis.
1. Physical Configuration: Parcels under consideration must be able to accommodate the proper siting of the appropriate facilities intended for those park types, along with space for support facilities, circulation, and safety zones.
Analysis: The proposed 8.84 acre area includes land at the Library, its central and southern parking lots, and the land directly to the south and east of it. The site is essentially level and includes mature trees in the parking lot and along Paseo Padre Parkway and Stevenson Boulevard, but otherwise includes no other significant vegetation or natural features. Built features include the Library, the parking lot, the art sculpture, and a sidewalk along Paseo Padre Parkway leading to the east side of the library; the balance of the land has never been developed.
The land visually appears as a natural continuation of Central Park. As part of the larger Central Park, the undeveloped land could host a range of passive or active recreational improvements within the guidelines of development standards for Destination/Special Use parks defined in the Master Plan. The Library parking lot driveway provides vehicular access to the Library and Central Park. The existing sidewalk creates a continuation of safe pedestrian circulation by connecting the Library to the Teen Center, Senior Center, Community Center, and Nature Learning Center through the greater Central Park sidewalk network.
2. Topography: Parcels under consideration should have average slope gradients no greater than five percent, to provide flat, usable recreation spaces. Limited areas of greater slopes may be acceptable as natural or open space areas.
Analysis: The proposed 8.84 acre property is generally flat, providing ideal topography for recreational use and/or development to the City standards for Destination/Special Use parks.
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 5
3. Encumbrances: Feasibility of parcel acquisition for recreation use must consider any encumbrances and restrictions, such as dedicated easements, power lines, and geologic hazard zones.
Analysis: The site includes no restrictions, easements, power lines, or geologic hazard zones that would preclude recreational use or park development. No power lines are situated on the site. The site is in a liquefaction zone, which requires structural design review for structures. The area is in the 100 year Flood Zone as is the rest of Central Park.
4. Access: Pedestrian, bicycle, and vehicular access to proposed park land must be accommodated in a safe manner.
Analysis: The site has good access from all angles from a local and citywide perspective. Primary vehicular access to the site is from Stevenson Boulevard through the library parking lot driveway. The frontage of the site extends from Stevenson Boulevard on the western side, south to Paseo Padre Parkway. The frontage is improved with sidewalk, curb, and gutter making it accessible to pedestrian and bicycle traffic.
Pedestrian traffic is further facilitated with the connection of the sidewalk from the library parking lot to the greater Central Park sidewalk network.
5. Environmental Constraints: Parcels under consideration should be evaluated for presence of hazardous materials, unsafe environmental conditions, sensitive environmental conditions, and other factors, such as wetlands, flood plains, etc. that might limit development of the parkland.
Analysis: No knowledge of use of hazardous materials or unsafe environmental condition on this site exists. Due to the site being historically agricultural (typical of much of Fremont), no known sensitive environmental conditions exist. Lake Elizabeth has historically been used and is currently being used by the Alameda Flood Control District (ACFCD) as a stormwater basin. Parts of Central Park which are not owned by the City of Fremont have been leased from ACFCD for park use.
Any future park development proposal will be accompanied with a detailed review of site conditions, an analysis for substances incompatible with a public park, and recommended on-site mitigations if applicable.
6. Compatibility with Surrounding Land Uses: Compatibility of the activities and functions of the proposed park with surrounding land uses must be evaluated.
Analysis: Existing land uses adjacent to the site include the following:
To the north: Stevenson Boulevard, parking lots, and the Police Building To the south: Paseo Padre Parkway and commercial development To the east: Central Park, the Teen Center, and Lake Elizabeth (parkland) To the west: The intersection of Paseo Padre Parkway and Stevenson Boulevard, and commercial development
Just beyond the commercial development to the north and south are existing residential developments, including several apartment building complexes and single family homes.
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 6
Dedication of the parkland would be compatible with adjacent current park usage at Central Park. The site would provide excellent visibility and connectivity to the adjacent Paseo Padre Parkway and Stevenson Boulevard which are both thoroughfare streets with high volumes of traffic. The adjacent Central Park, Teen Center, and Library are all compatible public uses, and the site would offer connectivity and parkland continuity between the Teen Center and the Library. The site would also be compatible with the commercial development as the park land would offer visual and pedestrian connectivity from the commercial areas to Central Park and its amenities.
7. Maintenance Impacts: Potential impacts on maintenance of park property due to unique physical characteristics of land, such as unusual shape or small size should be evaluated to discourage maintenance impacts disproportionate to their value to the park system.
Analysis: The size, shape, and general physical characteristics of the proposed parkland would not create maintenance impacts disproportionate to the benefit provided to the community by expanding Central Park in this area. Since the site is continuous with adjacent parkland, the maintenance to the subject site would be seamless, and the current maintenance routine would continue status quo. Per City Council policy, all new park development is required to have a funding plan for ongoing maintenance. The land is currently being maintained as part of the adjacent park land and dedication would not create undue maintenance impacts on the City’s park system under current policy.
8. Recreation Commission Review: Parcels under consideration must be reviewed by the Recreation Commission. The Recreation Commission will review and make recommendations on proposed parkland according to the goals, standards, and guidelines of the Parks and Recreation Master Plan, including physical, economic, and recreation considerations.
Analysis: The 8.84 acre site was reviewed by the Recreation Commission at their regularly scheduled meeting on October 5th, 2022. Their recommended action to City Council is included below.
9. Capital Improvements, Operations, and Supervision Costs: Costs associated with capital improvements, operations, maintenance, and supervision requirements for proposed parks must be considered prior to acquisition and development of parkland and recreation facilities.
Analysis: There are currently no plans for capital improvement of the land being considered for dedication. The future development of this land could be funded with Park Facilities fees, which are intended for this purpose.
All public utilities (electric, water, storm drainage, and sanitary sewer) are available to the site. Depending on the final site design of the park, some or all of the utility services would need to be extended into the vacant area of the site upon development.
The actual costs of capital improvements, operations, maintenance, and supervision would be considered at the time of design development through the City’s standard operational and capital budget processes.
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 7
10. Location: The parcels being considered for new parks should be located in “high- needs” area of the City, as determined by the gap analysis, to ensure equitable access to park land within a 10-minute walking distance from residential neighborhoods.
Analysis: This park dedication expands the existing Central Park which is a Destination/Special Use Park that serves the entire community, not only adjacent neighborhoods. The site is also within a 10-minute walk to neighborhoods to the north and south.
11. Current Use of the Property: Parcels should be evaluated for current use to determine cost of acquisition and development of parkland. For example, vacant parcels, underdeveloped parcels (those that are not developed up to allowable land use standards), and school sites with excess lands may be more suitable for park land use.
Analysis: The property is currently used as public facility, including the Library itself and its parking lot, and they are both acceptable parkland uses. The Library operates on a continued lease agreement between the City and the Alameda County Library, who has been informed of and supports the dedication under consideration.
Other developments on the land include the prominent art sculpture at the corner of Paseo Padre Parkway and Stevenson Boulevard and the existing sidewalks. The remaining balance of the land is currently undeveloped and suitable for parkland use. No incompatible uses are occurring on the site.
12. Minimum Parcel Size: The parcel(s) under consideration should be a minimum aggregate size of 4 acres. Park classifications established in the 2022 Parks and Recreation Master Plan will guide the appropriate parcel size to address the intended level of service, which may be less than 4 acres on a case-by-case basis.
Analysis: The 8.84 acre size exceeds the minimum parcel size of 4 acres. If dedicated, it will formally become part of the larger 400+ acre Central Park.
13. Connectivity: Potential park sites should have good visibility from public streets and public lands to ensure safety. They should be connected to the city-wide trail system, existing and planned bike network, and key city-wide connecting streets; connectivity to transit hubs, commercial centers, schools, places of worship, and other parks should also be taken into consideration.
Analysis: The site has excellent visibility from public streets and would complete connectivity at a significant intersection at Paseo Padre Parkway and Stevenson Boulevard. As stated above, the site would connect the adjacent commercial center to the Library and park. It would also connect pedestrians from Paseo Padre Parkway, Stevenson Boulevard, and the Library to the greater network of the Central Park sidewalk system from the existing sidewalk on the site.
14. Ability to Leverage a Variety of Funding Sources for Acquisition: Some park sites may have a greater ability to leverage funding from grants administered by federal or state agencies or other funding.
Staff Report (ID # 4628) Meeting of December 6, 2022
Updated: 12/1/2022 8:31 AM by Alberto Quintanilla Page 8 Analysis: The City currently owns both parcels and no funding would be necessary for the acquisition of the property. The addition of this site to the greater Central Park land creates a continuity of seamless parkland which enhances the City’s ability to apply for park-related grant funding for development of this land.
Recreation Commission Recommendation
On October 5th, 2022, at their regularly scheduled meeting, the Recreation Commission voted unanimously to recommend dedication of 8.84 acres at the corner of Paseo Padre Parkway and Stevenson Boulevard as parkland.
FISCAL IMPACT: No fiscal impact is anticipated. The land is currently owned by the City and maintained with the adjacent parkland.
ENVIRONMENTAL REVIEW: The dedication of 8.84 acres at the corner of Paseo Padre Parkway and Stevenson Boulevard would be exempt from the requirements of the California Environmental Quality Act (CEQA) per, without limitation, each on a separate and independent basis, (1) CEQA Guidelines Section 15307, as an action taken by a regulatory agency for the protection of the environment, specifically, for the maintenance, restoration, or enhancement of a natural resource, specifically, for the protection of open space resources; (2) CEQA Guidelines Section 15308, as an action taken by a regulatory agency for the protection of the environment, specifically, for the protection of open space resources; and (3) the proposed parkland dedication are part of the project analyzed in the General Plan EIR (SCH#2010082060) and none of the circumstances necessitating preparation of a subsequent EIR pursuant to Public Resources Code Section 21166 and CEQA Guidelines Sections 15162 and 15163 are present; and (4) CEQA Guidelines Sections 15378(b) and 15601(b)(3) as the dedication of parkland is an administrative activity that will not result in an effect on the physical environment and any future development of the park will be developed later with the appropriate environmental review. There are no previously identified significant effects which are substantially more severe than analyzed in the prior EIR or cannot be substantially mitigated by the imposition of uniformly applied development policies or standards applied on a citywide basis.
ATTACHMENTS:
• Exhibit A: Proposed Park Land
• Draft Resolution - Park Land Dedication
RECOMMENDATIONS:
1. Adopt a resolution dedicating 8.84 acres of land at Paseo Padre Parkway and Stevenson Boulevard as parkland and making CEQA findings.
2. Find that designation of the 8.84 acres of land at Paseo Padre Parkway and Stevenson Boulevard for park purposes is exempt from the requirements of CEQA per CEQA Guidelines Section 15307 (Actions by Regulatory Agencies for Protection of Natural Resources), Section 15308 (Actions by Regulatory Agencies for Protection of the Environment), Sections 15162 and 15163 (Actions analyzed under the General Plan EIR), and Sections 15378(b) and 15601(b)(3), as the dedication is an administrative activity.