The economics of urban park planning: urban park planning through strategic land use can lead to increased value for the community.

Trails, parks and playgrounds are among the five most important community amenities considered when selecting a home, according to 2,000 recent homebuyers surveyed in 2002 by the National Association of Home Builders and National Association of Realtors. Moreover, numerous studies conducted during the past 30 years have shown a direct correlation between a community's proximity to parks and greenways and increased property values, tax revenues and aesthetics to businesses and workers.

So it is not surprising that many communities envision park and recreation facilities as a key to economic vitality. A comprehensive and strategic plan for park and recreation facilities at the state, regional or local level can enhance opportunities for economic development in urban areas by facilitating effective park site selection, program development and financing. Indeed, effective strategic planning is the first step in achieving a community's vision for parks and recreation, economic development and social and environmental benefits.

A Broad Analysis

Typically, when developing a parks master plan, planners focus only on the parks and open space component--examining the geographic distribution of parks across the service area, based on the number of acres, recreation fields or playgrounds for a certain population size. However, because land use drives the location of parks, a more effective approach begins with a comprehensive analysis of citywide land uses--residential, commercial and industrial, as well as parks and open space. A strategic land use plan enables planners to determine the most effective organization of land uses, including parks and open space, throughout the community.

The next step is the preparation of a park, recreation and open space master plan, which enables planners to effectively fit new and expanded park and recreation facilities into the strategic land use plan in order to stimulate development or to meet other community needs. Communities require a network of parks, recreation areas and open space to serve various populations, from the neighborhood level up to a county or regional level.

The master planning process inventories the distribution and services offered at various types of parks at each level. Based on this examination, each existing and proposed park in the master plan can be identified by its current and proposed function and appropriate amenities. Some master planners have even integrated geographic information systems (GIS) into the planning process to help identify appropriate sites and facilities by using layers of local information (e.g., topography, streets, utilities, flood plains, zoning, demographics and driving distances) over a base map.

It is also important to benchmark the community's park resources relative to other cities of its size, both for planning and fundraising purposes. In this process, planners generally look for at least two measures--the number of parks and the number of park acres per person--and then compare these figures with the national average per person for cities of the same relative size. Planners could also "localize" these benchmarks based on the community's unique characteristics and desires; for example, the national benchmark may be two acres of neighborhood park space per 1,000 people, but the city may want that to be per 500 people.

An Investment in Growth

This was the approach undertaken by the city of St. Louis, Mo., which completed a strategic land use plan and citywide park and open space master plan earlier this year. The park planning process was initiated following two recent developments: a very successful restoration of Forest Park, the central park of St. Louis; and the development of a new regional open space plan by the Metropolitan Park and Recreation District (now Great River Greenway), which receives funding from a regional sales tax and disburses it to park districts throughout the Missouri portion of the St. Louis region.

The approach departs from previous practice, according to Gary D. Bess, director of Parks, Recreation and Forestry for the city of St. Louis. Throughout the last several decades, there have been a number of plans developed to restore existing parks and develop new parks in conjunction with various private development efforts. Bess says planning was done to meet the specific needs of these parks and did not consider the impact on a citywide basis.

In 1995, the city completed a comprehensive master plan for the 1,300-acre Forest Park, the largest park in the city's 105-park system and home to a number of the city's cultural institutions and zoo. The plan was public-driven, and resulted in a $90 million restoration--the cost of which was split in a 50/50 public/private partnership with "Forest Park Forever," the not-for-profit supporters of the park. Bess says, "The impact a public-driven plan can have on fundraising and the need to take a look at the city's parks as a system, led the city to embark on the development of a citywide plan that would evaluate all parks and compare them to national benchmarks."

Underlying all of these efforts is a recognized momentum in the repopulation and revitalization of the city. St. Louis is undergoing a boom in housing construction unseen in decades, according to Rollin Stanley, director of a local planning and urban design agency. 'As the city attracts new residents, it is important to provide them with amenities for a healthy and active lifestyle," Stanley says. "It is important to invest in the city's parks and community centers that offer both recreational programs and life skills, which makes the city's neighborhoods an attractive place to live." The city is working to make parks and open space development an important part of its economic growth strategy.

Location, Location, Location 

Studies have shown that the type and location of a park facility affects its impact on economic development. For example, a study of Boulder, Colo., showed that a greenbelt was associated with an increase in property values in the surrounding neighborhood of $5.4 million. Property values were correlated closely with proximity to the greenbelt, decreasing by $4.20 for every foot of distance from the greenbelt, up to 3,200 feet. On the other hand, researchers studying housing developments around Philadelphia's Pennypack Park found that property next to active recreation facilities had slightly lower values; this was attributed to noise and increased pedestrian traffic.

Based on this knowledge, planners would situate passive open-space parks and small playgrounds in residential neighborhoods, while situating active recreation facilities along main hospitality corridors with shopping, restaurant, hotel and other commercial development. It also is important to match the type of facility with the market area. For example, to support a resort, an owner may require a market area of 5 million people within a 250-mile area.

It also is essential for planners to understand trends in facilities and amenities. For example, today's trend in active recreational facilities is to create a "mega-rec center"--a one-stop shop with indoor-outdoor recreation facilities, aquatics and a senior-citizen component all tied into one building complex. In the past, these components were scattered among freestanding pools, recreational and senior center facilities. "File new mega-centers are costly, but they allow a community to provide a full day's worth of activity for all age groups within one place, capturing more memberships and additional revenue.

Assessing Community Needs

Assessing the needs of the community--including residents, commercial and industrial business owners and developers--is essential for development of effective land use and park/recreation/open space plans. Without a clear understanding of community needs and desires, park and recreational facilities may fail to attract the type and scale of development that is desirable to enhance the community's economic vitality. Likewise, the facilities themselves ultimately may fail to attract users. Planners also can use the community's input to identify and capitalize on the uniqueness of the community.

In the case of St. Louis, says Bess, the city's goal was to ensure that its parks were strategically located to meet the city's diverse and changing recreational and development needs. Planners wanted to make sure the parks conformed to national standards in terms of acreage, convenience and improvements. The city also sought input from the public to identify its perceptions of the parks--both good and bad--and the types of improvements residents wanted. Using this information, the city believes it will have a document providing solid direction as to how it can maintain and improve the park system over the long term.

Community input can be solicited through a variety of methods, including focus groups, town meetings, newsletters and the Internet. As a practical matter, the level of public participation will depend on the plan's budget. Ideally; planners will meet with representatives of the community at least twice during development of the plan.

A Tailored Action Plan

The master plan is the basis for developing an action plan that lays out a strategy for implementation. Just as every community is unique, so are the form and content of the action plan. Generally, however, the action plan includes the following elements:

* Community and park system assessments,

* Plan themes, principles and actions, and

* Implementation strategies for funding, responsibility and prioritization.

While components vary from plan to plan, projected costs and options always play an important role. Financing sources and tools that can be used to fund a park are as varied as the communities, but may include grants, sales tax or property tax bond issues, transit funding (for trails), general obligation bonds, community development block grant allocations and tax increment financing.

The action plan for St. Louis was organized around eight overriding themes: quality, safety, stewardship, balance, nature, value, heritage and connectivity. Each theme has a set of guiding principles and specific actions. In this case, recommendations deal with improving the quality of the city's park system, financing options and responsibilities.

Education and Marketing

The land use plan and park/recreation/open space plan are also education and marketing tools. It is essential to educate community leaders, government officials and the general public on the purpose of the plans, the costs and benefits and, in particular, the projected "return on investment" in parks and recreation facilities.

The education process can help build the understanding necessary to move from the plan toward implementation. It is important for the community to understand that these are just the first steps in a long, continuous process. The plan also becomes a community marketing tool when speaking with business owners and developers.

Research and experience show that parks, recreation facilities and open space can enhance the economic vitality of a community; at the same time they provide social and environmental benefits. To ensure that the parks and open space system fulfills the community's vision, they should be part of the big picture--combining strategic land use planning with park/recreation/open space planning.

Andrew Pack, ASLA, and Scott Schanuel, AICP, PMP 

RELATED ARTICLE: Play ball!

Manchester Meadows, a new recreation project undertaken by the city of Rock Hill (S.C.) Department of Parks, Recreation and Tourism, illustrates the effective use of benchmarking and economic projections to take its $12 million plan for a new soccer complex from vision to reality.

The $12 million plan for the 70-acre Manchester Meadows comprises eight soccer fields; a 9,000-square-foot, two-story soccer pavilion with a 300-person meeting facility; administrative offices and concession facilities; a lake; a playground; and shelters and trails.

Manchester Meadows will build on the economic success of Cherry Park, a softball facility that has become a well-known and sought-after venue for regional and national tournaments. Owned and operated by the Rock Hill Department of Parks, Recreation and Tourism, Cherry Park is a 68-acre recreational facility including five 300-foot softball fields with 300-plus spectator seating for each field, five multipurpose fields of various sizes, full-service concessions, a press area and ample parking. Cherry Park's economic impact on the Rock Hill area averages about $5 million annually, which is generated by out-of-town visitors coming to Rock Hill for softball and baseball events, according to Ed Thompson, Parks, Recreation and Tourism director.

Initially, the city planned to implement Manchester Meadows in phases. However, based on positive economic projections, the city decided instead to go forward with the entire plan in order to reap the full benefits of the facility. Once Manchester Meadows is fully operational, Rock Hill anticipates an economic impact of $2.4 to $3.5 million annually, according to Thompson. Manchester Meadows is being funded by a combination of federal and state grants, a local hospitality tax and city of Rock Hill funds.