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HomeMy WebLinkAboutCC Resolution 10910 (Playground Safety Strategy)RESOLUTION NO. 10910 RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL APPROVING THE DISBURSEMENT OF THE STATE PARK BOND ACT FUNDS AND THE PLAYGROUND SAFETY STRATEGY WHEREAS the City of San Rafael is eligible to apply for $497,000 of Local Assistance Funds from the Per Capita Grant Program Under the Safe Neighborhood Parks, Clean Water, Clean Air and Coastal Protection Bond Act of 2000; and WHEREAS the Park and Recreation Commission was directed by City Council to conduct a public process to determine the allocation of these funds; and WHEREAS the Commission made recommendations based upon public priorities, capital replacement needs, current park project needs, desire for new recreational facilities and community impact; and WHEREAS the Playground Safety Report identified additional needs in the City's fourteen playgrounds; and WHEREAS the Playground Safety Strategy was formulated in response to the Report; and WHEREAS the City desires to meet public priorities and playground safety code compliance through the application of the Park Bond Act Per Capita Program; NOW THEREFORE BE IT RESOLVED that the City Council of the City of San Rafael approves the disbursement of the State Park Bond Act Funds as per the staff recommendation and approves the Playground Safety Strategy. unk-flWAL .0 I, JEANNE M. LEONCINI, Clerk of the City of San Rafael, hereby certify that the foregoing Resolution was duly and regularly introduced and adopted at a reg lar meeting of the City Council of said City held on Monday, the 20th day of August, 2001 by the following vote, to wit: AYES: COUNCILMEMBERS: Cohen, Heller and Mayor Boro NOES: COUNCILMEMBERS: None ABSENT: COUNCILMEMBERS: Phillips DISQUALIFIED: COUNCILMEMBERS: Miller (due to potential conflict of interest) • JEA E M. LEONC ,City Clerk Exhibit A Park and Recreation Commission Recommendation Disbursement of State Park Bond Act Funds Presented to San Rafael City Council August 20, 2001 Introduction In the year 2000 the citizens of California passed the largest state park bond act in history, Proposition 12 responded to the historical lack of funding and the increased need for park and recreation facilities and resources in the state. The Act is multifaceted in its funding programs. For local park and recreation agencies there is a per capita allocation of funds for renovation, construction, acquisition and programming of recreation facilities. In addition public agencies are eligible to compete for grant programs. The per capita disbursement will commence in FY 2001- 2002. The grant programs will open in 2001. San Rafael will receive $497,000 in per capita funds to apply to park and recreation facility needs. Background The San Rafael City Council charged the Park and Recreation Commission to conduct a public outreach program and based on the results submit a recommendation for the disbursement of the Prop. 12 funds. To this end the Commission conducted public meetings in North San Rafael, Central and Northeast portions of San Rafael. The Canal neighborhood recently completed a community outreach program to determine park and recreation needs, and those results provided pertinent information for that area. At each meeting City staff presented an overview of 1. Deferred capital replacement needs in San Rafael Parks 2. Current park and recreation projects in need of additional funding 3. Future facility needs Residents contributed ideas to these categories. Meetings concluded with those in attendance prioritizing the projects for funding. Analysis Currently the park system is in need of $2.5 million of capital replacement for items such as restrooms, playground, irrigation systems, pathway repair, landscape enhancement. Staff identifies four park issues as top priority; 1. Renovation and Replacement of Restrooms in Santa Margarita, Boyd, Gerstle Parks - 3315,000) 2. New Irrigation and Drainage to Bernard Hoffman Field ($180,000) 3. Replacement of Playground Equipment to meet current safety codes ($400,000) 4. Focus on active recreation use areas at Albert, Victor Jones, Sun Valley, Santa Margarita Parks and Terra Linda Recreation Center ($500,000) Park and facility projects currently under development, but unfunded are: 1. Freitas Park Phase II ($125,000) 2. Bernard Hoffman Park Restrooms ($85,000) 3. Boyd Park Phase II ($239,000) 4. Albert Park Masterplan Completion ($365,000) 5. Mahon Creek Phase 2 ($600,000) 6. Sun Valley Park Improvements ($35,000) 7. Bret Hart Park Improvements ($100,000) 8. Shoreline Park ($?) 9. Pickleweed Community Center Expansion ($3 million) Future facility needs were identified as 1. A skatepark facility 2. A public swim pool for central San Rafael 3. Increased soccer facilities Responses differed at each meeting. North San Rafael residents favored completion of Freitas Park, and bike/pedestrian paths for Prop 12 funding. Central San Rafael residents requested funding for Sun Valley and Bret Hart Parks and supported a skatepark. The Northeast meeting garnered support for fire repression (not within the funding guidelines) and a playground installation serving the Montecito and Dominican neighborhoods. The Canal neighborhood identified classroom, art room, gymnasium, social space, and computer labs as the most pressing needs for accommodating and increasing recreation programs at Pickleweed Community Center. The expansion project is in the planning stages and includes these components. Application of grant funds available throughout Prop 12 programs to the expected $4 million project is preferred. The Commission has express interest in applying the per capita Prop 12 funds to benefit projects in each of the four quadrants of San Rafael, as well as creating a fund for matching grants. Setting aside some of the available money for a future recreational facility was also present in Commission discussions. Late in this process the Commission reviewed the Playground Safety Inspection Reports submitted in April of this year. The inspections of the City's 14 playground installations resulted in reports that outline where the City needs to replace, renovate or remove playground equipment to comply with new State safety codes. Some of the most immediate needs were found in parks that the Commission previously favored for funding. Fiscal Imoact The per capita Prop 12 funds may be applied to one or several projects, or put in reserve for future projects. They can be used as matching funds for projects receiving money from a variety of resources. Other sources of funds include: ■ Redevelopment and CDBG for Albert, Pickleweed Parks ■ Playground Replacement Grant Program 50% matching grant from the State, maximum $50,000 per funding cycle ■ Parkland Dedication Funds, approximately $50,000 for North San Rafael and $200,000 for East San Rafael and Canal Neighborhoods ■ Prop 12 Competitive Grants ■ ADA fund, $100,000 annually, City-wide North San Rafael has enjoyed the largest influx of Parkland Dedication Funds in the last 10 years. This is due to the fact that the majority of housing development has occurred in this area. These funds have been spent to purchase and upgrade Bernard Hoffman Park, renovate Freitas, Terra Linda and Oleander Parks, and rebuild the Terra Linda Pool. The central core of San Rafael and the Canal neighborhood lie within the Redevelopment Agency and qualify for Agency funding. Recently the downtown area has received business development funds for public facilities. The Canal neighborhood also qualifies for Community Block Development Grants, Combinations of these resources have produced the Court Street Plaza, Mahone Creek Phase I, Mahone Creek Park (future) Parkside Children's Center, Pickleweed Park Renovation Phase III (fields and picnic facilities), and the Pickleweed Community Center Expansion. The remainder of Central San Rafael, including the West End, Sun Valley, Gerstle Park, Bret Hart neighborhoods have no access to funding outside of Parkland Dedication Funds which were drawn down to produce Boyd Park Renovation Phase I. North East San Rafael, likewise, does not qualify for any of the funding sources listed above. Therefore, there have been few park - related projects in these areas in recent years. Recommendation The Commission recommends the following disbursement of Per Capita Funds based on the input from citizens, facility needs, and facilities attracting the highest uses: Prop 12 Per Capita Funding Disbursement Recommendation Deferred Capital Current Park and Future Park and Matching Funds Replacement Recreation Projects Recreation Facilities Gerstle Park Freitas Park Phase II - McInnis Skate Park- $100,000 Restroom $80,000 $65,000 Replacement - $30,000 Victor Jones Albert Park Landscape Masterplan Funding - Enhancement - $31,000 $15,000 Santa Margarita Sun Valley Park Playground Renovation - $35,000 Replacement $41,000 Bret Hart Park Renovation -$100,000 Total: $86,000 Total: $246,000 Total: $65,000 Total: $100,000 This Recommendation addresses the following projects: • Completes the funds needed to replace the non functional restroom at Gerstle Park. • Replaces irrigation at Victor Jones Park to support landscape. ■ Funds the planning and initial construction for the replacement of playground equipment at Santa Margarita Park. ■ Installs a playground at Freitas Park, completing Phase II of the renovation. • Replaces irrigation at Albert Park central lawn. • Provides new surfacing, stairs and picnic facilities at Sun Valley Park. • Renovates the playgrounds at Bret Harte Park. • Reserves funds for the McInnis Park Skate Park. • Provides $100,000 for park projects requested and co sponsored by the public Conclusion Prop 12 Funds are the first infusion of un -obligated park and recreation facility money in many years. This recommendation is a careful balance between funding new facilities and funding existing facility improvement needs. It is the result of eight months of community input and Commission research. The Park and Recreation Commission commends this recommendation to the City Council by unanimous vote and strongly urges City Council approval. Playground Safety Strategy Report Prepared by Carlene McCart and Tom Rothenberger July 24, 2001 Background Exhibit B In January, new Playground Safety Codes were adopted by the State of California. These codes apply to all playground installations. State Certified Inspections of playground equipment and sites are required of all owners wishing to apply for State funding, now or in the future, for repair, replacement or new construction of playgrounds. Owners are liable for code conformance whether an inspection has occurred or not. Playgrounds installed prior to 1993 are allowed until 2003 to come into compliance. Installations after 1993 have fifteen years from the time of installation to become compliant. Ann Hyde, Certified Playground Safety Inspector, was contracted to conduct inspections of the City's fourteen playground sites. Individual reports were provided for each site detailing conditions evaluated in three priority categories: Priority 1: Any condition of a playground, which may be threatening or could cause permanent disability. Examples of Priority 1 conditions are: insufficient depth of impact surfacing underneath play equipment (sand, fibar, bark); spaces between rails, more than 3", that pose entrapment threats, spaces between surfaces that could entrap clothing, strings, shoe laces; lack of protective barriers on platforms; steep angles of slides, stairs; protruding bolts, handles; use zones around play equipment. An opening presents a head and neck entrapment hazard if the distance between any interior opposing surfaces is greater than 3.5 inches and less than 9 inches. '1017t ASTM 6.1iCPSC 9.6.1 Recommendation the manufacturer, Playworld Systems, for modification Information. Priority 2: Any condition of a playground, which could cause a non -disabling injury. Examples of Priority 2 conditions are: foot rests positioned too high or that protrude; more than two swings located on the same frame; loose clamps, connectors, or footings; pealing paint or rust; improper entry protection for slides, tunnels. When properly installed as directed by the manufacturers instructions and specifications, equipment should withstand the maximum anticipated forces generated by active use which might cause it to overturn, tip, slide, or move in any way. Priority 2 ASTM 6.2./CPSC 9.1 Recommendation: The chain attachments are worn at the pivot points. Check all chain attachments and replace if necessary. This is a high priority maintenance item. Priority 3: Any condition, which is unlikely to cause injury but does not meet the Consumer Products Safety Commission Handbook for Public Playground Safety. Examples of Priority 3 conditions are: obstructions adjacent to playground equipment such as overhead branches; dented or buckled supports; obstruction, protrusions, entrapment threats in fencing; ADA accesses. At t A The standards applied are: Metals subject to structural degradation such as rust or corrosion shall be painted, galvanized, or otherwise treated. Woods shall be naturally rot- and insect -resistant or treated to avoid such deterioration. Plastics and other materials that experience ultraviolet (UV) degradation shall be protected against ultraviolet light. Priority 3. ■ The American Society for Testing and Materials ■ Consumer Products Safety Commission Handbook for Public Playground Safety ■ Americans with Disabilities Act Guidelines for Buildings and Facilities. 2 The report evaluates the condition of equipment, surfacing, fencing, barriers and accesses. Negative conditions are listed for each site in the order of their priority. The fourteen playground installations owned and maintained by the City are: Park Bernard Hoffman Boyd Park Bret Harte Park Gerstle Park Hartzel Park Oleander Park Peacock Park Pickleweed Park Riviera Park Albert Park Santa Margarita Park Shoen Park Sun Valley Park Terra Linda CC Victor Jones Park Tot Lot Year Installed Playground Year Installed x 2000 x 1999 x 1995 x 1980 x 1993 X 1987 x I 1994 x I 1995 x I 1970 x 1976 X 1990 x 1988 x 1987 1994 x 1984 x 1970 x 1983 x 1993 x 1993 x 1988 x 1988 X I 1990 I x 1990 In preparation of this report, staff applied preliminary cost estimates based on the most recent playground and park renovation projects in San Rafael. More accurate numbers will be available when designs are developed for each site. Analvsis The corrective measures to bring the City playgrounds into compliance with safety codes and ADA are substantial. The value of the work required is approximately $1 million over the next 15 years. Managing the project in order of priority, utilizing a number of approaches that include in house and contract services, renovation, repair and replacement, can reduce the total of the ultimate cost: 1. Systematically address the Priority 1 conditions over the next year. Utilize the Parks Maintenance crew for equipment adjustment such as shortening swing chains, cutting off protruding bolts, and filling surfaces to required depths. Work began in July 2001 to address these issues utilizing budgeted, operational funds. 2. Research the replacement of components on existing playground equipment, such as decks, rails, and slide beds, that pose Priority 1 conditions. Determine if manufacture's warranty will provide replacement parts that satisfy code. Procure replacement components. Contract with a playground equipment installer to replace the components on site. Start replacement process September 1, 2001. $77,000 will be needed to purchase replacement parts and contract for installation. 3. Remove playground equipment where code compliance is not possible Santa Margarita Tot Lot and Playground, Bret Harte Playground, Terra Linda Community Center Tot Lot, Gerstle Park Tot Lot are recommended to be removed and replaced. The age and design of these installations render them obsolete under the new safety codes. Prior 3 to removal, staff will contact and meet with neighborhood associations to explain the actions and solicit partnerships for the replacement of these facilities. The process will be staggered, starting in September 2001 with Gerstle Park Tot Lot, Santa Margarita Park, and Bret Harte Playground. Removal of the Terra Linda Tot Lot will occur as part of the pool demolition, September 2001. This playground will not be replaced. The park has additional play equipment. Cost for Playground Replacement Park Tot Lot Replace Play- Replace Funds Demolition of Four Playgrounds Cost ground Cost Needed Gerstle x $50,000 x $20,000 $70,000 Bret Harte x $150,000 150,000 Santa x $35,000 x $75,000 $110,000 Margarita Summary of Priority One Costs Equipment Adjustment $ 5,250 Component Replacement 42,000 Demolition of Four Playgrounds 10,000 Replacement of Four Playgrounds 330,000 SubTotal $387,250 Less Operating Budget Expense 15,250 Total $372,000 4. Address ADA issues at each site as new equipment is installed. Needs and costs for accesses, gates, paths, etc. will be determined with each site plan. 5. Address Priority 2 and 3 conditions systematically, according to the equipment installation date. Over the next 15 years, repair, replace and renovate playground equipment to a budgeted amount of $50,000 annually. 6. Address ADA issues at each site as new equipment is installed. Needs and costs for accesses, gates, paths, etc. will be determined with each site plan. 7. Address Priority 2 and 3 conditions systematically, according to the equipment installation date. Over the next 15 years, repair, replace and renovate playground equipment to a budgeted amount of $50,000 annually. 51 Fiscal Impact The total cost for Priority One Compliance is $407,000. $356,000 of State Park Bond Act, Prop12, Per Capita Funds are recommended to address Priority One issues at Santa Margarita, Bret Harte and Sun Valley Parks and to create a Matching Fund for the Playground Safety Strategy. The balance needed for compliance is $51,000. Staff will apply for State Playground Replacement Grant that provides for 50%, up to $50,000, this funding cycle, which ends August 31, 2001. The next funding cycle will be in nine months. Depending on the success of the grant application, the City may need to fund a one-time cost of $51,000 toward the Safety Playground Strategy. Recommendation The implications of the new safety regulations are significant for all communities in the State of California. In order to reduce City exposure to liability the City must act swiftly on Priority 1 issues and demonstrate intent to bring these facilities into code compliance. Staff recommends that the initial phase of this project include immediate response to the Priority 1 conditions outlined in the consultant's reports. This can be accomplished through a combination of in house and contracted work that will be completed within 10-12 months. Playgrounds that cannot be repaired or renovated should be demolished and replaced. The work can be accomplished in 18 months. Staff recognizes the issues of safety and code compliance in our playgrounds were raised as the Park and Recreation Commission was completing their process to determine the distribution of Prop 12 funds. The Commission focused on many of the same high need facilities identified Safety Report. Consequently, their recommendation includes $276,000 for Priority One compliance. Still, there is an unfunded balance, and no contingency source against estimate over runs. Staff recommends re programming the $80,000 for Freitas Park Playground in the Commission's report to the Matching Fund in the same report. Playgrounds in immediate need of replacement can be completed. Once Priority 1 issues are addressed, a fifteen -year strategy for code compliance for Priority 2 and 3 conditions and ADA issues should be formulated and funded at the rate of $50,000 per year. This will allow for costly repairs and timely replacement of the inventory of playground equipment, and compliance with new and more restrictive access requirements. Work that typically the parks crew cannot accommodate into their regular maintenance schedule will need to be contracted. Conclusion The strategy outlined in this report demonstrates clear attempt on behalf of the City to address conditions that do not comply with State Safety Codes. Initial response can be completed within two years. The one time costs of $51,000 and ongoing costs of $50,000 per year, to the City of San Rafael reflect a commitment to provide safe play environments now and in the future. 5