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)
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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.
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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
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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.
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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.
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