Transmittal - 3/30/2022ERIN MENDENHALL
Mayor
CITY COUNCIL TRANSMITTAL
_______________________ Date Received: ___________
Lisa Shaffer, Chief Administrative Officer Date sent to Council: ___________
_____________________________________________________________________________________
TO: Salt Lake City Council DATE:
Dan Dugan, Chair
FROM: Kristin Riker, Director, Public Lands
SUBJECT: Glendale Regional Park Master Plan Update
STAFF CONTACTS: Kristin Riker, Director, Public Lands Department kristin.riker@slcgov.com;
Katherine Maus, Public Lands Planner, Public Lands Department katherine.maus@slcgov.com; Nancy
Monteith, Senior Landscape Architect, Department of Public Services nancy.monteith@slcgov.com
DOCUMENT TYPE: Information Item
RECOMMENDATION: Review documentation and briefing provided
Confirm or modify scope of work through adoption of a resolution
Approve public engagement metrics
BUDGET IMPACT: Vision Plan: $225,000
Current funding allocated: $3,200,000 impact fees
Future funding impact: TBD
BACKGROUND
Since 2018, the Glendale Water Park site has been closed to the public. Demolition is underway and the
City has hired a consultant to repurpose the site into a regional park. Redevelopment of the site for public
outdoor recreation must be complete by April 2024 to meet the requirements of the Land and Water
Conservation Fund (https://www.nps.gov/subjects/lwcf/index.html).
Public Lands Department has initiated a planning and public engagement process to create The Glendale
Regional Park Vision Plan. The City’s consultant, Design Workshop, is collaborating with an internal
leadership group consisting of representatives from Public Lands, Engineering, Public Services,
Transportation and Sustainability. The consultant team has conducted site analysis, stakeholder
engagement and conceptual planning. Public involvement is ongoing and will inform the final Vision
Plan.
Lisa Shaffer (Mar 30, 2022 13:55 MDT)03/30/2022
03/30/2022
ERIN MENDENHALL
Mayor
SCOPE OF WORK
The purpose of this project is to create a Master Plan for the development of the former 17-acre Glendale
Water Park, to guide capital improvements, site programming, operations, and maintenance
recommendations. Recommendations will include proposed connections to nearby public lands, including
Glendale Neighborhood Park, 1700 South River Park, the Jordan River Trail, and Glendale Golf Course,
along with considerations for synergistic programming for these sites. The Vision Plan will adhere to the
Federal Land and Water Conservation Fund regulations, limits in use, and requirements for public access
timing.
The consultant and the project team members from the Department of Public Lands and the Engineering
Division in the Department of Public Services will complete the following tasks to satisfy the scope of
work:
Task 1: Project Startup [COMPLETE]
Task 2: Due Diligence including precedent plan review and existing conditions analysis
[COMPLETE]
• Review precedent plans and civic engagement reports
• Inventory of desired future program elements
• Create a regional connections map
• Site Analysis
Task 3a: Programming and O&M Research: Research initiated early in the planning process and
concluded in concurrence with Task 6 Final Preferred Alternative [COMPLETE]
• Identify future maintenance needs for staffing and operations
• Identify potential programming partners and requirements
• Identify regional park precedent projects
• Operations and maintenance SWOT analysis
Task 3b: Market Understanding [COMPLETE]
• Primary (neighborhood) and secondary (citywide/regional) market analysis
• Demographic and existing conditions analysis of primary and secondary markets
• Analysis of recreational spending trends of primary and secondary markets
• Conceptual review of potential revenue generating elements
Task 4: Site Plan Alternatives [COMPLETE]
• Plan view schematic drawings to illustrate programming and usage
• Character Boards with inspirational images to visualize site amenities, landscape
character and materials
Task 5: Public Engagement
• Engagement Window 1: Project Launch – Glendale Community and Stakeholders
[COMPLETE]
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Mayor
• Engagement Window 2: Alternative Development Input – Glendale Community and
Stakeholders [COMPLETE]
• Engagement Window 3: Alternative Evaluation – Public Engagement [IN PROCESS]
• Engagement Window 4: Preferred Alternative/ Vision Sharing – Public Sharing
Task 6: Final Preferred Alternative
• Site development Phasing
• Final site master plan
• Implementation Strategy and phasing plan for the Master Plan
• Sustainable Sites or Envision analysis for the park to identify sustainability potential for
the city
Task 7: Final Master Plan Report
Final Report Table of Contents:
• Site Analysis and Existing Conditions Report
• Needs Assessment
• Project mission, goals, and principles
• Selected Performance metrics
• Community Engagement Summary
• Recommendations/Options for Programming and O&M
• Final Illustrative Master Plan, associated graphics, and narrative
• Implementation Recommendations
PROJECT BUDGET
The project site is currently undergoing demolition of the old, failed amenities and features with a funding
source that has been allocated for $855,000. Parallel to the demolition, the Vision Plan is being developed
by the project team with $225,000 in funding, awarded through a FY21 budget amendment. $3.2 million
dollars in impact fees was awarded by City Council in FY 22. Impact fees will be used to develop
construction documents and construct Phase I improvements, to be complete by spring 2024. Public
Lands is working to identify additional funding opportunities.
TIMELINE
The project team kicked off this project in Fall of 2021 and will continue work on the redevelopment of
the park through the first phase of implementation in Spring 2024. The site was funded by the Federal
Land and Water Conservation Fund which has implications for the site. This funding source requires that
that active recreation be publicly accessible on site within three years of removal of existing amenities.
The clock for this three-year time period started in April of 2021 so the first phase of the project must be
complete by April 2024. This requires an aggressive schedule for planning, design, and construction.
Approval of Phase I is needed by April 2022 for technical design to start and construction to be completed
to meet this requirement.
ERIN MENDENHALL
Mayor
With this timeline expectation, at least implementation of one recreational amenity must be complete and
open to the public by April 2024. With that in mind, the following schedule was developed.
Implementation of future phases will continue as funding becomes available.
a. Fall 2021: Project launch
b. Winter 2021: Conceptual design alternatives development
c. Early Winter 2022: Alternative evaluation and engagement
d. Spring 2022: Concept plan sharing
e. April 2022: Determine Phase I improvements
f. Summer /Fall: Continue with Master Plan Adoption process
g. Spring 2022-2023: Construction Documents for Phase I Improvements
h. 2023: Construction
i. Spring 2024: Glendale Regional Park Phase I opening
EXISTING PLANS AND POLICIES
• Reimagine Nature, Public Lands Master Plan, plan adoption in progress:
https://www.reimaginenatureslc.com/
• Public Lands Comprehensive Needs Assessment:
https://www.slcdocs.com/parks/SLCPLNeedsAssessment.pdf
• Raging Waters Site Community Visioning Report:
http://www.glendaleutah.org/uploads/1/2/4/5/124570449/raging_waters_community_event_repor
t_2021.pdf
• West Side Master Plan: http://www.slcdocs.com/Planning/MasterPlansMaps/WSLMPA.pdf
• Plan Salt Lake: http://www.slcdocs.com/Planning/Projects/PlanSaltLake/final.pdf
• Salt Lake City 2021 Plan: https://www.slc.gov/2021plan/
• Salt Lake City public survey: https://www.slc.gov/can/cares/waterpark/
• One Glendale Plan: http://www.glendaleutah.org/uploads/1/2/4/5/124570449/ogp_main_final.pdf
• Riparian Corridor Overlay District Ordinance:
http://www.sterlingcodifiers.com/codebook/index.php?book_id=672&chapter_id=49078#s92858
7
TREND/ DEMOGRAPHIC ANALYSIS
The primary market area, the Glendale neighborhood depicted in Figure 1, is where 60 to 80 percent of all
park users are anticipated to be drawn from and includes users who will frequent the Park on a near
weekly basis. The secondary market area, illustrated in Figure 2, is where 20 to 40 percent of all park
users are anticipated to be drawn from and includes users who treat the Park as a destination, going there
for a specific purpose or activities. Salt Lake City at large was identified as the secondary market area and
was analyzed as a buffer zone to encompass a broader reach of the region and capture residents who may
visit the Park less frequently than those in the primary market area. The area north of 2100 South Freeway
within the primary market area lies within the Salt Lake City boundary. As a result, data extracted for the
secondary market area also includes data within the section of the primary market area north of 2100
South Freeway. The primary and secondary markets were compared to Salt Lake County to better
understand the relative demographic differences of the market area in the context of the region.
ERIN MENDENHALL
Mayor
Figure 1: Primary Market Area. Source: ESRI Business Analyst
Figure 2: Secondary Market Area. Source ESRI Business Analyst
Demographics: The Glendale neighborhood (primary Market area) has an average household size of 3.54
persons with larger family households as well as a higher number of family households than the City or
the County averages. The median age is 29 with this area significantly younger than the city at large with
residents 19 and under comprising 36.52% of the population and 19.78% of the population being between
the ages of 0 and 9. The Glendale neighborhood’s high concentration of families has several implications
the future of Glendale Regional Park, including ensuring that park programming, both physical and
special event, is appropriate for children of varying ages.
In addition, the future park should reflect the racial and ethnic diversity of the primary market
community. While members of the community who identify as white make up 48.2% of the population in
the primary market area, the diversity within the primary market area is significantly greater than the
secondary market area. The next highest representation of race is from individuals who identify as being
ERIN MENDENHALL
Mayor
from a race not included in the available survey options, representing 28.45% of the primary market area,
followed by individuals who identify as Pacific Islander at 6.34%. Members of the Latinx community
may identify as being from a multitude of races which may be reflected in the distribution of the survey
results. The Hispanic population makes up 53.44% of the primary market area population and 24.3% of
the second market area population.
Disposable Income: Median household income in this area is $50,508, lower than the City median of
$63,364 and the County median of $80,897, indicating less disposable income for the primary market
area. The Park must serve the primary market through low or no cost activities for both adults and
children. There is a need for the implementation of programming such as free fitness classes or facilities
that can supplement recreational demands of the community for little to no cost. If concessions are
implemented, then they should be priced appropriately.
Implications for programming: The data collected indicates that in terms of income and personal assets,
the primary market area holds the lowest level of wealth out of the three areas studied. Given this wealth
index of the primary market area, it is more likely that the majority of the population in this region have
less access recreational facilities involving higher costs that may be available to those communities and
members of a higher wealth index. For this reason, programs should be priced at a level suitable to this
primary market region. Low cost or free programs should be offered so that those with lower incomes
have access to desired recreational facilities and programs.
Conclusion: With a population of 29,525 in the primary market area and 204,380 in the secondary market
area, Glendale Regional Park services an urban community which requires outdoor space and recreational
opportunities for all residents. The population in the surrounding region is also growing at a rapid rate,
which furthers the need for additional park and recreation opportunities. The primary market household
family size is larger and younger than much of the surrounding area which provides an opportunity for the
facilities in the park to tailor to the types of activities that families and youth desire. Additionally, with the
wealth index of this market area being lower than surrounding areas, recreational programs in the park
should be offered free of charge or at low- or no-cost rates to accommodate the primary market’s
population, and to provide outdoor opportunities for those that may not have access to those opportunities
elsewhere.
The full Glendale Regional Park Demographic Summary is available upon request.
PUBLIC ENGAGEMENT
1. Stakeholders
A primary goal of the Glendale Regional Park is to first and foremost reflect and
celebrate the Glendale community. With this goal in mind, the planning and design team
prioritized neighborhood and stakeholder engagement early in process to ensure the
community voice established the direction of the project.
Stakeholder engagement with the Glendale neighborhood community began in October
2021 with outreach to neighborhood leaders and design charrettes with Glendale Middle
School and Mountain View Elementary students. Public Lands has formed a Community
Advisory Committee comprised of community leaders and stakeholders to play a key role
in the formation of the vision plan.
ERIN MENDENHALL
Mayor
One of the ways the project team is engaging the community is through a Community
Advisory Committee, a group of local stakeholders representing both residents and
organizations that live, work, and play in Glendale. Members of the CAC were ultimately
selected from engagement lists generated by David Evans and Associates, the public
engagement consultant working on the project team, the stakeholder list utilized for the
development of the Re-Imagine Nature Public Lands Master Plan, and finally community
networks built by Public Lands staff. The project team desired a breadth of
representation, and final selection includes members from these groups:
• Adaptive Sports
• Business
• Community
• Environment
• Glendale Community
Council
• Higher Education
• Indigenous/Native
American
• K-12 Education
• Pacific Islander
• Recreation
• Refugee Community
• Resident
• Youth
• Parks, Natural Lands,
Urban Forestry and
Trails Advisory
Board
The selection of these specific groups was made based on preliminary community
research, as well as internal expertise on issues related to equity.
Engagement with the greater public began on March 16 with a public open house/
workshop, digital survey, and partner outreach. The public survey will be open for one
month. Results from the stakeholder and public engagement will inform the final plan
and phasing of project.
2. Public Engagement Calendar
Please see following page.
ERIN MENDENHALL
Mayor
Public Engagement Events Notes Time Period
Community and Neighborhood
Department Survey
3,500 Respondents-- Public Survey
through the department of Community
and Neighborhoods to gauge public
interest in the future of the park
https://www.slc.gov/can/cares/waterpark/
2020
SLC Waterpark Commemoration
Survey Report
3841 Respondents—Public Survey to
gauge interest in demolition and re-
development of the park.
https://www.slc.gov/wp-
content/uploads/2021/01/Water-Park-
Survey-Report-Nov-2020.pdf
2020
Glendale Community Council
Visioning Exercise
11 Participants and 3 Community
Council Members visioning a potential
future for the site
2021
Initiation of Formal Planning
Process by Public Lands department
Public Lands takes over public
engagement and planning for the
Glendale Regional Park Vision Plan and
Design Workshop begins as project
consultant.
Spring/ Summer 2021
External Stakeholder Engagement:
Community Events
Parents and students were asked at three
community events which elements from
past surveys should be included in the
park. Events included: Morning Coffee
with 20 respondents; Glendale ScareFair
with around 50 respondents; Hartland 4
Youth and Family Event with 40
respondents
Fall 2021
External Stakeholder Engagement:
Glendale Middle School and
Mountain View Elementary
Design exercises were led with 88
middle school and 40 fifth grade students
to gather feedback and input on the
future design of the site. The process
included on-site meetings with 88
Glendale Middle School, “Place-It”
activity with University Neighborhood
Partners, and collage creation.
https://multicultural.utah.gov/glendale-
youth-as-placemakers/
Fall 2021
Community Advisory Committee
Meeting 1
A CAC was created to ensure
neighborhood representation in the
vision plan. These stakeholder meetings
ensured engagement with westside
communities. The first meeting oriented
participants to the project and asked for
general impressions on the project.
January 2022
Community Advisory Committee
Engagement Meeting 2
This meeting presented two conceptual
ideas for the park and sought specific
February 2022
ERIN MENDENHALL
Mayor
PLAN FRAMEWORK
The framing document outlines the mission statement, goal statements for both the community and
environmental elements of the project, as well as metrics to evaluate the success of the project.
1. Mission
With characteristics that celebrate and preserve community, culture and diversity,
Glendale Regional Park will be a neighborhood and regional attraction that makes nature
and recreation within an arm’s reach while improving the natural resources for current
and future generations of Westside.
2. Project Goal Statements
The following are community and environmental related goals developed for the Vision
Plan based on the above mission statement and public engagement. Metrics for
measuring success of these goals are included in the draft plan.
i. Community-led / Neighborhood Services:
1. Community-led: Glendale Regional Park is a community-led park which creates
a sense of belonging and ownership, providing social connections, features and
services that interest the Westside community. The Park reflects the
neighborhood bonds formed by Glendale’s culture, history, buildings and public
spaces.
2. Community Services & Programming: Glendale Regional Park is the
neighborhood’s green community center, providing tangible benefits and
feedback on the ideas and amenities for
the future site.
“Plan Your Park” in-person Open
House and engagement event at
Community Learning Center
Project team worked with Glendale
Community Council to host an event
with over 100 attendees to share with the
community the concepts that have been
generated so far and to launch a public
survey.
March 16, 2022
Online Survey Public survey to gather broader feedback
on amenities and concept vision
alternatives.
March 16, 2022- April 16, 2022
FUTURE ENGAGEMENT:
Community Advisory Committee
Engagement Meeting 3
This meeting will share the results of the
broader survey with the Committee and
solicit feedback and impressions on the
data.
April 12, 2022
FUTURE ENGAGEMENT:
Community Advisory Committee
Engagement Meeting 4
Final concept vision sharing and
feedback.
May 2022
FUTURE ENGAGEMENT: Concept
Confirmation/ Master/Vision Plan
Confirm final concept vision and share
with the public.
May 2022
ERIN MENDENHALL
Mayor
services such as access to nature, outdoor recreation, healthy lifestyle options,
and affordable classes, events and entertainment.
3. Community Activation & Park Safety: The Park is a dynamic destination which
is activated by the community, creating a safe and welcoming environment.
Park programming is an organic expression of Westside culture, emerging from
community organizations and engaging local businesses.
4. Regional Attraction: Glendale Regional Park is a community node, a focal point
along the Jordan River Parkway and surrounding regional park system that
provides connectivity to nearby public lands, trails and river recreation. It hosts
regional attractions that offer unique experiences in the city, inviting the larger
community to experience the culture of the Glendale neighborhood.
ii. Environment:
1. Access to nature: Glendale Regional Park is an ecological park that celebrates
the Jordan River Parkway as one of the city’s greatest environmental treasures.
The Park creates spaces for meaningful interactions with nature in the
neighborhood’s backyard, addressing “nature deficit disorder” by providing
opportunities for free recreational activities that are nearby and accessible to all.
2. Environmental quality: With its proximity to the river, the park builds upon
existing natural assets, creating an ecological park of vegetation, increased
urban forest and green infrastructure that mitigates local pollutants and
improves water quality in the Jordan River. The Park is an oasis in an arid urban
environment, absorbing carbon, mitigating Salt Lake City’s challenging air
pollution, and reducing the effects of urban heat.
3. Environmental Justice: The Park will enhance local environmental quality,
simultaneously increasing environmental justice, health, and quality of life for
local residents.
The full framing document is available upon request.
IMPLEMENTATION STEPS
Implementation of the capital improvements in the Vision Plan will likely be phased due to funding
availability. With the current $3.2 allocated for site improvements, the project team is developing the park
vision and determine a fist phase of construction so that the City can meet its obligation to deliver a
public outdoor recreation amenity by April 2024 to satisfy the requirements of the Land and Water
Conservation Fund requirements. Phase I will be consistent with amenities typical of a neighborhood park
and prioritized by the Glendale community.
Phases and prioritization will be determined through by the project team and influenced by robust public
engagement. The full build of the Glendale Water Park has not been determined but will likely require
construction phasing over several years to achieve vision plan build out.
CITY COUNCIL ACTION REQUIRED
The project team is requesting to brief City Council at the work session on April 12, 2022. City Council
Action that will be required will be:
a. Review documentation and briefing provided
ERIN MENDENHALL
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b. Confirm or modify scope of work through adoption of a resolution
c. Approve public engagement metrics
Next Steps:
a. Project team will transmit final Master Plan documentation and will present to Planning
Commission for public hearing and recommendation, and complete administrative
process to receive Mayoral recommendation. Council will receive a recommendation
from Planning Commission related to adoption of the Master Plan, as well as a
memorandum from Planning Staff and a Mayoral recommendation memorandum.
b. Council will conduct adoption process, which will include a public hearing and additional
public outreach
c. Project Team will identify implementation projects and phases and deliver project
priority list to Council with an implementation strategy, which will be approved by
Council.
We would welcome any collaboration on those efforts as a City.
Attachment A: Master Planning progress exhibits
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Attachment A: Master Planning Progress Exhibits
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