Parks & Recreation August 2022 by Creative By Design

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contentsaugust 2022

PHOTO COURTESY OF CITY OF GREENVILLE, SOUTH CAROLINA

volume 57 | number 8 | parksandrecreation.org

Unity Park in Greenville, South Carolina, pays homage to the legacies of the two historic neighborhoods surrounding it.

FEATURES

32 Unity Park Tara Eaker

A park in Greenville, South Carolina, incorporates history to foster community.

Parks & Recreation

38 Homelessness: How Can I Help?

Austin Barrett and Allison Colman

Data provides new perspectives on park and recreation departments’ role in addressing homelessness.

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44 Building Nature Carter L. Marshall III

The Inspire Trail and Nature Kids Discovery Zone brings nature into the play experience.

Born to Move We were born to move. To play. To develop. To reach further. To do more. To think differently and innovate the extraordinary. Create the unexpected. This is our passion and our mission. This is Play That Moves You.

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contents august

columns 8

departments 12

Research Delving Further Into the Economic Impact of Local Parks Kevin Roth

Park Pulse Parks and Recreation Is a Funding Priority

50 Operations Barriers to Trail Implementation Ylda Capriccioso, AICP

10 Editor’s Letter Real Equity Means Learning From Our Past Vitisia Paynich

We Are Parks and Recreation Play in the Time of COVID-19 12 Remembering David Barth: Park and Recreation Thought Leader 14 Member Benefit: Join an NRPA Network 14

Park Essentials

55 Advertiser Index 56 Park Bench Creating a Bikeable, Vibrant Redding Kimberly Bonéy

Perspectives From Small Town to Big City: Serving All Carolyn F. McKnight-Fredd

Advocacy Hosting a Summer Site Visit Dan McCarthy

20 Health and Wellness It Takes a Village Miranda Maloy, CPRP, CPP

22 Equity . perationalizing Equity: Oakland’s Town Camp O J. Nicholas Williams Sr.

24 Conservation Centering Community in Building Equitable and Resilient Parks Juliet Martinez, Tiffany Taulton, Denisa Livingston and Rachelle Crosby

26 Law Review Recreational Use Immunity for Dangerous Sledding Hill James C. Kozlowski, J.D., Ph.D.

Page 24

Cover image: City of Greenville, South Carolina

Parks & Recreation is printed using soy ink on at least 10 percent post-consumer recycled paper and is mailed in a wrap — only when required — that is plant based and certified compostable. If you are interested in helping us go even greener, email us at prmagazine@nrpa.org and ask to opt out of receiving the print magazine. Parks & Recreation is always available to read in an ezine format at ezine.nrpa.org.

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Ensuring our parks benefit everyone is essential to guaranteeing resilient, healthy and equitable communities.

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P E R S P E C T I V E S A M E S S A G E F R O M N R P A’ S L E A D E R S

From Small Town to Big City: Serving All During the 2020 NRPA Annual Conference, keynote speaker Glenn Harris, president of Race Forward and publisher of Colorlines, presented a coffee talk on park equity and racial justice, in which he stated, “When people are in [a] space together, and especially when they are [engaging] in physical activity [with] each other, the gap between them, the distance — whether it’s culture, whether it’s place of origin — it closes rapidly. I think in that way, it’s essential that we create spaces that allow us to see each other in our full humanity.” August is a busy time of year for many park and recreation professionals, though the day-to-day activities may be different from community to community. Whether it is hosting summer camps, managing boat rentals at the local lake, overseeing a campground, lifeguarding at the community pool, or hosting events like fairs and festivals, it’s likely you’re experiencing an increase in activity and visitors. As these people visit your community’s parks and take part in recreation activities hosted by your agency, I encourage you to consider the ways in which the spaces and activities you offer allow us to “see each other in our full humanity.” The articles featured within this issue explore this idea. For example, in the feature article, “Unity Park,” author Tara Eaker writes about the ways in which the design of a new park centers equity by paying homage to nearby historic neighborhoods “where residents describe a painful history of segregation, as the land once served as a buffer between the predominantly white downtown and the Black communities.” Beginning in 2012, city staff worked with residents to determine how the design of a new park on that land could best serve the whole community. Today, community member Mary Duckett says the park is about “embracing one another and learning from each other, and it’s about a community coming together to create a place where everyone is welcome.” As you show up to work each day this summer and beyond, not only are you are hosting activities and ensuring public spaces are available to residents, but also you are bringing people together and cultivating a sense of community. In the words of Harris, “The fundamental idea of space and place matters in our lives. Where we meet and where we convene, where we actually get to interact, is essential to how we understand each other as communities and as a country. That’s why parks and rec is so important.” Lastly, I would like to express my heartfelt sympathy to the many people whose lives have been impacted by the tragic shooting that took place during the Fourth of July parade in Highland Park, Illinois. As park and recreation professionals, we are at the center of community gatherings, and the health and safety of our community members are always our top priority. As you plan and host your summer activities and events, I urge you to consider what innovative approaches we can take to help our communities address the mental and emotional concerns that contribute to and result from these devastating events. I wish you a healthy, happy and safe summer. See you in Phoenix at the 2022 NRPA Annual Conference!

C AROLYN F. MCKNIGHT-FREDD Chair, NRPA Board of Directors 8

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NE W

2377 Belmont Ridge Rd. | Ashburn, VA 20148 2 703.858.0784 | nrpa.org

NRPA’S MISSION: To advance parks, recreation and environmental conservation efforts that enhance the quality of life for all people. EXECUTIVE COMMITTEE Chair of the Board of Directors Carolyn McKnight-Fredd, CPRP Eagle Methods Management Consulting Dallas, Texas

Treasurer Xavier D. Urrutia Alamo Colleges District San Antonio, Texas

Secretary Joshua Medeiros, Ed.D., CPRE City of Bristol Parks and Recreation Bristol, Connecticut

At Large Nonet T. Sykes Atlanta BeltLine, Inc. Atlanta, Georgia

At Large Mike Abbaté, FASLA, LEED AP Abbaté Designs Portland, Oregon

President and CEO Kristine Stratton, Ex Officio National Recreation and Park Association Ashburn, Virginia

BOARD OF DIRECTORS Michael Abbaté, FASLA, LEED AP Abbaté Designs Portland, Oregon

Kathy Abbott Boston Harbor Now Boston, Massachusetts

Jesús Aguirre, CPRE Waterloo Greenway Austin, Texas

Rebecca Armstrong

Joanna Lombard University of Miami School of Architecture; Miller School of Medicine Department of Public Health Sciences Miami, Florida

Mollie Marsh-Heine Earthjustice Boulder, Colorado

Carolyn McKnight-Fredd, CPRP Eagle Methods Management Consulting Dallas, Texas

Joshua Medeiros, Ed.D., CPRE

Nonet T. Sykes Atlanta BeltLine, Inc. Atlanta, Georgia

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Parks & Recreation

EDITOR’S LET TER PRESIDENT AND CEO Kristine Stratton

Real Equity Means Learning From Our Past After nearly 100 years, the Los Angeles County Board of Supervisors righted an egregious wrong when they recently voted 5 to 0 to return ownership of Bruce’s Beach back to the descendants of Charles and Willa Bruce, who purchased the Manhattan Beach (California) property in 1912. For 12 years, the Bruces owned and operated a successful oceanfront resort that served as a popular destination for Black families during an era of racial segregation. The Manhattan Beach City Council abused its power when it seized the Black couple’s property through eminent domain in 1924 — claiming it as public parkland and subsequently demolishing the beach resort. However, the land remained untouched until 1956 when the city finally constructed a park. In June 2022, county officials reversed an action that was racially motivated, transferring land ownership to the couple’s legal heirs, great-grandsons Marcus and Derrick Bruce, after decades of litigation. While Bruce’s Beach received national media attention, there are similar stories of racial inequity yet to be told. Our cover story, “Unity Park,” on page 32, is one that we happily share with you this month. Contributor Tara Eaker takes a closer look at this 60-acre park located along the Reedy River in Greenville, South Carolina, and its historical past plagued by segregation, racial injustice and failed infrastructure. However, not unlike Los Angeles County, City of Greenville is trying to atone for the past with the completion of phase one of this much-needed park, which includes “restoration of the half-mile section of the Reedy River that bisects the park”; creation of “gently-sloping riverbanks” for enhanced water quality; and reduction of erosion and mitigation from potential flooding, according to Eaker. However, the most important aspect of the park’s design is its emphasis on community engagement and play equity for children. Next, NRPA’s Austin Barrett and Allison Colman discuss parks and recreation and homelessness in the feature article, “Homelessness: How Can I Help?” on page 38. What’s more, they provide recent data that, as they put it, “shines a light on the public’s views on parks and recreation’s role in addressing homelessness and which specific strategies they believe agencies should pursue.” Lastly, in the feature article, “Building Nature,” on page 44, author Carter L. Marshall III shows how City of Lafayette, Colorado, developed The Inspire Trail and Nature Kids Discovery Zone to enable “lower-income residents to engage with the natural world in a densely urbanized area.” Stories like Bruce’s Beach and Unity Park serve as a reminder that if we — as the park and recreation profession — want to make a real difference in our work, we must learn from our past and be more intentional in our park and recreation planning, in order to create a more equitable future for our communities and to prevent us from repeating the wrongs of our historical past.

VITISIA “VI” PAYNICH Executive Editor Director, Print and Online Content

Parks & Recreation

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VICE PRESIDENT OF COMMUNICATIONS AND CHIEF MARKETING OFFICER Gina Mullins-Cohen gcohen@nrpa.org EXECUTIVE EDITOR AND DIRECTOR OF PRINT AND ONLINE CONTENT Vitisia Paynich vpaynich@nrpa.org MANAGING EDITOR Lindsay Hogeboom lhogeboom@nrpa.org MANAGER OF ONLINE CONTENT Jennifer Fulcher-Nguyen jnguyen@nrpa.org PUBLICATION DESIGN Kim Mabon/Creative By Design CreativeByDesign.net SENIOR CORPORATE DEVELOPMENT OFFICER WESTERN REGION AND ASIA Michelle Dellner 703.858.4635 mdellner@nrpa.org SENIOR CORPORATE DEVELOPMENT OFFICER EASTERN REGION AND EUROPE Paul Semple 916.880.5225 psemple@nrpa.org DEVELOPMENT COORDINATOR Melissa Hunter 703.858.2199 mhunter@nrpa.org PHOTOGRAPHY Dreamstime.com or NRPA (unless otherwise noted)

MAGAZINE ADVISORY BOARD MEMBERS Anthony-Paul Diaz, Chair Michael Abbaté, FASLA Neelay Bhatt Ryan Eaker Kathleen Gibi Paul Gilbert, CPRP Tim Herd, CPRE Denise Johnson-Caldwell Roslyn Johnson, CPRP Michele Lemons Sarah Lisiecki Sam Mendelsohn Maria Nardi Lisa Paradis, CPRP Paula Sliefert Shonnda Smith, CPRP, AFO Ronnetta Spalding Anne-Marie Spencer Stephen Springs Amelia Storer

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WE ARE PARKS AND RECREATION Play in the Time of COVID-19 By Dr. Taylor D. Bunn

arly in the coronavirus (COVID-19) pandemic, I took my nieces to play on a deserted playground. Schools were closed, the girls were bored, and I hadn’t seen them in almost two months of lockdown. We were outside and at the time we didn’t understand the risk to children. A few days later, the city playground across the street from my house was wrapped in yellow caution tape. Was it a good idea to prevent kids from playing? I didn’t know.

City leaders were tasked with making decisions about access to public facilities, including playgrounds. These leaders were balancing constantly changing scientific information against a wide range of public opinions. This caused a great deal of stress, confusion, fear and mistrust (tinyurl.com/4v9kc2t4). How do you make a decision with potentially profound consequences without precedent, solid data or significant public support? When wrestling with an ethical dilemma, it helps to have a decision-making tool. One such tool is the Framework for Ethical Decision Making from Santa Clara

University’s Markkula Center for Applied Ethics. The framework walks decision-makers through a process of recognizing the ethical issue, gathering the facts, evaluating alternative decisions, making and testing a decision, and finally acting and reflecting on the outcome (tinyurl.com/3cxw8r5r). The playground problem presents a tricky ethical dilemma: To close or not to close? We know that: • Play helps children develop physically, socially, emotionally and cognitively (tinyurl.com/2tkxcf2r). • Vaccines, certain masks and physical distancing are effective contagion mitigation strategies,

though these strategies are not equally accessible to all individuals (tinyurl.com/bdd32v7v). • Children can become infected with and spread COVID-19, though their experiences are generally less severe than higher-risk populations (tinyurl. com/4v9kc2t4).

Five Philosophical Approaches With these facts in mind, the Markkula framework guides decision-makers to consider the dilemma through five philosophical approaches: Utilitarian, Rights, Justice, Common Good and Virtue. The Utilitarian Approach guides decision-makers to do the most good and the least harm. This is an exercise that requires quantitative data. Making decisions strictly by the numbers can reduce emotional interference. Hypothetically, leaders could set quantitative limits to dictate acceptable infection rates for closing and reopening playgrounds. The Rights Approach encourages decision-makers to consider all stakeholders’ rights. Playground stakeholders primarily might be children and their caregivers, but the highly contagious nature of the disease makes everyone a stakeholder at some level. Children have a right to play (tinyurl.

During the COVID-19 pandemic, city leaders were tasked with making decisions about access to public facilities, including playgrounds. 12

Parks & Recreation

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Using a framework is one way to think through many alternatives when making ethically challenging decisions about access to public spaces.

com/uxny86xm), but does this right surpass the rights of others to avoid COVID-19? The Justice Approach also considers rights but asks decisionmakers to consider whether rights are applied equitably. In this case, the same communities most heavily impacted by COVID-19 are the same communities with the least access to public playgrounds (tinyurl.com/68hfzy3u). The Common Good Approach moves away from focusing on specific populations to making the best decision for the whole community. While similar to the Utilitarian Approach, the Common Good Approach is not rigidly quantitative. The Virtue Approach urges decision-makers to make a decision that aligns with their personal morals and virtues. The suitability of each approach will change from dilemma to dilemma.

them open was the best choice for public health and safety. It is possible that the right decision for one dilemma creates additional challenges. Using a framework is one way to think through many

alternatives when making ethically challenging decisions about access to public spaces. Dr. Taylor D. Bunn is Executive Director for Hope 4 All (taylor@hope4all.us).

Evaluation After making a decision, the final steps require reflective evaluation — not just “Did this work?” but “Would someone I respect have made the same decision?” We do not yet know how playground closures and extended isolation have impacted individuals’ physical and mental health. We do know that states that closed public playgrounds experienced a lower increase in COVID-19 infections rates than states that chose not to close or left decisions up to local authorities. We cannot know for sure whether closing playgrounds or leaving

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Remembering David Barth: Park and Recreation Thought Leader By Danielle Doll

n June 15, the field of parks and recreation lost longtime supporter, forward-thinking leader, advocate and mentor, David Barth. Barth was a registered landscape architect, certified planner and certified park and recreation professional who specialized in the planning, design and implementation of the public realm. An expert facilitator and strategic planner, he developed park and recreation system master plans for many communities, as well as led the planning and design of hundreds of parks and trails across the country. Learn more in NRPA’s blog, “Park and Rec Planning in a New Era With David Barth” (tinyurl.com/2p8kmts9). Carlos Perez, a principal at Pe-

David Barth

rez Planning, remembers his friend: “Dave believed in the power of parks and recreation systems to help communities become more resilient and sustainable. He helped communities achieve these benefits through parks planning and design consulting throughout the United States.” Barth was the principal of Barth Associates, a firm specializing in parks and recreation system planning, and was author of the book, Parks and Recreation System Planning: A New Approach for Creating Sustainable, Resilient Communities. He was a co-author of the American Planning Association (APA) publication, From Recreation to Re-Creation, as well as a contributor to APA’s Planning and

PHOTO COURTESY OF DAVID BARTH

W E A R E P A R K S A N D R E C R E AT I O N

Urban Design Standards for parks and recreation needs assessments. He also authored APA’s Planning Advisory Service Memo Alternatives for Determining Parks and Recreation Levels of Service. Barth received his undergraduate degree in landscape architecture from the University of Florida; his master’s degree in organizational leadership from Palm Beach Atlantic University; and his Ph.D. in design, construction and planning at the University of Florida. Learn more about Barth’s life in his obituary published in The Palm Beach Post (tinyurl. com/2j2nfwdh). Danielle Doll is NRPA’s Senior Manager of Strategic Communications (ddoll@ nrpa.org).

Member Benefit: Join an NRPA Network

etworks deliver enhanced opportunities for collaborative discussions and the chance to speak with professionals across the country. NRPA Networks host monthly Zoom meetings, as well as meet in person at the NRPA Annual Conference. The Armed Forces Recreation Network serves NRPA members who work in or are interested in Armed Forces Recreation. This includes military personnel, Defense Department civilian employees, and individuals in agencies that provide recreation services to military personnel. The Aquatics Network is a forum for discussion, sharing knowledge, and posing questions unique to the needs and interests of aquatics 14

Parks & Recreation

professionals working or interested in aquatics facilities and programs. The Aquatics Network presents a unified voice on issues involving the safety, health and quality of aquatics-related programs, facilities and services. The Diversity, Equity and Inclusion (DEI) community is for park and recreation professionals serving their agency as a DEI leader and/or a member of DEI committees, task forces, groups, etc. The Education Network serves NRPA members affiliated with colleges or universities who are engaged in teaching, administration, research or extension services related to parks and recreation.

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The Leadership Development Network serves NRPA members who are or aspire to be park and recreation agency leaders in federal, county, local and special district government and in private and voluntary agencies. The Young Professional Network serves NRPA members who are students and young professionals, as well as those who are interested in engaging in topics or discussions concerning students and young professionals. For more information, visit tinyurl. com/4y27k5x5 or email Hayley Herzing, NRPA’s senior manager of membership, at hherzing@nrpa.org. To join a network, log in to NRPA Connect (connect.nrpa.org) and navigate to “All Communities.”

RESEARCH Delving Further Into the Economic Impact of Local Parks By Kevin Roth

ast month’s research column highlighted our latest edition of NRPA’s The Economic Impact of Local Parks report (nrpa.org/Economic Impact). The study, conducted by Dr. Terry Clower of the Center for Regional Analysis at George Mason University, finds that local park and recreation agencies’ operations and capital spending generated nearly $218 billion in economic activity and supported 1.3 million jobs across the United States in 2019. The study’s findings emphasize how parks and recreation drive significant economic activity in communities across the nation. The report also features economic impact estimates for all 50 states and the District of Columbia. The nation’s four most populated states see substantial economic impacts from their local park and recreation agencies. Specifically, the economic impact and supported employment from park and recreation agencies’ operations and capital spending in 2019 from the four largest states are: • California with $23.6 billion in economic activity and supporting 127,600 jobs • Florida with $15.9 billion in economic activity and supporting 97,501 jobs • New York with $14.1 billion in economic activity and supporting 77,105 jobs • Texas with $12.1 billion in economic activity and supporting 77,149 jobs On the other end of the spectrum, the five states seeing the most modest economic benefit from park and recreation agency spending are: • Alaska with $397.9 million in economic activity and supporting 2,436 jobs • New Hampshire with $314.5 million in economic activity and supporting 2,158 jobs

Parks & Recreation

• Maine with $303.2 million in economic activity and supporting 2,464 jobs • Vermont with $245.8 million in economic activity and supporting 1,519 jobs • Rhode Island with $223.6 million in economic activity and supporting 1,459 jobs All five states share something in common — a relatively small population. But the economic impact of parks and recreation is substantial in each of those states, too. Another way to rank states is by the economic impact after adjusting for population, which provides a different list of the states that benefit most from their local and regional park agencies’ spending. The top five states for economic activity arising from park and recreation agency operations and capital spending on a per capita basis are: • Nevada: $3,586 per capita • District of Columbia: $2,092 per capita • North Dakota: $1,567 per capita • Colorado: $1,209 per capita • Hawaii: $950 per capita Similarly, the top five states in terms of employment supported by park and recreation agency spending are:

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• Nevada: 18.81 jobs supported per 1,000 residents • District of Columbia: 9.26 jobs supported per 1,000 residents • North Dakota: 8.80 jobs supported per 1,000 residents • Colorado: 7.27 jobs supported per 1,000 residents • Wyoming: 6.42 jobs supported per 1,000 residents Several factors beyond population can influence the economic impact of park and recreation agency expenditures. Of course, the most obvious factor is the size of operations and capital spending. The George Mason University work relies on estimates of park and recreation agency expenditures and employment from annual U.S. Census Bureau surveys of local governments. The key takeaway from the state-level analysis is that states large, small and everything in between experience significant economic benefits generated from their local park and recreation agencies. When combined with the ability to deliver healthier and happier communities, the full impact parks and recreation has on economic activity highlights that park and recreation agency offerings are not merely a “nice-tohave,” luxury government service. Instead, the field of parks and recreation transforms our cities, towns and counties into vibrant and prosperous communities for all. Kevin Roth is NRPA’s Vice President of Research, Evaluation and Technology (kroth@nrpa.org).

NRPA PARK PULSE

Parks and Recreation Is a Funding Priority

3 in 5

More than U.S. adults are likely to vote for a political candidate who makes park and recreation funding a key priority.

Millennials are among those most likely to vote for a mayor, county executive or council member who prioritizes park and recreation funding.

Each month, through a poll of 1,000 U.S. residents focused on park and recreation issues, NRPA Park Pulse helps tell the park and recreation story. Questions span from the serious to the more lighthearted. The survey was conducted by Wakefield Research (www.wakefieldresearch.com).

Visit nrpa.org/ParkPulse for more information.

ADVOCACY

Summer is a great time to invite your elected officials and their staff out for site visits, groundbreakings, ribbon cuttings and press conferences.

Hosting a Summer Site Visit By Dan McCarthy

ongress has been hard at work over the past few years passing legislation that has major impacts on local parks and recreation. During summer 2020, they passed the Great American Outdoors Act, securing $900 million in permanent funding for the Land and Water Conservation Fund, which finances local park infrastructure upgrades. During spring 2021, the American Rescue Plan sent $350 billion to state and local governments to help manage fiscal recovery from the coronavirus (COVID-19) pandemic, significant portions of which were spent on park and recreation priorities. Later, during fall 2021, the Infrastructure Investment and Jobs Act provided billions more in new funding eligible for green infrastructure and active transportation projects. The executive branch set forth requirements for how these programs can be implemented, and now, this funding is flowing into communities. It is key for local park and recreation departments to take full advantage of these new opportunities by working with your municipality to apply and receive financing for projects in your community. However, equally (if not more) important, showing your congressional representatives the

Parks & Recreation

immense value these programs will have can engender more support, and thus, funding for local park priorities in the future. Summer is a great time to invite your elected officials and their staff out for site visits, groundbreakings, ribbon cuttings and press conferences. August Recess — a

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time when members of Congress are home in their state or district for much of the month — presents a particularly strong opportunity to influence change. Lawmakers love spending this time with constituents seeing the great work being done in the communities they represent. Trust us — it is a lot more fun and rewarding than their monotonous day-to-day time in Washington, D.C.

Pulling Off a Successful Event Hosting a successful and enriching event requires some planning, but by no means is it an overwhelming or daunting task. To start, identify which aspect of your department’s work you want to show off. Maybe you constructed a new facility, playground or trail, or made im-

provements to existing assets. Or, perhaps, your team kicked off a new line of after-school or summer programming for kids. Bonus points for highlighting an initiative that leverages federal funding in some way! Once you have identified a project or series of projects you want to show off, reach out to your lawmaker’s district office with an initial phone call or email. You will be able to find contact information on their website. It is important to do this early. As you can imagine, their schedules fill up quickly, and it is best to get on their radar at least a month in advance to ensure they can make time for a visit.

After you have locked in a time, date and run of show for a visit, spread the news about this event far and wide. Post on social media and invite local press to join the event. Also, let NRPA know so that we can provide support. In addition to the press, try inviting community leaders and local elected officials to join you as well. A truly successful event brings many voices together and shows how local park and recreation departments truly serve as hubs of community wellness and togetherness. If you are interested in hosting an event but need some help getting started, do not hesitate to reach out to NRPA’s Public Policy and Advocacy team. We can provide all the

If you are interested in hosting an event but need some help getting started, do not hesitate to reach out to NRPA’s Public Policy and Advocacy team. resources you need, and once an event is on the books, we can help amplify it on our social media and can even feature you in an upcoming magazine article or blog post. Let’s hit the ground running this August. We can’t wait to see the great events you put on! Dan McCarthy is NRPA’s Advocacy Manager (dmccarthy@nrpa.org).

Creating Equity-Based System Master Plans NRPA’s online tool can help you create master plans grounded in equity and inclusion. nrpa.org/ParkMasterPlanning

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Parks & Recreation

PHOTOS COURTESY OF MIRANDA MALOY

HEALTH & WELLNESS

By putting an emphasis on equitable, holistic programming, park and recreation agencies can provide complementary health and wellness opportunities for their communities.

It Takes a Village How park and recreation agencies should emphasize mental well-being By Miranda Maloy, CPRP, CPP

ften, when people think of park and recreation agencies, they may think of large-scale events, kids playing outdoors, athletics leagues and families making memories in our programs. While we see our community members laughing and smiling, what we might not be seeing is what’s happening beneath the surface. According to the National Alliance on Mental Illness, one in five adults and one in six adolescents have experienced mental illness, and a staggering 4.9 million Americans have been unable to access much-needed mental healthcare. These people are not just statistics — they are our friends, our families, our coworkers and members of our own programs. Frederick Law Olmstead, who is widely considered one of the founders of the American parks movement, found in 1870 that access to green spaces was “transformative” for populations. He designed parks that he considered equitable to all residents, regardless of socioeconomic background, so that they could cultivate community through

Parks & Recreation

a shared outdoor experience. NRPA also has noted through its three pillars that outdoor time is critical in decreasing stress and depression symptoms, and that mental health states can be greatly impacted by access to green spaces. Knowing this, how can we continue to change with the world around us, adapting to the needs of our community?

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Holistic Programming By putting an emphasis on equitable, holistic programming, park and recreation agencies can provide complementary health and wellness opportunities for their communities. Holistic programming focuses on the mind, body and spirit of the individual in their entirety. This can look unique across the nation, being effectively tailored to each city’s needs. From providing yoga or pilates classes outdoors where participants can connect with nature, to art classes that provide creative expression, holistic care already is at the heart of all that we do. With the determination to provide equitable, holistic care, City of Temple’s (Texas) Wilson Park Recreation Center created new

programming for 2022. Programs like Mindfulness and Meditations sought to aid participants in recognizing and reducing anxiety by learning the importance of breathing and how to reframe negative thoughts. Additional programs in our holistic offerings are the “Positively Pink” and “Blue Brigade” clubs. These provide a safe space for youth to discuss things, such as stress, anxiety and peer pressure, as well as learn real-world skills. We also added two art programs, “Listen to Your Art” and “Art in Your Neighborhood,” which encourage participants to get outside and express themselves through a variety of mediums, such as painting and photography. Equitable access to opportunities that promote mental wellness are truly at the core of park and recreation programming. Now is a perfect time for us to be more mindful and targeted in our initiatives to meet these needs. We can show our community that there is something for everyone at their local

Equitable access to opportunities that promote mental wellness are truly at the core of park and recreation programming.

park and recreation agency. What we do should not strive to solve every problem, but we can show our community that we care and that access to holistic wellness oppor-

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tunities might be closer and more attainable than they think. Miranda Maloy, CPRP, CPP, is Program Coordinator for City of Temple Parks and Recreation (mmaloy@templetx.gov).

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EQUITY

Oakland (California) Parks, Recreation and Youth Development created Lift Zones, community Wi-Fi hubs, to make sure everyone had access to quality, high-speed and safe internet connections.

Operationalizing Equity: Oakland’s Town Camp By J. Nicholas Williams Sr.

hen I returned to my hometown of Oakland, California, to lead the park and recreation department, I quickly revealed my two priorities: to neutralize disparities that plagued certain neighborhoods and communities, and to laser focus the department’s attention on the seemingly most neglected, Oakland youth. Successfully shifting focus and charting new paths was not an easy task, but I brought the entire organization together to help build substance around my vision of equity and access. The process to create new vision, mission and strategic directions for an organization that was struggling to remain valuable in an urban city, complete with all urban city problems, was methodical and inclusive, as we met and engaged with every level of the department. After months of talking with

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staff, asking the tough questions, recognizing the built-in strength of the organization, and painfully uncovering the organizational shortcomings, a new department, Oakland Parks, Recreation and Youth Development (OPRYD), was born: With an emphasis on Oakland’s youth, Oakland Parks, Recreation and Youth Development and its partners will provide best-in-class, relevant and equitable programs and services, while meeting the specific needs of people and communities both at the neighborhood

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level and regionally throughout the City of Oakland. We achieve this mission through intentional engagement and by removing the barriers that prohibit equitable opportunities for all.

Partners We quickly recognized that we are not alone in this work and that collaborations and partnerships would not only add needed resources, but more importantly, increase the value of the programs by bringing in professionals and experts in certain areas of youth development.

Meeting the Specific Needs No two communities are alike, and with that the needs and/or desires of a particular neighborhood varies geographically. However, what was

most important to us is that the offerings and experience of any one particular neighborhood should never be less than that of another.

Intentional Engagement The days of sitting at the front desk of the facility and waiting for the community to come in and engage are long gone. We had to go out into our communities, knock on doors, hold up signs and wave at passersby, host community forums with food and daycare services — whatever it took to let as many people know about our programs and services. And, asking them what we could do to include them proved vital to the ongoing successes of the department.

Removing the Barriers Specifically addressing fees, accessibility, language, transportation, the location of current amenities, the placement of new capital projects, current usage, and, just as important, who is not participating and why, OPRYD began to change operations and shift procedures. If we couldn’t remove some of these disparities, we needed to find a way to lift our communities over and/or around them so they felt welcomed to engage with us. With this new mission and direction, we completely revamped our summer camp and after-school offerings and created our signature programs: Town Camp, Oakland’s summer youth program, and Neighborhood Town Camp, an out-of-school time youth engagement program. Since its inception, Town Camp boasts the following: • Participation has more than doubled with an average of 1,000 to 1,200 participants daily during summer and 800 to 1,000 youth daily afterschool.

Oakland Parks, Recreation and Youth Development provides nutritious, high-quality meals for program participants.

• We have engaged more than 100 partners to increase program offerings and value. • Becoming an attractive investment, we have leveraged more than $2 million in donations. • We have standardized meals and curriculum to address disparities. • We have dedicated time daily for reading and math proficiency reinforcement. • We provide nutritious, highquality meals for all program participants. With the onset of coronavirus (COVID-19) in March 2020, OPRYD believed it realized its full value to our communities, as we saw record numbers of new park users looking to find both physical and mental reprise in our parks and green spaces. Even through chaos and uncertainty, our doors remained open, and we prioritized providing basic needs to our kids and our communities. While some of our children struggled to participate in online learning, we created Lift Zones, community Wi-Fi hubs, to make sure everyone had access to quality, high-speed and safe internet connections. We also gifted 1,000 laptops to students in need,

courtesy of our partnership with Comcast. We provided more than 2 million hot meals, up to 2,500 a day, throughout our community centers thanks to our partnership with World Central Kitchen. And, Stephen and Ayesha Curry’s Eat.Learn.Play. Foundation provided a pair of brand-new Curry sneakers to every child registered in our programs. We tutored students to assist with homework; provided outdoor fitness, dance and Zumba classes to make sure communities had access to physical fitness and wellness; and used our centers as community resource hubs, making sure families had food, diapers, toiletries and other necessities. Reinventing ourselves, focusing our resources and efforts, and reimagining what parks and recreation could/should be, OPRYD remains resilient, trusted, community engaged and equity focused. To learn more about our past five years, take a look at a detailed report of accomplishments and milestones at tinyurl.com/2p94tvvk. J. Nicholas Williams Sr. is former Director of Oakland Parks, Recreation and Youth Development and current Superintendent for Recreation and Community Services for San Francisco City and County (jnwilliams@sfgov.org).

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Parks & Recreation

C O N S E R VAT I O N

The interests and desires of the entire community — especially those that may not have been included in the past — must be centered in our plans, designs, builds and activation of our parks.

Centering Community in Building Equitable and Resilient Parks By Juliet Martinez, Tiffany Taulton, Denisa Livingston and Rachelle Crosby

nsuring our parks benefit everyone is essential to guaranteeing resilient, healthy and equitable communities. To do so, the interests and desires of the entire community — especially those that may not have been included in the past — must be centered in our plans, designs, builds and activation of our parks. Inclusive and transformative community engagement is vital to this process. By doing this, our communities are driving change to ensure they are environmentally resilient, while also welcoming and inclusive to everyone. When community members are empowered to steward change, great things can happen.

Community Outreach and the Hazelwood Greenway Pittsburgh’s Greater Hazelwood was a thriving industrial neighborhood for most of the 20th century. A vibrant mix of European immi24

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grants and African American Pittsburghers lived and worked under clouds of black smoke from nearby steel mills. The city’s last mill, LTV Coke Works in Hazelwood, closed in 1998. The air was suddenly cleaner, but rapid depopulation and the closures of scores of community businesses followed. Now poised for a comeback, the working-class community of 5,000 residents had its neighborhood plan released in 2019, expressing community needs and priorities for

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development. The plan highlighted challenges, including pollution, climate change and high rates of type 2 diabetes and asthma. With a sense of shared purpose, the community acted swiftly to convert its greenway from a liability into an asset. The 183-acre greenway, a hilly forest the city could not afford to manage, was clogged with invasive species and illegal dumping sites. However, the area had the potential to be a source of exercise, cleaner air and cooler summer temperatures. A partnership formed between residents, City of Pittsburgh, philanthropies and nonprofits. The OnePGH Fund contributed grant funding; community development corporation Hazelwood Initiative spearheaded outreach; workforce

development nonprofit Landforce brought land management crews and employment opportunities; urban forestry organization Tree Pittsburgh contributed trees and expertise; and Allegheny GoatScape brought goats to eat invasive plants. This partnership is converting Hazelwood’s tree canopy into a source of public health and climate resilience, as well as mitigating the effects of environmental racism. Volunteers from the neighborhood, Landforce and Tree Pittsburgh have planted 253 native trees in the greenway during the past year, while residents have adopted and planted more than 100 additional trees in their yards. Landforce crews improved trails where neighborhood residents take nature walks, bike rides and snowshoe hikes with support from partners Venture Outdoors and Pittsburgh Parks Conservancy. Visiting the goats each summer is a highlight for families who might not otherwise venture up the steep hills. Not everyone has to be a hiker. Not everyone will volunteer to plant trees. Not everyone has to get excited about goats or native species. However, everyone in the community can find a way to participate and belong.

Creating Equitable Parks in Farmington, New Mexico The key component of City of Farmington’s efforts to create resilient and equitable parks is to center our work around community members who have not always had a voice at the table. During the past year, department staff convened an advisory council composed of underrepresented residents and organizations, such as our teen community; our Diné (Navajo) and tribal communities in Farmington and beyond; those who identify

Ensuring our parks benefit everyone is essential to guaranteeing resilient, healthy and equitable communities.

as LGBTQ+; disability advocates; and our Hispanic and Mexican diasporic communities. The goal of this engagement was to create transparency of city processes and policies with the idea that knowledge of the system would better prepare these advocates to engage it. Initially, the advisory council would be involved in two projects — one built project (All Abilities Park) and one policy project (City of Farmington Parks, Recreation and Cultural Affairs Master Plan) as the vehicle for learning city processes. Our engagement process was designed to perfection — or so we thought. The strategy appeared to be informative and many group members found it interesting. However, after sensing some disconnect and lower attendance, we began to question if the advisors were truly engaged. In conversations with our council, we discovered there were opportunities and interests that weren’t being explored and these interests could actually play a role in improving many aspects of our park network. So, we went back to the drawing board. As we adjusted our approach, our community partner Denisa Livingston of Diné Community Advocacy

Alliance was a part of the design process. We added to the existing strategy by getting folks out to our parks to understand different park typologies and the opportunities to explore their unique interests, such as incorporating native plantings within parks and revitalizing derelict park areas. We prompted our council members to visit parks they had never visited and conduct “site analysis” to discover additional projects to expand beyond the two projects our strategy revolved around. One particular interest we’re excited to explore is the coupling of traditional Diné ecological knowledge with green stormwater infrastructure concepts to mitigate stormwater within our parks and medians. By incorporating community knowledge and vision, our open spaces and parks can leverage those elements to support climate resiliency, while also being welcoming spaces for everyone in our community. Juliet Martinez (they/them) is Managing Editor at Hazelwood Initiative. Tiffany Taulton (she/her) is Director of Outreach and Sustainability at Hazelwood Initiative. Denisa Livingston (she/her) is Community Health Advocate and International Councilor at City of Farmington Parks, Recreation, and Cultural Affairs. Rachelle Crosby (she/her) is Park Planner at City of Farmington Parks, Recreation, and Cultural Affairs.

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Parks & Recreation

L AW R EV I EW

Plaintiff Aaron Storm shattered his vertebrae while sledding down Larson Park Hill in City of Brookings, South Dakota, during a family outing.

Recreational Use Immunity for Dangerous Sledding Hill By James C. Kozlowski, J.D., Ph.D.

ecreational use statutes (RUS) exist in most states. With minor jurisdictional variations, most of these statutes are based upon a model state statute from 1965, which provided that a landowner who opens his land for public recreational use free of charge owes no legal duty to guard, warn or make the premises reasonably safe for such use. The landowner, however, will still be liable for willful/wanton misconduct or gross negligence. Unlike mere carelessness, which typifies ordinary negligence, willful or wanton misconduct or gross negligence is much more egregious misconduct characterized by a conscious indifference and utter disregard for the physical well-being of others. The legislative intent of the 1965 model RUS was to encourage public recreation access to private lands by providing limited immunity for private landowners against recreational injury liability. With some notable exceptions, as illustrated by the case described herein, courts in many jurisdictions also have ap-

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plied recreational use immunity to injuries in public parks.

Frequent Sledding Accidents In the case of Storm v. City of Brookings, 2022 U.S. Dist. LEXIS 33468 (S.D. 2/24/2022), the Defendant City of Brookings, South Dako-

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ta (the City), raised the state recreational use statute as a defense against negligence liability. In this case, Plaintiff Aaron Storm shattered his vertebrae while sledding down Larson Park Hill (the Hill) in the City during a family outing. Storm alleged the City was negligent and grossly negligent because “the City knew sledding on the Hill was dangerous and failed to warn of the danger or inform the public that the Hill was closed to sledding.” In response, the City filed a motion for summary judgment based upon the state recreational use statute which, if granted, would effectively dismiss Storm’s lawsuit. In determining whether to grant the City’s motion for summary

judgment, the federal district court would view the following material facts in a light most favorable to allowing Storm to proceed to trial. The Hill has been a popular sledding site in Brookings since the 1980s, and City of Brookings owns and maintains it. The east side of the Hill is the steepest side and historically the most popular side for sledding, but the public has sledded on all sides of the Hill through the years. At some point before 2013, although the record does not establish when, Sunrise Ridge Road was built near the bottom of the east side of the Hill. The road created a hazard because people sledding down the east side of the Hill would sometimes sled into the street toward oncoming traffic. To prevent injury and traffic accidents, the City placed large hay bales at the bottom of the east side of the Hill to “catch” sledders before they slid onto the street. The City then began to receive reports that people sustained injuries from sledding into these hay bales. The City did not keep records of these injuries or any injuries generally from sledding on the Hill, but knew that the hay bales, in particular, and sledding on the Hill generally caused injuries over the years. During the 2013 and 2014 winter season, the City’s parks and recreation fall and winter activity guide advertised the Hill as a sledding hill except when closed for extreme icing or other dangerous weather conditions. The guide further explained that the hay bales at the bottom of the Hill were installed for public safety. Storm was injured while sledding on the south side of the Hill. While the City knew that people some-

times suffered injuries from sledding on the steeper east side of the Hill, city employees did not testify about or otherwise document any injuries sustained from sledding on the south side of the Hill. The south side of the Hill has a gentler slope, but there is a concrete drainage ditch that runs east to west along its base over which sledders sometimes passed when sledding down the Hill’s south side. The ditch is about three feet wide and was constructed in the late 1980s or early 1990s. The record does not state how deep the ditch is, but the edge of the ditch forms a bump that sledders pass over before dropping down several inches or more into the ditch. The drainage ditch is plainly visible from the south side of the Hill when there is light snow on the ground. In January 2014, Dr. Richard Hieb wrote the City’s director of parks and recreation stating that, in the past week, he and other doctors had treated several injuries from children who had been sledding on the Hill. The letter stated that “these injuries invariably involve running into the large cornstock bales that are placed at the base of the north end of the Hill,” and over years of treating sledding injuries in the city, “it has become obvious to the medical community that the bales in themselves are causing injuries.” Although the letter refers to hay bales on the “north” side of the Hill, the record makes clear that the hay bales were installed on the east side. Dr. Hieb recommended replacing the bales with smaller bales that would provide more cushion or alternatively, “perhaps sledding off the north side of Larson Hill should be forbidden.”

Proposal to Close Sledding Hill At a city council meeting in February 2015, the city manager proposed closing the Hill to sledding, stating: We have long known of the potential injury hazards associated with downhill sledding at Larson Park. While a very popular winter recreational activity for kids, we repeatedly get reports of injuries from children hitting obstacles at the bottom of the hill. Despite our efforts to make the hill as safe as possible, accidents are unavoidable. However, the frequency is beginning to alarm us. Every year we install hay bales at the base of the hill as a barrier to over-sledding. For the most part, while they are effective, some injuries still result. It is unfortunate that such incidents could result in the elimination of an otherwise enjoyable activity for the vast majority of users. We will re-examine this issue over the summer and see if we can find a better alternative for next winter. In the fall of 2015, the city manager officially decided to close the Hill to sledding. The recorded notes of the parks and recreation advisory meeting that fall stated that Larson Hill would be closed to sledding. However, the city manager and the parks and recreation director later testified in their depositions that they had only closed the east side of the Hill because that is where, in their view, all the injuries occurred. The city manager told his staff that only the east side of the Hill was closed, but some city employees believed that the entire Hill had been closed to sledding. This absence of clarity as to whether part or all of the Hill was

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L AW R EV I EW

closed to sledding was accompanied by less-than-ideal communication about the City’s no sledding or restricted sledding policy for the Hill. Following the 2015 decision, the City’s fall and winter recreational brochure deleted references to sledding on the Hill. The parks and recreation department did not publish any notice about the closure on its Facebook page. A community newspaper, the Brookings Register, published the decision and included this quote from the city manager: “We are closing the one side of the hill facing the street. We are not going to close the other side. We’re doing this for liability and safety reasons.” KDLT news also interviewed the city manager and did a news report on the closure, during which the city manager explained that while the east side of the Hill was closed, sledders were welcome to sled on the other sides of the Hill. In the fall of 2015, the City placed a no sledding sign on the east side of the Hill, but citizens routinely took down such signs. As a temporary deterrent, the City installed a fence in the middle of the east slope of the Hill, but sledders packed snow “ramps” up to the fence after heavy snow and sledded over it. The City did not have an official policy for monitoring and maintaining sledding conditions on the Hill. During the 2015 and 2016 winter seasons, city employees would, however, periodically check the east side of the Hill and remove these snow “ramps.” The City removed the fence sometime around the summer of 2016 and planted trees on the east side of the Hill to permanently de28

Parks & Recreation

ter sledders. After the trees were planted, the public continued sledding on the other sides of the Hill. The City placed a no sledding sign on the east side of Hill in the fall of 2016, 2017 and 2018. Although the parks and recreation department had stopped advertising the Hill as a sledding hill in 2015, South Dakota State University continued to publish materials describing the Hill as a sledding hill. The City’s visitor’s bureau also advertised the Hill as a sledding hill from 2017 to 2021. Internet searches suggest that the Hill remains a popular place for sledding.

Drainage Ditch Sledding Injury Plaintiff Storm was injured on November 17, 2018, when he and his wife, Deidre, were visiting her parents in Brookings for Thanksgiving with their two young daughters. Storm had been raised in Sioux Falls and Deidre had been raised in Brookings, but they live in Texas. Storm’s daughters, Ellie and Mia, had never been sledding; and Storm and his daughters, along with Storm’s brother-in-law, Kevin, and Kevin’s daughter, Riley, decided to go sledding and parked on the south side of the Hill in Larson Park. Storm believed that the Hill was open to sledding, and the Hill did not have any “no sledding” signs on its south side. A no sledding sign had been posted on the east side of the Hill that year, but it had been taken down before Storm was injured. The City had not posted any no sledding sign on the south side of the Hill. At the time, there was light snow on the ground, but the outline of the concrete drainage ditch and

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grass nearby were visible. Storm admitted he must have crossed the drainage ditch to walk to the top of the Hill, but he did not remember doing so. Ellie, Mia, Riley and Kevin sledded down the south side of the Hill first, while Storm recorded them on his cellphone. Kevin and Riley sledded down the Hill and crossed the drainage ditch. Kevin stated that he felt a little bump when he went over the ditch but suffered no injuries. Kevin was not aware that the ditch was made of concrete, and Storm’s footage showed Kevin’s footprints in the ditch over the snow. Ellie sledded down the Hill and stopped before reaching the drainage ditch. Mia also sledded down the Hill without injury. Storm then sledded down the Hill with Ellie in his lap. When Storm reached the bottom of the Hill and went over the drainage ditch, he “caught air” and came down on his tailbone at the far side of the ditch. Storm stated that it “felt like a grenade had gone off in his back.” He was in immediate and severe pain and was taken to the emergency room in Brookings before being transported by ambulance to Sioux Falls. Storm had shattered a vertebra, which required multiple surgeries. After Storm was injured, no sledding signs were posted on all sides of the Hill. Storm suffers from pain and disability due to his injury. He used to be very active, but now cannot do many of the physical activities he used to enjoy without experiencing severe pain. He also has difficulty getting more than three or four hours of uninterrupted sleep and cannot do basic household tasks without pain.

South Dakota Recreational Use Statute As cited by the federal district court, the South Dakota recreational use statute, Section 20-9-21, defines the “Liability of political subdivision or employees for invitational or permissive use of land” as follows: [A]ny political subdivision of South Dakota, and its employees, by either directly or indirectly inviting or permitting the person to use the land described for outdoor recreational purposes or by charging a fee for admittance to parks, campgrounds, or other recreational areas, do not thereby: (1) Extend any assurance that the land is safe for any purpose; or (2) Confer upon any person the legal status of an in-

vitee or licensee to whom a duty of care is owed; or (3) Assume responsibility for, or incur liability for, any injury to persons or property caused by an act of omission of the political subdivision of South Dakota, and its employees as to maintenance of the land. The South Dakota recreational use statute, Section 20-9-22, however, would not limit in any way a political subdivision’s recreational purposes liability for “gross negligence or willful or wanton misconduct of the political subdivision of South Dakota, or its employees.”

Gross Negligence, Willful/ Wanton Misconduct Under South Dakota law, the federal district court noted, “the phrases gross

FARMERS MARKETS AND PARKS AND RECREATION:

negligence and willful or wanton misconduct mean the same thing.” Moreover, the court found: “Reckless, willful, or wanton misconduct entails a mental element,” specifically, “the defendant must know or have reason to know of the risk and must in addition proceed without concern for the safety of others.” While willful and wanton misconduct is not identical to intentional conduct, the court further acknowledged willful and wanton misconduct would “partake to some appreciable extent of the nature of a deliberate and intentional wrong.” In addition, the court found: “A defendant’s reckless state of mind may be inferred from conduct and actions so patently dangerous that a reasonable person under

Farmers markets at park and recreation sites are a “win-win” for local government, community partners, farmers, vendors and consumers. Farmers markets provide multiple benefits to communities including: Connecting people and families to healthy, affordable, local food Promoting economic benefits for farmers, ranchers and artisans Providing a space for community engagement, intergenerational activities and cultural reflection Promoting health education and sustainability

A PERFECT PAIR!

Learn more about the benefits of farmers markets at parks at nrpa.org/FarmersMarkets

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the circumstances would know, or should know, that his conduct will in all probability prove disastrous.” The federal district court also recognized, “the requirements for alleging willful or wanton misconduct (i.e., gross negligence) are different than those for alleging negligence”: While a plaintiff alleging negligence must prove merely that some harm is possible, a plaintiff alleging willful or wanton misconduct must prove a substantial probability of serious physical harm. Citing precedent from the Supreme Court of South Dakota, the federal district court cautioned against “drawing the line of willful, wanton or reckless conduct too near to that constituting negligent conduct risks.” Accordingly, in the opinion of the court, it was important to clearly distinguish ordinary negligence from gross negligence to avoid “impossible confusion,” which could result in the “eventual disregard of the legislative intent to give relief from liability for negligence” under the state recreational use statute. The federal district court further noted: “Whether one acts willfully, wantonly, or recklessly is, like negligence, normally a jury question” to be resolved at trial, as opposed to being effectively dismissed on a motion for summary judgment.

Recreational Use Immunity In this particular instance, the federal district court noted, “Storm’s first cause of action is for negligence.” As described above, under South Dakota law, the court acknowledged “cities are immune from liability for negligent conduct concerning public land used for recreational purposes.” SDCL § 20-9-20, 21. As a result, the federal 30

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district court held “the City is entitled to summary judgment on Storm’s negligence claim.” While Storm did not contest summary judgment on his negligence claim, he did argue that “the City was grossly negligent through willful and wanton misconduct in its management of the Hill.” In so doing, Storm claimed “a general dispute of material fact” regarding the existence of gross negligence, which made summary judgment in favor of the City improper. While a South Dakota city cannot be liable for negligence, the federal district court agreed the city could be held liable if “it was grossly negligent, that is, was engaged in willful and wanton misconduct.” SDCL § 20-9-22. On the issue of gross negligence, the court agreed that a factual dispute existed between Storm and the city as to “whether the City had closed the south side of the Hill before Storm’s injury.” Storm claimed the Hill was closed based on the city manager’s memo to the city council, including the city manager’s statements at the parks and recreation advisory board meeting in the fall of 2015, as well as the testimony of several city employees. Accordingly, Storm argued “the entire Hill, including the south side, had been closed to sledding before his injury because the City was aware of injuries associated with sledding down the Hill.” Under these circumstances, Storm alleged “the City was grossly negligent for failing to post signs that the south side of the Hill was closed to sledding or was dangerous.” Moreover, Storm maintained “he would not have gone sledding and been injured” if “signs [had]

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been installed on the south side of the Hill.” In addition, Storm contended “there was sufficient evidence that the City acted with a reckless state of mind because it had received reports of injuries sustained from sledding down the Hill over the years and failed to keep official records of these injuries.” Initially, in responding to the original complaint in Storm’s lawsuit, the City had conceded that “the south side of the Hill had been closed.” However, relying on testimony from the city managers and the director of parks and recreation, as well as “public announcements that only the east side of the Hill had been closed,” the City subsequently claimed, “the south side of the Hill was never closed.” Moreover, in response to “evidence of injuries arising from the steep east side,” the City argued that it had not acted in a reckless state of mind. On the contrary, the City claimed it had expressed “a concern for the safety of others” and had attempted to address a known risk by having “the bales installed on the east side as a safety measure.” The City also argued that it was “not grossly negligent because the drainage ditch did not pose a probable and easily perceptible risk of death or serious physical harm.” In so doing, the City pointed to “the absence of any evidence that the drainage ditch caused any injuries, apart from Storm’s injury, since it was built over [30] years ago.”

Deliberate Intentional Wrong As cited by the federal district court, the Supreme Court of South Dakota had recently indicated the standard for gross negligence under SDCL § 20-9-22 must “partake to some ap-

preciable extent of the nature of a deliberate and intentional wrong.” In the opinion of the federal district court, the following allegations had merely established “Storm’s claims against the City are in the nature of negligence claims”: [T]he City’s laxity in collecting and keeping information on sledding injuries or policing activity at the Hill, the City’s failure to post a warning sign or a no sledding sign, and the City’s alleged failure to take other steps to effectively close or communicate the closure of the south side of the Hill to sledding. As a result, the court held the following evidence in this case “does not support a claim that the City engaged in willful or wanton misconduct or acted with conscious realiza-

tion that serious physical injury was a probable result of that conduct”: The City’s failures to install no sledding or warning signs on the south side of the Hill, or otherwise more effectively close the Hill to sledding, as a matter of law are not of the nature of a deliberate and intentional wrong necessary to satisfy the “gross negligence” standard set by South Dakota law to maintain this action against the City. While “the drainage ditch may have posed an unreasonable risk,” the court similarly determined the City had not engaged in willful or wanton misconduct because the drainage ditch “did not pose an easily perceptible danger of death or substantial physical harm that was probable rather than possible.” In

reaching this conclusion, the court took particular note of “the dearth of evidence that anyone suffered injuries from sledding over that drainage ditch in the last [30] years.”

Conclusion Having found the state recreational use statute precluded any alleged liability for negligence or gross negligence under the circumstances of this case, the federal district court ordered the City’s motion for summary judgment be granted, dismissing Storm’s lawsuit. James C. Kozlowski, J.D., Ph.D., is an Attorney and Professor emeritus in the School of Sport, Recreation and Tourism Management at George Mason University (jkozlows@gmu. edu). Webpage link to an archive of articles (1982 to present): mason.gmu.edu/~jkozlows/lawarts/artlist.htm.

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PHOTOS COURTESY OF CITY OF GREENVILLE

Unity

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Park

A park in Greenville, South Carolina, incorporates history to foster community By Tara Eaker

n May 19, hundreds of people gathered on an unseasonably hot morning to celebrate the opening of Unity Park, the latest jewel on an emerald necklace of signature parks along the Reedy River in Greenville, South Carolina. A century in the making, the 60-acre park pays homage to the legacies of the two historic neighborhoods surrounding it — Southernside and West Greenville — where residents describe a painful history of segregation, as the land once served as a buffer between the predominantly white downtown and the Black communities.

Unity Park in Greenville, South Carolina, pays homage to the legacies of the two historic neighborhoods surrounding it.

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In 1924, after voters approved a $110,000 bond referendum to build a 120-acre park across town, City of Greenville paid $15,000 for 15 acres of marshy meadowland in the Southernside neighborhood to build a park for Black children, who were not allowed to play in the segregated parks elsewhere in the city. Those 15 acres became Mayberry Park, which opened in 1925. A few years later, the city committed additional funds for an athletic field with bleachers and playground equipment. In 1938, Mayberry Park’s accessible space shrank when the city leased half of the land inside the park to a Baltimore businessman at no cost to build Meadowbrook Park for an allwhite minor league team. Not long after, more land was taken for stadium parking and to extend left field. In 1939, Reverend Elias Holloway, the first African American postman in Greenville and an outspoken community leader and civil rights activist, wrote a letter to the Greenville Piedmont newspaper saying in part, “The Negroes of this city have been seeking for some time for an outlet for the surplus energy of their boys and girls, also for people in general. We want the park

because our social and recreational life is at stake. Please give us a park.” Holloway’s request wouldn’t be granted for 83 years.

Bringing Play Equity to Greenville In 2004, at the urging of the late Tom Keith, the landscape architect for Greenville’s Falls Park, Mayor Knox White began the process of creating a park that was originally recommended in 1907 by renowned Boston architect, Harlan Kelsey. In October 2012, after many years of planning, the city hired Jeff Waters, a landscape architect, to oversee the development of what would be the first iteration of Unity Park. At the time, the city owned approximately 25 flood-prone acres in the area, which included its sprawling Public Works campus. “Our initial focus was only on the land that the city already owned, and the challenges were significant,” recalls Waters. “The site was a historical brownfield (land previously used for industrial purposes), was partially located in the floodplain and was bisected by a river that had been straightened in the 1930s to allow for rail lines on both sides.”

BEFORE

Working with a consulting firm, the city hosted a series of community workshops where residents of the nearby neighborhoods could share their ideas and suggestions for the new park. According to Waters, the residents’ vision for the new park always included keeping the existing ballfield, the last remnant of Mayberry Park. Lillian Flemming, Greenville’s longest-serving City Council member, who grew up in Southernside and whose mother, Lila Mae Brock, is memorialized with a bronze sculpture near the park, remembers those first meetings and how important it was to residents that the area’s history be incorporated into the park. “We grew up playing in this area — skating down Nassau Hill, catching fireflies and making our own toys out of whatever was around,” remembers Flemming. “So, we felt very strongly that the emphasis of the new park should be on children and play.” As the public engagement activities continued, the city began acquiring property in the area and in 2014, the relocation of the city’s Public Works operations removed one of the final obstacles standing in the

AFTER

The first phase of the Unity Park project involved restoration of the half-mile section of the Reedy River that bisects the park.

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Unity Park boasts four state-of-the-art playgrounds, which were designed for children of all ages and abilities.

way of the park’s development. Meanwhile, the city wasn’t the only one buying property. “Even before there was an approved park plan, people began buying property along the edge of the park site,” says Mayor White. In 2016, in response to increasing development interest and concerns about gentrification, the city established the Reedy River Redevelopment Area, which included the park site, as well as surrounding areas. Consulting firm MKSK was hired to design a signature park, complemented by an affordable housing strategy and form-based code to guide future development. The city also established a citizen advisory committee to help guide the project. The city again engaged the residents of the surrounding neighborhoods, who worked closely with the project team over the next three years to develop the master plan for the park. Mary Duckett, another longtime resident and president of the Southernside neighborhood association, smiles when she describes students from AJ Whittenberg Elementary and St. Anthony Catholic School drawing what they wanted to see in the new park. “They were so smart and kept building on each other’s ideas for what they wanted to see in the park,” says Duckett. “That’s one of the reasons why my favorite part of the park is the playground area.” During this time, local entrepreneurs purchased and began renovating a row of dilapidated warehouses that sat in the middle of the park site. The 90,000-square-foot development, called The Commons — which fea-

tures a food hall, brewery, shops and offices — opened shortly before park construction began in 2020. The $66 million park budget included planning, design, property acquisition, construction and utility undergrounding. It was funded through hospitality taxes, utility undergrounding funds and stormwater funds. The city also hired a local public relations firm to oversee corporate and private fundraising efforts, which resulted in more than $12 million in private donations. “When a promising vision is put forward, we are fortunate to have local leaders that will unite behind goals that serve the common good,” says White. “There is a certain pride in the fact that a community of this size has been able to accomplish so much in Greenville.”

Phase One The first phase of the project involved restoration of the half-

mile section of the Reedy River that bisects the park. New, gently-sloping riverbanks were created to enhance water quality, reduce erosion and mitigate the potential for flooding — a persistent issue for decades in this area. Additionally, native understory plants and trees were added to help stabilize the banks, filter sediment and pollutants, and provide wildlife habitat. Though some strategic tree removal was necessary, it was offset by the addition of nearly 750 trees planted throughout the park to re-establish the tree canopy and provide habitat, shade and visual interest. According to Waters, to complement this strategic work, tons of dirt were removed from the park site and replaced with soil containing a higher percentage of sand to encourage drainage. Bioswales installed in the large parking area also help capture runoff. “It’s what

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you don’t see that brings the biggest sense of accomplishment,” says Waters. “We created a state-of-theart drainage system to reduce excess runoff, remove pollutants and help mitigate flooding.” Along with environmental protection, connectivity was a critical component of the park’s design. Since the park straddles the Reedy River, there were opportunities to provide connectivity through an extension of the Swamp Rabbit Trail on the north side of the river and the addition of three unique pedestrian bridges. A network of five looped walking trails totaling 2.5 miles also was added. A trail named for Elias Holloway connects the Southernside neighborhood to the park, creating a safe entry for pedestrians and cyclists. The trail features a structure with wind chimes and interpretive panels, providing park visitors the opportunity to learn about the history of the park and the people who envisioned it. The Prisma Health Welcome Cen-

ter, a 10,000-square-foot facility, sits adjacent to The Commons at the very center of Unity Park. The center includes restrooms, gallery space, a first-aid station and flexible event space, which can be reserved for private and community gatherings. Visitors can relax outside on the wraparound porch and enjoy views of the Reedy River and the Swamp Rabbit Trail that run alongside. The park’s most anticipated feature, the Greenville Water Splash Pad, is a 5,000-square-foot deck featuring 39 jet heads and two spray zones — one for small children with smaller spray patterns, and a big kid zone with a spray pattern up to six feet in height. The splash deck is surrounded by a flagstone perimeter and a row of boulders, as well as curved wooden benches where parents can watch the fun. The splash pad is just one of Unity Park’s four state-of-the-art playgrounds, which were designed for children of all ages and abilities. The 30,400-square-foot TD SYNNEX

Playground for children ages 5 to 12 is about the size of three-and-ahalf tennis courts and features several slides, rope climbing structures, boulder scrambles, balance logs and beams, and two lookout towers modeled after the old Southern Railway Train Station. The 13,200-square-foot Donovan Playground features equipment designed for children ages 2 to 5 with musical components, natural wood play elements and four bucket swings — two with harnesses. The surface of the toddler play zone is artificial turf with a poured-in-place rubber ribbon pathway circulating through the area. The artificial turf meets both fall safety ratings and Americans with Disabilities Act accessibility standards. The 9,400-square-foot Ann Watson Trotter Memorial Garden equals the size of two basketball courts and includes swings, several natural play elements, a climbing wall and a storytelling circle. Natural wooden benches are placed strategically throughout. The play area is highlighted by three large artificial turf-covered hills. The mounds were created with compacted earth, then covered with four inches of shotcrete. The final surface of the mounds was created using drainage matting underneath the artificial turf play surface. The mounds offer lookout towers and six slides, along with climbing ropes and a log “forest” on one mound, allowing children to push and pull themselves to the top. With the artificial turf on all sides, the mounds themselves provide imaginative play opportunities, in-

Along with environmental protection, connectivity was a critical component of the park’s design. 36

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While the first phase of construction is complete, Unity Park is still a work in progress.

cluding group slides and rolls. Michelin Green, an expansive fiveacre green space and part of the park’s green infrastructure, serves as the welcome center’s “front lawn.” Meadowbrook Green, named for the historic Meadowbrook Park, provides seven additional acres of green space and picnic tables and small groves of trees located along the river provide peaceful, shady gathering spots away from the activity at the playgrounds.

Looking Ahead While the first phase of construction is complete, Unity Park is still a work in progress. As part of a lead donation from BMW Manufacturing, four acres of urban wetlands located on the park site will be restored and maintained. The project will include the Duke Energy Outdoor Classroom, which will serve as an opportunity to educate the public about the important environmental contribution of wetlands and the need to preserve them. Additional planned future phases of Unity Park include basketball courts and the historic baseball field located on the site of the former Mayberry Park. An observation tower will be constructed in one of the few locations of high ground, south of the Reedy River. The tower will pay homage to first responders, including police officers, firefighters and military personnel. It will become an accessible, unique vantage point for Unity Park, offering visitors an elevated, panoramic view of the downtown skyline to the east and the Blue Ridge Mountains to the west. One of the many things that set Unity Park apart is the fact that the

project also includes the creation of affordable housing on almost nine acres of land donated by the city. Located on the outskirts of the park in the Southernside neighborhood, the property will eventually feature 500 new units of affordable housing, making it the largest concentration of affordable housing in the city. Duckett has a photo of a rainbow spanning the river in the park that was taken the day before the

park opened. “I think this is what heaven looks like,” she says, pointing to the photo. “This park is about embracing one another and learning from each other, and it’s about a community coming together to create a place where everyone is welcome.” Tara Eaker is Deputy Director for City of Greenville Department of Parks, Recreation and Tourism (teaker@greenvillesc.gov).

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Homelessness:

How Can I Help? New perspectives on park and recreation departments’ role in addressing homelessness By Austin Barrett and Allison Colman

cross the country, park and recreation agencies meet the needs of their communities by providing numerous valued services, such as opportunities for physical fitness, social connection, outof-school programming, and the conservation of natural habitats and environments. Beyond these, and many other well-recognized and mission-driven services, park and recreation agencies are increasingly helping community members experiencing homelessness and housing instability. Homelessness in the United States continues to be a serious social and public health issue; one that is often an outcome of deeper societal problems, such as the lack of economic opportunity, the high cost of housing, lack of access to quality healthcare, systemic racism, domestic violence, and substance use and mental health disorder. Add in recent challenges, such as the coronavirus (COVID-19) pandemic and rising inflation/cost of living, and the conditions for housing instability become even more perilous for millions of U.S. residents. The U.S. Department of Housing and Urban Development (HUD) estimates more than half-a-million people experience homelessness

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on any given night. However, it is widely acknowledged that this number undercounts the true scope of homelessness and does not include those living precariously in multiple family households or residing in hotels/motels. Regardless, HUD estimates nearly 60 percent of persons experiencing homelessness reside in sheltered settings, while the remaining 40 percent experience unsheltered homelessness. Along with sleeping in public spaces downtown, vehicles or abandoned buildings, public parks (in the open or in more discrete encampments) are a common place utilized by community members experiencing unsheltered homelessness. As front-line service providers

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in communities across the United States, park and recreation agencies and professionals often are already providing community members experiencing homelessness with basic needs (food, hygiene facilities) and connection to other networks of assistance. However, homeless assistance isn’t within the primary mission scope for most park and recreation departments. Considering this, many park and recreation professionals may be asking themselves: What can and should we be doing to assist persons experiencing homelessness? Additionally, as front-line service providers attending to all members of the community, professionals also may be wondering what the general public expects their agency to do to be part of the solution. New data shines a light on the public’s views on parks and recreation’s role in addressing homelessness and which specific strategies they believe agencies should pursue. In 2021, Drs. Lauren Mullen-

New data shines a light on the public’s views on parks and recreation’s role in addressing homelessness and which specific strategies they believe agencies should pursue.

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bach (University of Oklahoma), Nick Pitas (University of Illinois), and Ben Hickerson (University of North Carolina – Greensboro) conducted a nationwide survey reaching a representative cross-section of the U.S. public. Among other things, their survey asked three timely questions to better understand public perception related to homelessness in parks: (1) What is the duty of park and recreation departments to help address homelessness? (2) Are park and recreation departments equipped to address homelessness? and (3) What specific actions should park and recreation departments pursue to help?

Duty and Capacity to Help In general, the public did not view park and recreation departments as particularly obligated nor sufficiently resourced to help address homelessness. Less than half agreed park and recreation departments have a duty (44 percent) and are equipped (36 percent) to help (see Figure 1 below). Another quarter of respondents (29 percent and 27 percent, respectively) neither agreed nor disagreed with these statements, indicating that many members of

the public do not have an opinion one way or the other. Collectively, it appears members of the public do not see providing assistance to persons experiencing homelessness as a fundamental duty/responsibility of park and recreation agencies. Directors of urban park and recreation departments tend to agree. According to NRPA’s 2017 Homelessness in Parks report (tinyurl. com/y2f5z2jn) based on a survey of urban park and recreation directors, only 11 percent indicated their agency takes a leadership role in their city’s homelessness initiatives. Directors were more likely to say their agency is a partner or resource (53 percent), while a sizable 36 percent say their agency plays no significant role. Among the public and park and recreation professionals, there appears to be a general perception that homeless assistance is not currently a core mission or responsibility of park and recreation departments.

Specific Strategies to Help While recognizing that homeless assistance is a role for most park and agencies, there remain

Figure 1

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providing peripheral recreation numerous

ways — both big and small — that agencies can and are providing support to community members experiencing homelessness. As direct service providers to all members of the community and maintainers of public spaces, park and recreation professionals are in a unique position to engage with persons experiencing homelessness more frequently and more compassionately than other units of local government. So, considering this opportunity for impact, what could agencies do to help address homelessness? The survey presented respondents with 12 specific strategies agencies could pursue to help address homelessness. Respondents rated their level of agreement with each strategy (see Figure 2, p. 41). The results indicate that despite not seeing this as a core responsibility, individual actions are more supported. In fact, more than two out of three respondents agreed that eight of the strategies were appropriate ways park and recreation departments could help address homelessness. The most agreed-upon strategies were related to meeting immediate, basic needs. These included providing temporary shelter at facilities during severe weather/temperatures (76 percent agree/strongly agree) and allowing access to hygiene facilities during specific days/times (75 percent). Park and recreation departments across the country have increasingly provided these kinds of services, particularly in the aftermath of the COVID-19 pandemic. Partnering with law enforcement (73 percent), conducting outreach (73 percent) and training staff to develop productive relationships (72 percent) also were highly agreed-upon strategies. Outreach and authentic relationship-building based on compassion and trust is the

Figure 2

first step to identifying root causes of a person’s experience of homelessness. However, developing person-to-person relationships and connections with people experiencing homelessness is not something that comes naturally to most people. Therefore, specific trainings on outreach techniques, crisis intervention and Mental Health First Aid are good places to start. Finally, respondents also agreed departments should work to connect persons to permanent housing (70 percent) and collaborate with local homeless service organizations (69 percent). While it is not the role of park and recreation staff to be social workers or permanent housing providers, one of the most powerful tools a park and recreation professional can have is simply knowing about the homeless assistance resources available in their community (such as shelters, street outreach teams, domestic violence services, permanent housing providers and treatment programs) and being able to provide referrals. For example, if

a park and recreation professional encounters an individual washing their clothes in a park bathroom, providing a referral to the local day-center where laundry services are available is a productive and likely non-punitive initial approach. At the bottom of the list, respondents were less likely to agree with certain strategies, including strict enforcement of trespassing/loitering laws (55 percent), donating parkland for affordable housing construction (50 percent) and allowing persons experiencing homelessness to live indefinitely in parks (35 percent). While there were generally high levels of support from the public about these specific assistance strategies, existing data indicates room for growth in the level of support agencies could provide. According to the Homelessness in Parks report, only 54 percent of agencies surveyed provide at least one type of service to people experiencing homelessness. Among these agencies providing services, the most common services are providing access to

restrooms (91 percent) and showers (47 percent). Thirty-two percent provide shelter during periods of inclement weather and another 30 percent provide access to computers and telephones. Fifty-three percent of agencies train staff on ways to engage individuals experiencing homelessness more effectively.

A Leading Voice From the Field Greg White is the director for City of Decatur – Active Living Division in Decatur, Georgia, a suburb of Atlanta. On a daily basis, he and his staff interact with four or five people experiencing homelessness around the community center and in the parks. As he explains, “Unhoused individuals are in our parks using benches, trails, restrooms and find our parks as places to stay cool during the summer months. The pandemic has really put this work in front of us daily as recreation professionals.” Despite the pandemic, this work is not new for White. For years, his

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department has provided key services to people experiencing homelessness by meeting basic needs and providing referrals to key community partners. In White’s experience, it all starts with building trusting relationships and treating everyone he serves, including those experiencing homelessness, with dignity and respect. “First of all, I think it is important for that person to trust you. Once you get that trust piece, you’ll be able to connect the person to resources.” Some of the immediate resources the Decatur Active Living Division provides include shelter during dangerous weather events, 24-hour access to restrooms, and operating a community food/clothing box. Similar to a “tiny library,” White, his team and community volunteers “stock the box” with water, fruit, sandwiches, clothing and other necessities. Moving beyond basic needs is the next step the Decatur team is advancing. “Food and water provide immediate needs, but we want to help people long term,” says White. “This topic of unhoused is important because it impacts our work daily, from trash in the parks [and] people leaving items around the facilities… [to] enforcing rules around urban camping. The goal is to connect people to full wraparound resources in phases.” As White explains, real sustained change occurs through partnerships with agencies specializing in housing and homelessnessrelated services. While these partnerships take time to seek out and establish, knowing the network of homeless assistance providers has helped White find his agency’s place within his local community’s homeless response system: “I don’t think it’s our role to try to 42

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solve it. We need to connect them to the people who have the expertise. That’s why it’s important to know who is in the community that’s doing this work.” White advises other park and recreation professionals to not try and do it all by yourself. Instead, do what you can to leverage your strengths and provide for basic needs. And, to really make a difference, it takes being at the table with dedicated partners. He advises fellow park and recreation professionals to be involved in local task forces aiming to address homelessness in your community. These task forces often are composed of nonprofit groups, faith-based organizations, police departments, fire departments, libraries, downtown development associations and HUD-funded Continuums of Care. When respect, empathy, and upstream and systems thinking are at the center of your response to homelessness, that’s when the magic happens. Relationships are formed and cross-sector partners work together to create systems that support all people. White provides an example: “I had a situation a month ago, an unhoused individual helped me help another family that was about to be displaced from the hotel. He told the family to call me, [and] I, in turn, called the nonprofit. The teamwork allowed the family to remain in the hotel and not be displaced to the streets.” Through a trusted relationship, a connected park and recreation professional, an efficient referral and swift action by a community partner, a vulnerable family was able to remain in a safe situation while they worked toward longer-term stability. All White had to do to

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facilitate this success story was to be trusted in the community and know who to call.

The Takeaways While homelessness is a nationwide problem, solutions are much more localized. There are numerous tangible ways parks and recreation can help and are helping to address this critical issue. Park and recreation departments are direct contributors to community health and wellness and are uniquely positioned to provide direct assistance, in many forms, to all community members, including persons experiencing homelessness. As White says, “Nobody touches more people than parks and recreation people. We know everybody in the community.” Meeting immediate needs — as you’re able — collaborating with local homelessdedicated agencies, and prioritizing outreach/training are all great steps to consider when thinking about how your agency could be a part of the solution. The key is to identify which strategies are within the mission and capacity of your agency to realistically pursue. Special thanks to the valuable contributions of Greg White, Lauren Mullenbach, Nick Pitas and Ben Hickerson.

To hear more about this important topic from White, as well as NRPA’s Austin Barrett and Allison Colman, tune in to the August bonus episode of Open Space Radio at nrpa. org/August2022BonusEpisode.

Austin Barrett (he/him) is an Evaluation Manager with NRPA (abarrett@nrpa.org). Allison Colman (she/her) is the Director of Health for NRPA (acolman@nrpa.org).

Who will be among the 30 Under 30 for 2023?

Starting August 15, nominate someone you know — or yourself — to be recognized in Parks & Recreation magazine’s 30 Under 30 class of 2023! This program honors the top young park and recreation professionals who serve as everyday superheroes in their respective communities. The deadline to nominate is October 14, 2022. Submit a nomination at nrpa.org/30Under30.

A recent built space in Lafayette, Colorado, highlights that access to “naturalized” urban landscapes might be almost as good as the real thing. 44

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Building Nature The Inspire Trail and Nature Kids Discovery Zone combine nature and play

By Carter L. Marshall III

an “nature” be built? The answer may not be as important as why one might ask it. A recent built space in Colorado highlights that access to “naturalized” urban landscapes might be almost as good as the real thing. “Nature,” as it turns out, can be a fluid and fickle concept that eludes definition and ignores boundaries. Running by neat rows of neighborly homes in City of Lafayette, Colorado, a municipal drainage line called Drainage #4 had become a well-trodden route for trespass. Locals headed across town on foot, particularly kids headed to and from school, scrambled on uneven terrain along social paths made by necessity to save a few minutes on the way to their destination. The Inspire Trail and Nature Kids Discovery Zone opened to the public in September 2019.

Fully designed and built natural resource lands, constructed along the city’s Drainage #4, these unified projects created opportunity for lower-income residents to engage with the natural world in a densely urbanized area. Barbed wire fencing and “keep out” signs were removed to make way for new natural areas built for exploration and play. With a mile of new soft surface trails, meandering streams, community gathering areas, and hand-picked logs and boulders,

this invented wilderness created a brand-new, integrated ecology and an ever-changing natural space for people to enjoy daily. This effort highlights three important trends in parks and recreation: • It serves as a model for “building nature” and creating a new urban wild for people to access. • It exemplifies green infrastructure as a better way to envision underutilized public spaces. • It showcases nature play as an impactful way to introduce kids and families to the natural world.

An Inspired Vision This project is remarkable in that it resulted in a new natural resource area that did not exist previously.

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While parks, for example, are typically manicured and intended for recreation, this effort added wilderness to the city with nature as a primary user. Managed as “open space” lands, fallen trees stay where they lay, plant succession is encouraged, and policies and practices allow local wildlife to thrive. Places that in the past were kept behind locked gates now allow users to skip to school, stroll downtown, sit on a rock, climb on a log, or build a sandcastle — all surrounded by a brandnew and ever-changing “ecoscape.” A vision made possible by a 450page grant application assembled by Keith Desrosiers of Thorne Nature Experience, the project was awarded $2.8 million in the inaugural Great Outdoors Colorado Inspire grant cycle. In addition to a full year of public outreach and 500,000 programming hours in backyard-to-backcountry education, funds were also earmarked for capital improvements across the city. Most of those dollars were focused on Drainage #4 with matching funds provided by City of Lafayette and project partners.

The built work, designed by Design Concepts, ended up with a $2 million price tag. The project team navigated a gauntlet of reviewers and approvals, vocal neighbors, enthusiastic partners, red tape, budget issues and setbacks. With unwavering support from city leadership, including Project Manager Rob Burdine and Director Monte Stevenson, the effort stayed on track. Eye-on-the-prize nudges from the grant manager, steady and persistent problem solving by the civil engineer, and impeccable construction work by the contractor also ensured the project was completed to success.

Access to Nature This effort was driven by a dire need for access — both to places and experiences. While the new trail links residents to schools and businesses, it also creates an immersive everyday experience abuzz with local wildlife, vibrant flora and dappled tree shade. In a busy and built-up part of town that until now has been isolated from any natural areas, it provides equity and improves quali-

ty of life for nearby residents. Many neighbors in this part of Lafayette have never been to the summits or the riverine valleys of the Rocky Mountains or even the Front Range foothills, less than an hour away. Barriers of time, transportation or finances can be insurmountable, so the project team brought the majesty and wonder of that experience to them. For decades, Drainage #4 was a concrete trickle pan surrounded by infrequently mowed weeds and restricted by fencing. This utility channel was transformed into the Inspire Trail corridor. Native grasses and shrubs, reeds and rushes now serve as a backdrop for an Americans with Disabilities Act-compliant, soft surface footpath with pedestrian bridges that cross back and forth over a winding creek. Narrow single-track trails also were added for a sense of adventure and exploration, complete with steppingstones across the creek bed. A chance encounter with a dragonfly or swooping hawk, or the rush of being engulfed in wildflowers are now everyday occurrences for trail users. The centerpiece of the project, a two-acre nature play zone, was created on the grounds of Alicia Sanchez International Elementary School. The property had been inaccessible, fenced in years ago for a reason that no one seemed to recall. Intended as a gateway to the natural world for young people and their families, the idea was to transform this unused spaced into a magical place that would enchant the kids, and in so doing, enchant their parents. Local students were engaged earViews of the Rocky Mountains were enhanced to make the connection with this invaluable local resource and promote a “backyard-to-backcountry” theme.

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While the new trail links residents to schools and businesses, it also creates an immersive everyday experience abuzz with local wildlife, vibrant flora and dappled tree shade.

ly in the process to find out what “nature play” meant to them. Places to hide and explore, to be in and around water, and objects to climb on, over and under were identified as priorities. By enticing kids to engage with nature as a play experience, our intent was to foster a lifelong appreciation for wild places and their irreplaceable gifts to humanity. The ultimate goal was to create a place that would offer the many welldocumented benefits of simply being in nature, such as improved personal wellness and a sense of stewardship, to neighbors who had never been given the opportunity. In the years since being built, the Inspire Trail and Nature Kids Discovery Zone have become wellworn, wildly successful local amenities. Access to outdoor gathering spaces became essential in our new pandemic world early in 2020, only six months after construction. In this time of crisis and uncertainty, the project offered respite and recreation to nearby apartment dwellers and mobile home residents, just outside their front doors.

Green Infrastructure Green infrastructure, a popular concept these days, is “a set of practices that mimic natural processes to retain and use stormwater” (tiny url.com/6njfnp9h). This notion conflicts with the more traditional approach to civic infrastructure as off limits and reserved for utilitarian function. Green infrastructure acknowledges that a natural environment is ideal to accommodate flooding and storm capacity while it also offers more to people than a

sterile, overly engineered utility. The evolution of Drainage #4 into the Inspire Trail corridor showcases green infrastructure at work. The built project created wildlife habitat, walking trails and stone-skipping spots for people, and enhanced flood capacity for stormy weather. In so doing, it exemplifies the power of places intended to serve both nature and humanity. It highlights the inherent, expansive value of wild spaces. These overlapping values recognized by green infrastructure in design are referred to as ecosystem services. The idea of ecosystem services drives design that supports utility, hydrology, ecology and recreation — all at once. This very concept is a departure from the longstanding approach to creating our urban places, which has sought to distinguish utility spaces from people spaces. This old approach has proven problematic, as we are now reminded daily with the impacts of climate change front and center in global news cycles. The new approach, driven by greening

our infrastructure, allows for the broad range of ecosystem services as solutions not just to our climate crisis, but also a growing need to address mental and physical public health issues. As a result, strategies of resilient, low-impact design have taken hold that enhance both utility and human quality of life. Naturalized stormwater systems, which allow for smaller and more aesthetic interventions, have become a best practice in many situations. Much of the well-intentioned work of past decades is being reconsidered as an urgency grows to undo heavy-handed engineering, break up the pavement, and design spaces for nature to thrive and for people to enjoy.

Nature Play Nature play has been met with quite a bit of press in recent years, with good reason. Nature play spaces have been defined as places in which “children of all ages and abilities play and learn by engaging with and manipulat-

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B U I L D I N G N AT U R E

Spaces intended for play were designed to meet current playground standards but only natural materials were used in their construction.

•

ing diverse natural elements, materials, organisms and habitats through sensory, fine motor and gross motor experiences” (tiny url.com/dkbuxtth). The benefits of nature play spaces abound with impacts on health, education, economics, environment and equity. Studies have demonstrated that nature play: • Improves mental and physical health; decreases stress, anxiety and depression; and improves ability to assess risk in the environment • Creates a connection to the natural world that promotes environmental stewardship, improves focus and attention span, enhances academic performance, and has been shown to reduce bullying and absenteeism • Saves money as nature play elements are affordable to install and easy to replace, such as logs and stumps, or are infinitely durable, such as stone • Boosts investment in local suppliers, quarries and nurseries, as nature play spaces can be built entirely of local materials 48

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• Improves water quality, reduces runoff, recharges groundwater, reduces urban heat island effect and reduces carbon footprint • Enhances social justice with access to nature, as less affluent communities typically have less green space nearby That’s a lot of upside. With these benefits in mind, the Nature Kids Discovery Zone was designed as fun place to play and a pleasant spot to spend time outside with friends and family. The “Zone” offers various elements to engage new and wellseasoned nature lovers alike. These include: • Three formal play pits with massive log climbers and boulder play features designed with resilient surfacing and adequate critical fall zones • Two shed-style pavilions with rustic detailing, such as corrugated roofs, wood paneling, timber posts and sandstone capped integrated seatwalls • A “treehouse” of tiered platforms beneath mature evergreens for outdoor instruction and shad-

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•

ed gathering year-round An adventure trail of massive beetle kill pine stumps, fallen logs and boulders that lead to a hilltop summit A kid-size rustic cabin with an authentic ore trolley to honor local mining history A visitor-activated creek that runs past sandy banks and over river cobbles as it moves through the site A viewing platform overlooking an educational wetland fed by the creek for nature programming and school instruction Steppingstones leading to “habitat islands,” intended to showcase upland ecology and wetland ecology side by side Tree selections and plant species highlighting various Colorado ecosystems Stone circles and moveable stumps for informal seating and creative gathering

Lessons Learned Today, a visitor to the Inspire Trail and Nature Kids Discovery Zone will witness users big and small enjoying the space in ways the designers never envisioned. The project design was only a starting point, as it turns out, for infinite explorations in landscapes both real and imagined. With “nature” as the backdrop, whether native or designed, it appears anything is possible. To read more about Burdine’s experience as project manager, visit parksand recreation.org. Carter L. Marshall III is Associate at Design Concepts (carterm@dcla.net).

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COMING SOON!

OPERATIONS Barriers to Trail Implementation By Ylda Capriccioso, AICP

rails provide a multitude of benefits for communities, including recreation, health and wellness opportunities, economic development, transportation, parkland access, environmental protection and sustainability. Despite the benefits, trail projects can pose challenges for agencies. These challenges, which can range from “not in my backyard” (NIMBY), funding or land access to political, environmental or other issues, can seem like perpetual barriers.

PHOTO COURTESY OF CITY OF NEW BRAUNFELS

Trail implementation is like a to-do list, and seeing what needs to get done and knowing how to scratch the barriers off the list can help to guide the path forward.

Once you understand the barriers to implementing trail projects, you can prioritize them and assess how much control or influence capacity is available, either by you or other actors. Through this process, you can seek out strategies, propose solutions and develop a timetable for success. Much like a to-do list, identifying barriers and understanding their significance will guide the path forward.

Political Barriers Political actors can include supporters, opponents, elected officials, staff and the public. Who are the local advocates? Which elected officials does this affect? What is the motive for opposition or support? While overcoming the NIMBY mindset can be daunting, collaborating and listening 50

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to residents’ concerns go a long way. Internal agency actors and factors also can act as barriers. Agency staff, from field operations to executive leadership, must have a good understanding of the project vision and expectations to believe in a project and adjust resources to make it possible. Often, institutional barriers, such as inter-departmental strife (e.g., parks versus public works) can lead to a rivalry for resources. Who sets the standard, who maintains resources, and which department receives them? Acknowledging these institutional barriers can lead to improved collaboration and citywide effort to bring multidisciplinary projects forward.

Societal Barriers This barrier focuses on what is happening in the community. Are there other factors influencing the public perception? Are there larger external struggles at play? How does this trail impact a neighborhood? Acknowledging that a trail may not be priority for a community is important. Garnering community support is critical to success. Knowing when to support the community’s needs first can aid in future support of the trail project.

Relevancy Barriers How relevant is the project? Does the community want this project?

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Physical Barriers These barriers are either humancaused or natural. In the natural context, slope and topography can make a trail project challenging. While it would be nice to always have a trail run along the creek or through a bluff, these can be cost prohibitive, unsafe and unmanageable. Other barriers include property ownership.

Resource Barriers Funding is always a barrier to implementation, but what is more challenging is the ongoing need for funding, staff and policies to ensure a sustainable project that is a valuable asset and not a burden to a department or community. During the master planning process or preliminary design, assessing ongoing maintenance needs, trail policies and volunteer requirements can provide a neutral forum for discussing how to operationalize needs and concerns. Identifying barriers takes some effort and patience, but this assessment can help your community, department or group determine where to focus efforts and how to prioritize the challenges within trail projects. During this process, the barriers become major milestones of achievement once conquered. Again, trail implementation is like a to-do list, and seeing what needs to be done and knowing how to scratch the barriers off the list can help to guide the path forward. Ylda Capriccioso, AICP, is Park Development Manager for City of New Braunfels, Texas (ycapriccioso@nbtexas.org).

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Gyms for Dogs..................................................................................... 53

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advertiser index

BCI Burke............................................................................................5, 51

(ISSN 0031-2215) is published monthly by the National Recreation and Park Association, 22377 Belmont Ridge Rd., Ashburn, VA 20148, a service organization supported by membership dues and voluntary contributions. Copyright ©2022 by the National Recreation and Park Association. Reproduction in whole or in part without permission is prohibited. Opinions expressed in signed articles are those of the writers and not necessarily those of NRPA. Issued to members at the annual subscription price of $30, included in dues. Subscription: $46 a year in the U.S.; $56 elsewhere. Single copy price: $7. Library rate: $58 a year in the U.S.; $68 elsewhere. Periodical postage paid at Ashburn, Virginia, and at additional mailing offices. Editorial and advertising offices at 22377 Belmont Ridge Rd., Ashburn, VA 20148. 703.858.0784. Postmaster, send address changes to Parks & Recreation, 22377 Belmont Ridge Rd., Ashburn, VA 20148.

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Park Bench

PHOTO COURTESY OF LANDON CRAMER

Creating a Bikeable, Vibrant Redding

Elizabeth and Tyler Cifu Shuster, avid members of the biking community in Redding, California, are raising their daughter, Story, to see the same value in biking — not only as a fun way to enjoy City of Redding’s Parks and Recreation trail system, but as a great form of transportation, too. “I love biking and I love Redding — and the two go together very well,” says Elizabeth. “I appreciate the combination of urban and natural biking destinations, the fervent bike community, and the miles of dirt and paved trails waiting to be explored and revisited. Biking opens up whole worlds here in Shasta County. Whether your world is transportation, recreation or some combination of the two, there’s a route for you.” The Shusters regularly utilize the trail system to get to work, exercise and enjoy the outdoors. The Sacramento River Trail is the fiber that runs through the outdoor paradise that is Redding. The trails meander along the lush foliage at the river’s edge, connecting nature enthusiasts to points of interest, like mountain biking trails, Shasta Dam, Keswick Dam and Redding’s incredible local bridges. Locals and visitors alike enjoy reflective moments on the trails amidst the sounds and scenes of nature. The Diestelhorst Bridge, constructed in 1914, was the first reinforced concrete bridge built across the Sacramento River. The bridge simultaneously serves as a part of Redding’s rich history and a link to its future. The stunning piece of architecture is the namesake for the Diestelhorst to Downtown Trail, a paved connection between the Sacramento River Trail and the businesses at the heart of Downtown Redding. The Diestelhorst to Downtown Trail opened in July 2021 to a warm reception from the community. Amidst a major growth period in Downtown Redding, the trail is a timely inspiration for community members to consider using more active modes of transportation on a regular basis. Redding is committed to expanding its trail system, so that more families can access eco-friendly, beautiful and safe transportation options — like Tyler, Elizabeth and Story — whether they are enjoying stunning mountainscapes on a weekend or visiting the growing downtown core. Organizations like Shasta Living Streets, the Redding Trail Alliance, the Redding Parks and Trails Foundation, and The McConnell Foundation, among others, have been at the forefront of the movement to create a more bikeable, more vibrant Redding. The upcoming Bike Depot in Downtown Redding will serve as a meeting space for those who bike, a resource for trails and biking equipment, a safe storage facility, and a place to enjoy a meal. “Being a bike commuter at heart, I want my daughter to grow up choosing active transportation options,” says Elizabeth. “Getting active and getting outside is fundamental for my family’s health and that of the larger community. I want my daughter to know the beauty of pedaling her way through a crisp morning to get where she needs to be and the joy of hopping on a bike simply to experience the beauty of where she lives.” – Kimberly Bonéy, Copywriter, City of Redding, California

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The historic Diestelhorst Bridge, the railroad trestle, and the iconic Sundial Bridge in the distance cross the Sacramento River, which runs through the heart of Redding, California. | AU G U S T 2 02 2 | PA R K S A N D R E C R E AT I O N .O R G

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PARKS & RECREATION AUGUST 2022 ◆ PLAY EQUITY: A CENTURY IN THE MAKING ◆ IS HOMELESSNESS A P&R PROBLEM? ◆ NATURE’S BUILDING BLOCKS

Parks & Recreation August 2022

Articles inside

Building Nature

Unity Park