SunnyvaleRTC

December 13, 2005

SUBJECT: Explore the Feasibility of Installing a Memorial for Sunnyvale Citizens and Employees Who Have Given Their Lives on Behalf of the City or Their Country – Study Issue (05-373)

REPORT IN BRIEF

This report is provided to address Council’s request to study the possible construction of a memorial for Sunnyvale residents and City employees who have made the ultimate sacrifice of giving their life in the line of duty for their City or Country. Please see Attachment A, Study Issue PRD-6, 2005. This report considers various locations, styles and costs of such a memorial and the funding sources, including the potential of using the Parks Dedication Fund, General Fund or private funding.

Six conceptual options for a new memorial are presented for Council’s consideration.

On November 9, 2005, the Parks and Recreation Commission conducted a public hearing on this report and recommended Alternative No. 5, Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/2007 for the design and construction of a memorial as detailed in Option 5, Plaza del Sol “C.” The motion passed 3-2, with Commissioners Lawson and Oliver opposed. Commissioners Lawson and Oliver preferred the Community Center site which is more contemplative, involves lower cost and has room for future expansion.

On November 29, 2005, the Arts Commission conducted a public hearing on this report and recommended that Council approve the concept of a memorial without endorsing any of the proposed designs and funding at this time. If Council chooses to go forward, the Arts Commission recommends the memorial include artistic elements in its design and that the final designs come before the Arts Commission for review and recommendation. The motion passed 3-0. The Commission was unanimous in noting that the funding of this project should be prioritized along with the pending capital improvement projects currently on hold.

Staff recommends that Council direct staff to prepare Budget Issue forms to construct a granite-clad, wall-type memorial near the Plaza del Sol performing stage as detailed in Attachment J and consider funding the approximate $30,000 project and $1,500 ongoing operating costs within the larger context of all new projects, budget issues and needs contained in the City Manager’s FY 2006/07 proposed budget in June 2006.

BACKGROUND

During the City Council meeting on August 10, 2004, then Mayor Howe requested that staff explore the feasibility of installing a memorial at either Washington Park or the new Plaza Del Sol to commemorate the lives of Sunnyvale residents and City employees killed in the line of duty. In response to the Mayor’s request, staff presented Report to Council No. 04-320 on September 21, 2004, and identified the option that City Council could consider this topic as a study issue. Council agreed and requested a study issue to consider a number of options for a memorial, to be located in a public place, for Sunnyvale citizens and employees who have given their lives on behalf of the City or their Country. As a result, Proposed Council Study Issue PRD-06 was created for calendar year 2005 and staff was directed to complete it.

EXISTING POLICY

From Sunnyvale Legislative Policy:

Policy 7.3.11: Recognition and Plaque Policy.

From the Open Space Sub-Element:

Goal C: Maintain a system of parks that assures all residents, workers and visitors access to recreational opportunities by providing neighborhood parks, athletic/play fields and special use facilities.

Policy C.4: Provide, develop and maintain Special Use Parks and Facilities.

From the Arts Sub-Element:

Goal E: Create an aesthetically pleasing environment for Sunnyvale through the use of functional and decorative art.

Policy E.2: Provide and encourage the incorporation of art-both functional and decorative, in private and public development

DISCUSSION

The City’s Recognition and Plaque Policy establishes guidelines as to the use and layout of plaques and other appropriate forms of recognition on City Property. Please see Attachment B. While the most common application tends to be related to the recognition of donations, this policy clearly indicates that plaques or other appropriate forms of recognition may be installed in memory of those who have made contributions (including the ultimate sacrifice of life) to the City.

Public input

Those who attended the public input meetings at Washington Park were generally supportive of the concept of a memorial as outlined. They were also aware and concerned about the continuing structural imbalance in the City’s budget and how that relates to the potential funding of a memorial. One resident expressed support specifically for Option 2, Community Center.

Existing Memorials

There are currently three memorials on city property that are accessible to the public and recognize Sunnyvale residents or employees for giving their lives on behalf of their City or Country.

One memorial is dedicated to Public Safety Officers and is on display in the lobby of the Public Safety building. Please see Attachment C. It consists of a display case measuring approximately 24” tall by 48” wide and memorializes those officers killed in the line of duty. Within that display, a separate plaque with photo is dedicated to each of the five officers who have died serving the City of Sunnyvale during the Public Safety Department’s history.

While not a portion of Council’s current study, for several years members of the Department of Public Safety have been planning to dedicate an outdoor memorial to honor the sacrifice of the five officers noted in the Public Safety building lobby memorial at no cost to the City. Conceptual plans are to purchase an engraved granite memorial top stone approximately 24” tall and 36” wide that would be placed outdoors near a bench at the front of the Public Safety building. A partnership has been developed with the Public Safety Officers Association (PSOA) and retired member(s) to pay for the cost and installation of the granite memorial stone. If approved, it is anticipated that installation of this memorial could occur sometime in the coming 12 months. Whether the new DPS memorial should replace or be placed in addition to the existing DPS memorial (in the lobby) has been considered and discussed with PSOA representatives. Staff supports PSOA’s desire to place the new DPS memorial in addition to the existing DPS memorial which has been greatly appreciated for many years by family and co-workers of the officers that have given their lives for the community.

Special Note:

The referenced discussion with the PSOA representatives occurred upon the release of the Draft Report to Council. Therefore, this element of the topic was not discussed by the Parks & Recreation Commission as they reviewed the Draft on November 9, 2005. However, this information was shared with the Arts Commission during staff’s presentation of this topic on November 29, 2005.

A memorial for Veterans is located at Washington Park. Please see Attachment D. It is an artillery cannon with an accompanying plaque approximately 24” tall by 36” wide that states, “In Memory of Those Who Made the Supreme Sacrifice.” The plaque lists the names of 34 Sunnyvale residents who died while serving their country in the armed forces. It was donated in 1947 by the former local newspaper ‘Sunnyvale Standard’ to Sunnyvale American Legion Post No. 344. The plaque doesn’t list the war or which branch of the armed forces each person served in. It may be presumed that it references those who served in World War II due to the date of dedication although staff has not been able to locate anyone from the American Legion or the ‘Sunnyvale Standard’ that has information on this memorial.

The Community Center is the location of a third memorial. It consists of a plaque approximately 20” tall and 30” wide. Please see Attachment E. It is situated on a concrete pedestal at the Eastern edge of the upper pond. It reads “IN MEMORIAM TO THE PERPETUAL HONOR OF THE SONS AND DAUGHTERS OF THE CITY OF SUNNYVALE WHO GAVE THEIR LIVES IN THE SERVICE OF THEIR COUNTRY.” Above the inscription are the crests of the five branches of the armed forces.

Criteria for Proposed City-wide Memorial

Location/Amenities: The appropriate location should be on City property that has been developed as a public space, has a community-wide emphasis, high visibility and is frequently visited by members of the community. It should have an established identity that reflects the qualities of community and public service and ample space so that community events could be held nearby. On-site or nearby amenities should include parking, restrooms, drinking water and seating.

Style/Design Concepts: The most important design consideration should be the content or function of the memorial. All options should include a listing of each individual by name to emphasize their personal contribution. Important elements for how this information is physically presented include accessibility, readability, durability, aesthetic value and ease of maintenance.

Cost: Emphasis should be to create a memorial that has a positive cost/benefit ratio initially and that will be appreciated by the community, durable and require reasonable operating costs to maintain. The funding source should be one that minimally impacts the City’s General or Capital Funds.

Options for Proposed Memorial

Following are six options for a new memorial in Sunnyvale that meet the criteria, to varying degrees, as set forth above. All options would recognize individuals in alphabetical order by last name, first name and middle initial and the date they died. Persons would be listed in six separate categories according to type of service. The six categories are Army, Navy, Air Force, Marines, Coast Guard and City Employees.

Five of the six options would have six plaques, one for each of the six categories, that are approximately the same dimensions (approximately 20” wide by 30” tall) with the size of the lettering being between ½ and ¾” tall and readable from 10’ away by someone with average eyesight. The exception to this would be Option 5, Plaza del Sol “C” that has only a single plaque with the names categorized within it. Each plaque is removable so that additional names could be added as needed in the future

Because Sunnyvale was incorporated in 1912, the various lists would be inclusive of all those people that have sacrificed their lives in service of City or Country from that time to the present. Staff is in the process of researching the names of those individuals that have made the supreme sacrifice. Should Council direct that a memorial be constructed, specific lists would be obtained while final design documents are being completed.

It should also be noted that although each design concept shown is associated with a specific site, it would be possible to locate any of the concepts at any of the sites to a varying degree of efficacy. That is, a curved granite-faced wall could be placed at any of the sites as could simple bronze plaques. In addition, staff notes three separate options that could be sited at Plaza del Sol and these have been designated as Options 3, 4 and 5.

Option 1, Civic Center

Estimated cost is $50,000 with ongoing operating costs of approximately $2,000 per year. This option would consist of a granite clad semi-circular wall that is 6’ in height with six bronze plaques that are inset. Please see Attachment F. The wall would curve around the existing three flagpoles and concrete pad that are located in the lawn area on the north side of City Hall, adjacent to West Olive Avenue. A concrete pathway with flower beds on either side would be added to connect the flagpole area to the nearby sidewalk. One advantage of this option is the location at the Civic Center, which is generally recognized as the center of the community, especially with regard to public service and government. It also incorporates value engineering by taking advantage of an existing structure, namely the three flagpoles in front of City Hall. There are flags for the City, State, and Country, and this area has been utilized in the past by the community for various gatherings. There is space for events of 100-300 people, nearby parking and multiple restrooms and drinking water in the adjacent City Hall and Library buildings. It is highly visible from the street and currently receives a large number of passersby due to its proximity to the Library, City Hall, Public Safety and the Santa Clara County Courthouse.

Option 2, Community Center

Estimated cost is $15,000 with ongoing operating costs of approximately $500 per year. This option would consist of six bronze plaques with the approximate size of each being 24” high x 30” wide. Please See Attachment G. Each plaque would be affixed to a concrete pedestal that is slightly larger than the plaque and stands 24” tall with an angled top surface to promote easy viewing. The pedestals would be located in the water on the eastern edge of the upper pond. Three would be placed on either side of the existing memorial plaque, spaced equidistantly between it and the edge of the pond. The main advantage of this option is the excellent cost/benefit ratio as the cost would be minimal to install and maintain while the site attractiveness would be high. This is accomplished by taking advantage of the existing memorial, upper and lower ponds and surrounding landscape. Integration with the existing features would be seamless as it would appear that the seven total plaques were installed at the same time and designed to be together. Site amenities include ample seating, accessibility, parking and space to hold events. Restrooms and drinking fountains are available in the adjacent Community Center building and additional drinking fountains are located outside of the buildings. The Community Center campus is a highly visible site that is frequented daily by a large number of people and already hosts sizable events including the Hands on the Arts Festival.

Option 3, Plaza del Sol “A”

Estimated cost is $150,000 with ongoing operating costs of approximately $3,500 per year. This option would consist of a granite clad wall 42” in height, have a curved layout and the name lists would be laser-cut granite panels mounted on the top of the wall at an angle for easy viewing. Please see Attachment H. It would be set into the edge of the existing portion of lawn adjacent to the walkway on the north side of the underground parking entrance. Placed close to the walkway, it would not be affected by the Phase II work slated for the site. However, it would require protection during Phase II construction and some redesign of the groundcovers/shrubs currently planned for this area in Phase II. Structurally and aesthetically it would be similar to the famous Vietnam Memorial in Washington D.C. This association would be a positive one as it would closely tie a community memorial with a well-recognized national memorial. Site amenities include ample seating, accessibility, parking and ample space for gatherings. There are currently no restrooms on site, but they are to be included in Phase II of the Plaza project. The Plaza is a highly visible site and has the potential to become an important community gathering place as evidenced by substantial use during recent events, festivals and arts fairs.

Option 4, Plaza del Sol “B”

Estimated cost is $300,000 with ongoing operating costs of approximately $4,000 per year. This option would be a granite clad hexagon 6.5’ high with six inset laser cut panels. Please see Attachment I. A fountain would course water, emanating from the top of the structure, down the sides in six small runnels and disappear into an unobtrusive grate at the bottom. It would be located in a paved area on the north side of the Plaza. Accessibility would be via an existing ramp adjacent to the labyrinth area. The design is an unusual integration of water and stone that would be aesthetically pleasing with the durability of the stone and the continual water flow symbolically representing the eternality of the sacrifice made by those memorialized. Construction details, electrical and water service would need to be designed should Council select this Option. Site amenities are the same as for Plaza Option “A” above. This area will not be affected by Phase II of the Plaza project.

Option 5, Plaza del Sol “C”

Estimated cost is $30,000 with ongoing operating costs of approximately $1,500 per year. This option would be a granite clad wall that is 4’ high with lettering along the top and a single bronze plaque that is inset. Please see Attachment J. It would be located adjacent to the performing stage area on its west side. The wall would run from the top step of the stage down to the main plaza deck. Bronze, raised lettering along the top of the wall-face would say something to the effect of “Sunnyvale Memorial Performing Stage”. The design would be simple and combine elements of traditional “bronze plaque” memorials with those of newer “granite wall” types. Site amenities are the same as for Plaza Option “A and B” above. This area will not be affected by Phase II of the Plaza project.

Option 6, Washington Park

Estimated cost is $200,000 with ongoing operating costs of approximately $3,500 per year. This option would consist of six granite clad square pedestals, approximately 42” tall with a beveled top, located at regular intervals, with inset laser-cut granite memorials. Please see Attachment K. A prefabricated flamed granite awareness strip would be set into the existing walkway at each of the six memorials to alert visitors. They would have the name of the adjacent list and possibly an additional quote, saying, poem or other text inscribed into it. Landscaping would be enhanced in those areas around the six pedestals. They would be located along an existing pathway on the north side of the park, near the multi-purpose building and Washington Avenue. The site has off-street parking, restrooms and ample space both indoors and outdoors to hold events. Some positive associations with Washington Park are that it used to be an Army facility during World War II and afterwards it became the first park in Sunnyvale. Community events including the annual 4^th of July picnic are held there and a memorial is already on site. The presence of the existing memorial may enhance the new memorial or cause some confusion and detract from it depending upon the perspective. Should Council direct that this memorial be constructed, a recommendation regarding current canon and plaque would be made while final design documents are being completed. Such a recommendation would include the perspectives of the Sunnyvale American Legion Post No. 344.

FISCAL IMPACT

Currently the City has identified some $444 million in capital projects that are designated “Unfunded” due to lack of resources to accomplish planned projects. Further, the City’s budget includes an approximate $1.8 million ($1.1 million in the General Fund and $650,000 in the Community Recreation Fund) structural imbalance that must be addressed in FY 2006/07 (increase revenue and/or decrease costs). Therefore, this potential memorial project could be considered along with other positive community enhancements within the larger context of the FY 2006/07 budget. A capital project could be developed for consideration in the context of the City Manager’s proposed budget for FY 2006/07. All new projects proposed for FY 2006/07 will be included in the City Manager’s recommended budget in June 2006. Since the City has faced the fiscal crisis, very few projects that do not pertain to health and/or safety have been recommended.

As noted above, available projects funding has been programmed and many General Fund projects are waiting in the wings. This is also the case with the Park Dedication Fund where projects have previously been identified in the twenty-year plan. Additional options are unspecified grants or partnering with a community non-profit group to raise funds and take the lead for installing a memorial. Although no specific group has come forward with this intent, some groups that may be interested include the American Legion, Veterans of Foreign Wars or the Boy Scouts. A similar partnership is the Historical Society and the City of Sunnyvale working cooperatively on the new museum project slated for the Orchard Heritage Park at the Community Center.

There is $8,775 left out of the original $12,000 that Council allocated to capital project 825040 (Feasibility of Installing a Memorial) for a consultant to develop concepts for a memorial. If Council decides to install a memorial then these funds will be needed to retain the consultant to produce construction documents. In addition they would be used to hire a research professional to find the names of the people to put on the plaques. Any funds left after these uses could be put towards the installation of the memorial.

Cost estimates for design and construction were provided by the architectural consultant. Cost estimates for ongoing maintenance were provided by Parks Division staff and include regular maintenance, vandalism abatement and the updating of the names on the plaques as needed.

Option 1, Civic Center The estimated cost for design and construction is $50,000. Annual maintenance costs would be approximately $2,000 and include upkeep for the wall and accompanying pathway and landscaping. Council would designate funding source.

Option 2, Community Center The estimated cost for design and construction is $15,000. Annual maintenance costs would be very minimal, approximately $500, and consist primarily of cleaning/polishing the plaques and abating any vandalism. Council would designate funding source.

Option 3, Plaza del Sol “A” The estimated cost for design and construction is $150,000. Annual maintenance costs would be approximately $3,500 and include upkeep for the wall and accompanying pathway and landscaping. Council would designate funding source.

Option 4, Plaza del Sol “B” The estimated cost for design and construction is $300,000. Annual maintenance costs would be approximately $4,000 and include upkeep for the structure, fountain, pathway and landscaping. Council would designate funding source.

Option 5, Plaza del Sol “C” The estimated cost for design and construction is $30,000. Annual maintenance costs would be approximately $1,500 and include upkeep for the wall, lettering and plaque. Council would designate funding source.

Option 6, Washington Park The estimated cost for design and construction is $200,000. Annual maintenance costs would be approximately $3,500 and include upkeep for the pedestals, pathway and landscaping.

Conclusion

City Council has expressed a desire, as indicated in 2005 Study Issue PRD-06, to have a new memorial dedicated to those residents and employees who have given their lives on behalf of their City or Country.
The Council and community have expressed an interest in the past for memorials dedicated to those residents and employees who have given their lives on behalf of their City or Country. This is evidenced by the three different types of memorials that exist on City property with public access.
No existing or planned memorial lists by name all those residents and employees who have given their lives on behalf of City or Country.
The City is still dealing with a budget crisis and very few capital projects have been approved in the last few years that did not address health and/or safety issues.
While Council could direct the construction of a memorial at any point, the best time to consider the fiscal aspects of a new project is during their review of City Manager’s proposed budget for the following year.

PUBLIC CONTACT

Public contact was made through posting of the Parks and Recreation Commission, Arts Commission and City Council agendas on the City’s official notice bulletin board, posting of the agenda and report on the City’s web page, publication of the Council’s agenda in the San Jose Mercury News and availability of the report in the City Clerk’s Office, Library, Parks and Recreation Administration, Community Center and Senior Center.

Public input meetings were held at the Washington Park multi-purpose building on August 11 and 13, 2005. Please see Attachment L, Neighborhood Meeting Flyer.

On September 2, 2005, an informational presentation was made to the Heritage District Neighborhood Association at their regularly scheduled meeting. No specific input was provided by members of the association at that time.

On November 9, 2005, the Parks and Recreation Commission conducted a public hearing on this report.

On November 29, 2005, the Arts Commission conducted a public hearing on this report.

Notice of City Council, Parks and Recreation Commission, and Arts Commission meetings regarding this report was distributed to the “Friends of Parks and Recreation” mailing list (a list of organizations and individuals who have expressed an interest in parks and recreation issues).

ALTERNATIVES

1. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 1, Civic Center.

2. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 2, Community Center.

3. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 3, Plaza del Sol “A”.

4. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 4, Plaza del Sol “B”.

5. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 5, Plaza del Sol “C”.

6. Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 6, Washington Park.

7. Provide other direction to staff as Council deems appropriate.

8. Take no further action.

RECOMMENDATION

Special Note:

Subsequent to this report’s review by the Parks and Recreation Commission on November 9, 2005, representatives of the Sunnyvale Public Safety Officers Association (PSOA) approached staff to request that the existing memorial located at DPS Headquarters remain in place regardless of any additional memorials that may be approved and constructed in the future. This information was shared with the Arts Commission during staff’s presentation of this topic on November 29, 2005. Staff supports retaining the existing 24” x 48” memorial in the DPS lobby whether or not other similar memorials are installed in Sunnyvale.

Staff recommends Alternative No. 5: Direct staff to prepare Budget Issue forms to be considered along with all other projects and programs in the City Manager’s proposed budget for FY 2006/07 for the design and construction of a memorial as detailed in Option 5, Plaza del Sol “C”.

This Alternative best meets the following criteria:

Location: The Plaza del Sol is on City property that has already been developed as a public space. It has a community-wide emphasis by nature of being in the heart of the downtown. The visibility and number of visitors will significantly increase as the mall and surrounding area are redeveloped. There is ample parking as it sits atop a multi-level parking structure. Amenities include a public restroom and drinking fountain at the nearby multi-modal transit station and Phase II of the Plaza will include the addition of both. There is both ample permanent seating and room for temporary seating. The Plaza in general and specifically the stage area is similar to a traditional town square and bandstand. They would serve as a focal point for the community and an ideal place to stage a variety of formal and informal events.
Style: The aesthetic value of the setting is excellent with attractive hardscapes in front, a beautiful lawn area for a backdrop and perimeter landscaping as a frame. By associating the memorial with the stage it can be “connected” to an existing structure thereby increasing the value and visibility of both features. The design of the memorial structure uses a popular “wall” style that is clad in granite and meant to represent the strength and timelessness of the sacrifice made by those named. The use of bronze for the plaque and lettering will give the memorial a traditional appearance and compliment the granite veneer.
Cost: At an estimated construction cost of $30,000, it is the best value afforded out of all of the options when considering the cost to benefit ratio. Although Option 2, Community Center is less expensive, it simply consists of six plaques that are to be affixed to plain concrete pedestals and integrated with an existing memorial that is small and generic. It would be a less visible memorial when compared to the others. Given that, Option 5, Plaza del Sol “C” is the least expensive out of the remaining five options, all of which call for a new structure to be built that is solely for the purpose of a memorial and highly visible. Operating costs of $1,500 per year are adequate for a structure of that size and type.

Reviewed by:
David A. Lewis, Director
Parks and Recreation Department
Prepared by: Scott Morton, Parks Supervisor

Reviewed by:
Don Johnson, Director
Public Safety Department

Reviewed by:
Mary J. Bradley, Director
Finance Department

Approved by:
Amy Chan
City Manager

Attachments
A. Proposed Council Study Issue PRD-06, 2005
B. Recognition and Plaque Policy
C. Existing Public Safety Memorial
D. Existing Washington Park Memorial
E. Existing Community Center Memorial
F. Option 1, Civic Center and Site Plan
G. Option 2, Community Center and Site Plan
H. Option 3, Plaza del Sol “A” and Site Plan
I. Option 4, Plaza del Sol “B” and Site Plan
J. Option 5, Plaza del Sol “C” and Site Plan
K. Option 6, Washington Park and Site Plan
L. Neighborhood Meeting Flyer