Parks, Recreation

CHAPTER NINE – PARK, RECREATION,

OPEN SPACE AREAS AND FACILITIES

Park, recreation, and open space areas and facilities play an important role in the everyday life of individuals and help increase the overall quality of life in a community. By addressing parks, recreation, and open space in a comprehensive plan, specific goals for meeting the outdoor and recreational needs of a community are identified. This Chapter complements the Lawrence Parks and Recreation Department’s Parks and Recreation Comprehensive Master Plan, or PRCMP (adopted 2000, next revision due in 2005), which helps plan for future parks and recreational opportunities for the residents of Lawrence and unincorporated Douglas County.

This Comprehensive Plan also encourages the development of a comprehensive network of open spaces that connects neighborhoods together, provides increased recreational opportunities, preserves natural ecological functions, and promotes an improved quality of life for the community. It is also important to note that drainageways or undevelopable land can be used as connections (i.e., greenways) to and from park, recreational, and open space facilities, but such areas may not be credited towards land dedication requirements if they do not meet the criteria for such facilities as set forth in this chapter, the PRCMP, and in the city/county land subdivision regulations.

This Comprehensive Plan recognizes that the City of Lawrence has four cornerstone natural areas in each quadrant of the community. This Plan further recognizes a need to emphasize these existing facilities and the connections to them by way of a greenbelt/greenway system, such as, along the Kaw, the Wakarusa, and the South Lawrence Trafficway. An example of such a greenway is the Wakarusa River floodplain and the Burroughs Creek Area Plan trail area. Specifically, these four showcase facilities include:

§ Clinton Lake property, leased from the US Corps of Engineers (southwest);

§ Haskell and Baker Wetlands (southeast);

§ Riverfront Park and the Kansas River (northeast);

§ Martin Park and undeveloped parklands (northwest).

This Comprehensive Plan further recognizes that opportunities exist in unincorporated Douglas County for parks, recreation, and open spaces. It is important that the County take an active role in preserving unique landscapes, open spaces, and historic sites that present recreational opportunities. It is also important that the County work in partnership with the communities of Baldwin City, Eudora, Lawrence, and Lecompton to help create a regional park, recreation, and open system that ties the communities together and furthers the intent of each community’s desire to provide quality services to its residents and visitors.

STRATEGIES: PARK, RECREATION, OPEN SPACE AREAS AND FACILITIES

The principal strategies for the development and maintenance of park, recreation, and open space areas and facilities are:

• Continue to develop and improve the community’s park, recreation, and open space system, building upon the existing system and integrating recommendations and direction from the PRCMP, this Comprehensive Plan, and relevant area and neighborhood plans.

• Preserve, protect and utilize natural and environmental features as focal points for new development areas and to the extent possible, new parks and recreational facilities should extend and enhance the existing and/or future open space system.

• Coordinate parks, recreation, and open space planning and development between the City of Lawrence and unincorporated Douglas County to provide overlapping and connecting park and recreation opportunities. Additionally, the City and County should more carefully coordinate park and open space acquisition in the Lawrence Urban Growth Area.

• Development of the park, recreation, and open space system for the City of Lawrence should be based on priorities contained within the PRCMP.

• Improve coordinated planning efforts between the Park and Recreation Department/Advisory Board and the Lawrence/Douglas County Metropolitan Planning Office/Commission in recommendations involving the location and features of future park, recreation, and open space sites.

• Develop a communication network between all city and county departments, the partners who aide in parks and recreation, and the community to increase awareness, understanding, and advocacy.

• Create a better understanding and support of operational costs and funding with key city and county leaders during the design of all capital projects to ensure the operational and maintenance dollars are available prior to construction.

• Develop regional parks that create a strong sense of community pride and livability.

• Coordinate with private property owners to provide additional opportunities for open space preservation beyond publicly owned parks, such as, through agricultural use, land trusts, buffers, and easements.

CITY OF LAWRENCE

This Comprehensive Plan recommends that the existing system be maintained and improved in the future, but also recognizes the importance of selecting new park, recreation, and open space areas and facilities. Selected future locations must relate to existing and planned neighborhood, natural features, and the major street system. The ultimate size, number and location of these parks will vary depending upon the type and intensity of development, the presence of existing facilities and the recreational needs identified for the area. The PRCMP shall serve as the guide for identifying specific improvements for any identified future park, recreation, or open space site or facility.

This Comprehensive Plan encourages open space areas be used as greenways, creating a greenbelt network that connects the community together and provides bicycle and pedestrian access along these corridors. It is also recommended that areas of the City and the Urban Growth Area (UGA) of unincorporated County subject to extensive and/or frequent flooding be a part of this open space network. These areas not only serve as key natural areas of the community, but also serve as ideal and reasonable linkages within and beyond the City of Lawrence and unincorporated Douglas County. Some greenways may be simply for the movement of wildlife and the maintenance of habitat without trails or paths. Areas to be used for recreational activities must be acceptable to the Lawrence Parks and Recreation Department.

· Existing Conditions (updated 2005)

The residents of the City of Lawrence enjoy numerous opportunities for active and passive recreation and leisure activities. The Parks and Recreation Department currently maintains over 50 parks, recreational, and open space facilities encompassing over 3,400 acres, over 25 miles of recreational trails, and over 50 miles of both on- and off-street bike routes. The community also enjoys a number of community recreation centers and special use facilities, including the Indoor and Outdoor Aquatic Centers, the Prairie Park Nature Center, Eagle Bend Golf Course, and the YSI Sports Complex. In addition to providing various park, recreation, and open space opportunities, the Lawrence Parks and Recreation Department is also responsible for community beautification efforts including numerous street rights-of-way and street trees, gateways into the community, and other public/civic spaces, such as City Hall.

· Public Involvement

In the development of the City’s PRCMP, an extensive public participation process was undertaken. Included in this process was a survey of 1,200 random households, a survey of 373 randomly-selected fourth through eleventh graders in the community’s 27 public and private schools, follow-up citizen interviews of those not returning surveys, and public meetings. Of the household surveys, 573 were returned (including 145 by phone). All 373 student surveys were returned.

As it pertains to land use, the major findings of the household survey showed the majority would like to see an emphasis on improving existing parks. This includes linking neighborhood parks with walking and biking trails, enhancing the landscape, expanding open spaces, and improving playgrounds. The survey further showed interest in emphasizing improvements to the existing parks, recreation, and open space system over the next ten years, acquiring new land for parks and open spaces, and emphasize the construction of new park and recreation facilities. The student survey showed that over two-thirds of the youngsters have a park within walking distance of their home. One-third of those surveyed visit those parks at least once a week and more than half visit those parks at least once a month. Nearly three-quarters of those surveyed indicated they visit other city parks and facilities in addition to the park closest to their home.

For more detailed information on the public participation process, refer to the PRCMP.

· Demand and Needs Assessment

The residents (current and future) of the community determine the demand for parks and recreational opportunities in the community. As demonstrated through the public involvement process in developing the City’s PRCMP, the current demand is primarily for maintaining and improving the existing parks, recreation, and open space system. However, the acquisition of new land for such purposes is consistent with the strategies and goals of this Comprehensive Plan and the City’s PRCMP. The preservation of the community’s natural, scenic, and open space areas should also play a role in the identification, acquisition, and development of future parks, recreation, and open space areas of the community.

n Park Standards – the City of Lawrence Parks and Recreation Department has identified the following classifications for its parks. These standards are used to quantify program mix, visitor drawing range and assets in each park.

Facility Type	Description
*Neighborhood Playlots/Mini-Parks*	~~Used to address unique recreational needs~~; l Locations occur within neighborhoods that are highly walkable residential situations (smaller single-family lots and/or a mix of housing types), generally serving a one-quarter (¼) mile radius; sizes generally range between 2,500 square feet & one (1) acre.
*Neighborhood* *Parks* *& Playgrounds*	Represent the basic unit of the park system & serves as the recreational & social focus of the neighborhood, focusing on informal active & passive recreational opportunities; location is determined by uninterrupted non-residential road patterns & other physical barriers, generally serving a single neighborhood & a one-half (½) mile radius; a size of five (5) acres is considered minimum while an area between five (5) & ten (10) acres is considered optimum.
*Community Parks*	Serve a broader purpose than a neighborhood park, where the focus is on meeting community based recreational needs & preserving unique landscapes & open spaces; location is determined by the quality & suitability of the site, generally serves two (2) or more neighborhoods & a one (1) to three (3) mile radius; size varies as needed to accommodate desired uses, usually between thirty (30) & fifty (50) acres.
*Regional Parks*	Areas that serve an entire city or region having natural or man-made qualities for outdoor recreation, such as picnicking, boating, fishing, swimming, camping, & trail uses, or with unique qualities or historical significance; play areas may also be included; size varies as needed to accommodate desired uses, generally fifty (50) acres or greater.
*Special Use Facility*	Typically located & developed to serve one (1) or more recreational, historical, cultural, environmental, or educational activities; may be located independently, or within a community park, regional park, or other park area; intended to serve both immediate neighborhoods & the overall community.
*Trails & Pathways*	Locations should follow logical alignments that serve to connect the community in a holistic manner (this may include riparian areas & stream corridors as well as the street network); generally eight to ten feet (8’-10’) wide.
*Open Space & Greenways*	Generally the criteria listed above for community parks are applicable for open space areas; areas can be used by the public but the purpose is to preserve unique areas such as floodplains, wetlands, wildlife habitat, steep slopes & rock outcroppings, native prairie remnants, historic sites, agricultural lands, & other environmentally sensitive areas.

n Level-of-Service – the Parks and Recreation Department, as identified in its PRCMP, has established twelve (12) to fifteen (15) acres of parkland and open space areas per one thousand residents as its acceptable benchmark standard for level-of-service (LOS). This standard applies to the overall parks, recreation, and open space system.

Facility Type	Description of Need
*Neighborhood Playlots/Mini-Parks*	~~New neighborhood playlots or mini-parks are de-emphasized for future development within the community because of a lack of cost-effectiveness. However, f Future~~ or existing neighborhoods that are highly walkable residential situations (smaller single-family lots and/or a mix of housing types) would be considered as candidates for mini-parks~~. The Parks & Recreation Department has shifted its focus to enhancing existing mini-parks & focusing on neighborhood parks for new development.~~
*Neighborhood* *Parks* *& Playgrounds*	Maintaining existing & providing new neighborhood parks for the residents of the community is a primary objective of the Parks & Recreation Department; it is the preference of the Parks & Recreation Department that future neighborhood parks be located in a manner that ensures residents of adjacent neighborhoods the ability to enjoy them; coordinated planning efforts with property owners, developers, & other public service agencies are encouraged in planning future neighborhoods.
*Community Parks*	As with neighborhood parks, maintaining existing & providing new community parks is a priority of the Parks & Recreation Department; community parks also serve as neighborhood parks & coordinated planning efforts with property owners, developers, & other public service agencies is encouraged to promote connectivity and easy accessibility to such parks.
*Regional Parks*	Maintaining & enhancing existing regional parks is a primary objective of the Parks & Recreation Department; new regional parks are not anticipated but may be acquired when the opportunity presents itself; regional parks may also serve as neighborhood parks & coordinated planning efforts with property owners, developers, & other public service agencies is encouraged to promote connectivity and easy accessibility to such parks.
*Special Use Facility*	Maintaining & enhancing existing special use facilities is a primary objective of the Parks & Recreation Department; new special use facilities will be considered on an as-needed basis, determined by a community input & visioning process.
*Trails & Pathways*	Connectivity with & between parks, recreational facilities, & open space areas is critical & a high priority of the community; riparian areas & stream corridors offer the greatest potential for providing connections throughout the community (by way of greenways &/or greenbelts) and into developing areas; sidewalks, bikeways, & easements are encouraged for infill & redevelopment of the community’s established neighborhoods.
*Open Space & Greenways*	Natural areas are desired, especially through the establishment of greenbelts & greenways, as the community continues to grow outward into the unincorporated areas of Douglas County; an open space network is envisioned to provide ecological & recreational connections throughout Douglas County preserving the community’s floodplains, wetlands, wildlife habitat, steep slopes & rock outcroppings, native prairie remnants, historic sites, agricultural lands, & other environmentally sensitive areas; greenways would in particular connect people to the Wakarusa and Kansas rivers, and the Clinton Reservoir; a major greenbelt around the city would connect the four cornerstone natural areas.

UNINCORPORATED DOUGLAS COUNTY

This Comprehensive Plan recommends emphasis on the continued development, improvement, and maintenance of the county’s existing regional recreation areas. This Comprehensive Plan also recommends the continued improvement and development of active recreational facilities at school sites and other Douglas County and Township locations. Population density in unincorporated Douglas County is planned to be very low and dispersed making these locations important rural community activity centers. The development of school sites and other public facility sites which provide recreation opportunities would maximize the public's investment in these facilities and be most consistent with the rural character intended for unincorporated Douglas County.

Additionally, this Comprehensive Plan recommends increased preservation of natural areas and open spaces, including floodplains, wooded areas, and prime agricultural lands, in unincorporated Douglas County. Preservation of such areas would serve multiple purposes, including maintaining the rural character of unincorporated Douglas County, providing regional recreational opportunities for trails and community connections, encouraging sustainable agricultural practices, increasing stormwater and floodwater management capabilities, improving wildlife habitat quality, and enhancing overall ecological function of the natural environment. It is recommended that the work of the ECO² Commission be considered in identifying areas appropriate to meet both the community’s preservation and recreation needs.

· Public Involvement

Through the initial development of this Comprehensive Plan a number of priority natural areas in Douglas County were identified which should be protected or acquired due to their unique environmental and natural contributions to the County. These areas include:

1. Natural corridors along the Kansas River, the Wakarusa River and a corridor between Douglas County State Lake, Lone Star Lake and Clinton Reservoir.

2. Clusters of undisturbed tallgrass prairies in northwest and southeast Douglas County.

3. Additionally, there are a number of historic sites in unincorporated Douglas County that hold opportunities for preserving open space and becoming part of the overall park, recreation, and open space system.

· Existing Conditions (updated 2005)

Douglas County is responsible for over 250 acres of park land and open spaces and an extensive trail network that includes recreational trails and on- and off-road bike routes. These areas include Lone Star Lake, Boyd Prairie Preserve (Black Jack/Prairie Park), a portion of Broken Arrow Park, and Wells Overlook. These facilities are primarily regional in nature and include one lake and an abundance of natural open spaces.

· Demand and Needs Assessment

The parks and recreation system of unincorporated Douglas County responds to local and regional interests and demand for park, recreation, and open space opportunities are driven by both residents and non-residents of Douglas County. As indicated in the development and recommendations of this Comprehensive Plan, the County’s focus on parks, recreation, and open spaces is centered on maintaining and improving existing facilities. Especially important is the enhancement of rural school sites to serve as rural community centers and provide for additional recreation opportunities that mirror the functions of a neighborhood or community park in an urban environment.

n Park Standards – Douglas County has not identified specific standards it utilizes in identifying and developing its parklands and open spaces.

n Level-of-Service – Douglas County has not identified any benchmark standards for its park and open space areas and does not appear to have a deficiency of parkland in its overall system. Where a deficiency might occur, however, is within the County’s inventory of natural open space. By having this established park and open space system in place, it allows the County to focus on maintenance and improvements of existing areas. Additionally, it allows the County to be more proactive in acquiring future parklands and open spaces in a thoughtful and planned manner that furthers the intent of this Comprehensive Plan and meets the needs of future residents.

PARKLAND AND OPEN SPACE ACQUISITION METHODS

Creative and innovative techniques should be considered, and even encouraged, as direct purchase of land becomes more and more difficult. By utilizing responsible land use planning and development policies, the City of Lawrence and Douglas County should acquire land when opportunities for park, recreation, and open space areas arise in public facilities and capital improvement projects. In all instances of land acquisition, potential sites must be consistent with the provisions and recommendations of the PRCMP, this Comprehensive Plan, and any relevant area or neighborhood plans.

There are several acquisition techniques and strategies available to assist the City of Lawrence and Douglas County in their efforts of providing park, recreational, and open space opportunities to its residents. The following have been identified to provide a range of methods available and to promote innovative and creative thinking for purchase and acquisition of parkland and open space areas.

Technique	Description
*Acquisition by Purchase*	Methods include installment purchase; purchase or leaseback; purchase of tax delinquent land; or excess condemnation. These mechanisms offer financing methods for outright purchase; leaseback without tax payment; the opportunity to bank land until needed or for trade; & the opportunity to acquire excess land when property is condemned for parks & open space purposes.
*Acquisition by Regulatory Techniques*	Methods include subdivision regulations; zoning regulations; & floodplain management regulations. Subdivision regulations may require a development to set aside areas within a subdivision for parks & open space or, when sufficient land is not available, may require a payment in lieu of land dedication which can be used for purchase of sites elsewhere. Zoning regulations can be used to reserve land for parks & open space; through clustering & planned unit developments, a developer can be encouraged to set aside a portion of development for park & recreational areas in exchange for increased density. Floodplain management regulations restrict development of land located in floodplains &/or along intermittent stream corridors subject to flooding to reduce flood damage to people & property & encourages the retention of natural open space for stormwater & floodwater management.
*Special Use Acquisition Techniques*	Methods include scenic easements; historic easements; conservation easements; & licenses. Acquisition of scenic easements permits the community to acquire the landowner’s ability to construct buildings or billboards on a portion of the property. Historic easements can be acquired which restrict the property owners’ ability to make visible alterations to an historic site thus allowing the site to remain in private use while preserving historic benefits to the community. Through the use of conservation easements, the community compensates the property owner for not altering his land, thus preserving it in its natural state. This technique can be used in conjunction with taxing measures to insure that the property is taxed at its current use rather than a market land value based on adjacent property uses. Purchase of a license on behalf of the public can allow the right to fish, hunt or the establishment of riding & hiking trails on private lands.
*Taxing Techniques*	Methods include assessment of land designated for open space according to existing use rather than market value to encourage maintenance as open space & tax deferral to encourage preservation of open space. This method would need to be researched to determine provisions which minimize misuse & compatibility with state law restrictions.
*Financing*	Methods include federal assistance programs; low-interest loans; & revenue sharing funds for planning, acquisition & development of recreational & open space areas. Given the reduction of federal assistance to local government units in recent years, these programs are less likely to be viable alternatives.
*Governmental Indebtedness*	The city may incur indebtedness to finance park & open space acquisition, development, maintenance, & operation. This indebtedness can be repaid by sales tax revenues, general obligation bonds, or revenue bonds.
*Gifts and Trusts*	Voluntary transfer of land for parks & open space is encouraged throughout Lawrence & unincorporated Douglas County. Voluntary acquisition is frequently most effective when directed to sites that are naturally sensitive & contain limitations to urban development. Methods for voluntary protection or acquisition of more naturally sensitive areas in Douglas County include, but are not limited to: donations, conservation easements, & acquisition assistance through the Douglas County Natural Areas Programs.
*Sales Tax and Impact Fees*	Funds from sales tax & impact fees can be earmarked for park land & open space acquisition. The Lawrence Parks & Recreation Department currently has a dedicated portion of the local sales tax (one cent) for this purpose. Impact fees provide another funding source for park, recreation, & open space opportunities. Although not currently in use by the City or County, impact fees are paid when a proposed development increases the demand on existing and for new park, recreation, & open space facilities &/or are paid in lieu of actual land dedication for such purposes where the development proposal does not warrant the dedication of land.
*Grants*	Grants provide a non-repayable funding source to the community for land acquisition of new park land, recreation facilities, or open spaces & for redevelopment & maintenance of existing park lands, recreation facilities, or open spaces. Grants typically require some kind of community match, generally funds or in-kind services. Grants are available from both public & private funding sources, each having their own set of requirements that need to be met prior to receiving funds. In some instances, funds may be available prior to the undertaking of a project. In other instances, funds may be a reimbursement upon a project’s completion. Over the past few years, grant funding has become more difficult to obtain as competition for those funds has increased.

PARK, RECREATION, AND OPEN SPACE TERMINOLOGY

The following represents a list of terms commonly used in describing park, recreation, and open space areas and facilities as found in this chapter and Comprehensive Plan. Please note that not all terms listed may be reflected in this Plan.

Term	Definition
*Bikeway*	a general term for any path, lane or route, designated for bicycle use.
*Bike Lane*	a separate space designated with striping, signage, or pavement markings for exclusive use by bicycles within a street or road; generally four feet (4’) wide; also known as a Class II bikeway.
*Bike Route*	a network of streets to enable direct, safe, & convenient access for bicyclists; bike routes are designated with signs that indicate shared-use for automobiles & bicycles; also known as a Class III bikeway.
*Easement, Access*	allows pedestrian access, including bicycles, through private property to parkland or open spaces from public property or right-of-way; may include pedestrian walkways &/or bikeways; routine maintenance, such as mowing & trash pick-up, is the responsibility of the property owner(s) for which the easement is dedicated; generally fifteen (15’) wide.
*Easement, Maintenance*	allows access for park maintenance vehicles & equipment & pedestrian access, including bicycles, through private property to parkland or open spaces from public property or right-of-way; may include pedestrian walkways &/or bikeways; routine maintenance, such as mowing & trash pick-up, is the responsibility of the property owner(s) for which the easement is dedicated; generally twenty-five feet (25’) wide.
*Pedestrian Walkway or Sidewalk*	a walkway within a public right-of-way or easement intended for pedestrian travel; generally six to twelve feet (6’-12’) wide and includes a minimum of five feet (5’) of landscaping on both sides.
*Greenbelt*	a system or network of greenways & open space areas.
*Greenway*	long, relatively narrow lands which follow roads, creeks, ridges, ravines, & other natural or transportation corridors; greenways serve various functions, including protection of environmentally sensitive areas & wildlife habitat, wildlife viewing, environmental education, trails, connectivity, & other passive recreational amenities.