HomeMy Public PortalAbout20160706 - Agenda Packet - Board of Directors (BOD) - 16-15 SPECIAL MEETING
BOARD OF DIRECTORS OF THE
MIDPENINSULA REGIONAL OPEN SPACE DISTRICT
Administrative Office
330 Distel Circle
Los Altos, CA 94022
Wednesday, July 6, 2016
6:00 PM
A G E N D A
6:00 SPECIAL MEETING OF THE BOARD OF DIRECTORS OF THE MIDPENINSULA
REGIONAL OPEN SPACE DISTRICT
ROLL CALL
1. Bear Creek Stables Site Plan Alternatives (R-16-64)
Staff Contact: Gretchen Laustsen, Planner III, Planning Department
General Manager’s Recommendation:
1. Review the five Bear Creek Stables Site Design Alternatives prepared to date (Alternatives A
& B, Phased Implementation Plans for Alternatives A and B, and a new Minimal Alternative
C).
2. Select Phased Alternative A2 as the Preferred Alternative for purposes of the California
Environmental Quality Act analysis.
ADJOURNMENT
In compliance with the Americans with Disabilities Act, if you need assistance to participate in this meeting,
please contact the District Clerk at (650) 691-1200. Notification 48 hours prior to the meeting will enable the
District to make reasonable arrangements to ensure accessibility to this meeting.
Written materials relating to an item on this Agenda that are considered to be a public record and are distributed to
Board members less than 72 hours prior to the meeting, will be available for public inspection at the District’s
Administrative Office located at 330 Distel Circle, Los Altos, California 94022.
CERTIFICATION OF POSTING OF AGENDA
I, Jennifer Woodworth, District Clerk for the Midpeninsula Regional Open Space District (MROSD), declare that
the foregoing agenda for the special meeting of the MROSD Board of Directors was posted and available for
review on June 30, 2016, at the Administrative Offices of MROSD, 330 Distel Circle, Los Altos California,
94022. The agenda and any additional written materials are also available on the District’s web site at
http://www.openspace.org.
Jennifer Woodworth, MMC
District Clerk
Meeting 16-15
R-16-64
Meeting 16-15
July 6 , 2016
AGENDA ITEM 1
AGENDA ITEM
Bear Creek Stables Site Plan Alternatives
GENERAL MANAGER’S RECOMMENDATIONS
1. Review the five (5) Bear Creek Stables Site Design Alternatives prepared to date
(Alternatives A & B, Phased Implementation Plans for Alternatives A and B, and a new
Minimal Alternative C).
2. Select Phased Alternative A2 as the Preferred Alternative for purposes of the California
Environmental Quality Act (CEQA) analysis.
SUMMARY
At the regular public meeting of February 24, 2016, the Midpeninsula Regional Open Space
District (District) Board of Directors (Board) reviewed Site Design Alternatives A and B for the
Bear Creek Stables. At this meeting, the Board directed the General Manager to develop three
additional site design alternatives to address the high, upfront capital costs for the proposed
improvements. On July 6, 2016, the Board will review Phased options for Site Design
Alternatives A and B, as well as a new, Minimal Site Design Alternative C. Based on a thorough
analysis of each site design alternative, the General Manager recommends selection of Phased
Alternative A, with the addition of the livery stables to further enhance the public programming
opportunities, as the preferred alternative for CEQA purposes (henceforth names Phased
Alternative A2). The recommended alternative would allow for phased implementation of the
improvements, with the first phase eligible for Measure AA reimbursements. Subsequent phases
would be deferred until additional external funds are secured via donations, grants, and/or tenant
contributions. Phased Alternative A2 would help establish a longer-term plan of development for
Bear Creek Stables (as compared to Alternative C) whereby elements are implemented as funds
are available.
MEASURE AA
Measure AA includes Portfolio #21, Bear Creek Redwoods Public Recreation and Interpretation
Projects, as follows:
Open for hiking, equestrian activities. Provide parking areas, trails; upgrade stables. Restore &
protect habitats for various species. Repair roads & trails to reduce sediment. Rehabilitate Alma
College site.
R-16-64 Page 2
Measure AA allocated $17.478M for all eligible Bear Creek Redwoods Open Space Preserve
projects. Preliminary project cost estimations by staff for the Portfolio #21 assigned
approximately $3M for upgrades to Bear Creek Stables.
BACKGROUND
As part of the Bear Creek Redwoods Preserve Plan, the Bear Creek Stables Site Plan is being
developed to meet the following goals:
• Emphasize the protection of the site's natural resources;
• Maximize public benefits by broadening public access and use of the facility; and
• Develop a viable plan that is financially feasible for a tenant and the District.
On February 24, 2016, the Board reviewed Site Design Alternatives A and B (Attachment 1) (R-
16-20). Given the high, upfront capital cost of the improvements for Alternatives A and B, the
Board directed the General Manager to develop three additional alternatives to either phase in the
cost of improvements (Phased Alternatives A & B), or reduce the total project costs (Minimal
Alternative C).
DISCUSSION
Three new site design alternatives, in addition to Alternatives A and B, have been developed for
Board consideration to reduce upfront capital costs: Phased Alternatives A and B and Minimal
Alternative C. Table 1 describes the improvements, facilities and public programing associated
with Alternatives A, B, and C. Table 2 outlines the phasing of improvements for Alternatives A
and B. As part of the Board’s deliberations of the various Alternatives, the following policy
questions should be considered:
• Availability of public programming/expansion of public access;
• Availability of a reliable and cost-effective water supply to support the Stables;
• Viability of attracting a long-term tenant to provide expanded public access programs,
implement future improvements, and maintain the site; and
• Opportunity to establish a long-term vision for the Stables, where the District could
prioritize funding on initial phased improvements and seek grant or external funding to
implement future phases.
Alternative A
Alternative A includes necessary improvements for the existing Stables facilities and would
accommodate 63 boarded horses. Public access improvements would include a visitor
information kiosk, visitor parking, restroom and a public open air riding arena. Pasture areas
would be fully restored to natural landscapes and the paddock area would be rebuilt for improved
drainage and equestrian health and safety. This alternative has been refined to include a new
caretaker’s residence in its existing location.
Alternative B
Alternative B includes the necessary improvement, plus facilities designed to increase public
access to equestrian facilities and programs. The site design would accommodate 72 horses (12
public program horses and 60 boarded horses.) The improvements would include a livery stable
to facilitate the public trail riding program, as well as a large public arena with bleacher seating
to better facilitate equine education programs and clinics. This alternative has been refined to
R-16-64 Page 3
include construction of a multipurpose stable building to replace the existing structure and full
restoration of the pasture areas instead of irrigated pastures.
New Minimal Alternative C
Minimal Alternative C includes only the essential safety and environmental protection
improvements to provide a safe environment for boarders, their horses, and the public, and
protect the site’s natural resources, thereby limiting the total cost of implementation.
Improvements include: demolition of dilapidated structures; restoration of hillsides; minimal
improvements to the existing hay barn, manure dump, and arenas; improvements to boarder area,
including replacement of paddock fencing and shelters within the existing layout; addition of a
public restroom; and minimal road and parking upgrades (Attachment 2: Alternative C). With
the exception of the new restroom, Alternative C does not propose any other new structures.
TABLE 1. Proposed Key Improvements for Alternatives A, B and C
Alternative A Alternative B Alternative C
Horses 63 horses (boarded) 72 horses (60 boarded + 12
public program)
63 horses (boarded)
Livery stable No Yes - 12 livery runs No
Arena Large rotated
(boarder) arena in
boarder area
Small (public) arena
in public access area
Large (public) arena
next to hillside with
bleacher seating in
boarder area
Small (boarder)
arena in former
dressage area
Improved small
(public) arena
in public access
arena
No upgrades to
boarder arena
or round pen
Public access
facilities
Public restroom &
boarder area
restroom
Visitor kiosk/center
Stabilized or
restored stable
Farm animals barn
in restored stable
Public restroom and
boarder area
restroom
New 1-2-story
structure to replace
old stable
Visitor center in
new structure
Farm animals barn
in restored stable
Shared
public/boarder
restroom
Stabilized
stable
Administration
facilities
New office and
caretaker residence
in existing location
New office in new
1-2-story structure
New caretaker
residence at entrance
Demolition of
non-essential
structures,
including
caretaker
residence
Pasture areas Restoration Restoration Restoration
Total Order of
Magnitude Cost
$7.7 M (includes water
system)
$8.1 M (includes water
system)
$3.4 M (includes water
system)
Common improvements: Paved roads and parking, new hay barn. Minimal improvements
to roads, hay barn and
manure facility
Phased Alternatives A and B
Phase I priority improvements for both Alternatives A and B would focus only on essential
safety and environmental protection improvements to provide a safe environment for boarders,
R-16-64 Page 4
their horses and the public, and protect the site’s natural resources. Futures phases of
improvements would be recommended as part of the District’s annual Action Plan and
programmed into tenant work plans pending funding, available capacity, and other priority
needs, resulting in phased budgeting and phased expenditures.
TABLE 2. Proposed Phased Implementation Plan for Alternatives A and B*
Alternative A Alternative B
Phase 1 (High
Priority)
Improvements
Removal of dilapidated structures
in the public area
Hillside restoration
New restroom
Limited improvements to roads,
parking, hay barn, manure dump
Improvements to paddocks,
shelters, boarder arena
Removal of dilapidated structures
in the public area
Hillside restoration
New restroom
Limited improvements to roads,
parking, hay barn, manure dump
Improvements to paddocks,
shelters, boarder arena
New boarder arena in dressage
arena
Phase 1 Cost $4.25 M (includes water system) $4.65 M (includes water system)
Phase 2
Improvements
Additional road upgrades; asphalt
roads
Replacement of hay barn
Replacement of caretaker house
New arena in public access area
New maintenance building
New vehicle/horse trailer pkg lot
New public livery stable
New visitor center
Additional road and pkg
upgrades; asphalt roads
New, relocated hay barn
Replacement of caretaker house
New maintenance building
New vehicle/horse trailer pkg lot
New farm animals barn
Phase 2 Costs $3.4 M $3.5 M
Order of
Magnitude
Cost
$7.65 M (includes water system) $8.15 M (includes water system)
*Alternative C does not have a Phased Implementation Plan as all improvements are high priority,
and would be implemented at one time.
Recommended Preferred Alternative – Phased Alternative A2 (Attachment 3, Table 3)
Based on an analysis of all five Alternatives prepared to date, the General Manager recommends
selection of a modified version of Phased Alternative A, with the inclusion of the livery stables –
titled Phased Alternative A2 – for the following reasons:
• Phased approach allows implementation costs to be phased over time, as funding and
resources are made available.
• Addition of a livery stable significantly expands public access and programming.
• High priority improvements to address health, safety and environmental concerns would
be completed during Phase I.
• Alternative retains important elements that contribute to the site’s rustic character like the
old stable building.
• Includes a long-term plan to allow for future improvements to the access roads and
parking, restoration of the old stables building, and additional administrative facilities.
R-16-64 Page 5
TABLE 3. Recommended Preferred Alternative - Phased Alternative A2
Phased Alternative A2
Modifications
to Alternative A
Addition of a public livery stable to public access area
Relocation of hay barn to new trailer parking area
Reduction of paved surface to main driveways and vehicle
parking areas
Existing layout of boarder area is retained as part of the Phase 1
Improvements
Phase 1
Improvements
Demolition of structures and stabilization of old stables building
Hillside restoration
Public access area restroom
New public access area livery stable and arena
Limited improvements to roads (gravel), parking, hay barn,
manure dump (public area)
Interim improvements to existing boarder area (new fencing,
shelters, footing, drainage improvements)
Phase 1 Cost $4.5 M (includes water system)
Phase 2
Improvements
New hay barn
New caretaker house
New maintenance building
New trailer parking lot
Paved entry roads and parking areas
Additional improvements to boarder area paddocks, arena and
round pen
Phase 2 Costs $2.8 M
Preliminary
Order of
Magnitude Cost
$7.3 M (includes water system)
Attachment 4 provides an overview of the strengths and weaknesses for each of the alternatives.
This comparison focuses on the alternative’s overall project cost, public access opportunities,
likelihood to attract a long-term tenant, and potential for a tenant to generate sufficient income to
maintain the site and implement future improvements.
Based on this evaluation, Phased Alternative A2 most effectively accomplishes the Board-
approved project goals which are: to emphasize the protection of the site's natural resources,
maximize public benefits by broadening public access and use of the facility, and develop a
viable plan that is financially feasible for a tenant and the District. Although the $4.5M Phase I
cost estimate exceeds the original set aside for Stables improvements by $1.5M, all Phase I
improvements would be eligible for Measure AA reimbursement.
Water System Infrastructure Improvements
Water system infrastructure improvements that provide for both potable and fire suppressions
needs are required to retain a stables operation in the long-term. The District retained
consultants to evaluate the construction feasibility of each potential option and provide the
R-16-64 Page 6
associated estimated construction costs and future operational and maintenance costs over a 50-
year lifecycle.
Staff had previously informed the Board that, based on the conceptual designs of the potential
water systems evaluated to date, preliminary cost estimates were in the range of $2.3 million to
over $6 million (R-16-31). Since then (on May 6, 2016), the District has received confirmation
from the San Jose Water Company (SJWC) that a direct connection is feasible to their existing
water line at Bear Creek Road, such that related initial capital costs would be substantially
reduced.
The latest engineering estimates identify a range of preliminary costs (capital plus 50 years of
operation and maintenance) between $1.7 and $5.1 M for the various water system options.
Based on the latest research, it appears that a direct connection to SJWC would provide the most
cost effective option for providing a reliable source of water for potable and fire suppression use
at a total cost of approximately $1M. Staff will continue to refine and evaluate the cost,
timeliness of implementation, constructability, and adequacy of water rights of the various water
source options to confirm that the SJWC option is preferred. A selection is expected at the time
the Board approves the Preserve Plan.
Community Input Received on Alternatives A and B
On May 3, 2016 District staff held an Open House to receive additional public feedback on Site
Design Alternatives A and B. Approximately 15 people provided input in person or by email.
Some of the greatest concerns identified by the public included the need for improvements to the
site drainage and road, as well as maintaining the character of the site. Preferences for specific
elements within each alternative varied, particularly as they relate to the location and size of
arenas, the caretaker’s residence and hay barn. Attendees also provided input and support to
modify elements within the alternatives to further reduce costs.
FISCAL IMPACT
Sufficient funds are included in the Fiscal Year (FY) 2016-17 budget for the completion of the
Preserve Plan, including the Bear Creek Stables Site Plan, and Environmental Impact Report
(EIR).
BOARD COMMITTEE REVIEW
Seven PNR committee meetings have been held to date. Staff presented the process for
developing a long-term plan and lease to the PNR committee on August 27, 2013 and December
2, 2014. Three additional PNR committee meetings were held to solicit public input on March
16, March 18, 2015 and May 3, 2016. On April 14, 2015, the PNR committee reviewed
preliminary site design alternatives. On September 29, 2015, the PNR committee reviewed the
revised site design alternatives and the preliminary cost sharing proposals.
PUBLIC NOTICE
Public notice was provided as required by the Brown Act. Additional notice was provided to
interested parties of the Stables Site Plan, as well as adjoining neighbors of Bear Creek
Redwoods Open Space Preserve.
R-16-64 Page 7
CEQA COMPLIANCE
An EIR is currently in preparation for the Preserve Plan, which includes the Bear Creek Stables
and Alma College Site Plans. In June 2015, the Board accepted the project description of the
proposed Preserve Plan, including a range of potential improvements at the Stables, for the
purposes of completing the environmental review process consistent with the California
Environmental Quality Act (CEQA) (R-15-16). At the February 24, 2016 meeting, the Board
directed the General Manager to develop Phased options for Alternatives A and B and a Minimal
Alternative C, and these options have also been incorporated into the CEQA review. If Phased
Alternative A2 is selected as the preferred alternative for CEQA purposes, this modified
alternative would also be incorporated into the CEQA review.
NEXT STEPS
The General Manager will direct staff to incorporate feedback received from the Board Special
Meeting into the Bear Creek Redwoods Preserve Plan and CEQA document, which will be
released for public review this summer/early fall.
PROJECT SCHEDULE
Selection of preferred Site Design Alternative for CEQA purposes July 2016
BCR Preserve Plan EIR Hearing September 2016
EIR Certification & Preserve Plan (Stables & Alma College Site Plans)
Approval
December 2016
Release Request for Proposals for Design Development January 2017
Award of Contract for Design Development Consultant March 2017
Design and Engineering 2017
Permitting 2018
Construction Spring 2019
Attachment(s)
1. Site Design Alternatives A and B
2. Site Design Alternative C
3. Site Design Alternative A2
4. Comparison of Strengths and Weaknesses for Site Design Alternatives
Responsible Department Head:
Jane Mark, AICP, Planning Manager, Planning Department
Prepared by:
Gretchen Laustsen, Planner III, Planning Department
Contact person:
Gretchen Laustsen, Planner III, Planning Department
03-36 BEAR CREEK REDWOODS PRESERVE
preserve plan DECEMBER 2015
A
200 ftN
B
r
i
g
g
s
C
r
e
e
k
Bear
Cree
k
Road
BC02
FIGURE 3-8A Bear Creek Stables Alternative A
Public Restrooms
Visitor Parking (25 to 40 spaces)
Visitor Facility (Welcome/Learning Center): shelter under existing tree
Farm Animals Barn (in older stables structure)
Horse/Pedestrian Trailhead
Directional/Informational Signage
Road Upgrades
2.1
2.2
2. Public Access
Office (new building)
Groundskeeper House(new building)
3. Administration
3.1
1.1
1.2
1.3
1.5
1.6
1.7
1.11.9
1.10
1.11
Main Riding Arena
Secondary Arena
Round Pen
(23) Boarding Shelters + Paddocks (15x30ft)
(40) Boarding Shelters + Paddocks (15x40ft)
Hay Barn
Manure Dump
Maintenance & Storage
Restrooms at Arena
Trailer Parking (2 to 4 full trailer parking + 10 to 12 trailer storage spaces)
1. Horse Stables
2.3
2.4
2.5
2.6
2.7 3.2
1.1
1.2
1.3
1.5
1.6
1.7
1.11.9
1.10
1.11
2.1
2.2
2.32.4
2.5
2.6
2.7
3.1
3.2
1.5
1.5
2.2
2.6
trail connection to Preserve trail system
potential bypass trail for boarders to connect to Preserve trail system
B
200 ftN
Bear
Cree
k
Road
BC02
B
r
i
g
g
s
C
r
e
e
k
FIGURE 3-8B Bear Creek Stables Alternative B
Public Restrooms(in new Visitor Facility)
Visitor Parking (25 to 40 spaces)
Visitor Facility (Welcome/Learning Center): new structure
Farm Animals Barn
Horse/Pedestrian Trailhead
Directional/Informational Signage
Road Upgrades
2.1
2.2
2. Public Access
1.1
1.2
1.3
1.5
1.6
1.7
1.11.9
1.10
1.11
Main Riding Arena (OPTIONAL: covered)
Secondary Arena (OPTIONAL: covered)
Round Pen
Livery + (12) Runs
(25) Boarding Shelters + Paddocks (15x30ft)
(35) Boarding Shelters + Paddocks (15x40ft)
Hay Barn
Manure Dump
Composting Station(OPTIONAL: 20-horse system)
Maintenance & Storage
Restrooms at Arena
Trailer Parking (2 to 4 full trailer parking +10 to 12 trailer storage spaces)
1. Horse Stables
2.3
2.4
2.5
2.6
2.7
1.4
1.8
Office (in new Visitor Facility)
Groundskeeper House(new building at entry)
3. Administration
3.1
3.2
1.1
1.2
1.3
1.5
1.6
1.11.9
1.10
1.11 2.1
2.2
2.3
2.5
2.6
2.73.1
3.2
1.4
1.5
1.11.8
2.2
2.6
2.6
03-3703 PRESERVE PLAN
trail connection to Preserve trail system
potential bypass trail for boarders to connect to Preserve trail system
1.7 2.4
C
200 ftN
Brig
g
s
C
re
e
k
Bea r
C r ee k
R o a d
BC0 2
FIGURE 3-8A Bear Creek Stables Alternative C
Preserve Original Barn
ADA Parking (2 spaces)
Shed Remains for Possible Trial Ride or Lesson Operation
Horse/Pedestrian Trailhead
Directional/Informational Signage
Gravel Road & ParkingImprovements
Removal of Structures & Pasture Reclamation
2.1
2.2
2. Public Access
Public Restroom
3. Administration
3.1
1.1
1.2
1.3
1.4
1.5
1.6
1.7
1.8
1.9
Existing Riding Arena with
Improvements
Rebuild Secondary Arena
(80’x160’)
Existing Round Pen
Existing Hay Barn
Covered Manure Dump
(13) Phase One Paddocks
(15x40ft)
(16) Phase Two Paddocks
(15x40ft)
(18) Phase Three Paddocks
(15x40ft)
(16) Phase Four Paddocks
(15x40ft)
1. Horse Stables
2.3
2.4
2.5
2.6
2.7
1.1
1.2
1.3
1.8
1.9
1.4
1.5
2.1 2.3
2.4
2.5
2.6
2.6
3.1
1.6
1.7
2.2
2.5
2.7
2.7
trail connection topreserve trail system
potential bypass trail for boarders to connect to preserve trail system
Structure (no restoration)
A2
200 ftN
B
r
i
g
g
s
C
r
e
e
k
Bear
Cree
k
Road
BC02
FIGURE 3-8A Bear Creek Stables Alternative A2
Public Restrooms
Visitor Parking (25 to 40 spaces)
Visitor Facility (Welcome/Learning Center): shelter under existing tree
Farm Animals Barn (in older stables structure)
Horse/Pedestrian Trailhead
Directional/Informational Signage
Road Upgrades
Livery: 10 Stalls + Runs
80’x160’ Outdoor Arena
2.1
2.2
2. Public Access
Office (new building)
Groundskeeper House(new building)
3. Administration
3.1
1.1
1.2
1.3
1.4
1.5
1.6
1.11.7
1.8
Main Riding Arena
Round Pen
(23) Boarding Shelters + Paddocks (15x30ft)
(40) Boarding Shelters + Paddocks (15x40ft)
Hay Barn
Manure Dump
Maintenance & Storage
Restrooms at Arena
Trailer Parking (2 to 4 full trailer parking + 10 to 12 trailer storage spaces)
1. Horse Stables
2.3
2.4
2.5
2.6
2.7
2.8
2.9 3.2
1.1
2.9
1.3
1.3
1.5
1.11.6
1.7
1.8
1.4
2.1
2.2
2.3
2.4
2.5
2.6
2.7
3.1
3.2
1.3
1.5
2.2
2.6
2.8
ATTACHMENT 4. Comparison of Strengths and Weaknesses of Site Design Alternatives
Implementation Cost Public Programming Long-term Plan Financial Viability Character of Site
Alternative A
High upfront cost
Increased opportunity
for public access
Provides long-term plan
Improved opportunity to
attract long-term tenant
and increase revenue
Retains key
elements of site
Alternative B
Highest upfront
cost
Greatest opportunity
for expanded public
access
Provides long-term plan
Greatest opportunity to
attract long-term tenant
and increase revenue
Changes site’s
character
Alternative C
Least cost
alternative
Lacks expanded
public access
Does not provide long-term
plan Potential difficulty to
attract long-term
tenant
Retains key
elements of site
Phased
Alternative A
Reduced upfront
cost with phased
implementation
Limited expanded
public access with
Phase I
improvements
Provides long-term plan
If no additional funding
is secured, future phases
are not implemented
Improved long-term
opportunity to attract
long-term tenant and
increase revenue
Retains key
elements of site
Phased
Alternative B
Reduced upfront
cost with phased
implementation
Limited expanded
public access with
Phase I
improvements
Provides long-term plan
If no additional funding
is secured, future phases
are not implemented
Improved long-term
opportunity to attract
long-term tenant and
increase revenue
Changes site’s
character
Phased
Alternative A2
Reduced upfront
cost with phased
implementation
Greatest opportunity
for expanded public
access with addition
of livery stable in
Phase I
Provides long-term plan
If no additional funding
is are secured, future
phases are not
implemented
Greatest opportunity to
attract long-term tenant
and increase revenue
with Phase I
improvements
Retains most
key elements of
site
Strong alignment with policy/goal
Medium alignment with policy/goal
Weak alignment with policy/goal