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City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Community Services
Meeting Date: June 9, 2025
Report #:2501-3998
TITLE
Approval of Construction Contract No. C25193640 with FieldTurf USA, Inc. in the Amount of $3,064,185 for Stanford Palo Alto Community Playing Fields Turf Replacement Project PG- 26000, and Authorization of Contract Contingency in an Amount Not-to-Exceed $306,419; and Amend the FY 2025 Budget in the Capital Improvement Fund and the Parks Dedication Fund; CEQA status – categorically exempt under CEQA Guidelines sections 15301 (Existing Facilities) and 15302 (Replacement or Reconstruction).
RECOMMENDATION
Staff recommends that City Council:
1. Approve and authorize the City Manager or their designee to execute construction contract with FieldTurf USA, Inc. (Contract No. #C25193640)1 in the amount not to exceed $3,064,185 for the purchase and installation of a synthetic field replacement for Stanford Palo Alto Community Playing Fields Turf Replacement Capital Improvement Program project (PG-26000); and
2. Authorize the City Manager or their designee to negotiate and execute one or more change orders to contract No. C25193640 with FieldTurf USA, Inc. for related additional but unforeseen work which may develop during the project, the total value of which shall not exceed $306,419.
3. Amend the Fiscal Year 2025 Budget Appropriation (requires a 2/3 approval) for:
a) Capital Improvement Fund by:
i) Increasing the Transfer In from the Parks Dedication Fund by $961,490; and
1 Contract No. #C25193640
https://www.paloalto.gov/files/assets/public/v/1/community-services/staff-report-contracts/open-space-parks- and-golf/field-turf-usa/field-turf-usa-inc-c25193640.pdf
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ii) Increasing the appropriation for Stanford Palo Alto Community Playing Fields Turf Replacement Project (PG-26000) by $961,490; b) Parks Dedication Fund by:
i) Increasing the Transfer To appropriation to the Capital Improvement Fund by $961,490; and
ii) Decreasing the Ending Fund Balance by $961,490.
EXECUTIVE SUMMARY
The synthetic turf fields at the Stanford Palo Alto Community Playing Fields (Mayfield fields), installed in 2016, are now at the end of their useful life and require full replacement to maintain safe and high-quality playing conditions. The current infill material, thermoplastic elastomer (TPE), has performed poorly in the Bay Area‘s climate, leading to heat-related degradation and user complaints throughout fields in the region.
To address this, staff evaluated a range of replacement options through site visits to comparable fields, consultation with stakeholders, and technical analysis. Alternative infill materials were assessed for safety, performance, and compatibility with existing site infrastructure. Based on findings, cork infill emerged as a viable, irrigation-free, organic alternative.
The scope of work includes replacing the synthetic turf, infill, and the underlying pad, which has also reached the end of its useful life and a maintenance contract for the life of the eight-year warranty. Staff recommends moving forward with FieldTurf USA, Inc. through a cooperative purchasing agreement to ensure timely project delivery and continuity of service at this high- demand community recreational facility.
BACKGROUND
On May 2, 20052, the City Council approved the City of Palo Alto and Stanford Development Agreement and Lease. Under this agreement, the City accepted the completion of the Stanford Palo Alto Community Playing Fields (also known as the Mayfield fields), including two synthetic turf soccer fields and a practice area, from Stanford University on August 9, 2006. This initiated a 51-year lease term. The six-acre site is dedicated exclusively to park and recreational use for the duration of the lease. Since installation, the fields have been highly utilized and continue to experience high demand from youth and adult soccer leagues, as well as drop-in users. 2 City Council, May 2, 2005; Agenda Item #8 SR #236:05, https://www.cityofpaloalto.org/files/assets/public/v/1/agendas-minutes-reports/reports/city-manager-reports- cmrs/year-archive/2005/05-may/cmr236-05.pdf
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To maintain the safety and usability of the site, the City Council approved the replacement of the synthetic turf on the two soccer fields on November 30, 20153. While the base, drainage, and shock pad remained in good condition, the turf surface and infill were replaced with a Greenfields synthetic turf system using thermoplastic elastomer (TPE) infill. This system was selected in part because it contained no recycled tire products, representing an improvement over the original installation. However, the TPE infill has not performed well in the Bay Area‘s climate. High temperatures have caused the infill to soften and melt, leading to ongoing issues with field quality and user experience throughout fields in the Bay Area. To prolong the use of the fields, most of the deteriorating TPE infill was removed in December 2022 and replaced with a higher grade of TPE rated for higher heat and ultraviolet light resistance. Some deteriorating TPE remained as it could not be removed without damaging the turf and this is melting and clumping in high heat.
The Community Services Department manages four synthetic athletic fields: El Camino Park, the Stanford Palo Alto Community Playing Fields, and a field at Cubberley. Two of these synthetic turf fields, El Camino Park and Stanford Palo Alto Community Playing Fields, have reached or are near the end of their useful life and require replacement.
To address this, a Capital Improvement Project (PG-24000) for the replacement of the El Camino Park synthetic turf field was included in the FY 2024 Adopted Capital Budget. However, at the Finance Committee meeting on May 21, 20244, the City Council directed staff to conduct additional analysis to inform future field replacements. In response, the City Council approved a refined Turf Study on April 21, 20255, focusing initially on evaluating turf options for El Camino Park. The study is currently underway and will inform the decision for El Camino Park PG-24000 in FY 2026.
In the meantime, staff has identified an urgent need to replace the synthetic turf, base, and pad at the Stanford Palo Alto Community Playing Fields (CIP Project PG-26000) in FY 2025. This field’s condition has deteriorated to a point where safety concerns could soon necessitate partial or full closure. Delaying the replacement of the synthetic turf system could lead to field closures, directly affecting youth and adult leagues, scheduled programming, general drop-in use, and revenue loss, and would limit staff’s ability to effectively coordinate construction timelines, as other capital projects are scheduled based on this project’s timeline. Addressing 3 City Council, November 30, 2015; Agenda Item #11; SR #6284 https://www.cityofpaloalto.org/files/assets/public/v/1/agendas-minutes-reports/reports/city-manager-reports- cmrs/year-archive/2015/id-6284-stanford-palo-alto-fields.pdf 4 Finance Committee, May 21, 2024; Agenda Item #1; SR# 2402-2664, https://cityofpaloalto.primegov.com/Portal/viewer?id=0&type=7&uid=543c404f-2b05-4cbb-b9df-75ffb768545d 5 City Council, April 21, 2025; Agenda Item #12, SR #2503-4446, https://portal.laserfiche.com/Portal/DocView.aspx?id=166437&repo=r-704298fc 6 2
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this replacement now ensures continued community access, avoids compounding delays, and aligns with broader operational capacity planning.
ANALYSIS
Synthetic turf fields typically have a functional lifespan of approximately eight to ten years, during which gradual wear and tear leads to a reduction in pile height, deterioration of turf fibers, and displacement or breakdown of infill materials. The current synthetic turf system at the Stanford Palo Alto Community Playing Fields was installed in 2016 and is now at or near the end of its useful life.
Given the high demand for the Stanford Palo Alto Community Playing Fields and their importance to the community’s recreational offerings, staff prioritized maintaining safe and playable field conditions while also incorporating insights from preliminary research and site evaluations.
To support informed decision-making, staff evaluated different turf products and visited several field sites. Based on this evaluation, staff recommends the installation of a FieldTurf system with cork infill. This system offers a balanced solution that aligns with site conditions, replaces the TPE with an organic infill, considers maintenance, and provides improved playability. Cork infill is an organic material that does not require irrigation, making it well-suited to the City’s infrastructure, which is an improvement from the existing current infill product.
The installation comes with an eight-year warranty and the contract includes a maintenance contract for the duration of the warranty. This specialized service includes one maintenance visit per year for the first three years, and two maintenance visits per year (semi-annually) for the remaining five years. In-house staff perform maintenance duties five days a week by removing surface debris.
Due to the presence of TPE infill in the City’s existing synthetic turf fields, staff has been unable to identify a viable recycling facility. However, staff has identified a feasible option to repurpose our existing artificial turf once it is removed. FieldTurf is currently working with staff to establish a chain of custody that meets our ZeroWaste goals for the removed field materials. In addition, the new synthetic turf product considered for installation by FieldTurf is recyclable at the end of its future life cycle.
Procurement Process
The proposal was obtained through a cooperative agreement established following a competitive solicitation process conducted by Sourcewell (formerly the National Joint Powers Alliance), a public cooperative purchasing agency that serves government and nonprofit organizations.
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To participate under this agreement, staff issued a Request for Quotation to Sourcewell and received a proposal from FieldTurf USA, Inc. on April 2, 2025. During preliminary planning and research for turf replacement projects, staff proactively explored alternative pricing options and obtained informal estimates from vendors outside of cooperative purchasing agreements.
These estimates were significantly higher. In addition, feedback from industry professionals, including turf manufacturers and installers, consistently recommended cooperative purchasing agreements as the most cost-effective and transparent procurement method for public agencies, due to reduced rates achieved through economies of scale.
Pursuant to Palo Alto Municipal Code section 2.30.360(j), the city is authorized to utilize cooperative purchasing agreements in lieu of conducting its own competitive solicitation.
FISCAL/RESOURCE IMPACT
The majority of the funding necessary for the actions recommended in this report is available in the FY 2025 Adopted Capital Improvement Program. Additional funding of $961,490 is requested from the Parks Dedication Fund.
The increase over the original project budget is primarily due to a revised scope of work. The original estimate did not include full replacement of the shock pad and aggregate base, both of which have deteriorated and must be replaced to ensure field safety and long-term performance. Furthermore, the aggregate base of rock and fines has become unstable and no longer provides adequate drainage. Staff has reviewed the proposal and believes the pricing is reasonable and aligned with current industry standards for a project of this scale and complexity.
STAKEHOLDER ENGAGEMENT
To ensure a transparent and informed process, staff have proactively engaged a range of stakeholders throughout the planning phase. This has included conducting site visits, researching best practices, and holding discussions with representatives from nearby jurisdictions. Staff extended invitations to members of the Parks and Recreation Commission’s Playing Field Ad Hoc Committee, as well as the former Playing Field and Racquet Court Ad Hoc Committee, to participate in field evaluations and observe turf performance across various installations. Additionally, staff notified user groups of the Stanford Palo Alto Community Playing Fields about the planned replacement project and anticipated construction timeline.
The project was also referenced during the April 21, 20256, City Council meeting as part of the 6 City Council, April 21, 2025; Agenda Item #12, SR #2503-4446, https://portal.laserfiche.com/Portal/DocView.aspx?id=166437&repo=r-704298fc 6 2
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broader discussion on the Turf Study contract. The Parks and Recreation Commission has received updates on this maintenance project throughout the year, both through Departmental Reports and during the annual CIP Review presented in the December 2024 and January 2025 meeting agendas.
ENVIRONMENTAL REVIEW
Stanford Palo Alto Community Playing Fields Turf Replacement is categorically exempt from the California Environmental Quality Act (CEQA) under Title 14 California Code of Regulations Section 15301 (Existing Facilities), Section 15302 (Replacement or Reconstruction), because it consists of the redevelopment of an existing facility.
APPROVED BY:
Kristen O'Kane, Community Services Director