City Council Staff Report Page 1 of 10 March 24, 2026
Staff Report
Agenda Item No. 5.3
DATE: March 24, 2026
TO: Honorable Mayor and Members of the City Council
FROM: Joan Malloy, City Manager
SUBJECT: Adopt a Resolution Accepting the Parks and Recreation Master Plan Community Needs Assessment Summary Report
EXECUTIVE SUMMARY
Staff recommends that the City Council adopt a resolution to accept the Parks and Recreation Master Plan Community Needs Assessment Summary Report (“Summary Report”) on the Phase I findings. The Summary Report documents the Pthe broad challenges, needs, preferences, and current usage patterns of parks, amenities, and recreation services.
STRATEGIC PLAN ALIGNMENT
Goal D. Environmental Sustainability and Infrastructure: Create a healthy, sustainable community and maintain and improve the City’s infrastructure.
Strategy: Develop a ten-year parks operations, maintenance, and capital improvement plan.
BACKGROUND
The Union City Strategic Plan FY 2019-2020 through FY 2024-2025 Final Update includes a strategy to develop a ten-year parks operations, maintenance, and capital improvement plan. The City’s 2040 General Plan, with a 15-year horizon, also establishes a goal to update the existing 1999 Parks and Recreation Master Plan comprehensively. With funding now in place, the City Council authorized updating the 25-year-old plan.
While the 1999 Plan provided broad guidelines, it lacked actionable direction, long-term cost estimates, or specific implementation recommendations. Since that time, Union City has grown significantly, adding 11 new parks without a corresponding increase in staffing or updated planning. The City now maintains seven community and recreation facilities totaling approximately 88,200 square feet of indoor space and 34 parks totaling 112.8 acres, ranging from small pocket parks to larger community parks. The City is uniquely positioned, as residents benefit from approximately 1,800 acres of additional regional Agenda Item No. 5.3
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open space, parkland, and facilities.
On May 13, 2025, the City contracted with consultant Gates+ Associates, recently rebranded as Gates Studio (Resolution No. 2025-064), to support the Park and Recreation Commission and staff in developing the Parks and Recreation Master Plan (“Master Plan”). Gates Studio has extensive experience in landscape architecture, urban design, and land planning. With the support of Gates Studio, Community & Recreation Services (“CRS”), and Public Works staff, a workgroup was launched to develop the Master Plan for Council consideration.
The purpose of the new Master Plan is to serve as a comprehensive policy and decisionmaking guide for the planning, programming, and funding of parks, open spaces, and recreational facilities over the next 15 years in alignment with the 2040 General Plan. It will establish a long-term vision for meeting community needs by drawing on nationally recognized guidelines from the National Recreation and Park Association, The Trust for Public Land, and the Urban Land Institute. The goals of the Parks and Recreation Master Plan project are to:
1. Create a clear plan for the future: Develop a realistic, easy-to-follow roadmap that will guide decisions and investments in parks and recreation over the next 15 years.
2. Ensure the plan reflects community voice: Engage and listen to residents and community stakeholders (i.e., staff, elected officials, schools/school district, partners, etc.) throughout the planning process to ensure the final plan represents what people want, need, and value in their parks, facilities, and recreation programs.
3. Improve what is in place: Take care of existing parks and facilities by identifying where updates, repairs, or new features are needed.
4. Ensure parks and programs are inclusive of everyone: Work to make sure all residents—of all ages, abilities, backgrounds, and neighborhoods—can enjoy Union City's parks, facilities, and recreation opportunities.
5. Promote community health and connection: Create spaces and programs that encourage physical activity, mental well-being, and opportunities for people to gather and connect.
6. Plan creatively for a built-out city: Explore new ways to add parks and recreation spaces in areas with available land; maximize space already available in existing parks and facilities; and leverage joint use agreements with current and new partners.
Throughout the project, the Park and Recreation Commission and the City Council will provide guidance and approval to City staff and Gates Studio on key elements as the Master Plan is developed. More specifically, the City Council will be briefed and asked to confirm and approve the vision, priorities, recommendations, and preliminary funding and capital improvement investments.
On September 9, 2025, the City Council accepted the Parks and Recreation Master Plan workplan, developed by staff and Gates Studio, that outlines the scope of tasks and deliverables from June 2025 to December 2026 (Resolution No. 2025-127). The intent is Agenda Item No. 5.3
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to complete the Master Plan document by December 2026. Given the scope of the project, the workplan is comprised of three phases. The workplan takes a multifaceted approach, incorporating robust community outreach and engagement, a baseline inventory and assessment of parks, facilities, fields, and other amenities, and a comprehensive resident use and needs assessment. The data and information gathered will shape and inform the development of the Master Plan.
The following is a brief overview of the Parks and Recreation Master Plan Workplan that includes three phases:
Phase I: Establishment of Parks and Recreation Master Plan Workgroup and Workplan, June 2025 – December 2025
The focus is on establishing a Master Plan workgroup to develop a workplan and launch activities to identify the challenges, needs, preferences, and current usage patterns of parks, amenities, and recreation services. In addition, embark on a robust outreach and engagement strategy to gather community input on their vision, interests, and needs for parks, open spaces, facilities, and recreational programming.
City Council Action: Park and Recreation Commission and City Council accept the Parks and Recreation Master Plan workplan and the Parks and Recreation Master Plan Community Needs Assessment Summary Report.
Phase II: Draft Parks and Recreation Master Plan Vision, Priorities, and Recommendations, January 2026 – May 2026
The focus is on gathering secondary community input and feedback on preferences and priorities for the future of parks, open spaces, facilities, amenities, and recreation programming to inform the development of Parks and Recreation Master Plan priorities and recommendations.
City Council Action: Park and Recreation Commission recommends to the City Council that it accept the Parks and Recreation Master Plan update and draft vision, priorities, and recommendations.
Phase III: Develop and Finalize Parks and Recreation Master Plan Document, June – December 2026
The focus is on developing and finalizing the Parks and Recreation Master Plan, which includes a vision, priorities, and recommendations, along with preliminary funding and capital investment for parks, open spaces, amenities, and recreation services over the next 15 years.
City Council Action: The Park and Recreation Commission recommends to the City Council that it accept the final Parks and Recreation Master Plan document.
DISCUSSION
With Phase I completed, the Summary Report provides the City Council with highlights of the quantitative and qualitative approaches, methodology, and process, as well as preliminary key findings and emerging themes identified through community input and the assessment of the City’s parks, community centers, fields, and other amenities. The Agenda Item No. 5.3
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Summary Report includes research, data collection, community engagement, and benchmarking analyses to identify current conditions, community priorities, and opportunities for improvement.
Community Outreach and Engagement
A key element of Phase I launched an extensive outreach strategy to engage residents and key community stakeholders (e.g., City staff, elected officials, schools and the school district, Police/Fire Departments, etc.) to understand better their needs, preferences, challenges, and aspirations for Union City’s parks and recreation system.
Between August and October 2025, staff and consultants implemented a comprehensive, multi-pronged outreach and engagement strategy with community members. As a result, a total of 900 community members were engaged through the following:
Community Survey (September 5-October 12, 2025) – 733 total participants 702 English / 22 Spanish / 9 Chinese
Pop-up Events (September 19 and October 4, 2025) – 86 participants Movies in the Park / Our Lady of the Rosary International Festival Virtual Community Meeting (October 1, 2025) – 6 participants Stakeholder Focus Groups Meetings (September - October 2025) – 17 meetings with 75 participants representing diverse community stakeholder groups:
Youth Commission, Sports, Inclusive/Therapeutic Support, Seniors, Residents, Mayor/City Council Members, School District, Emergency Services/First Responders (Police, Fire, Community Emergency Response Team), CRS/Public Works, and Executive Leadership.
Of the survey respondents who provided personal information, participants represented a diverse range of groups, with particularly strong participation from adults, long-time residents, and frequent park users:
More than 80 % of survey respondents live in Union City Nearly 50% have lived in the community for over 10 years. 43% of survey participants visit parks or recreation facilities more than once per week, and 26% report daily use.
Top three age ranges for survey respondents: 1) Adults age 36-50 (39%), 2) Adults age 51-65 (23%), and 3) Adults age 18-35 (15%).
Union City’s 2023 age profile: Median age is approx. 41, residents aged 65 and older account for nearly 17% of the population. Youth under age 18 comprise about 18% of all residents,
While not as prominent as the adult demographics, participants under age 18 were also involved in the process and provided valuable feedback through surveys, pop-up events, and stakeholder meetings.
Throughout the outreach activities, residents expressed strong appreciation for the City’s parks and programs, describing them as essential spaces for recreation, family life, wellness, and social connection. At the same time, participants emphasized the need to prioritize maintenance, modernization, and comfort before expanding the system.
Renovating existing parks and improving maintenance emerged as the top priorities, reflecting a desire to reinvest in aging infrastructure and ensure these facilities are safe, functional, comfortable, and accessible. Thus, the following themes emerged consistently Agenda Item No. 5.3
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throughout the survey, focus groups, community meetings, and pop-up events:
Renovation and Maintenance – Reinvestment in existing parks and recreation facilities clearly stands as the community’s highest priority for the Parks and Recreation Master Plan. According to survey and pop-up results, renovating existing parks (47%) and improving maintenance (36%) received the most votes. Comfort and Safety – Comfort and safety strongly influence how parks are used and experienced. Lighting ranked as the most requested park enhancement (36%), and shade amenities were the most requested improvement (38%). Trails and Connectivity – Walking is central to park use in Union City. According to survey responses, 59% of survey participants reported walking to parks and recreation facilities, and walking or hiking was the most common activity overall. Nature and Open Space – The City’s natural landscapes are highly valued community assets. Trees, lawns, and plants ranked among the most liked park features (42%), and 25% of survey and pop-up event participants identified enhanced opportunities to enjoy nature as a priority.
Aquatics Enhancements – Aquatics facilities and programming emerged as a major topic during outreach. Aquatics programs rank second among desired recreation offerings.
Sports and Fitness – Demand for sports and fitness amenities in Union City remains strong. According to survey responses, sports courts and fitness equipment ranked as the top two most desired recreation facility enhancements, followed by more opportunities to play sports.
Community Connection – Parks and recreation facilities provide vital opportunities for social gatherings and serve as community hubs for connection, identity, and local pride. Community events ranked as the most desired recreation program, and attending events is one of the primary reasons residents visit parks. Equity and Inclusion – Inclusive design and equitable access are clear community expectations, areas of interest; ADA accessibility, all-abilities play spaces, affordable programming, and equitable distribution of amenities across neighborhoods.
Play and Water Play – Playgrounds are among the most frequently used park amenities, with 43% of survey participants reporting playground use. Residents emphasized upgrading aging equipment and improving safety surfacing. Also, adding water features or splash pads ranked third-highest at 29%.
In addition to the key themes and priorities, community members identified recurring challenges within the current system, including:
● Deferred maintenance and aging infrastructure
● Safety and security concerns
● Communication gaps about programs and events
● Limited access to a centralized, full-service aquatics facility ● Capacity constraints and overuse in certain locations ● The need for strengthened partnerships and shared-use agreements Parks, Facility, Amenity, and Programming Level of Service Assessment In Phase I, between July and August of 2025, consultants, with support from staff from the Public Works and CRS Departments, conducted site visits and assessments of Union City’s parks, fields, facilities, and other amenities to understand their current conditions Agenda Item No. 5.3
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and community use better. The visits and assessments were conducted at the following:
neighborhood (pocket parks) and community parks, playgrounds, sports fields, tennis and pickleball courts, basketball courts, picnic areas, a dog park, and an interconnected system of inner-city trails and greenbelts.
To develop an effective and useful Parks and Recreation Master Plan, it is important to properly assess parks, facilities, fields, other amenities, and recreation programming utilizing recognized standards, metrics, and best practices in the industry, such as those developed and endorsed by the National Parks and Recreation Association (NRPA). This multidimensional assessment and evaluation process provides a deeper understanding of how well the existing system meets typical service levels, where it exceeds national norms, and where opportunities for improvement may exist. This analysis and comparison support long-range planning decisions and ensure that Union City’s parks and recreation system remains responsive to evolving community expectations and industry best practices. While Union City does not have a formal and customized park and recreation classification system to evaluate the condition and capacity of its parks, fields, facilities, programming, and amenities to meet the current and future needs of its residents, the NRPA Level of Service (LOS) framework was instrumental in the analysis. Table 1: The NRPA Comparison, Community Facilities 2025, provides a visual analysis and findings.
Table 1: NRPA Comparison, Community Facilities 2025
2025 NRPA Recreation UNION CITY
Community Facilities
Population per Facility
Union City Level of Service
(2026 - existing)
Total Needed to Meet NRPA
Standard
Jurisdiction: 50,000 to 99,000
people
Additional
Quantity
Needed for
Union City’s
2026
Population
Additional
Quantity
Needed for
Union City to
Meet 2040
Projected
Population
Facilities
Number of
Residents
per Facility
Union City
Existing
Quantity
Number of
Union City
Residents
Served per
Facility
Pop: 68,141 Pop: 79,845
Recreation/
Sports Facility
(includes gyms)
1 per
31,805 2 1 per 34,071 +1 (3 total) Meets Standard
Community
Centers
1 per
50,284 1 1 per 68,141 Meets Standard +1 (2 total)
Senior
Centers
1 per
64,937 1 1 per 68,141 Meets Standard
+1 (2 total)
Aquatic
Centers
1 per
60,770 0* 0 per 68,141 Meets Standard +1 (1 total)
Teen/Youth
Centers
1 per
59,694 3 1 per 22,714 Meets Standard Meets Standard
Agenda Item No. 5.3
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In addition, the consultants used benchmark comparisons with three neighboring cities:
Newark, San Leandro, and Milpitas. These peer cities were selected based on similarities in location, population size, community scale, and park and recreation system characteristics that align with Union City and the broader region. NRPA’s Agency Performance Review standards were referenced to compare Union City’s metrics with national averages and standards for similarly sized communities. This comparison provided valuable insight into where Union City’s system aligns with, exceeds, or can improve based on peer and national benchmarks. Table 2: Union City Comparison to Peer Cities: Benchmark Community Demographics provides a visual comparison with selected peer cities.
Table 2: Union City Comparison to Peer Cities: Levels of Service Analysis 2025 The following is a brief overview of the findings from the parks, facilities, fields, and programming assessment and comparative study:
Parkland – Union City maintains 34 parks, representing a moderate system size when compared with its peers. Union City performs well when park supply is measured per capita. With 2,065 residents per park, Union City exceeds the performance of both Newark and San Leandro and closely aligns with the peer average.
Community Recreation Facilities – Union City maintains seven community recreation facilities, exceeding the number offered by its peer jurisdictions. The City offers 88,200 square feet, 1.29 square feet per resident, of indoor recreation space per resident, which is significantly higher than the peer average of 1.07 square feet. As a result, Union City outperforms the peer average in overall facility offerings.
● Amenity Distribution – Union City generally provides better-than-average access Agenda Item No. 5.3
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to several high-demand amenities, particularly those that serve neighborhood and community recreation needs, such as but not limited to: playgrounds, reservable picnic areas, basketball courts and tennis courts, multi-use and rectangular sports fields, and fitness areas.
● Open Space and Parkland – Union City residents have access to several open space areas. Garin/Dry Creek Pioneer Regional Park extends into Union City, Quarry Lakes Regional Park borders the City’s southern edge, and the Eden Landing Ecological Reserve lies directly west of the city. Within five miles are Vargas Plateau Regional Park, Coyote Hills Regional Park, and the San Francisco Bay National Wildlife Refuge.
● Public Transit Access – Transit services intersect or pass near many of the City’s parks, community centers, and sports facilities. The geographic distribution of parks across the Decoto, Alvarado, and newer residential areas aligns well with these transit routes, ensuring that most transit-served neighborhoods have walkable access to a park or recreation facility.
Gaps and Opportunities
Overall, Union City maintains a well-developed and diverse parks and recreation system that includes a balanced mix of neighborhood and community parks, specialty facilities, plazas, and recreation facilities. The system provides residents with access to athletic fields, playgrounds, picnic areas, trails, sports courts, and community centers that support both passive and active recreation. Many parks are integrated into residential neighborhoods, reinforcing walkability and passive recreation. In contrast, larger parks offer sports amenities, event spaces, reservable picnic areas, and programmed recreation opportunities that serve the broader city. Union City’s facilities reflect the community’s cultural and multigenerational character, offering spaces for youths, adults, seniors, and family gatherings. Thus, the City’s parks and recreation system serves as a vital public resource, supporting health, wellness, social connection, and access to nature for its growing and increasingly diverse population. These strengths reflect the City's consistent emphasis on providing accessible park amenities that serve a broad range of users.
Relative to its population, Union City performs well in providing community-serving amenities and operating an efficient park system. The City maintains 34 parks and seven recreation facilities (10th Street Community Center, Holly Community Center, Kennedy Youth Center, Larry Orozco Teen Bike Workshop, Mark Green Sports Center, Ruggieri Senior Center, William May Jr. Teen Center). The system provides a strong foundation for both active and passive use and recreation.
Although City-managed parkland (1.66 acres per 1,000 residents) falls below national benchmarks, Union City benefits from access to significant regional open space and parkland that is owned and managed by other agencies, such as East Bay Regional Park District, San Francisco Bay National Wildlife Refuge, Alameda County Water District, and New Haven Unified School District. When considering this additional parkland and open space, the total accessible parkland and facilities increase to approximately 1,800 acres, or 26 acres per 1,000 residents – far exceeding its peers and national standard. A walkshed analysis using the Trust for Public Land’s ParkServe database (2025) indicates that 92% of residents live within a 10-minute walk of a park, which is very high compared Agenda Item No. 5.3
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to many other U.S. cities.
It is important to note that Union City’s demographics are shifting toward an aging population, as are those of the rest of the San Francisco Bay Area. Programming gaps identified a need for expanded senior and adult programs, as roughly 40% of the City’s programming is currently dedicated to youths/teens. This comprehensive analysis is essential for understanding how equitably and effectively the parks and recreation system serves residents today and how it must evolve to support a growing and diversifying population in the future.
Furthermore, Union City’s parks and recreation system is influenced by the physical separation created by Interstate 880, which divides the City into eastern and western areas with distinct development patterns and characteristics. The west side contains some of the City’s most established, heavily used, and well-loved community parks, many of which serve as major gathering and activity hubs. It also includes a higher proportion of older, compact neighborhoods with limited land for new park development. On the east side, where more recent residential growth has occurred, the park system tends to include larger, newer park sites, offering broader recreation options but serving a more dispersed population. This spatial arrangement creates a nuanced distribution pattern from which both sides of the City benefit from significant assets, yet their park types, capacities, and surrounding conditions differ.
In conclusion, to address community interests and facility enhancement needs, key priorities should include increasing staffing levels, reinvesting in aging infrastructure, modernizing facilities, improving ADA accessibility, and incorporating standardized maintenance practices to ensure comfort, safety, and usability for residents of all ages and abilities. The assessment also highlights gaps that constrain the City’s ability to meet current and future demand, including the lack of a year-round public aquatic facility, expanded access to sports fields and courts, and additional multigenerational indoor recreation and fitness spaces. Addressing these gaps will require strategic facility investment, partnerships, and innovative approaches to maximize community access to quality recreation programs, programming, facilities, amenities, and open space.
Improving accessibility and connectivity is another critical focus. Strengthening multimodal transportation links, enhancing wayfinding, and coordinating with transit partners will help ensure parks and facilities remain reachable and welcoming across all neighborhoods. Establishing a modern park classification system and a comprehensive maintenance plan will further support equitable service distribution and long-term system sustainability.
Overall, the findings point to a clear direction for the forthcoming Parks and Recreation Master Plan:
• Prioritize renewal of existing spaces,
• Close service gaps,
• Expand inclusive and multigenerational recreation opportunities, • Strengthen connectivity across the system, and
• Strategize programming, maintenance, staffing, and operations to be more efficient.
Agenda Item No. 5.3
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By focusing on these priorities, Union City can enhance the resilience, equity, and quality of its parks and recreation system, ensuring it continues to enrich community life now and into the future.
FISCAL IMPACT
There is no impact on the general fund, and no budget action is required at this time. The Parks and Recreation Master Plan is funded through the Park-In-Lieu (residential) – Fund 255.
RECOMMENDATION
Staff recommends that the City Council adopt a resolution accepting the Parks and Recreation Master Plan and the Community Needs Assessment Summary Report. This first phase identifies the broad challenges, needs, preferences, and current usage patterns of parks, amenities, and recreation services. Staff will return to the City Council in the summer, after the completion of Phase II, with a summary report of additional analysis, findings, and assessments.
Prepared by: Laura Buzo, Community and Recreation Services Director Submitted by: Laura Buzo, Community and Recreation Services Director Attachments
1. Draft Resolution
2. Exhibit A - Parks and Recreation Master Plan Community Needs Assessment Report
3. PowerPoint Presentation