City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Community Services
Meeting Date: January 12, 2026
Report #:2511-5568
TITLE
Study and Assessment of Palo Alto Turf Systems and Direct Staff to Proceed with El Camino Park Synthetic Turf Replacement and Natural Grass Pilot; CEQA Status – Categorically and Statutorily Exempt
RECOMMENDATION
The City Council Ad Hoc Committee recommends that City Council direct staff to:
1. Proceed with replacing the existing synthetic turf at El Camino Park with improved synthetic turf using organic infill and to implement risk management measures, including stormwater filtration, enhanced maintenance practices, and related mitigation measures; and
2. Pursue a natural grass pilot project to enhance playability and durability; and
3. Continue to explore opportunities to transition from synthetic turf at Cubberley.
EXECUTIVE SUMMARY
At its November 17, 20251 meeting, City Council considered a staff and Park and Recreation Commission recommendation to approve the Study and Assessment of Turf Systems for the City of Palo Alto Playing Fields2 and to proceed with replacement of the synthetic turf at El Camino Park. City Council voted unanimously to defer action and establish an Ad Hoc Committee to further discuss the Study with staff and return with recommendations. 1 City Council, November 17, 2025, Agenda Item #9, SR# 2508-5070, https://portal.laserfiche.com/Portal/DocView.aspx?id=237438&repo=r-704298fc 2 2025 Study and Assessment of Turf Systems for the City of Palo Alto Playing Fields, Updated: November 3, 2025, https://www.paloalto.gov/files/assets/public/v/1/community-services/staff-report-contracts/open-space-parks- and-golf/turf-study-report/2025-city-of-palo-alto-turf-study-report.pdf
Since that meeting, staff have completed additional follow-up requested by City Council and the Ad Hoc Committee, including interdepartmental stormwater assessments, clarification of cost assumptions, analysis of summer field utilization, and further evaluation of natural grass pilot options.
The City Council Ad Hoc Committee met on November 24 and December 9, 2025. Based on those discussions, the Ad Hoc Committee recommends proceeding with replacement of the existing synthetic turf at El Camino Park using improved synthetic turf and organic infill with enhanced risk mitigation measures, advancing a pilot project to improve natural grass playability, and continuing to explore long-term opportunities to transition from synthetic turf at Cubberley.
Staff analysis confirms that El Camino Park remains a critical component of the City’s athletic field system. Removal of the synthetic turf would displace approximately 1,221 permitted players annually, including about 570 Palo Alto residents, with no available capacity at other City fields to absorb this demand. Summer availability does not offset peak fall, winter, and spring demand, when fields are fully programmed.
The Study and Assessment of Turf Systems is intended to inform the City’s long-term policy framework for athletic field surface decisions. Future actions, including Cubberley, will apply this framework using site-specific operational data and pilot outcomes, rather than initiating new systemwide studies. This approach balances fiscal stewardship, operational clarity, and timely decision-making.
BACKGROUND
The City of Palo Alto’s Community Services Department manages a system of natural and synthetic athletic fields, including El Camino Park, Stanford Palo Alto Community Playing Fields (Mayfield), and Cubberley. The synthetic turf field at El Camino Park, installed in 2015, has reached the end of its useful life and requires replacement.
A Capital Improvement Project (PG-24000) to replace the El Camino Park synthetic turf was included in the FY2024 Adopted Capital Budget. In May 20245, the Finance Committee recommended that City Council direct staff conduct additional study to inform future turf replacement decisions. The Turf Study was incorporated into the FY 2025 Budget6, and replacement of the El Camino Park synthetic turf was placed on hold pending completion of the study.
5 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 6 City Council, June 17, 2024; Agenda Item #28; SR# 2406-3140, https://portal.laserfiche.com/Portal/DocView.aspx?id=73983&repo=r-704298fc&searchid=004d1d0a-4344-4816- %20ab2d-c044073c40cb
Replacement of the Mayfield synthetic turf was approved by City Council in June 20259. That project achieved substantial completion on December 5, 2025, and was delivered on time and on budget. The fields were immediately opened for public use.
The Study and Assessment of Turf Systems for the City of Palo Alto Playing Fields evaluates synthetic, natural, and hybrid turf systems with respect to playability, lifecycle cost efficiency, maintenance requirements, environmental and health considerations, and community priorities. The Study includes a case study of El Camino Park and provides system-level recommendations for future turf decisions.
On November 17, 2025, City Council considered a staff and Park and Recreation Commission recommendation to approve of the Study and Assessment of Turf Systems and to proceed with replacement of the synthetic turf at El Camino Park. City Council voted 7-0 to defer the item to a date uncertain and establish an Ad Hoc Committee to further discuss the Study with staff and return to Council with recommendations.
A substitute motion to direct staff to proceed with synthetic turf replacement at El Camino Park and to designate Cubberley as a pilot natural grass site failed on a 3-4 vote.
ANALYSIS
The City initiated the Study and Assessment of Turf Systems to provide a consistent, systemwide framework for evaluating synthetic, natural, and hybrid turf systems across City athletic facilities. The Study evaluated lifecycle costs, playability, environmental considerations, maintenance requirements, and community priorities and is intended to guide future capital and operational decisions. At the November 17 Council meeting, the Council approved a new Ad Hoc Committee to further review the Study and return to Council with a recommendation.
Mayor Lauing, Vice Mayor Veenker, and Councilmember Burt comprised the City Council Ad Hoc Committee, and met on November 24 and December 9, 2025. They reviewed the Study and Assessment of Turf Systems and requested additional clarification from staff on several topics. During these meetings, the Ad Hoc Committee sought further information regarding risk mitigation measures including stormwater protection measures, infill materials, PFAS considerations/testing, surface heat, and maintenance practices. Discussions also included lifecycle cost assumptions, seasonal field usage at El Camino Park, and potential pilot approaches for improving natural grass playability. The following sections summarizes the topics that were discussed by the Ad Hoc Committee.
9 3 City Council, June 9, 2025; Agenda Item #9; SR #2501-3998, https://portal.laserfiche.com/Portal/DocView.aspx?id=182834&repo=r-704298fc&searchid=a59660f1-1e15-47f0- %20beac-c9d5573bbaab
Risk Mitigation Measures
Risk mitigation measures were a central focus of both the Turf Study and subsequent policy discussions. Key areas of concern include PFAS, infill materials, stormwater protection, surface heat, and GMAX6 performance.
Historically, PFAS testing was not conducted for synthetic turf materials. Going forward, staff will pursue material testing and manufacturer verification as part of replacement projects.
Previous fields utilized thermoplastic elastomer (TPE) infill; proposed replacements would use natural cork infill, which reduces plastic content and lowers surface temperatures.
Stormwater protection has also been strengthened. Earlier fields did not include storm drain filtration; proposed mitigation now includes subsurface drainage improvements and/or the installation of inlet filtration where applicable. GMAX testing has been conducted annually to monitor surface hardness, and staff will be continuing this practice with increased scrutiny as fields approach the end of their useful life.
Staff coordinated interdepartmental stormwater and drainage assessments with Parks and Watershed Protection and Storm Drain work groups at multiple locations. At the recently completed Stanford Palo Alto Community Playing Fields (Mayfield) project, drainage is fully subsurface and there are no open drains requiring filtration. At El Camino Park, staff have ordered 13 inlet hat filters and 3 exterior sock filters for installation. At Cubberley, filters are already in place around the field and track area, and staff are evaluating whether additional filtration is warranted.
Cost Assumptions
Public comments and Ad Hoc Committee discussions also requested clarification regarding cost assumptions included in the Turf Study. Synthetic turf replacement costs presented in the Study are based on industry benchmarks and public project data, rather than project-specific bid pricing. Cost estimates include turf replacement only and exclude pad replacement and site- specific improvements. Pad replacement is not assumed with every turf replacement cycle and was excluded from lifecycle cost comparisons due to site-specific condition variability. Lifecycle costs vary based on use intensity, staffing levels, subsurface conditions, and maintenance strategies. Staff are currently reassessing whether full pad replacement is required at El Camino Park and is in the process of obtaining updated, site-specific pricing.
El Camino Park
The Ad Hoc Committee requested additional data on field usage at El Camino Park. Staff provided analysis of summer field utilization at El Camino Park for 2025. In June, approximately 30 percent of available time slots were reserved. In July, approximately 70 to 75 percent of available time slots were reserved. While utilization increases later in the summer, overall summer use remains significantly below peak-season demand.
Youth field demand in Palo Alto is driven primarily by organized league seasons, which occur in the fall, winter, and spring. Most youth leagues pause during the summer due to travel and camp participation. Winter league play cannot shift to summer because leagues do not operate during that period. During peak seasons, El Camino Park is fully booked on weekdays from approximately 4:00 p.m. to 10:00 p.m. and on weekends from approximately 8:00 a.m. to 10:00 p.m. There is no available capacity at other City fields to absorb El Camino Park use if the synthetic turf were removed.
Based on current winter permitted use, removal of the El Camino Park synthetic turf would displace approximately 1,221 players annually, including approximately 570 Palo Alto residents.
This includes approximately 733 youth players, of whom about 412 are Palo Alto residents, and approximately 488 adult players, of whom about 158 are Palo Alto residents. There is no available capacity elsewhere in the City’s athletic field system to absorb this displaced use.
Natural Grass Pilot Project
Consistent with the Turf Study recommendations, staff will explore opportunities to enhance natural grass playability through a pilot program to determine if different maintenance practices or designs could increase playability on natural grass fields, particularly during the winter months when synthetic turf fields are heavily relied upon. Data collected from the turf pilot will be used to analyze if carrying capacity (playable hours) can be increased on native turf fields through enhanced turf management practices. If so, enhanced turf management could help the city meet user demands and partially offset user impacts from converting synthetic fields to natural turf. Staff consulted with an agronomist, who confirmed that while turf quality could be improved through increased maintenance, overall gains in carrying capacity would likely be limited. While the scope of the proposed pilot is still being finalized, it could involve a range of maintenance adjustments and field renovations, from minor to reconstructing fields with a new base, soil, and grass. Staff will develop an optimized turf management program at select fields and study over the course of one year, if the pilot program results in increased playable hours and field quality at the pilot locations the pilot will be used to inform future capital and operating decisions in turf management.
Staff are evaluating Greer Park and Cubberley natural grass fields as pilot location(s). The pilot program would be part of the FY 2027 budget discussion and is subject to City Council review and appropriation of the required funding. Advancing a natural grass pilot program will assist in continuing evaluation of long-term opportunities to transition from synthetic turf at Cubberley.
Cubberley Field
Cubberley Turf Replacement (CB-28000) is scheduled for FY 2028. Data and findings from the FY 2027 natural grass pilot, combined with the adopted Turf Study framework, will inform staff’s implementation recommendation for Cubberley. This approach allows City Council to make a timely, evidence-based decision without repeating prior systemwide analyses.
FISCAL/RESOURCE IMPACT
El Camino Park
A Capital Improvement Project (PG-24000) to replace the El Camino Park synthetic turf was originally included in the FY 2024 Adopted Capital Budget. The Turf Study was funded through PG-24000 in approximately $139,613. The current project balance following completion of the Turf Study is approximately $660,000 and was included as part of the annual budget reappropriation process to reflect funding in FY2026 for CIP Project PG-24000.
Replacement of the El Camino Park synthetic turf is estimated to cost between $1.0 million and $1.3 million, with construction targeted for Spring 2026. A budget amendment for the estimated $340,000 - $640,000 gap in PG-24000 is anticipated to be brought to City Council in April.
Natural Grass Pilot Project
Once cost estimates are available, staff will bring forward the pilot program for City Council review, including potential requests for appropriation as needed. This is anticipated to be discussed as part of the proposed FY 2027 budget.
Utilizing the Turf Study as the framework for future decisions avoids the cost and staff time associated with conducting additional systemwide turf studies and supports efficient use of limited capital and operating resources.
STAKEHOLDER ENGAGEMENT
Robust stakeholder engagement was conducted as part of the Study and Assessment of Turf Systems and informed the recommendations previously presented to the City Council. That engagement process is fully documented in the Turf Study and was summarized in the November 17, 2025 staff report.
As part of the Study, City staff facilitated multiple opportunities for public input and stakeholder dialogue, including three focus groups held in July 2025 representing El Camino Park field users, the Sierra Club Loma Prieta Chapter, and the Parks and Recreation Commission Playing Fields Ad Hoc Committee. Standardized questions were distributed in advance, and participants were invited to provide written and verbal feedback. A summary of the focus group outreach, questionnaire, and responses is included in Appendix C11 of the Study. 11 Study and Assessment of Turf Systems, Appendix C: City of Palo Alto Outreach Questionnaire and Responses, https://www.paloalto.gov/files/assets/public/v/1/community-services/staff-report-contracts/open-space-parks- and-golf/turf-study-report/appendix-c-outreach-questions-and-responses.pdf The City also maintained a dedicated project webpage13 to provide transparent and up-to-date information and to encourage community participation. The draft Study was released for public review on August 13, 2025, initiating a formal public comment period that ran through September 3, 2025. During that period, and through Parks and Recreation Commission meetings on August 26 and September 23, 2025, the City received a total of 32 public comments from 21 unique contributors. Appendix F of the Study summarizes these comments and provides a table of key themes and staff responses.
Since the November 17, 2025 City Council meeting, staff have continued to receive public input through standard public processes, including written correspondence to City Council, and public comment at Parks and Recreation Commission meetings. This input focused primarily on implementation considerations, system capacity, environmental mitigation measures, and timing, rather than the underlying findings of the Study.
This staff report builds upon the extensive engagement already completed and incorporates additional clarification and analysis requested by City Council and the Ad Hoc Committee.
ENVIRONMENTAL REVIEW
City Council action on this item is exempt from CEQA review under Sections 15306 and 15262 of the CEQA Guidelines. Approval of this report does not commit the City to a specific construction project. CEQA review will be conducted as required for future implementation actions.
APPROVED BY:
Kristen O'Kane, Community Services Director
13 Turf Study Project Webpage, https://www.paloalto.gov/Departments/Community-Services/Parks-Open-Space- Golf-Division/Whats-Happening-in-Your-Parks/Turf-Study