City of Sacramento
City Council - 5PM Report
915 I Street Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2025-01768 12/9/2025
Mómtim C'atnaandí (Old Sacramento Children’s Play Area) Project [Two-Thirds Vote Required] [Published for 10-day Review 11/26/2025]
File ID: 2025-01768
Location: 1200 Front Street, APN 006-0136-025-0000, District 4 Recommendation: 1) Pass a Motion by two-thirds vote to: a) suspend competitive bidding, in the best interest of the City, to purchase play area equipment; b) award the Old Sacramento Play Area Project construction contract to Otto Construction for an amount not to exceed $2,008,943; and c) authorize the Interim City Manager or designee to execute the contract with Otto Construction for an amount not to exceed $2,008,943; and 2) Adopt a Resolution transferring up to $710,713 from the available balance of the Community Center Fund (F6010) to the Old Sac Children’s Play Area (M17700100).
Contact: Sabrina Tefft, Development Project Manager, (916) 808- 3789, [email protected]; Ellen Sullivan, Senior Development Project Manager, (916) 808-5758, [email protected]; City Manager’s Office of Innovation and Economic Development; Josh Gibson, Facilities and Real Property Superintendent, (916) 808-8920, [email protected]; Dustin Hollingsworth, Assistant Director, (916) 808-5538, [email protected]; Convention and Cultural Services Department Presenter: None
Attachments:
1-Description/Analysis
2-Resolution
3-Renderings
4-Construction Contract
Description/Analysis
Issue Detail: On November 14, 2023, City Council passed Resolution 2023-0359, approving a grant agreement for Community Reinvestment Projects with the California Natural Resources Agency (CNRA) in the amount of $20 million. Of this $20 million, the Old Sacramento Children’s Play Area (Play Area) project received $1 million in funding. The Play Area would be a playground that provided children with a free activity while visiting Old Sacramento, in turn extending dwell times for families.
File ID: 2025-01768 12/9/2025
The playground was also an opportunity to tell a more diverse and comprehensive history of the Old Sacramento Waterfront (OSW). The City engaged with the Shingle Springs Band of MiWok Indians and Wilton Rancheria, the original inhabitants of the site, to collaborate on the design.
Through several listening sessions and design workshops, several significant cultural elements were selected by Shingle Springs Band of MiWok Indians and Wilton Rancheria to highlight life on the river during the time the Nisenan inhabited the area. These elements ultimately informed theme of the playground, riparian corridor.
The primary goal of the Play Area is to honor the land and history of Sacramento’s indigenous tribes; therefore, it was imperative to select play equipment that reflects the cultural values and avoid stereotypical and disrespectful use of indigenous imagery and motifs. To ensure the City moved forward with an inclusive and respectful approach, and with the assistance of our landscape architect, Stantec Architecture, staff reached out to several playground equipment manufacturers with experience working with indigenous communities. The City requested proposals for equipment that aligned with the theme of the play area. One of the stipulated requirements was that the playground equipment must be made of natural wood, which 1) was identified in the design workshops as the preferred material for the playground and 2) necessary due to its location in a National Landmark Historic District. Duncan and Grove were able to adhere to the material requirements and had an off- the-shelf play structure that could be customized to incorporate some of the design elements (e.g. woven basket) identified during the design phase. The City entered into a design contract to further develop and customize their proposed play structure. This allowed for the participating tribe’s indigenous knowledge to be integrated into the design process and ensured the play structure reflected elements of traditional design with the appropriate meaning and context.
Both Shingle Springs Band of Miwok Indians and Wilton Rancheria were extremely satisfied with the Duncan and Grove play structure, as it is made of wood, promoting sustainability, and incorporates a traditional woven basket into the design. Basketry is an important part of indigenous cultural heritage that has been lost over the years due to the disruption of traditional ways of life. This iconic piece will provide opportunities for children and the community to connect and learn about tribal culture through play.
Through this process, Duncan and Grove designed a wood entry feature that represents the tule reed, a central theme to the play area and significant to the indigenous way of life.
Duncan and Grove hold design copyright and intellectual property rights over all their designs and any customized options, prohibiting the replication of any structures. Their ability to customize an existing off-the-shelf play structure has provided cost savings for the City, avoiding the need to design a custom piece of play equipment. Thus, staff recommend it is in the best interest of the City to suspend competitive bidding and proceed with the purchase of the play structure and entry feature from Duncan and Grove.
File ID: 2025-01768 12/9/2025
Convention and Cultural Services in partnership with the Office of Innovation and Economic Development is seeking approval to award a contract to Otto Construction for the construction of the Play Area in an amount not to exceed $2,008,943. The formal bid process for this project was completed, and staff did not receive any bids. Staff reached out to two contractors and had one responsive proposal submitted. Construction on the play area project is expected to be completed in Summer 2026.
Since the original estimate was put together, escalation, tariffs, increased labor costs and other economic uncertainties, the cost of the Play Area has risen. To close the gap and begin construction on the project, staff has identified $710,713 from the available balance of the Community Center Fund (6010) with the intent to reimburse the Community Center Fund once bonding is issued for the Waterfront Reinvestment Project (WRP).
Policy Considerations: City Code Chapter 3.60 provides that City Council approval is required to enter into construction agreements over $250,000. Additionally, pursuant to City Code Section
3.56.230, competitive bidding for the construction contract is not required because after advertising for bids, no bids were received. This project is subject to Community Workforce and Training Agreement (CWTA) requirements for construction contracts over $1 million, as defined in section 2.2 of the CWTA.
The recommendation in this report to suspend competitive bidding and to enter into contract with Duncan and Grove for the play area is in accordance with the provisions of Sacramento City Code section 3.72.120 which provides that competitive bidding may be suspended when the council determines that special circumstances make the use of the bid procedure inappropriate or when it determines that it is in the best interest of the city that the bid process not be used.
The Project will bring new energy, resources, and activity to the OSW fostering connections among communities and visitors. It will encourage visitors to extend their stay in OSW by offering a free amenity for district visitors. Additionally, the Project will further the visions, goals, and objectives of the 2040 General Plan, such as Community Policy CC-LUP-3 Old Sacramento Waterfront Community Uses, and the 2003 Sacramento Riverfront Master Plan, which supports strengthening public spaces in Old Sacramento, as approved by the cities of Sacramento and West Sacramento.
The Sacramento City Code Section 4.04.020 and the City Council Rules of Procedure (Chapter 7, Section E.2.d) mandate that unless waived by a 2/3 vote of the City Council, all labor agreements, and all agreements greater than $1,000,000 shall be made available to the public at least ten (10) days prior to City Council action. This item was published for 10-day review on November 26, 2025, in compliance with the City Code.
Economic Impacts: This construction project, which totals $2,008,943, is expected to create 8.04
File ID: 2025-01768 12/9/2025
total jobs (4.62 direct jobs and 3.42 jobs through indirect and induced activities) and create $1,240,391.72 in total economic output ($781,828.38 of direct output and another $458,563.34 of output through indirect and induced activities).
The indicated economic impacts are estimates calculated using a calculation tool developed by the Center for Strategic Economic Research (CSER). CSER utilized the IMPLAN input-output model (2009 coefficients) to quantify the economic impacts of a hypothetical $1 million of spending in various construction categories within the City of Sacramento in an average one-year period. Actual impacts could differ from the estimates and neither the City of Sacramento nor CSER shall be held responsible for consequences resulting from such differences.
The Play Area is part of the WRP intended to help revitalize the OSW, to increase visitation and to extend dwell times.
Environmental Considerations: Given that the Project will not affect the capacity of the structure replaced, the project is exempt under section 15302 of the CEQA Guidelines, which provides that projects involving the reconstruction of existing structures and facilities, where the reconstruction will be located on the same site, will have substantially the same purpose and capacity.
Sustainability: The Project has been reviewed for consistency with the goals, policies, and targets of the City’s Sustainability Master Plan (SMP) and the 2030 General Plan. The project will advance the goals, policies, and targets of these plans by improving the health of residents through access to a diverse mix of wellness and recreation activities, utilizing sustainable wood materials.
Commission/Committee Action: Not applicable.
Rationale for Recommendation: The formal bidding process for construction of the Play Area was posted in accordance with City Code 3.60. The City did not receive any bids for the Project. Staff then reached out to two contractors with history of working on City projects for proposals to complete the work. One of those contractors, Otto Construction, submitted a proposal in the not to exceed amount of $2,008,943.
Pursuant to City Code Section 3.56.230.B, competitive bidding is not required when after advertising for bids, no bids were received. As provided by Section 3.56.230.E, staff recommends Council suspend competitive bidding to award a contract to Otto Construction.
Duncan and Grove has extensive experience working with indigenous communities and holds the design copyright and intellectual property rights over the customized play structure design, prohibiting the replication of the structure. The process of co-creation of the play structure with the tribal communities and Duncan and Grove ensured that the design is reflective of the local culture and is appropriate for this type of project, where the members of the indigenous community should be
File ID: 2025-01768 12/9/2025
central to the design process. The play structure’s incorporation of a traditional basket will not only inspire fun and creative play, but also serve as an immersive, engaging educational piece connecting visitors with the local indigenous culture and history.
Since the Old Sacramento Children’s Play Area Project (M17700100) was originally estimated, escalation, tariffs, labor costs and increased construction costs have resulted in a funding gap of $710,713. Staff is requesting $710,713 of available fund balance from the Community Center Fund (F6010) be allocated to augment the project. The additional monies will bring the project budget up to $2,835,273, ensuring that the project has sufficient resources to not only fund the $2,008,943 contract with Otto Construction, but also to ensure that it can be completed.
Funding Source Amount
CNRA Grant $1,000,000
General Fund $324,560
OSW American Rescue Plan Act $800,000
Community Center Fund (6010) $710,713
Total Project Budget $2,835,273
The City Treasurer’s Office is bringing forward a reimbursement Resolution to City Council for approval as a subsequent separate item on December 2, 2025. The resolution allows the City to seek reimbursement for work done on authorized Waterfront Reinvestment Projects, such as the play area, in advance of the Transient Occupancy Tax Bond issuance. The $710,713 would be paid back to the Community Center Fund upon issuance of the bonds in Spring 2026. In the event that City Council decided not to move forward with the Waterfront Reinvestment Program and did not issue the bonds for the Waterfront Reinvestment Program, then the Community Center fund would not be repaid.
Local Business Enterprise (LBE): Otto Construction is a local firm.
Background:
Play Area Design: In addition to the iconic basket play structure and entry feature, the Play Area will feature several indigenous play elements: tule boat, three tule huts, and grinding stone. The play elements, purchased through a cooperative purchasing agreement, will be placed around a poured in place rubber surface that will mimic a river.
The site will be enclosed with a fence and include landscaping, lighting, interpretive signage, and decorative concrete pavement. The site will also include a trash enclosure to serve the adjacent Joe’s Crab Shack restaurant as required in the lease between Joe’s Crab Shack and the City.
File ID: 2025-01768 12/9/2025
Play Area Name: Guided by input from Shingle Springs Band of MiWok Indians and Wilton Rancheria, a name has been selected for the Play Area that reflects its heritage and deep connection to the river. The Old Sacramento Children’s Play Area will now be known as “Mómtim C'atnaandí”, which is Nisenan for 'Along the River'. The correct pronunciation is "mohm-teem-uh-aht-nahn- dee.”
RESOLUTION NO. 2025-XXXX
Adopted by the Sacramento City Council
December 9, 2025
Mómtim C'atnaandí (Old Sacramento Children’s Play Area)
BACKGROUND
A. The dissolution of Redevelopment Agencies in 2011 resulted in the loss of an important source of funding for economic development projects within the city of Sacramento.
B. The FY2016/17 budget priorities approved by the Mayor and City Council included an initiative to invest in the Sacramento waterfront as an economic driver for the region’s economy.
C. Investment in a renewed waterfront could represent a major boost to Sacramento’s business and leisure visitation.
D. On November 14, 2023, City Council passed Resolution 2023-0359, approving a grant agreement for Community Reinvestment Projects with the California Natural Resources Agency in the amount of $20 million dollars. Of these $20 million dollars, the Old Sacramento Play Area (Play Area) project received $1 million dollars of funding, which was put into the Old Sacramento Children’s Play Area Project (M17700100) project.
E. The City has designing the Play Area in collaboration with the Shingle Springs Band of MiWok Indians and Wilton Rancheria, to provide a more diverse and comprehensive history of the Old Sacramento Waterfront (OSW), however due to economic uncertainties, such as tariffs, project costs have risen resulting in a funding gap.
F. Due to escalation, tariffs, labor costs and increased construction costs, there is a funding gap of $710,713 to complete the Play Area. The total project cost for the Play Area is $2,835,273.
G. The Community Center Fund (F6010) has a fund balance of $22,434,000.
BASED ON THE FACTS SET FORTH IN THE BACKGROUND, THE CITY COUNCIL RESOLVES AS FOLLOWS:
Section 1. The interim City Manager or their designee can transfer $710,713 from available fund balance in the Community Center Fund (Fund 6010) to the Old Sac Children’s Play Area Project (M17700100).
Attachment 3—Renderings