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PR 100 an Assessment of Omaha's Parks and Recreation System

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PR 100 an Assessment of Omaha's Parks and Recreation System An Assessment of Omaha's Parks and Recreation System PR 100 An Assessment of Omaha's Parks and Recreation System Report No. 212 October 1981 Omaha City Planning Department. Acknowledgments Preparation of this report was financed through a grant administered by the Depart­ Parks and recreation planning has played a significant role in Omaha since Preface ment of Interior, Heritage Conservation and Recreation Service, under the Urban the City's founding in 1854. While the original City plat allowed for several open Parks and Recreation Recovery Act of 1978. squares, Omaha park development received its greatest push from the creation of the Board of Park Commissioners in 1889. Under their guidance the City developed Prepared by the Omaha City Planning Department, James Kelly, Acting Director, its well-planned park and boulevards system, which forms the core of today's and the Omaha Parks, Recreation, and Public Property Department, Clarence system and some of its most beautiful landscape features. In the twentieth cen- Shafer, Acting Director. tury, depressions, wars, and the influx of Federal money have all influenced the Omaha parks and led to various changes to them. Such influences continue today and prompted the completion of this document under the auspices of the Urban Mayor: Michael Boyle Parks and Recreation Recovery Act of 1978. Omaha City Council: Bernie Simon, President; Sylvia Wagner, Vice President; Administered by the Department of the Interior, 'Heritage Conservation and Walter Calinger, Fred Conley, Connie Findlay, David Stahmer, Steve Tomasek. Recreation Service, UPARR provided the City of Omaha with monies to complete a comprehensive plan for maintenance and improvement of the parks and recrea­ Urban Parks and Recreation Task Force: Betty Abbott; Deanie Anderson, Subby tion system. This document, an assessment of existing conditions, is the initial Anzaldo, Joseph Baburek, Gloria Bartek, Ron Bernth, Mary Burbridge, Joseph section of the Recovery Action Program. Churchich, James Classen, Connie Claussen, Robert Cunningham, Homer The focus of UPARR programming has been toward restoration of deteriorated Early, Joseph Fairhall, Robert Fee, Jim Findley, Ann Goldstein, Mary Ann facilities and provision of services for urban residents, a prudent approach in Hayes, Bonnie Jacobson, Ken Krabbenoft, Arlin Meadows, Bill Michael, Dick days of tight budgets and financial constraints. This need for financial restraint Mondragon, Terry Moore, Eugen Persons, John Potter, Lee Sessman, Helen also extends to the Federal level, however, and the UPARR program is currently Strnad, Warren Swigart, Carl Tyler. without funding. The City of Omaha will continue to follow the Recovery Action Program in anticipation of its implementation through local means. This com­ Project Manager: Susan Ruby prehensive Program provides an amount of information previously unavailable in Research Coordinator: Steve Jensen Omaha and will serve as a valuable planning and programming tool in the years Contributing Planning Staff: Garneth Peterson, Greg Peterson, Michael Wiese, to come. Hank Austin, Jackie Falkenroth, Robyn Glick, Lisa Lemble, Abdullah Mohsin, Barbara Schultz. Contributing Parks Staff: Dale Mathre, Jerry Parks. Publication Design and Photos: Kent Behrens Cover photo by Lynn Meyer. Type set in Times Roman by Priesman Graphics, Omaha. Context 2 Contents Introduction to Omaha 3 Overview of the Parks System II Government Functions Associated with Parks and Recreation 13 Citizen Participation 17 Physical Issues 20 Introduction 21 Overview of Omaha Area Facilities 21 Park Facility Inventory and Analysis 31 Summary of Issues 48 Rehabilitation Issues 54 Introduction 55 Overview of Rehabilitation Approaches 55 Survey Areas and Facilities in Need of Rehabilitation 57 Types of Sites and Properties in Need of Rehabilitation 64 Rehabilitation Impacts and Relationships 65 Summary of Issues 71 Historic Preservation Issues 74 Introduction 75 Changing Attitudes Toward Parks 75 The Role of Historic Preservation 76 Inventory of Historic City-Owned Facilities 78 Policies for Parks Planning 80 Management Issues 82 Introduction 83 Department Organization and Staffing Levels 84 Contractual Services 87 Equipment Maintenance and Replacement 88 Budgeting Process 89 The Parks Advisory Board 91 Summary of Issues 92 Service Issues 94 Introduction 95 Type, Extent and Intended Beneficiaries of Recreation Services 95 Coordination with other Jurisdictional Plans and Activities 106 Summary of Issues 106 Implications and Conclusions 108 2 3 Context Omaha is the central and largest city in a metropolitan statistical area also Introduction to Omaha containing Council Bluffs, Iowa; Bellevue, Nebraska; the U.S. Strategic Air Command; and a number of smaller Nebraska and Iowa incorporated com- munities. With a 1980 population of almost one-half million, the Omahaj Bellevue area forms the only major urban hub in the essentially rural State of Nebraska. Omaha was originally platted in 1854, and quickly grew into an important regional wholesaling and marketing center with a relatively heterogeneous population mix. The City's urban destiny was initially sealed by the 1863 Pacific Railroad Act and subsequent presidential decision to locate the eastern terminus of the Union Pacific near Omaha; and later reinforced with establishment and growth of the Union Stockyards Company during the 1880's. However, in spite of this rapid growth the City found it difficult to dispel its frontier town image until well into the 20th century. With the post World War II era came a gradual shift in the City's employment base toward a service oriented economy. Also during this period Omaha estab­ lished a pattern of low density westward and southwestward expansion which finally culminated in the suburban residentialj commercialj industrial boom of the late sixties and early seventies. Today, the vast majority of this fringe growth lies within Omaha's three mile extraterritorial planning and zoning jurisdic­ tion. However, it is for the most part sited outside ofthe 92.5 square miles that make up incorporated Omaha, and consequently central city demographic characteristics have changed dramatically in recent years. For example, the typical 1980 Omaha family is smaller than its suburban counterpart, with a higher percentage of elderly and fewer young children. While the State of Nebraska, the metropolitan area, and the Omaha jurisdic­ tional area have all increased in total population during the past decade, the City proper has witnessed a population decline of over 10% (from 354,000 to 315,000) since 1970. Fortunately, liberal state annexation legislation provides Omaha with the opportunity to mitigate some ofthe adverse cost-related impacts of tax base decline that tend to parallel such overall population losses. Even so, Omaha remains an older, established central city currently experiencing a number of the negative effects associated with what has come to be generally known as "the urban problem". Planning and programming for the 1980's must, therefore, respond to the climate of fiscal austerity that is now emerging through­ out the nation's major urban centers. Geographic Location Omaha is located on the west bank of the Missouri River, which forms the eastern boundary of the State of Nebraska. Although not central within Nebraska, it is sited in the approximate geographic center of the forty-eight contiguous United States. Situated on the eastern edge of the Plains states, Omaha is in a region generally sparce of large urban populations. Lincoln, Nebraska, with a population ofalmost 200,000, lies 50 miles to the southwest. Des Moines, Iowa, and Kansas City, Missouri, approximately 150 miles to the east and 200 miles to the south respec­ tively, are Omaha's closest large urban neighbors. Due to this relatively low density of metropolitan areas, residents of Omaha tend to be more dependent upon locally provided amenities than urban residents in many other portions of the country. As is characteristic throughout the Great Plains, the Omaha climate is one of extremes. The City, which is not proximate to any of the major natural fea­ tures that can mitigate severe weather conditions (e.g., large lakes, mountains, ocean currents), is subject to frequent severe storms, including tornados, hail, dust and blizzards. However, the sequence of meteorological change is generally rapid, providing Omaha with a greater number of sunny to partly sunny days than would be anticipated based solely upon its annual precipitation averages of 28 inches of rainfall and 32 inches of snowfall. For this reason, typical warm weather activity is a somewhat reasonable option throughout the April to October period. 5 4 To a large degree, the extremely slow Douglas County rate of population in­ crease is attributable to a major decline in the population of the City of Omaha, Minncapolib from 354,000 in 1970 to 315,000 in 1980. Consistent with national trends, the persons per household average within the central city decreased dramatically. Rapi City At the same time, substantial inner city household declines were recorded, and o Sioux Falbo 1---------\ the City followed a financially conservative policy which limited annexations on its western fringe. Meanwhile, western sections of Douglas County experienced significant urbanization, particularly in those southern areas just west of the Des Moines City's corporate limits. The Omaha jurisdictional suburbs grew from an esti­ Cheyenne o mated 22,000 residents in 1970 to approximately
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