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TOWN OF WINDSOR AGENDA REPORT

Town Council Meeting Date: September 16, 2020

To: Mayor and Councilmembers From: Olivia Lemen, Parks and Facilities Manager Subject: Keiser Park Master Plan Update

Recommendation to Council: Receive a presentation on the proposed Keiser Park Master Plan Update process which will include extensive community outreach and design alternative analysis and provide direction to staff.

Background: On May 21, 2008, the Town Council approved the Keiser Park Master Plan which included a phased construction plan (Attachment 1). Phase I included the playground, sports court, realigned entryway, ball fields, trails, restroom/concession stand and parking. Phase II encompassed the aquatic facility which included a recreation pool and a competition pool, creek restoration, picnic areas and additional parking. Phase III was a 36,000 square foot Recreation Center which included a gym. Phase I was completed on March 16, 2011 and there has been no major development in this park since.

As outlined in the Town 2040 General Plan (General Plan), the expansion of Keiser Park and the development of an aquatic facility and multi-use recreation center will meet long term community priorities. General Plan Policy PFS-9.20 Keiser Park Master Plan states: The Town shall implement the Keiser Park Master Plan, based on community input, to accommodate an Aquatics Center, multi-generational Community Center and expansion of parkland.

The 2030 Parks and Recreation Master Plan Update (PRMP) was adopted by Town Council on June 7, 2017. During this update process, extensive community outreach took place including stakeholder interviews, General Plan focus groups, phone and online surveys, and public workshops. The findings of this research created an Emerging Interests List (Attachment 2) which was utilized to develop the Goals, Policies and Recommendations for the PRMP. The following are identified as high priorities to advance the Town of Windsor Parks and Recreation Department and enhance the Windsor park system:

Goal 2: Provide adequate park acreage to meet the community’s needs for active and passive recreation.

Recommendation 2.1-4: Acquire additional land adjacent to Keiser Park to expand Keiser Park’s acreage to meet the needs for Community Park acreage.

Goal 5: Develop facilities that encourage active participation, are accessible and affordable. Recommendation 5.1-1: Develop a Keiser Park Aquatics Center that is multi-use; accommodating the various aquatics activities including swim lessons, recreational swim, water polo, therapeutic swim, competitive swim and aqua aerobics.

ITEM NO. : 12.1

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Recommendation 5.2-1: Evaluate the opportunity to integrate additional programs and services into a multi-generational, multicultural community center at Keiser Park.

Based on these adopted policies and recommendations, the Town submitted a grant application to the Sonoma County Agricultural and Open Space District (Open Space) to acquire four separate properties adjacent to Keiser Park. If awarded, the grant and the purchase agreements can be negotiated with the property owners, this would expand Keiser Park by 2.33 acres. There is another 2.55-acre property adjacent to the park which may be a potential acquisition opportunity in the future. This expansion potential was not considered when the 2008 Keiser Park Master Plan was adopted. Community Benefit Funding Opportunity The Lytton Rancheria of California (Tribe) is a Tribal Government with the sovereign right to use and develop lands taken into trust as part of the reservation of the Lytton Rancheria of California at its sole discretion. Over the last year, the Tribe has been working with the Town/Windsor Water District (District) about the possibility of allowing connection to the Town/District’s wastewater system to serve the residential, community and government uses that will be developed on a portion of the tribal lands. On May 20, 2020, the Town Council approved an agreement for wastewater services as the first step to allowing the Tribe to connect the residential project to the Town/District’s wastewater system. Included in that agreement, the Tribe will pay a lump sum of twenty-million dollars ($20,000,000.00) to the Town. This would serve as a onetime wastewater connection fee and funding to advance a future community benefit project or projects, such as a recreation center or community pool to be constructed by the Town. The wastewater connection portion of the anticipated Tribe lump sum payment will be approximately three and a half million ($3,500,000), leaving a balance of approximately sixteen-million, five-hundred thousand dollars ($16,500,000) dedicated to the community benefit project. The possible expansion of Keiser Park and potential near-term funding for construction of a recreation center and/or community pool at the park necessitate consideration of an update to the Keiser Park Master Plan to ensure that future uses and programming opportunities at the park are thoughtfully considered and maximized. In preparation of the future park expansion, Town staff are beginning the process of updating the Keiser Park Master Plan which will include the proposed property acquisition, the first step for development. To ensure proper due diligence, Town staff have reviewed phase II and III of the park development plans and researched any available sites in Windsor which might also be considered to accommodate such facilities (Attachment 3). After considering factors such as size, potential for future expansion, joint use with Windsor Unified School District, location, trail connectivity, and proximity to public transit, the preliminary site assessment identified Keiser Park to have the highest potential for the community benefit project. While no decision has been made regarding location, since the onset of negotiations with the Lytton Rancheria of California about potential funding for a community benefit, Keiser Park has always been included in those discussions. The preliminary site assessment continues to promote that concept.

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Discussion: The Keiser Park Master Plan Update process would be led by a design firm (consultants) obtained through a formal RFP process. The Town would create an advisory committee to work with Town staff to identify stakeholders, ensure widespread community participation and serve in an advisory role to Town staff and consultants. Using the Keiser Park Master Plan, the PRMP and the 2040 General Plan as the guiding documents, the consultants would be scoped with the following:

• Facility and Program Needs Assessment Update

o Consideration of opportunities presented by expansion area o Consideration of possible joint development opportunities with Windsor Unified

School District o Consideration of retaining a large open area for regional events o Consideration of more limited improvements to Jaguar Way based on recent

Council direction to focus on pedestrian and bicycle access instead of a full street extension

• Develop an innovative Community Outreach Plan:

o One-on-one interviews with key stake holders o Production and distribution of all materials (posters, websites, flyers, etc.) o Media outreach and promotion o Community workshops / charettes o Engaging, interactive and innovative virtual participation to the community

process

• Develop three to five conceptual design alternatives for the expansion and development of Keiser Park. Conceptual designs will include renderings and building massing only. Alternatives should address the following:

o Consider all comments brought forward through community outreach process o Advance goals and recommendations in the Master Plan and align with the

General Plan o Include current and future Keiser Park property acquisition potential o Factor in opportunities and constraints of park

• Provide costing for top three conceptual design alternatives which take a phased approach

to implementation.

• As an optional scope add-on, Town staff will ask consultant to consider the possibility of “tiering” off previously prepared environmental documents based on the final recommendations to ensure the project is in compliance with CEQA requirements.

The final product will be an updated Keiser Park Master Plan Report with a phased construction plan and cost estimates for Council approval. Once this plan is approved, the Town staff can move forward with the next portion of the project which would be developing construction drawings, meeting all environmental permitting requirements and putting the construction project out to bid.

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The anticipated timeline for project completion is approximately 12-18 months. Upon Council approval of this proposed approach, the following is a possible schedule:

Consultant RFP issued September 2020 Advisory Committee formed September 2020 Proposals received, scored and interviewed October 2020 Council award of contract November / December 2020 Outreach Plan developed February/March 2021 Stakeholder and community outreach March – May 2021 Conceptual design development May – August 2021 Design selection process September 2021 Keiser Park Master Plan Report September – November 2021 Project Wrap-Up January 2022

Fiscal Impact: Town staff are anticipating the Keiser Park Master Plan Update process will cost $250,000 - $300,000. This project has been included in the grant to the Open Space District, which if awarded, is a 50% match grant program. Any Town funds required would come from the Park Development Fund which has a current fund balance of $511,763. Environmental Review: The recommended action is not subject to environmental review at this time. Future actions related to updating the Keiser Park Master Plan may be subject to environmental review, at which time the appropriate environmental documents, prepared in accordance with the requirements of the California Environmental Quality Act (CEQA), will be presented for consideration prior to any action being taken. Attachments: 1. 2008 Keiser Park Master Plan with Phasing 2. Parks and Recreation Master Plan Emerging Interests Matrix 3. Community Benefit Preliminary Site Assessment Matrix Prepared by: Reviewed by: Olivia Lemen Jon Davis Parks and Facilities Manager Parks and Recreation Director Reviewed by: Recommended by: Jeneen Peterson Ken MacNab Administrative Services Director Town Manager

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ATTACHMENT 1

Windsor Parks & Recreation Master Plan EMERGING ISSUES & INTERESTS Community Workshop,

10/12/2014 Staff

Workshop Council

Interviews Phone Survey

Spanish Workshop, 1/11/2015

Teen Workshop, 2/5/2015

Aquatics center / pool / splash pad

X X X X X X

Multi-use recreation center / Gym space

X X X X X X

Trails, walking & bike paths X X X X X

Restrooms X X X X X

Dog parks X X X X X

Tennis / pickleball courts X X X X

Town Green events X X X X

Scooter or BMX area / Additional Skate Park

X X X X

Destination Play Area/Special Features

X X X

Playground renovation / Playgrounds

X X X

Community gardens X X X

Pre-school X X

Exercise Stations X

Classes X X

ATTACHMENT 2

Keiser Park Current

Phase 2 and 3

Footprint

2.75 Acres

Keiser Park Potenital

Land Acquisitions

2.33 Acres

Bluebird Center

Property

2.06 Acres

Area D Park

Dedication Land

2.5 Acres

Windsor Creek

School Site

10.78 Acres

Site Flexabiity / Size and Space For:

Recreation Center YES YES YES YES YES

Aquatics Facility YES YES YES YES YES

Recreation Center and Aquatics Facility YES YES NO YES YES

Aquatics, Joint Use and Expansion Potential Adjacent to WHS Adjacent to WHS 1.3 miles to WHS 1.6 miles to WHS 1.0 miles to WHS

Town Owned YES Purchase plan in

place Yes

NO

based on project

development park

land dedication

NO

need to purchase

and a funding

mechanism

Centrally Located

(Distance from Central Windsor 101 Exit)1.0 miles 1.0 miles 0.4 miles 1.7 miles 0.5 miles

Trail and Bike Connectivty Class I and Class II Class I and Class II Class II

TBD

based on project

development

Class I and Class II

Access to SMART / Regional Access

(within .5 mile / walkable)0.5 miles 0.5 miles 0.9 miles 1.4 miles 0.6 miles

Community Benefit - Preliminary Site Assesment

Phase II encompassed an aquatic facility including a recreation pool, competition pool, warm up pool, picnic area, locker and training rooms, and parking.

Phase III includes a Recreation Center with a large multi use space/ gymnasium, fitness center, class rooms, offices, outside seating areas and parking.

An approximate total of 109,000 sqft. is necesary to build and park both facilities, equating to minimum of 2.5 acres.

ATTACHMENT 3