CITY OF MEMPHIS PARK SERVICES MASTER 20 PLAN 20

MARTIN LUTHER KING JR. PARK ACKNOWLEDGMENTS

CITY COUNCIL STAFF

• Patrice J. Robinson (District 3), Chairwoman • Nick Walker, Parks Director*

• Frank Colvett, Jr. (District 2), Vice Chair • Amy Collier, Grants Admin Specialist*

• Rhonda Logan (District 1) • Marcha Allen, Community Engagement • Jamita Swearengen (District 4) Administrator*

• Worth Morgan (District 5) • Mike Flowers, Planning and Development Administrator* • Edmund Ford, Sr. (District 6) • Erich Miller, Planning and Development Project • Michalyn Easter-Thomas (District 7) Manager* • JB Smiley, Jr. (Super District 8-1) • Mickey Barker, Golf + Park Operations • Cheyenne Johnson (Super District 8-2) Administrator* • Martavius Jones (Super District 8-3) • Tiffany McCollins, Youth and Family Services • Chase Carlisle (Super District 9-1) Administrator

• J. Ford Canale (Super District 9-2) • Amanda Johnson, Senior Services Administrator

• Dr. Jeff Warren (Super District 9-3) • All Division of Parks and Neighborhoods Staff

CITY LEADERSHIP CONSULTANT TEAM

• Jim Strickland, Mayor • PROS Consulting, INC. (Prime)

• Shirley Ford, Chief Financial Officer* • Barge Design Solutions

• Doug McGowen, Chief Operating Officer • Earth Economics

• Maria Fuhrmann, Chief of Staff* • ETC Institute

• Self+Tucker Architects

STEERING COMMITTEE • The Carter Malone Group

• Ashley Cash, City Comprehensive Planning Office

• Mike Lemm, City Engineering

• Ian Nunley, Hyde Family Foundation

• Sankedra Hudson, Bloom *Denotes Steering Committee member • Jen Andrews, Park Conservancy

HOWZE PARK MASTER PLAN ACKNOWLEDGEMENTS INTRODUCTION 1

1.1 City of Memphis 1 1.2 Parks and Recreation 1 1.3 Facilities Master Plan (1999) 3 1.4 Memphis 3.0 3 1.5 Parks and Recreation System Master Plan (2020-2030) 4 1.6 Vision, Mission, and Core Values 4 1.7 Executive Summary 5 TOBEY SKATE PARK DOUGLASS PARK EPPING WAY LAKE COMMUNITY PROFILE 12 2.1 City Demographics 12 2.2 Demographic Analysis 12 INTRODUCTION 2.3 Health Outcomes & Physical Environmental Factors 13 2.4 Local Recreation Trends 14 1.1 CITY OF MEMPHIS With such a vast recreation system, there is a challenge WHERE ARE WE TODAY? 16 with deferred maintenance (i.e., postponed maintenance ’s most populous city, Memphis, is the seat activities and repairs) and aging infrastructure. This has led 3.1 Baseline Understanding 16 of Shelby County. Located in the southwestern part of (in part) to concerns about public safety in neighborhood 3.2 Programs and Services 16 the state, the city lies on the bluffs above the facilities. Additionally, challenges exist with technology 3.3 Existing Park System 23 River. Memphis was founded in 1819 and later solutions both to distribute information to citizens and to 3.4 Benchmark Analysis 26 incorporated in 1826. The city experienced tremendous facilitate/streamline needed processes such as program 3.5 Financial Assessment 32 growth after incorporation due to its transportation/trade registrations. This challenge has been highlighted by WHERE ARE WE GOING TOMORROW? 38 opportunities; however, the city experienced subsequent an increased demand for expanded operational hours, years of economic development and slowdowns. Today, community-based recreation programs, and additional 4.1 Introduction 38 Memphis is one of the largest distribution centers in the recreation amenities. 4.2 Interviews and Focus Groups 38 ; its international airport is the world’s second 4.3 Public Meeting Series #1 39 busiest cargo airport after Hong Kong. It should also be noted that the park system contains 4.4 Youth Engagement 40 conservancies and contracted parks. These partnerships 4.5 Statistically-Valid Community Survey 41 Memphians take great pride in the history of their city, have proven to be highly successful over the years and 4.6 Electronic Survey 50 particularly Memphis’ position in the Civil Rights Movement have provided Memphians additional access to park land. 4.7 User-Intercept Surveying 54 in the 1960s, from the historic sanitation strikes to the These partnerships also provide a financial and operational 4.8 Public Meeting Series #2 54 renowned site of Martin Luther King Jr.’s death at the benefit to both the Department and Memphians. Example Lorraine Motel, now the National Civil Rights Museum. conservancies and contracted parks include: NEEDS PRIORITIZATION 55 Memphis is also a notable city for music history, as 5.1 Methodology 55 one of the birthplaces of blues music, the home of B.B. King’s legendary music, and the home of 5.2 Park Classifications and Level of Service Standards 55 342-acre park that includes the and (). 5.3 Geographical Analysis through Mapping 57 is managed by the Overton Park Conservancy. 5.4 Priority Rankings 69 HOW DO WE GET THERE? 70 1.2 PARKS AND RECREATION SHELBY FARMS GREENLINE 10.65-mile paved and pedestrian that 6.1 Establishing the Organization for the Future 70 The Division of Parks and Neighborhoods contributes to connects the heart of Memphis to the heart of Cordova 6.2 Recreation Programs 70 the city’s overall rich cultural history by supporting active through Shelby Farms Park. 6.3 Capital Improvement Plan (CIP) 75 civic culture reflective of diverse community voices. The 6.4 Funding and Revenue Strategies 77 Division provides an array of services for people of all SHELBY FARMS PARK 6.5 Organizational Alignment 78 ages, supporting their engagement in health and wellness, 4,500-acre managed by the Shelby Farms 6.6 Partnerships 78 lifelong learning, and leisure and recreational activities. This Park Conservancy. ACTION PLAN 81 is facilitated through a vast system of parks, public spaces, community and recreation centers, museums, and sports GREENWAY 7.1 Parks and Facilities 81 facilities. In all, the system is comprised of over 5,600 park 7.2 Programs and Services 83 acres across 192 locations and 30 indoor recreation facilities Corridor of protected green space along the Wolf River 7.3 Financial and Budgetary Development 85 (Figure 1). that includes a paved pathway for non-motorized 7.4 Policies, Practices, and Operations 86 transportation. Managed by the , the Greenway will eventually extend a total of 36 miles.

1 MASTER PLAN 1.3 FACILITIES MASTER PLAN (1999)

The last Master Plan for parks and recreation services was completed in 1999. At that time, the Memphis Park System Map Memphis, Tennessee Park Commission managed 73 parks and 2,952 acres Parks and Recreation comprised of city-wide/regional, community, and Equity Maps neighborhood parks. Five overarching goals were Firestone established in that plan to define the future of the Davy Cockett Egypt Central Memphis Park Commission: ´ Georgian Hills

J.T. Willingham • A park and recreation system with an equitable Pierotti Pershing 74 distribution of diverse leisure opportunities and 74. Pickett 75. Denver Walker Hall 76. Carver Heights Westside 77. Trezevant facilities that meet the needs and interests of 75 78. John C. Shivler Fulmer 79. Grandview 76 80. Litty 78 77 the community. 36. Frayser School 36 37. Frayser 38. Tower Raleigh Springs 39. University 79 Skatepark 40. Overton Golf 41. Spanish War Memorial 37 38 • A well-designed park and open space system that 42. Dave Wells Raleigh Bartlett 43. Williamson 80 Martha Byrnes Meadows 44. Peabody George John F. enhances the functional and aesthetic quality of 45. Josephine Lewis 46. Mary Elizabeth Malone Alberson Kennedy 47. Tom Lee Pool 48. Bickford public spaces and the overall experience and image 49. Winchester Lazarov 50. Greenlaw Watkins Jackson & Oberle Gragg of the city. 20. Morris Rodney Baber 21. Colonial (Auction Square) New Chicago Douglass 22. Health Sciences Fletcher 23. Brinkley (Market Square) Lucille Price Creek 24. Victorian Village Gooch 25. Mallory - Neely House Washington • A sustainable system of parks and open spaces that 26. 27. Edison 86 Mississippi conserves natural and cultural resources, and promotes River Greenbelt 87 42 39 Gaisman 48 Highland the health, safety, and general welfare of the FIGURE 2: PREVIOUS MASTER PLAN (1999) PLAN MASTER PREVIOUS 2: FIGURE

50 46 Dlugach (University 1. Riverfront Klondike community. 2. Memphis 21 Circle) 3. Columbus 45 86. Hollywood Headstart 4. Court Square Mud Island 49 87. Hollywood 5. Linden 47 Treadwell 88. Binghamton 6. Madison & Monroe 23 Overton Park 89. Lot 7. Riverside Drive Bluff 1 26 90. Lichterman Shelby Farms Bert Ferguson • A park and recreation system that delivers effective 2 91. Wilson 8. Vance 20 43 9. Robert Church 24 Robert Howze Avon J.J. Brennan (cordova) 27 40 10. Cobblestones Tom Lee 3 11. Handy (Astor) 7 4 88 neighborhood-oriented services. 12. Butler 25 22 East High 8 9 13. Ashburn-Coppock 10 68 Sportplex 14. Navy 6 Galloway 15. L. E. Brown 11 5 1.4 MEMPHIS 3.0 69 16. Martyrs 12 Wolf River • A park and recreation system in which effective use is 17. Army 13 14 Greenway 18. E.H. Crump 15 92. Chickasaw Gardens 19. Gaston 16 17 70 92 93 93. Poplar & Highland 68. Belvedere Triangle 44 94. Pink Palace 41 18 69. Parkways 89 95. Charles W. Davis made of all available resources to maximize the quality 70. Tobey 85 96. Emerald The City’s Comprehensive Plan, Memphis 3.0, was 71. Chandler 59 94 72. Glenview 19 71 73. Brentwood of park facilities and leisure services. Audubon adopted in February 2019. The plan outlines the overall Chickasaw Heritage 72 Audubon Pauline (Jackson Mound / DeSoto) 60 82 Golf Marquette 28 73 95 29 63 City vision for “building up, not out” in its third century M.L. King 30 32 31 IN 1999, IT WAS IDENTIFIED THAT THE SYSTEM Golf 62 33 34 81 of existence. Specifically, the plan sets for the pathway 58 61 Sea Isle Wolbrecht NEEDED TO: Tennis 56 83 Sherwood to invest in “anchors” throughout the community that Martin Luther 35 57 King (Riverside) 84 Judge Andrew 90 Holmes Willow • Reach 7,694 acres by 2020 (based on projected builds on the strengths of neighborhoods, creating Lincoln Minnie Wagner Godwin 81. O. M. Community Service Center 28. Texas Courts 82. Hanley Park service area population at the time) greater connectivity, access, and overall opportunities. 29. Trigg West Belz Pine Hill 83. Bethel LaBelle 84. Cherokee 30. Southside Golf 31. McNeil 85. Rozelle (Annesdale) 32. Carver Halle As part of the planning process, parks and recreational 33. Patton 56. Lincoln School Alcy - Warren • Increase city-wide/regional park acres by 809 acres 34. Booth Robert 35. Riverview 57. Pine Hill 58. Ruth Tate Senior Center O'Brien May facilities were included. According to Memphis 3.0, 59. Fairgrounds Alcy - 91 60. Orange Mound Charjean Nash Buckingham Equity Score Redbud 61. Magnolia Samuels Alonzo Weaver 62. Lewis - Davis • Develop 12 new community parks or community “Parks and recreational facilities are designed public American Way (West Junction) 63. Jesse Turner (Bellevue) Fox Meadows 64. O. L. Cash 65. Ford 52 McFarland Boxtown 51 66. Will Carruthers Winridge 20 - 0 park-type facilities spaces that are meant to be walkable with forms of 67. Sidney Lanier 96 Medal of Singleton Fairway Polly Honor (Wooddale) active and passive recreation. These areas usually Williams Hickory 64 Germanshire 40 - 21 • Develop 31 additional neighborhood parks Oakhaven Hill Bison Cove C.P.J. Mooney contain formal access points from the street and can be 65 51. Walker (Cromwell) 52. Roosevelt 66 Gardenview Chickasaw 53. Falcon 60 - 41 54. Western Cove Additionally, it was recommended to put high priority any size up to a regional park.” 55. Westwood Western 53 Flowering on repairing and refurbishing the system’s infrastructure. Heroes Peach 80 - 61 54 55 67 (Riverdale) Additionally, the plan set forth specific performance Neighborhood parks were referenced as “high priority” Raines Road Walter measures for parks and recreational facilities: Chandler 100 - 81 Whitehaven Dalstrom areas and the overall condition of the system’s 26 (Hillcrest) Easthaven community centers was identified as fair to good. Geeter • Design quality David Carnes Local Road • Per capita parks (Whitehaven Lane) School Grounds Plazas / Pocket Parks Fairley Zodiac Major Road Much work and improvement to the Memphis parks acreage Redding, Otis • Utilization Whitehaven system has taken place since the completion of the Special Use Neighborhood Parks Golf Highway 1999 Master Plan; however, the Master Plan is beyond • Parks proximity Greenways Community Parks 01 2 4 Memphis City Boundary its useful lifecycle and the city is in need of a renewed Undeveloped (Open Spaces) Regional Parks Miles Sources: Esri, HERE, Garmin, USGS, Intermap, INCREMENT P, NRCan, Esri Japan, METI, Esri China (Hong Kong), Esri Korea, Esri (Thailand), NGCC, © approach to delivering parks and recreation programs With these performance measures in mind, the plan OpenStreetMap contributors, and the GIS User Community and services. With a much larger system, challenges specifically calls for the development of new master related to aging infrastructure and technology, and a plans for parks and public facilities. mindful eye toward equity, diversity, and inclusion (EDI), a new Master Plan process was undertaken.

2 3 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 1.5 PARKS AND RECREATION research, and open dialogue with local leadership and key 1.6.3 CORE VALUES stakeholders (Figure 3). SYSTEM MASTER PLAN (2020-2030) The Department’s fundamental beliefs include: The community was involved throughout the plan’s The Master Plan seeks to create a 10-year blueprint for development as the process sought public input to identify providing quality parks and recreation facilities and their visions and expectations for public recreation services ADAPTABILITY We adjust to new opportunities to services throughout Memphis. Specific goals include in Memphis. Stakeholder interviews and focus group meet the changing needs of our community. establishing benchmarks, agency objectives, procedures, meetings were held early in the process and were combined and achievable strategies. Additionally, this Master Plan with public meetings, steering committee meetings, and EMPOWERMENT We promote community serves as a foundational document that will be built on-site assessments. A statistically-valid community ownership of our public spaces. upon in future versions. needs survey was distributed to a random sample of City residents, and an online survey was offered to also help EQUITY We recognize and celebrate diverse 1.5.1 PLANNING PROCESS prioritize and identify recreation- and park-related issues. identities of Memphis communities and strive for equity The information gleaned from the community engagement The City of Memphis Master Plan followed an iterative as we meet the needs of each community. process was combined with technical research to produce process of data collection, public input, on-the-ground the final Master Plan. study, assessment of existing conditions, market HEALTH We champion physical, mental, emotional, and intellectual well-being.

FIGURE 3: MASTER PLAN PLANNING PROCESS INCLUSION We ensure all Memphians are heard, represented, and celebrated. DAVIS COMMUNITY CENTER WHERE ARE WE TODAY? WHERE ARE WE GOING HOW DO WE GET THERE? TOMORROW? INVESTMENT We are responsible stewards of park lands, resources, and human capital. 1.7.1 COMMUNITY PROFILE • Site and facility review • Community engagement • Needs prioritization • Benchmark analysis • Statistically-valid survey • Capital development planning DEMOGRAPHICS RELEVANCY We create meaningful and memorable • Funding and financial analysis • Demographics & recreation trends • Financial planning After reviewing demographic information produced by analysis review experiences desired and needed by our residents. • Programs and services assessments • Funding and revenue planning ESRI, the following points are realized: • Staffing and operations review • Economic Impact analysis • Strategic action plan implementation The City’s recent population annual growth rate (0.05%) • Levels of service standards VIBRANCY We drive community energy and life. is significantly lower than the U.S. and state’s growth • GIS mapping rates (0.85% and 0.95%). 1.7 EXECUTIVE SUMMARY The City’s household annual growth rate (0.09%) is also The Master Plan is organized into seven chapters: significantly lower than the national and state averages (0.80% and 0.93%). 1.6.1 VISION INTRODUCTION When assessing age segments, Memphis exhibits a 1.6 VISION, MISSION, AND CORE COMMUNITY PROFILE VALUES “We inspire community pride through our slightly younger population than both the national and WHERE ARE WE TODAY? state age segment distributions. parks, facilities, , programs, and recreation As part of this updated Master Plan, the Division of WHERE ARE WE GOING TOMORROW? The City’s racial distribution has a significantly higher services. We are the center of Black Alone population and lower White Alone and Parks and Neighborhoods vision, mission, and core NEEDS PRIORITIZATION the community.” Asian populations, when compared to both national and HOW DO WE GET THERE? state percentage distributions. values were revisited and/or developed. The update/ ACTION PLAN Memphis’ percentage of Hispanic/Latino population creation process utilized the needs assessment findings 1.6.2 MISSION (7.6%) is well below the national statistic (18.6%) but The Plan’s organization flows from baseline community and community values ascertained through the Master higher than the state percentage (5.8%). “The Division of Parks and Neighborhoods understanding, to an evaluation of the existing parks Plan’s development. Then, an iterative process used creates positive and safe places to provide and recreation system (assets/parks/facilities, programs, The City’s per capita income ($24,033) and median and finances), to community engagement and needs household income ($40,845) are both considerably Consultant Team recommendations followed by a series community-centered experiences that connect identification to prioritizing needs, and then to the below average, when compared to the U.S.’s income characteristics ($33,028 & $60,548) and the state’s of Department staff feedback and revisions. all Memphians, celebrate life, and strengthen proposed methods to implement the priorities realized through the planning process. The following sections ($28,896 & $52,311). mind and body.” outline the key findings associated with each chapter (excluding this present chapter).

4 5 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN PROGRAMS • The Department falls short in terms of level of service Taking this information into account, the Consultant The Department offers services and activities associated for park acreage and trail miles according to both the Team implemented a public engagement plan to solicit with eight Core Program Areas: benchmark median and national best practices feedback, input, and identify the needs of Memphis residents as they relate to public parks and recreation • A stronger social media strategy may be required to 1 Adaptive programs, services, facilities, and opportunities. Then, 5 Arts & Culture broaden the reach and support the Department a look at gaps in programs and park provision was 2 Adults 55+ 6 Athletics receives from the community as denoted by its small WOLF RIVER GREENWAY completed. In all, a total of 3,080 individuals were 3 After School/Camps reported number of social media followers 7 Health, Fitness, & Wellness engaged throughout the planning process. 4 Aquatics 8 Special Events • Funding strategies can be enhanced by adopting HEALTH OUTCOMES AND a cost recovery model/philosophy and exploring a dedicated funding source(s) FINDINGS FROM THE PUBLIC ENGAGEMENT PROCESS SYSTEM INFRASTRUCTURE ENVIRONMENTAL FACTORS • Top five facility needs include: In all, 122 locations were evaluated by a combination of ECONOMIC IMPACT After assessing data provided by the City Health the Consultant Team and Department staff to create an » Trails and pathways Dashboard, Memphians report: overarching system inventory and assessment. Department expenditures support significant economic » Fitness centers activity in the region. The full economic output spurred » Neighborhood community centers • A higher than the national average report of • General park amenity groupings that are in need of by Department spending is the total of all subsequent » Senior centers being obese increased focus due to condition concerns: spending it supports—this includes the direct spending » Open play spaces for practice and other uses • A higher than the national average claim of » Playgrounds on parks by the City, but also secondary spending • Top five programmatic needs include: experiencing frequent mental distress » Soccer/multi-purpose fields for the goods and services that businesses require to » Baseball and softball fields continue doing business, as well as induced spending by » Adult fitness and wellness • A higher than the national average report of » Parking lots employees on groceries, rent, etc. » Senior programs physical inactivity » Restrooms » Walking/biking groups The total annual economic output resulting from • A higher than the national average report of » Adult swim • General indoor recreation facilities are facing Department spending is estimated to be $70.7 million. experiencing frequent physical distress » Family programs challenges such as: Every dollar spent on Memphis parks translates to $1.81, • A lower than the national average access to supporting an additional $0.81 in economic activity • Top three most preferred ways to learn about » Lifecycle replacement schedules greenspace and overall walkability (10-minute in the region. Because some of this activity is subject Department programs, activities, and parks include: » Preventive maintenance for older structures walk indicator) to taxation, Department expenditures also support an » Need for aesthetic enhancements (interior) » Television estimated $2 million in state and local tax revenue every » Roof leaks year. The Department also supports 577 jobs throughout » City of Memphis website 1.7.2 WHERE ARE WE TODAY? » Need for fire alarm systems the region, with an average annual income of $62,600, » From friends and neighbors totaling $36.1 million in wages annually. In order to understand the context in which this planning • Residents are supportive of recreation fees to pay effort is taking place, the Consultant Team performed BENCHMARKING for offering more recreation programs several different analyses to create a comprehensive The Consultant Team worked with the Division of Parks 1.7.3 WHERE ARE WE GOING TOMORROW? picture. The specific processes included: and Neighborhoods to identify operating metrics to • Residents prioritize maintaining the existing system benchmark against comparable parks and recreation After performing baseline analyses, a comprehensive more than developing new facilities • Analyzing current program and service delivery agencies. The analysis allowed the Consultant Team understanding of the existing system was identified. The • Stronger security, activating parks, and staff presence • Reviewing current system infrastructure to evaluate how the Department is positioned among system is characterized by: are necessary peer agencies, as it applies to efficiency and effective • Benchmarking (or comparing) the Memphis parks • An extensive network of parks and facilities; practices. The following takeaways were derived from • The management approach to the system is system to comparable communities the analysis: • Aging infrastructure and deferred maintenance; reactionary, lacks capacity, and lacks adequate • Reviewing the financial context resources most needed for improvement • Most of the reported performance indicators • A strong economic impact attributed to parks and portrayed the Department near the median or recreation investments; • Facilities and recreation are strong services for bottom comparatively the Department PROGRAMS • A challenging financial performance as it compares to The Department offers services and activities associated • Most of the reported performance indicators national best practices and local municipalities; and • A diversified approach to making the syste portrayed the Department near the median more sustainable is needed with eight Core Program Areas: • A variety of recreation program opportunities or bottom comparatively afforded to Memphis residents 1 Adaptive 5 Arts & Culture • The analysis validated the strong performance by the 2 Adults 55+ 6 Athletics Department with arguably less staff as compared 3 After School/Camps 7 Health, Fitness, & Wellness to the number of recreation facilities managed by 4 Aquatics 8 Special Events the system and their use

6 7 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 1.7.4 NEEDS PRIORITIZATION PRIORITY RANKINGS 1.7.5 HOW DO WE GET THERE? • Develop a Volunteer Management Plan to increase A weighted scoring system was used to determine resources, staff capacity, and advocacy for the system. Data needs to be synthesized and presented that allows the priorities for parks and recreation facilities and The Master Plan process identified many focus areas for • Develop a Partnership Management Plan that will help the Department to justify decision-making effectively recreation programs. The system uses both quantitative the Division of Parks and Neighborhoods. In order to increase marketing, increase offerings, increase staff and efficiently. Needs are prioritized through a process and qualitative data including: continue closing the gaps for various community needs, a capacity, and increase resources available to the system. utilizing level of service standards and priority rankings. broad approach to organizational development is required. • Unmet needs reported by the statistically-valid This plan should be equitable for both partners. Specifically, concentrating on recreation programming, community survey capital improvement planning, funding and revenue CAPITAL IMPROVEMENT PLAN (CIP) LEVEL OF SERVICE (LOS) STANDARDS • Importance rankings reported by the statistically-valid strategies, and organizational alignment will help prepare The community, through this planning process, The Consultant Team evaluated park facility standards community survey the Department moving forward. has indicated strong support for this concept of using a combination of resources. These resources prioritization. There are infrastructure concerns • Synthesis of trends and anecdotal information derived included market trends, demographic data, recreation RECREATION PROGRAMMING and challenges currently facing the Memphis park from the Consultant Team viewpoints activity participation rates, community and stakeholder The following key recommendations are provided for system and funding is not sufficient to take care of all input, NRPA Park Metric data, and general observations. These weighted scores provide an overall score and recreation programming: existing assets and build new facilities. The result is This information allowed standards to be customized to priority ranking for the system as a whole. The results of the recommendation to develop a three-tier plan that • Add & Environment as a Core Program Area. the City of Memphis. the priority ranking are tabulated into three categories: acknowledges a prioritization process for addressing High Priority, Medium Priority, and Low Priority. It should • Focus on staff development and training through community needs and incorporates the Priority Rankings According to the LOS, there are multiple needs to be be understood that the Department needs to be flexible development of mission, vision, and values the entire as shown on Page 17. Each tier corresponds with a met in Memphis to properly serve the community today when addressing priority rankings. The Department department can support. different type of capital improvement . and in the future, especially for areas such as: should be agile to address lower priority needs when • Focus on staff development on internal communication, 1 CRITICAL PROJECTS are associated with • Trails (paved and unpaved) situations arise that facilitate “easier to implement” facility/park safety, and customer service. addressing deferred maintenance (as outlined in projects and services such as grant funding, volunteer • Park shelters and pavilions Chapter 3), accessibility issues, and other critical needs support, etc. Ultimately, higher ranking priorities should • Improve facility infrastructure to support safety and at existing facilities. Typically, these types of projects • Youth diamond fields (baseball and softball) be addressed first, but common sense should be taken quality programs. are funded via existing CIP monies. The subtotal for the when addressing community needs. • Rectangular multi-purpose fields • Develop safety plans for programs, events, and Critical Alternative is $13,000,000. Example projects Figure 4 shows the facility and recreation programs facilities to encourage great participation. include: installing accessible pedestrian routes to • Outdoor basketball courts Priority Rankings. • Staff should continue to evaluate programs using cost ball fields, paving parking lots, replacing playground • Sand volleyball courts recovery, mini business models, classifications, surfaces, etc. • Playgrounds and lifecycles. 2 SUSTAINABLE PROJECTS include the extra services or capital improvements that should be • Tennis courts Facility Overall Rank Program Overall Rank • Expand current program offerings to reflect Priority Trails & pathw ays 1 Adult fitness & w ellness programs 1 Rankings. These programs could include but not limited to: undertaken when additional funding is available. This • Dog parks Fitness centers 2 Adult sw im programs 2 includes strategically enhancing existing programs, Senior centers 3 Senior programs 3 » Increased fitness and wellness programs Neighborhood community centers Water fitness programs beginning new alternative programs, adding new • Skateparks - 4 4 Open play spaces for practice or other uses 5 Family programs 5 » Increased adult aquatics offerings such as a positions, adding amenities and facilities that would • Splashpads/interactive Off leash dog park 6 Walking/biking groups 6 Master Swim Team and more water fitness classes. enhance the existing user experience within parks, water features Outdoor park games (checkers, chess, etc.) 7 Youth sw im programs 7 Computer labs 8 Adult continuing education programs 8 efficiency upgrades, or making other strategic changes » Continue to expand 55+ offerings which may • Indoor aquatics space Splash pads 9 Youth summer programs 9 that would require additional operational or capital Tennis courts Nature/environmental programs - 10 10 also need to be evaluated separately to identify Indoor youth basketball courts Outdoor adventure programs funding. The subtotal for Sustainable Projects is • General indoor 11 11 the 55+ populations barriers to participate. Practice fields (rectangular, multi purpose) 12 Adult art, dance, & performing arts 12 $20,000,000. Example projects include: repairing recreation space Indoor adult basketball courts Before & after school programs 13 13 • The induction of program fees has over 55% of the erosion along walking paths, replacing roofs, resurfacing Youth soccer fields 14 Special events/festivals 14 Outdoor youth basketball courts 15 Youth art, dance, & performing arts 15 support from the statistically-valid survey, developing walking trails, replacing park furniture, etc. Youth baseball fields 16 Youth fitness & w ellness programs 16 a fee structure should be considered by the Department Football fields 17 Fitness boot camps 17 3 VISIONARY PROJECTS represent a larger set of when moving forward with current programs and Outdoor adult basketball courts 18 Youth camp programs 18 services and facilities desired by the community. It can Youth softball fields 19 Martial arts programs 19 program development. Sand volleyball courts 20 Youth sports programs 20 help provide policy guidance by illustrating the ultimate Regional community centers 21 Programs for people w ith disabilities 21 • Create a Marketing Plan specific to the parks and goals of the community and by providing a long-range Adult softball fields 22 Tennis programs 22 neighborhoods that include website information, social look to address future needs and deficiencies. In this Pickleball courts 23 Gymnastics & tumbling programs 23 Adult soccer fields 24 Preschool programs 24 media, flyers, direct mailing, and program guides to Master Plan, Visionary Projects addresses aging facilities Extreme sports/skate park 25 Golf programs 25 enhance program participation. Develop target markets to make improvements in operational effectiveness Disc golf courses Pickleball programs 26 26 and the overall sustainability of the park and recreation Indoor soccer fields 27 for each amenity and program. This plan may also Lacrosse fields 28 include the addition of a full-time marketing staff member. system. The subtotal for Visionary Projects is Adult baseball fields 29 FIGURE 4: PRIORITY RANKINGS FOR FACILITIES $130,000,000. Example projects include: adding new Rugby fields 30 AND PROGRAMS • Establish Key Performance Indicators (KPIs) for amenities and facilities, expanding the trail system, Cricket fields 31 programs and marketing through customer surveys acquiring park land, etc. and increase use of amenities and programs.

8 9 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN FUNDING AND REVENUE STRATEGIES PARTNERSHIPS

Based on the sources available, and potentially available, The City of Memphis supports the 10-Minute Walk the following funding sources are recommended as campaign created and sponsored by the Trust for Public proactive solutions that may work well for the Department: Land, National Recreation and Park Association, and • Transient Occupancy Tax (TOT). Used to support visitor Urban Land Institute. As mentioned earlier, only 45.8% events and attractions. The tax is Usually 1-3% and is of Memphians are within a 10-minute walk of a park. managed by county government, not city government In order to close this gap by 2050 (the target date of TOT is a tax collected from guests that occupy or have the 10-Minute Walk movement), partnerships to create a right to occupy a living space or establishment for 30 and facilitate increased public access will be necessary. days or less. TOT is currently 8% of the rent and must be Increased joint-use agreements with entities such as collected by the operator (i.e., hotel rooms, condo Shelby County Schools can have a large impact on rentals, etc.) per guest at the time of payment. overall walkability and fill high-need areas that currently exist within the park system. • Land Value Captive Taxes. This is a Tax Increment Financing (TIF) process used to take the increased taxes CHICKASAW GARDENS LAKE from private investment and use it for specific projects 1.7.6 ACTION PLAN that will enhance property values (e.g., parks, trails, stadiums, etc.). TIF is a public financing method that is The Action Plan provides a summary of the key action 3 Continue to evolve the network of open space 1.7.10 POLICIES, PROCEDURES, AND used as a subsidy for redevelopment, infrastructure, and items recommended throughout the Master Plan. Items corridors, trails, green space, and active parks that other community-improvement projects. are organized into four major sections: OPERATIONS reinforce the City of Memphis brand. • Local Improvement District. This is a Business • Parks and Facilities • Policies, Practices, 4 Establish consistent and comprehensive maintenance 1 Prepare the organizational structure to meet existing Improvement District (BID) which is developed in a and Operations • Programs and Services and design standards for parks, trails, and facilities and future demand. district’s boundaries as an additional tax (levy) and pays to uphold the quality of user experience and Functionally align the organization to meet for projects within the district. Funds generated • Financial and Budgetary 2 promote financial sustainability. community needs. generally support landscaping, lighting, cleaning of Development sidewalks, trash pickup, and developing and improving The Action Plan is intended to serve as a dynamic 5 Continue to promote and enhance natural resources. 3 Update policies and procedures on an annual basis parks and neighborhoods in downtown areas of the city. document, reviewed on a regular basis by City Council 6 Focus on lifecycle management and Total Cost of Ensure all staff have access to them, and that they create maximum flexibility for staff in the field to do • Real Estate Transfer. A transfer tax on real estate may and Department staff to plan work tasks and support Ownership (TCO) principles. their work in a timely manner. be imposed by state, county, or municipal authorities decision-making in order to carry out the Master Plan. At a minimum, the Action Plan should be a part of regular for the privilege of transferring real property within 4 Develop a stronger and more organized volunteer monthly Board meetings. Typically, a status update/ 1.7.8 PROGRAMS AND SERVICES the jurisdiction. The government is effectively taxing the system that builds advocacy and support for the City progress report is reviewed. Additionally, a quarterly or transfer of a legal deed, certificate, or title from a seller 1 Implement consistent program management of Memphis parks system. semi-annual update should be provided to City Council. to a buyer. The amount of the tax is based on the principles for all programs to ensure equitable This intentional review process allows the Department 5 Promote financial sustainability through facility property value and the property classification. service delivery, quality delivery, and long-term to document accomplishments, notate adjustments, and management practices. ORGANIZATIONAL ALIGNMENT financial sustainability. add Action Items as necessary. 6 Establish partnership policies that outline Beyond programming, infrastructure, and funding 2 Implement a comprehensive program evaluation process. KEY RECOMMENDATIONS responsibilities, measurable outcomes, and recommendations, it is necessary to provide a support 3 Align program offerings with community needs demonstrate equity and fairness. system that will facilitate the Master Plan’s implementation. A further explanation of each recommendation and the and priorities. A functional organizational structure should be created associated requirements (including specific tactics and 7 Integrate and create (as necessary) policies and that ensures intra- and inter-Departmental operations group(s) responsible) can be found in Chapter 7. 4 Enhance marketing and promotion practices. procedures to assist with park land planning. can effectively and efficiently deliver recreation program services and provide needed public recreation amenities 1.7.7 PARKS AND FACILITIES 1.7.9 FINANCIAL AND BUDGETARY and facilities. The proposed organizational structure DEVELOPMENT includes additional staffing positions that will be 1 Ensure the growth of the parks and trails system instrumental in creating the park system vision outlined by keeps pace with the needs of the community, but does 1 Develop a consistent approach to financing the Memphis residents while also facilitating this Master Plan’s not outpace the financial or organizational resources of system. implementation. New recommended positions include: the City of Memphis. 2 Incorporate different funding strategies to finance • Facility Manager • Volunteer Coordinator2 2 Ensure the development of recreation facilities keeps the system. • Development Manager • Parks Operation Administrator pace with the needs of the community, but does not 3 Continue to leverage grants, partnerships, and sweat outpace the financial or organizational resources of the • Marketing Coordinator • Urban Forester equity to improve the park system. City of Memphis.

10 11 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN COMMUNITY PROFILE 2.3 HEALTH OUTCOMES & PHYSICAL ENVIRONMENTAL FACTORS

In addition to demographic characteristics, the Consultant PHYSICAL INACTIVITY 2.1 CITY DEMOGRAPHICS FIGURE 5: DEMOGRAPHIC SUMMARY Team utilized the City Health Dashboard to explore Figure 6 describes the population over the age of 18 A key component of the Master Plan process is 2019 Demographic various health outcomes of Memphis residents. The City reporting no physical activity within each census tract. Memphis Tennessee U.S.A. understanding the demographic climate. This analysis Comparison Health Dashboard collects data from the 500 largest With 31.6% of Memphis residents reporting inactivity, the will help provide a thorough understanding of the Annual Growth Rate US cities in order to provide a comparison. This section City is above the national average (24%), which would 0.05% 0.95% 0.85% on (2010-2019) compares Memphis to the 500-city average in several key demographic makeup of residents within the City, various � indicate worse health outcomes. health/environmental outcomes, as well as national, Projected Annual health outcomes as well as physical environmental factors Growth Rate 0.10% 1.01%2019 Demographic 0.90% FREQUENT PHYSICAL DISTRESS Popula Memphisincluding: Tennessee obesity, frequent U.S.A. mental distress, frequent regional, and local recreational trends. (2019-2034) Comparison physical distress, physical inactivity levels, and access to Frequent physical distress is measured by the number Annual Growth Rate Annual Growth Rate 0.09% 0.93% 0.80% 0.05%healthy foods. 0.95% 0.85% of adults in a given area reporting physical health as ‘not (2010-2019) on (2010-2019) 2.2 DEMOGRAPHIC ANALYSIS � Average Household good’ for more than 14-days in a month’s span. Above 2.51 2.49Projected 2.59 Annual the national average, 16.5% of Memphis residents report Households Size The City’s population has not increased dramatically over Growth Rate 0.10%2.3.1 CITY 1.01% OF MEMPHIS 0.90% STATISTICS Ages 0-17 24% 22%Popula 22% frequent physical distress, which is slightly higher than

the last 10 years; however, the population has diversified on (2019-2034) � Ages 18-34 26% 22% 23% the national average of the 500 largest US cities (12.3%). Annual Growth Rate The following statistics are attributed to the City of and is projected to continue diversifying over the next 15 Ages 35-54 24% 26% 25% 0.09% 0.93% 0.80% years. There is an aging trend projected to occur over the Ages 55-74 20% 24%(2010-2019) 23% Memphis as they relate to important health outcomes. Distribu next 15 years and approximately 31% of the population is SegmentAge Ages 75+ 5% 7% Average7% Household 2.51OBESITY 2.49 2.59 projected to be over 55 years old, up from 21% in 2010; White Alone 26.9% 75.7%Households Size 69.6% on Black Alone 64.6% 16.9% 12.9% Widespread obesity in the US is a well-known contributor however, the population under 18 years old represents 24% � Ages 0-17 24% 22% 22% American Indian 0.2% 0.4%on 1.0% to poor health outcomes. According to the City Health and is projected decrease slightly to 22% over the next 15 � Ages 18-34 26% 22% 23% Asian 1.8% 1.9%Ages 5.8% 35-54 24%Dashboard, 26% 40.5% of Memphis 25% residents years, down from 26% in 2010. Additionally, income levels Pacific Islander 0.0% 0.1% 0.2% reported being obese, which is are below both the state and national averages for per Ages 55-74 20% 24% 23%

Some other Race 4.7% 2.8%Distribu 7.0% Race Distribu Race Age SegmentAge significantly higher than the national capita income and median household income, respectively. Two or More Races 1.8% 2.3%Ages 3.5% 75+ 5% 7% 7% White Alone 26.9%average (29.2%). 75.7% 69.6% no no Hispanic / La�no � Figure 5 presents the most recent demographic on on 7.6% 5.8%Black 18.6% Alone 64.6% 16.9% 12.9% �

� Origin (any race) information available at the time of this report’s American Indian 0.2%FREQUENT 0.4% MENTAL DISTRESS 1.0% development. The City’s demographic information is also Asian 1.8%Frequent mental 1.9% distress 5.8% is measured

Popula All Others 92.4% 94.2% 81.4%

compared to the state and U.S. demographic trends to Hispanic/La Pacific Islander 0.0%by the number 0.1% of adults 0.2% in a given area provide context. A full demographic comparisonSignificantly canhigher be Some other Race 4.7%reporting mental 2.8% health 7.0%as ‘not good’ cs Per Capita Distribu Race than the State average � $24,033 $28,896 $33,028 found in the Appendix. The highlighted cells represent key Income Two or More Races 1.8%for more than 2.3% 14-days in 3.5% the last 30-days. takeaways from the comparison between Memphis and Slightly higher than the national average, no no Hispanic / La�no � Income Income

Significantly lower Median Household on 7.6% 5.8% 18.6% the State population. $40,845 $52,311 $60,548 15.9% of Memphis residents claimed � Origin (any race)

than the State average Characteris Income frequent mental distress as opposed to the national average of 12.8%. 2.2.1 DEMOGRAPHIC IMPLICATIONS Popula All Others 92.4% 94.2% 81.4% Hispanic/La Significantly higher While it is important not to generalize recreation needs cs Per Capita than the State average � $24,033 $28,896 $33,028 and priorities based solely on demographics, the analysis Income suggests some potential implications for the City:

Significantly lower Income Median Household FIRST, with the population expecting minimal growth $40,845 $52,311 $60,548 than the State average Characteris Income for the foreseeable future, this suggests an opportunity for the City to focus on the upkeep and improvement of existing amenities and facilities before considering THIRD, the City’s below average income characteristics building new facility spaces. suggest limited disposable income. The Division of Parks and Neighborhoods will need to be mindful of this when FIGURE 6: PHYSICAL INACTIVITY BY SECOND, the City’s slight aging trend may indicate the pricing programs, services, and events. CENSUS TRACT need to provide more programs and services for the 55+ population. Such a focus could also potentially attract FINALLY, the City should ensure growing minority races baby boomers to retire in Memphis. However, it will also are being reflected in marketing and communications be important to continue providing services for the 74% of outreach, program participation figures, and response residents who are currently under 55 years old. rates when surveying the community.

12 13 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 2.3.2 PARK ACCESS Figures 10 and 11 show various recreation activities listed in descending order, from highest to lowest MPI score for general sports and fitness activities. High index numbers (100+) are significant because they demonstrate that there is a The City Health Dashboard assesses park access by greater potential that residents will actively participate in offerings provided by the City of Memphis. measuring how much of the population is within a 10-minute walk of greenspace. Forty-five percent (45.2%) of Memphis 2.4.1 GENERAL SPORTS MARKET POTENTIAL residents are within a 10-minute walk of a greenspace. This is well below the national average population for park The general sports MPI chart reveals that overall Memphis’ residents are most likely to participate when it comes to access (60.6%) among the 500 largest cities in the US. Basketball (118 MPI), Football (112 MPI), and Baseball (103 MPI) when compared to the national average. ParkServe utilizes this data to indicate areas with park need (Figure 8). This statistic translates into approximately 352,000 residents that are outside of the 10-minute General Sports MPI FIGURE 10: MEMPHIS walk benchmark. FIGURE 7: PARK ACCESS GENERAL SPORTS MARKET Memphis Na�onal Average POTENTIAL

140 2.3.3 WALKABILITY 118 120 112 103 The City Health Dashboard 101 100 provides a walkability measure 90 90 87 for the City of Memphis based 80 71 on Walk Score, which is tied to pedestrian access to amenities. 60 Overall, Memphis’ walkability MPI Scores MPI score of 36.8 is below the 40 national average for the 500 20 largest US cities (44.5). 0 As depicted by the darker shading Basketball Football Baseball So�ball Tennis Soccer Volleyball Golf in Figure 9, the outer edges of the City, especially the southwest FIGURE 8: PARKSERVE ANALYSIS border, have the least access to neighborhood amenities 2.4.2 FITNESS MARKET POTENTIAL that lead to better health outcomes. When analyzing Figure 11, Aerobics (98 MPI), Zumba (98 MPI), and Pilates (89 MPI) scored the highest amongst all 2.4 LOCAL RECREATION TRENDS fitness activities. While Swimming (75 MPI), Walking for Exercise (80 MPI), and Weight Lifting (80 MPI) rounded out the least participated in activities, all significantly below the national average. To support the summary and opportunity reflected in the demographics, it is important to examine the Fitness MPI FIGURE 11: MEMPHIS community’s market potential index. The following FITNESS MARKET charts show sport and leisure market potential data Memphis Na�onal Average POTENTIAL for the Memphis population, as provided by ESRI. A 120 Market Potential Index (MPI) measures the probable demand for a product or service within Memphis. The 98 98 100 89 88 MPI shows the likelihood that an adult resident of the 84 80 80 City will participate in certain activities when compared 80 75 to the U.S. national average. The national average is 100; therefore, numbers below 100 would represent lower 60 than average participation rates, and numbers above 100 40 would represent higher than average participation rates. Scores MPI The service area is compared to the national average 20 in four (4) categories – general sports, fitness, outdoor activity, and commercial recreation. A full trend 0 analysis can be found in the Demographic and Aerobics Zumba Pilates Jogging/ Yoga Weight Walking for Swimming Trends Technical Report. FIGURE 9: MEMPHIS WALKABILITY RATINGS Running Li�ing Exercise

14 15 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN LESTER COMMUNITY CENTER

HARAHAN BRIDGE (MARTYRS PARK)

3.2.1 EXISTING CORE PROGRAM AREAS WHERE ARE WE TODAY? CORE PROGRAM AREAS In consultation with Memphis, Adap�ve 3.1 BASELINE UNDERSTANDING Adults 55+ the following Core Program Areas A�er School/Camps In order to understand the context in which this planning • The program area has been provided for a long period are currently offered at various Aqua�cs effort is taking place, the Consultant Team performed of time (over 4-5 years) and/or is expected Arts & Culture several different analyses to create a comprehensive the community. facilities throughout the community. picture. The specific processes included: Athle�cs • The program area consumes a relatively large portion These core programs are not offered • Analyzing current program and service delivery (5% or more) of the agency’s overall budget. Health, Fitness & Wellness

• Reviewing current system infrastructure • The program area is offered 3-4 seasons per year. at every location. Special Events

• Benchmarking (or comparing) the Memphis parks • The program area has wide demographic appeal. FIGURE 12: MEMPHIS CORE system to comparable communities PROGRAM AREAS • There is a tiered level of skill development available • Reviewing the financial context within the program area’s offerings. ADAPTIVE ADULTS 55+ Adaptive recreation programs are for individuals Adult 55+ programming promotes health, wellness, • There is full-time staff responsible for the program area. 3.2 PROGRAMS AND SERVICES experiencing disabilities to provide culturally fun, stimulation, access, education and connections • There are facilities designed specifically to support appropriate, educational, and quality of life to vital services with the objective of bringing To help achieve the mission, it is important to identify the program area. opportunities. about measurable improvements in physical, social, Core Program Areas based on current and future needs spiritual, emotional, mental, and economic well-being • The agency controls a significant percentage • Intellectual Stimulation/Cognitive Skill Development to create a sense of focus around specific program (20% or more) of the local market. within the senior community. areas of greatest importance to the community. Public • Arts • Exercise/Fitness recreation is challenged by the premise of being all • Athletics things to all people. The philosophy of the Core Program • Educational Area is to help staff, policy makers, and the public focus • Summer Camp • Arts on what is most important. Program areas are considered • Special Events Core if they meet most of the following categories: • Music

16 17 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 3.2.2 PROGRAM STRATEGY ANALYSIS

AGE SEGMENT ANALYSIS Figure 13 depicts each Core Program Area’s most prominent age segments served. Recognizing that many Core Program Areas serve multiple age segments, Primary (noted with a ‘P’) and Secondary (noted with an ‘S’) markets are identified. AFTER SCHOOL & CAMPS ATHLETICS After School and Camp programs provide increased Athletic Programs shall encourage sportsmanship and Preschool (5 and Elementary (6- All Ages development, socialization skills, and educational equal opportunity for all players to participate in youth Core Program Area Teens (13-17) Adult (18+) Senior (55+) opportunities that engage students in a safe environment and adult recreational pleasure. League play is defined Under) 12) Programs for study, homework assistance, individual tutoring, and by location of play and day of the week. Divisions include Athle�cs S P P P S P educational game play that helps increase literacy and men, women and coed that could be played as an Open Adults 55+ S S S S P S academic performance through measurable, league (members may not be in the same association) Aqua�cs S P P P S S evidence-based – and most importantly – fun and Recreational league (players play for recreation and A�er School/Camps S P P S S S Adap�ve S S S P P S programming. In addition, some programs are exercise). Arts & Culture S P P P P P designed to increase neighborhood park activation. • Youth Basketball • Adult Flag Football Health, Fitness, & Wellness S P P P P P • Traditional Summer Camp Special Events S P S S P S • STAR- (Sports Tutoring • Youth Softball • Adult Kickball Arts Reading)- • Specialty Summer Camp FIGURE 13: AGE SEGMENT ANALYSIS After School program • Youth Flag Football • Adult Basketball • Teen Camp PROGRAM LIFECYCLE • Youth Soccer • Adult Volleyball • Play Your Park A Program Lifecycle Analysis involves reviewing each program offered by Memphis to determine the stage of growth or • Spring Break Camp • Field Trips • Junior Golf • Adult Golf decline for each. This provides a way of informing strategic decisions about the overall mix of programs managed by the • Fall Break Camp agency to ensure that an appropriate number of programs are “fresh” and that relatively few programs, if any, need to be • Meals & Nutrition • Adult Softball • Sports Clinics discontinued. This analysis is based on staff members’ knowledge of their program areas. Percentages were obtained by • Adult Baseball • Golf Tournaments comparing the number of programs in each individual stage with the total number of programs listed by staff members AQUATICS (Figure 14). Aquatic Programs provide opportunities for all ages to participate in swim activities such as swim lessons, leisure HEALTH, FITNESS, & WELLNESS Health, Fitness, & Wellness programs provide positive pool time, and water aerobics. Actual Program Recommended impact for the community by providing opportunities to Lifecycle Stage Description • Free Swim Time Distribution Distribution • Water Fitness improve physical, mental, spiritual, and overall well-being • Youth Swim Lessons for all ages. • World’s Largest Introduction New program; modest participation 8% • Adult Swim Lessons Swim Lesson • Yoga • Line Dancing Take-Off Rapid participation growth 19% 92% 50-60% total • Swim Camp • Lifeguard Training • Zumba • Badminton Growth Moderate, but consistent population growth 66% Mature Slow participation growth 8% 8% 40% total • Tai Chi • Pickleball Saturation Minimal to no participation growth; extreme competition 0% ART & CULTURE 0% 0-10% total • Karate • Racquetball Decline Decline participation 0% Arts & Culture programs benefit artistic development • Aerobics through various mediums such as arts, crafts, painting, FIGURE 14: PROGRAM LIFECYCLE DISTRIBUTION ceramics, theater, dance and poetry, encouraging “First Stage” programming (combining Introduction, Take-Off, and Growth) equals 92% of the total programs. It is useful to have a higher connection, inclusion, and accessibility. SPECIAL EVENTS percentage in the Introduction and Take-Off stage to ensure innovation in programming. Eventually, these programs will move through other stages of the lifecycle. • Arts & Crafts Special Events promote community pride and social • Gardening cohesion by expanding awareness of various traditions, Mature programs are healthy to maintain, usually these programs are your organization staples and what the community knows the • Dance • Special Events cultural perspectives and societal issues. Department for. Finding your program niche is important when working toward increasing loyal customers.

• Martin Luther King • Cinco De Mayo Rapid movement of programs through the lifecycle stage could indicate that program content is changed too frequently, the quality does Days of Service not meet expectations of participants, or there is not as much of a demand for the program. Stage length (time period) will be dictated • STAR Chef Competition by participation trends. • Oratorical Competition As programs enter into Decline stage, staff member should closely review and evaluate for repositioning or elimination. Programs can be • Easter Egg Extravaganza modified or replaced with a new option based on community needs and trends.

Staff should complete a Program Lifecycle Analysis on an annual basis to ensure that the percentage distribution closely aligns with desired performance. While evaluating lifecycles, staff should also review participant growth, customer retention, and percentage of new program that are aligned with community trends.

18 19 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN PROGRAM CLASSIFICATION Conducting a classification of services exercise informs Memphis uses three classifications: Essential Services, As Memphis continues to evolve to Given the broad range of cost recovery goals how each program serves the overall organization mission, Important Services, and Value-Added Services. Programs better meet the community’s needs, (i.e., 0-50% for Essential Services or 50-100% for the goals and objectives of each core program area, and are placed into these classifications depending on Important Services), it would be helpful to further how the program should be funded with regard to tax alignment with organization mission, public perception there could be an added benefit distribute programs internally within sub-ranges of dollars and/or user fees and charges. How a program is of the program, legal mandates, financial sustainability, cost recovery. This will allow for programs to fall classified can help to determine the most appropriate personal benefit, competition in the marketplace, and to managing the services if they within an overall service classification tier while still management, funding, and marketing strategies. access by participants. all were classified according to the demonstrating a difference in expected/desired cost recovery goals based on a greater understanding of the Program classifications are based on the degree to which Figure 15 on the next page describes each of the three Cost Recovery Model for Sustainable program’s goals. the program provides a public benefit versus a private program classifications. benefit. Public benefit can be described as everyone Services. (Figure 16) receiving the same level of benefit with equal access, whereas private benefit can be described as the user receiving exclusive benefit.

FIGURE 15: PROGRAM CLASSIFICATION CATEGORIES FIGURE 16: COST RECOVERY MODEL FOR SUSTAINABLE SERVICES

MEMPHIS MAY PROVIDE; WITH ADDITIONAL RESOURCES, IT ADDS VALUE VALUE Individual Benefit: exclusive benefit TO COMMUNITY, IT SUPPORTS CORE & IMPORTANT SERVICES, IT IS SUPPORTED ADDED received by individuals and not the BY COMMUNITY, IT GENERATES INCOME, HAS AN INDIVIDUAL BENEFIT, CAN BE 100+% general public; individual pays at least SERVICES 80% of the cost of service SUPPORTED BY USER FEES, IT ENHANCES COMMUNITY, AND REQUIRES LITTLE

TO NO SUBSIDY. Considerable Individual Benefit: nearly all benefit received by individuals, benefit to 70-100% community in a narrow sense

MEMPHIS SHOULD PROVIDE; IF IT EXPANDS & ENHANCES CORE SERVICES, Balanced Community & Individual Benefit: benefits accrued to both individual and general public interests, IMPORTANT IS BROADLY SUPPORTED & USED, HAS CONDITIONAL PUBLIC SUPPORT, THERE 50-70% but to a significant individual advantage SERVICES IS A ECONOMIC / SOCIAL / ENVIRONMENTAL OUTCOME TO THE COMMUNITY, HAS COMMUNITY IMPORTANCE, AND NEEDS MODERATE SUBSIDY. Considerable Community Benefit: Recreation services benefits 20-50% accrued to both the general public and individual interests, but to a significant community advantage.

Community Benefit: Recreation services to be accessible and of benefit to all, MEMPHIS MUST PROVIDE; IF IT PROTECTS ASSETS & INFRASTRUCTURE, supported wholly or significantly by tax dollars. ESSENTIAL IS EXPECTED AND SUPPORTED, IS A SOUND INVESTMENT OF PUBLIC FUNDS, 0+% SERVICES IS A BROAD PUBLIC BENEFIT, THERE IS A NEGATIVE IMPACT IF NOT PROVIDED, IS PART OF THE MISSION, AND NEEDS HIGH TO COMPLETE SUBSIDY. Cost Recovery Model for Sustainable Services

20 21 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN ssen�al Imortant aluedded With assistance from staff, a classification of programs and services was conducted for all of the recreation programs offered� bymula Memphis�onogni (Figure� 17).ve Currently,evelopment 21% of total thle programs�cs are considered Essential,rts 33% are considered Important and 46%ummer are Value-Added. amp riday-ance enior lympics

eal and utri�on duca�onal FIGURE 17: CORExerciseitness PROGRAM AREA CLASSIFICATIONS ummer amp eal and utri�on rts wim essons ocial ield rips ssen�al Imortant aluedded ifeguard raining R dult wim essons �mulaouth�onogni asetball�ve evelopment thlepring�cs rea amp rtsater itness ummerouth amp aseball riday-anceall rea amp eniororlds lympics argest wim esson ealouth and occerutri�on ducalay�onal our ar xerciseitnessports linics ummerouth amp olleyball ealree and wim utri ime�on rtsolf ournaments wimouth essons lag ootball ocialdult asetball ieldrts rips ra�s ifeguard raining R dult wim essons dult o�ball ance HICKORY HILL AQUATIC CENTER outh asetball pringdult rea icball amp aterardening itness outh aseball alldult rea olleyball amp orldsai hi argest wim esson 3.3 EXISTING PARK SYSTEM outh occer laydult our lagar ootball portserobics linics outh olleyball reedult wim aseball ime olfine ournaments ancing 3.3.1 PARK SITES

outh lag ootball dult asetball rts ra�s The Consultant Team conducted condition assessments POOR Park/amenities are in poor condition and dultdult o� eisureball imeance oga for a segment of the Memphis park system, a total of clearly show ongoing maintenance problems that dult icball ays of ervice ardeningumba 20 Memphis parks. The list of parks to be assessed was may result in suspended use for repair/replacement. provided by the Division of Parks and Neighborhoods and Maintenance issues with these park amenities are the arate Core roram rea dult olleyball ai hi the overall park and each park component/amenity were result of poor design, age, and/or heavy use and are dult lag ootball erobicsratorical ompe��on assessed on a scale of Excellent, Good, Fair or Poor by generally compounded over time due to deferred Adap�ve dult aseball ineaster ancing gg xtravagana Consultant staff. An electronic data collection tool was maintenance as a result of budget and/or resource utilized and shared with City staff. City Staff used the tool limitations. dults 55+ inco e ayo to evaluate an additional 99 parks within the system. In all, Of the 119 parks that were evaluated, five were rated as A�er School & Camps R hef ompe��on 119 park records were created and were assessed using the dult eisure ime oga “undeveloped.” With regard to the numbers shown in Aqua�cs ays of ervice umba following scale: the other park amenities, they represent a single park rts ulture aratearvest es�val that contained that particular amenity or component, Core roram rea Athle�cs ratoricalars ot ompe tars�� alenton EXCELLENT Park/amenities are in excellent condition not the total number of that amenity or component with little or no maintenance problems noted. Park/ present at the park. For example, there were 17 Adap�veealth, itness ellness asterompe gg ��xtravaganaon amenities do not feature any major design issues that playgrounds rated as Excellent. dultspecial 55+ vents incoovies e ayo in the ar contribute to diminished use or maintenance. That means there were 17 parks that had a playground(s) A�er School & Camps R hef ompe��on that the inspector rated the playground(s) at that park GOOD Park/amenities are in good condition and Aqua�cs as Excellent. If there were multiple playgrounds at a feature only minor maintenance problems. Generally, park, the inspector was asked to rate the condition of rts ulture arvest es�val most maintenance issues with the park/amenities appear all of them together as a whole, not individually. In any Athle�cs ars ot tars alent to be the result of age and/or heavy use. Park/amenities individual park, there could be two playgrounds that may only feature minor design issues that contribute to ealth, itness ellness ompe��on the inspector rated as Excellent, one that was poor and diminished use or maintenance (i.e., drainage, structural, therefore the inspector rated the three playgrounds pecial vents ovies in the ar utilities, etc.). together as Good (Figures 18 and 19). PRICING FAIR Park/amenities are in fair condition and indicate Pricing strategies have the potential to stabilize usage patterns and help with cost recovery for high quality amenities on-going maintenance problems. Generally, most and services. Currently, only Aquatics and Adult Athletics programs have fees. Pricing strategies include; age segment, maintenance issues appear to be the result of age or heavy family/household status, residency, weekday/weekend, prime/non-prime, group discounts, by location, by market use. Some maintenance issues may be compounded over competition, by cost recovery goals, and by customer’s ability to pay. time due to being deferred because of budget and/or resource limitations.

22 23 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN PLAYGROUNDS verall ar Condi�on layrounds 3.3.2 OVERALL PARK CONDITIONS Almost 40% of the playgrounds were rated as either Fair or Rating Number Percentage Rating Number Percentage xcellent 1 11% xcellent 17 1% Poor by the inspectors while only 19% were rated excellent. The data in Figure 20, and the preceding section, suggests more focus and resources into improving the quality of parks ood 58 % ood % Poor quality of playground surfacing is a large reason for air 25 21% air 17 1% in the system is warranted. This would relate not only to improving the design of the parks, but also the maintenance of this. Poor surfacing can also be a safety issue, which makes oor 18 15% oor 17 1% the parks. Please note, 4% of the parks rated by inspectors were rated “undeveloped” so the total in that column is 96%. addressing this more of a priority. ndeveloped 5 % otal Rated 0 otal Rated 11 NATIONAL INSPECTOR RATING AVERAGE RATINGS BASKETBALL COURTS Basetball Courts SoccerMul�urose ields The overall quality of basketball courts was relatively good Rating Number Percentage Rating Number Percentage Excellent 29% 11% as 61% were rated either Excellent or Good with only 8% xcellent 5 1% xcellent 1 % Good 53% 49% ood 17 7% ood 8% Fair 14% 21% poor. Given the popularity of the sport in Memphis it is air 11 1% air 8% important to maintain these facilities at a high level. oor 8% oor 5 21% Poor 3% 15% otal Rated otal Rated 2 SOCCER/MULTI-PURPOSE FIELDS FIGURE 20: OVERALL PARK CONDITION RATINGS out Baseball Baseball Only 4% were rated Excellent while 59% were rated Fair Rating Number Percentage Rating Number Percentage 3.3.3 FACILITIES or Poor. Given the popularity of soccer and the growing xcellent 0 0% xcellent 1 17% ood 0% ood 1 17% popularity of lacrosse and other rectangular field sports, it A facilities analysis was completed by the Consultant Team for 14 recreation facilities (Figure 21). The Consultant Team air 15 50% air 1 17% is important to provide safe, quality facilities. At the time of oor 20% oor 50% performed a general non-destructive evaluation of HVAC systems, electrical systems, fire alarm systems, and plumbing the assessment, there are fields with renovation plans and otal Rated 0 otal Rated systems. The evaluation resulted in the following general facility findings. some fields have been renovated in the previous year. irls So�ball dult So�ball BASEBALL AND SOFTBALL FIELDS Rating Number Percentage Rating Number Percentage xcellent 0 0% xcellent 0 0% FACILITIES ASSESSED In general, across all types of fields about 60% of these ood 0 0% ood 5 5% Audubon Golf Course L.E. Brown Poolhouse air 1 50% air 2 18% fields were rated as Fair or Poor. Only one park was rated Cunningham Community Center Leftwich Tennis Center as Excellent out of the 49 parks with these fields. Due to oor 1 50% oor % otal Rated 2 otal Rated 11 Douglass Community Center the existing conditions, user/participant demand must be Gaston Community Center North Frayser Community Center calculated and assessed. If it is found that there is excess FIGURE 18: SELECT CONDITION RATINGS capacity of field space, consideration should be given Greenlaw Community Center Orange Mound Community & Senior Center to re-purposing field space to other uses so that scarce Hickory Hill Community Center Raleigh Community Center maintenance resources can be allocated to more frequent Jesse Turner Tennis Center & Clubhouse Raymond Skinner Center and better maintenance of the remaining sports fields. ennis arin ots FIGURE 21: RECREATION FACILITIES ASSESSED Rating Number Percentage Rating Number Percentage SPORTS FIELD MAINTENANCE xcellent 25% xcellent 5 8% At the time of the Master Plan’s development, the mowing ood 25% ood 7 57% STRENGTHS Additionally, the following recommendations are made air 25% air 1 22% schedule for sports fields (soccer/multi-purpose fields, for energy efficiency upgrades: oor 25% oor 1% » Foundations are generally sound baseball/softball fields) is every 17 days. Most agencies otal Rated 12 otal Rated 5 » Need for tuck-pointing is minimal • Relamp facilities with LED lamps mow at least weekly and top-quality tournament fields are » Windows and doors are mostly in good shape routinely mowed twice weekly. Having dedicated sport field Restroooms avilions • Replace any steel or single pane windows with » Most flooring is in good condition Rating Number Percentage Rating Number Percentage thermally-broken Low-E insulated windows maintenance crew(s) can assist with overall field conditions xcellent 1 % xcellent 1 2% CHALLENGES and quality. In addition, these crews should be given ood 1% ood 22 2% • Repair or replace any damaged or missing air 2 % air 12 2% the proper agronomic and other training on the proper » Most exteriors are brick and block structures weatherstripping maintenance practices (e.g., mowing, fertilization, weed oor 2 77% oor 5 % otal Rated 1 otal Rated 5 and need pressure washing control, aeration, top dressing, etc.) and be provided with • Facilities built prior to 1980 most likely need the proper equipment and supplies to maintain sports alin rails icnic nits » Roofing systems are approaching end of additional thermal insulation, particularly the roofs fields at a high level. Rating Number Percentage Rating Number Percentage their lifecycle xcellent 7 1% xcellent 17% • Use light colored roofing such as TPO when replacing ood 27 50% ood 2 5% » Caulking around windows and doors is required PARKING LOTS modified Bitumen roofs air 1 2% air 11 21% for older structures Many of the lots inspected lacked the proper pavement oor 11% oor 17% » Roof leaks have led to mismatched and markings and signage that meet ADA regulations. otal Rated 5 otal Rated 5 • Use auto shut-off plumbing fixtures damaged acoustical ceiling tiles (ACT) Therefore, a plan to add striping, signage and where » Approximately 20% of facilities need interior painting • Use occupancy sensor lighting and HVAC controls needed curb ramps to bring parking lots into compliance FIGURE 19: SELECT CONDITION RATINGS CONTINUED with ADA regulations is needed. » Approximately 40% of centers do not have fire alarms

» Approximately 50,000ft2 of parking lots need to be resurfaced

24 25 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN SUPPLEMENTAL ASSESSMENT It should be noted that all figures presented in Figure 22, Information used in the analysis was obtained directly 3.4.2 BENCHMARK COMPARISON from each participating benchmark agency, when The General Services Division completed a facility do not include: available, and supplemental data was collected from assessment process that included Division of Parks • Cosmetic deficiencies, facility ingress/egress, agency/municipality websites and information available PARK ACRES and Neighborhood facilities. The Facility Condition aesthetics, painting, etc. through the National Recreation and Park Association’s Figure 24 provides a general overview of each system’s Assessment identified 585 deficiencies across 54 • Design and procurement costs which could elevate (NRPA) Park Metrics Database. park acreage. These acres include total owned/managed facilities for an estimated cost of $11,308,194. individual line item estimates by an additional 7%. and developed acres. The National average is 10.1 Due to differences in how each system collects, acres per 1,000 residents; however, park systems with maintains, and reports data, variances may exist. These a population above 500,000 average 10.7 acres per Systems & Subsystems riority riority riority riority riority otal s�mated Costs variations can impact the per capita and percentage 1,000 residents. The Department has about 95% of the ubstructure 0,85.00 0.00 0.00 0.00 71,11.00 101,58.00 allocations, and the overall comparison must be viewed acres developed with about 7.9 acres available for 1,000 A10 Foundations $27,810.00 $0.00 $0.00 $0.00 $71,113.00 $98,923.00 with this in mind. residents. The majority of the benchmark agencies are A40 Slabs-on-grade $2,675.00 $0.00 $0.00 $0.00 $0.00 $2,675.00 near or above the national averages. The benchmark data collection for all systems was hell 812,757.00 7,112.00 ,0.00 180.00 50,72.00 ,785.00 complete as of May 2020, and it is possible that urisdic�on otal cres ned eveloed B20 Exterior Vertical Enclosures $105,634.00 $61,977.00 $6,064.00 $180.00 $50,272.00 $224,127.00 ency eveloed cres cres information has changed since the original collection date. oula�on or Manaed cres B20 Exterior Horizontal Enclosures $707,123.00 $5,135.00 $0.00 $0.00 $400.00 $712,658.00 incinna�, 02,05 5,07 1,878 7% 1.8 ort orth, 85,008 12,2 11,5 % 1.8 The information sought was a combination of operating ndianapolis, 50,082 11,25 ,7 5% 11.8 nteriors 1,00.00 15,00.00 571,78.00 ,812.00 8,57.00 771,75.00 rlington, 8,112 ,71 2 10% 11.8 metrics that factor budgets, staffing levels, and C10 Interior Construction $11,735.00 $4,268.00 $23,823.00 $9,812.00 $25,210.00 $74,848.00 t. ouis, 15,000 ,250 ,000 2% 10. inventories. In some instances, the information was not emphis, 50,18 5,5 ,81 8% 8.7 C20 Interior Finishes $124,355.00 $11,032.00 $548,155.00 $0.00 $13,363.00 $696,905.00 al�more, 02,5 ,87 2,811 58% 8.1 tracked or not available. Or in some cases, inherent 10.1 acres per 1,000 residents na�onal average R ta�s�cs ervices 1,87,51.00 1,81,57.00 1,,852.00 8,5.00 1,050,8.00 7,0,00.00 differences exist such as the Indianapolis park system 10.7 acres per 1,000 residents 500,000+ popula�on urisdic�ons D20 Plumbing $6,065.00 $0.00 $800.00 $0.00 $0.00 $6,865.00 (Indy Parks) does not maintain its system internally; FIGURE 24: PARK ACRES BENCHMARK D30 Heating, Ventilation, and Air instead, the Department of Public Works (DPW) $1,392,235.00 $155,500.00 $1,019,709.00 $843,353.00 $1,041,882.00 $4,452,679.00 Conditioning (HVAC) provides maintenance for Indy Parks. TRAIL MILES D40 Fire Protection $1,909.00 $0.00 $0.00 $0.00 $0.00 $1,909.00 Figure 23 lists each benchmark agency in the study Figure 25 reveals the service levels for trails within D50 Electrical $187,421.00 $1,664,457.00 $413,343.00 $0.00 $9,011.00 $2,274,232.00 D60 Communications $310,321.00 $0.00 $0.00 $0.00 $0.00 $310,321.00 (arranged in alphabetical order) and reveals key each system. By comparing total trail mileage to the characteristics of each jurisdiction. Peer agencies population of the service area, the level of service uipment and urnishings 0.00 1,500.00 0.00 0.00 5,500.00 7,000.00 represent broad geographical coverage, demographic, provided to the community can be determined, which E10 Equipment $0.00 $1,500.00 $0.00 $0.00 $5,500.00 $7,000.00 and organizational characteristics similar to the is expressed as trail miles for every 1,000 residents. The Department. Department has about .09 trail miles per 1,000 residents. pecial onstruc�on and emoli�on 17,787.00 1,080,12.00 81,555.00 2,00.00 ,50.00 1,82,55.00 This level of service for trail mileage falls below a best F10 Special Construction $176,787.00 $1,080,162.00 $481,555.00 $32,400.00 $94,650.00 $1,865,554.00 practice range of 0.25-0.5 trail miles per 1,000 residents; however, trail miles per 1,000 residents is a challenge for urisdic�on itewor 171,1.00 205.00 27,22.00 121,00.00 1,5.00 57,201.00 urisdic�on CR these densely populated communities as many may not ency and Sie old Medal G20 Site Improvements $166,199.00 $205.00 $267,224.00 $121,030.00 $16,543.00 $571,201.00 oula�on ccredited s mi have the opportunity to create pathways along roads. G40 Electrical Site Improvements $5,000.00 $0.00 $0.00 $0.00 $0.00 $5,000.00 rlington, 8,112 es 2018 Therefore, trail miles may be limited to within parks. al�more, 02,5 81 es Given the population density of the agencies in this eneral 1,28.00 0.00 0.00 0.00 5,05.00 ,27.00 incinna�, 02,05 80 es 171 17 study, it is understandable that all agencies are below Z10 General Requirements $1,238.00 $0.00 $0.00 $0.00 $5,059.00 $6,297.00 ort orth, 85,008 55 1 ndianapolis, 50,082 0 es .25 trail miles per 1,000 residents. otal emphis, 50,18 2 172 t. ouis, 15,000 1 FIGURE 22: GS FCA ASSESSMENT BY SYSTEMS AND SUBSYSTEMS FIGURE 23: BENCHMARK AGENCY OVERVIEW urisdic�on otal rail rail ency 3.4 BENCHMARK ANALYSIS oula�on Miles Miles incinna�, 02,05 5 0.21 3.4.1 METHODOLOGY The Department, a recipient of a Gold Medal Award in ndianapolis, 50,082 151 0.1 1972, compared themselves in most instances to either a rlington, 8,112 57 0.1 The Consultant Team worked with the Division of Parks and Neighborhoods (“Department”) to identify operating CAPRA accreditation or Gold Medal award winner. The t. ouis, 15,000 0 0.1 metrics to benchmark against comparable parks and recreation agencies. The analysis allowed the Consultant Team to Department is near the median for population served. al�more, 02,5 55 0.0 evaluate how the Department is positioned among peer agencies, as it applies to efficiency and effective practices. The emphis, 50,18 57 0.0 benchmark assessment is organized into specific categories based on peer agency responses to targeted questions that lend an encompassing view of each system’s operating metrics as compared to the Department. FIGURE 25: TRAIL MILES BENCHMARK

26 27 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN STAFFING This section compares staffing levels for each system by comparing full-time equivalent (FTE) to total population. Total FTE per 10,000 residents is a key performance metric that assesses how well each system is equipped, in terms of human resources, to serve its jurisdiction. The national average of FTE per 10,000 residents is 8.3. This number is cut in half for agencies that serve a population over 500,000. Two benchmark agencies, Arlington and Cincinnati, are above the general national average. Two additional agencies, Fort Worth and Baltimore, are above the national average for agencies serving more than 500,000 people. St. Louis is not mentioned because they serve a population less than 500,000.

The Department has around 3.7 FTE per 10,000 residents totaling 239 FTE. Even though the Department is near the bottom of FTE per 10,000 residents, they have been able to utilize their 239 FTE (with 144 dedicated to recreation TIGER LANE AT LIBERTY PARK facilities and programs) to manage 30 facilities and 2,812,025 participations with a lower than average staff count.

NON-TAX REVENUE otal umber of otal edicated urisdic�on By comparing each agency’s annual non-tax revenue to the population, the annual revenue generated on a per resident ency ullime otal to Recrea�on oula�on basis can be determined. The Department is not mandated by a cost recovery philosophy; however, it was determined mloyees acili�es and that identifying non-tax revenue metrics was important to the overall benchmark analysis process. There is a wide range rlington, 8,112 17 707 17.8 of non-tax revenue generated per capita and cost recovery rates demonstrated by the benchmark agencies. It should be incinna�, 02,05 175 20 12 8. noted that non-tax revenue generated by the Department and Indianapolis is deposited back into their general fund. t. ouis, 15,000 115 185 80 5. ort orth, 85,008 7 8 2 5. otal ency era�n ona Revenue urisdic�on ona Revenue al�more, 02,5 1 1 12 5.2 ency Budet enerated Cost Recovery oula�on enerated er Caita emphis, 50,18 208 2 1 .7 Most Recent Most Recent ndianapolis, 50,082 128 28 2.8 rlington, 8,112 ,18,581 12,8,18 1.1 7% incinna�, 02,05 20,728,5 5,10,18 1.88 25% 8. per 10,000 residents na�onal average R ta�s�cs emphis, 50,18 ,77,05 ,01,51 . 18% .1 per 10,000 residents 500,000+ popula�on urisdic�ons ndianapolis, 50,082 27,078,02 ,,50 .7 1% ort orth, 85,008 1,0,87 7,887,0 8.81 1% FIGURE 26: STAFFING BENCHMARK t. ouis, 15,000 12,787,08 1,0, 5.18 1% al�more, 02,5 5,2,580 ,78,22 7.27 8% 20.11 per capita na�onal average .0 per capita 500,000+ popula�on urisdic�ons R ta�s�cs 27.% of opera�ng expenditures recovered from non-tax revenues na�onal average OPERATING EXPENSE PER CAPITA 20.8% of opera�ng expenditures recovered from non-tax revenues 500,000+ popula�on urisdic�ons Dividing the annual operational budget by each service area’s population allows for a comparison of how much each FIGURE 28: NON-TAX REVENUE BENCHMARK agency is spending on a per resident basis. The Department ranks third from the top among peer agencies for total OPERATING EXPENSES operating expense (~$35M), but ranks just below the median expense per resident ($53.76); however, the Department The Department was also interested in understanding total operating expenses. The national average is around 55% does have an operating expenditure per capita above the national average for agencies serving over 500,000 residents. for personnel services (including benefits) and 38% for operating expenses. Agencies serving populations greater than 500,000 have an average of approximately 60% on personnel services and 36% on operating expenses. The Department’s total agency operating budget demonstrates a lower personnel expenditure than the national average. otal ency era�n urisdic�on era�n enditure Additionally, the Department’s operating expense percentage is the highest amongst peer agencies. The following table ency Budet oula�on er Caita Most Recent is arranged in descending order in terms of total agency operating budget (from the most recent fiscal year). al�more, 02,5 5,2,580 8.02 rlington, 8,112 ,18,581 8. otal ency ersonnel Services Caital incinna�, 02,05 20,728,5 8.50 urisdic�on era�n ency era�n Budet Includin ense not in ter ort orth, 85,008 1,0,87 8.1 oula�on enses Most Recent Benefits CI emphis, 50,18 ,77,05 5.7 ort orth, 85,008 1,0,87 5.% .7% 0.0% 8.7% t. ouis, 15,000 12,787,08 0.0 al�more, 02,5 5,2,580 57.0% 1.0% 2.0% 0.0% ndianapolis, 50,082 27,078,02 28.50 emphis, 50,18 ,77,05 .% 5.% 0.0% 0.0% 78. per capita na�onal average R ta�s�cs 5.11 per capita 500,000+ popula�on urisdic�ons ndianapolis, 50,082 27,078,02 .2% 5.0% 1.8% 0.0% incinna�, 02,05 20,728,5 7.% 1.0% .1% 0.0% t. ouis, 15,000 12,787,08 5.5% 8.7% 7.8% 0.0% FIGURE 27: OPERATING EXPENSE PER CAPITA BENCHMARK a�onal average 5.% 7.8% 5.2% 2.1% R ta�s�cs 500,000+ popula�on 5.5% 5.8% .% 1.% rlington, informa�on not provided.

FIGURE 29: OPERATING EXPENSES BENCHMARK

28 29 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN BUDGET SOURCES

The benchmark study also evaluated funding sources that add to the total operating budget. All agencies use general otal umber of umber of fund tax support. Of the included seven agencies, five of them report earned/generated revenue from programs, events, urisdic�on Contacts Indoor ua�c utdoor ua�c ency Recrea�on and rentals as a funding source. Dedicated levies and sponsorships were the two most uncommon budget sources oula�on ar�cia�ons for Centers Centersools Community Centers utilized. Cincinnati, Baltimore, and St. Louis have other dedicated taxes that support the operating budget. Indianapolis Most Recent ndianapolis, 50,082 2,8,05 2 15 and Cincinnati have grant support while Baltimore, Arlington, and Fort Worth have other sources of income not emphis, 50,18 2,812,025 0 1 identified through the chart. Of note, Memphis is currently 100% general fund supported; however, Figure 30 shows the al�more, 02,5 87,2 22 percentage breakdown if the Department was able to keep the revenue generated from program fees and facility rentals. ort orth, 85,008 51,05 1 - 2 rlington, 8,112 52,782 7 1 t. ouis, 15,000 110,000 otal ency ter urisdic�on eneral und a arnedenerated edicated incinna�, 02,05 28,0 5 - - ency era�n Budet edicated rants Sonsorsis ter oula�on Suort Revenue evies ature centers Most Recent aes FIGURE 32: RECREATION PROGRAMS AND FACILITIES BENCHMARK ndianapolis, 50,082 27,078,02 .1% 0.0% 0.0% 0.0% .% 0.0% 0.0% t. ouis, 15,000 12,787,08 8.% 0.0% 0.0% 2.8% 0.0% 0.0% 0.0% ort orth, 85,008 1,0,87 8.0% 12.% 0.0% 0.0% 0.0% 0.0% 2.0% al�more, 02,5 5,2,580 7.5% .5% 0.0% 5.% 0.0% 0.0% 1.7% rlington, 8,112 ,18,581 52.0% 1.0% 0.0% 0.0% 0.0% 0.0% 7.0% emphis, 50,18 ,77,05 .% 5.% 0.0% 0.0% 0.0% 0.0% 0.0% COMMUNICATIONS incinna�, 02,05 20,728,5 1.8% 2.% 0.0% 0.5% .1% 0.0% 0.0% The ability to market programs, services, and facilities a�onal average 5.% 2.5% 7.% 2.7% 2.2% 1.0% 2.% is crucial to any public parks and recreation agency. R ta�s�cs 500,000+ popula�on 5.5% 21.7% 10.2% 2.7% 2.5% 0.8% 2.% When examining benchmark agency marketing methods, umber of igure is sorted by ercent eneral und ax upported urisdic�on of otal ency Social Media the most commonly reported “successful” methods oula�on oula�on FIGURE 30: BUDGET SOURCES BENCHMARK include social media (Facebook, Twitter, Instagram, and olloers NextDoor), local news coverage, in-facility flyers/signage, incinna�, 02,05 ,100 2.7% CAPITAL BUDGET rlington, 8,112 ,027 2.% and e-newsletters/email. An important metric many park The Department has an approximate $3.8 million capital improvement budget, of which 100% is paid for by bonds. ndianapolis, 50,082 5,521 5.7% agencies are beginning to collect and track is number of The National average (for the next five years of capital improvement spending) is $4 million and for populations of al�more, 02,5 2,01 .% social media followers. The Department has the lowest over 500,000 is $62.2 million. The chart below is organized in descending order based on the most recent fiscal year’s ort orth, 85,008 ,55 0.5% reported number of social media followers. Cincinnati reported capital budget. Other reported capital budget sources include: emphis, 50,18 1,72 0.% has the highest number, and consequently, the highest t. ouis, 15,000 - 0.0% • Baltimore utilizes state matching and direct grants and other project-specific funding source(s) number of social media followers as a percent of the total jurisdiction population. It should be noted, however, Fort FIGURE 33: COMMUNICATIONS BENCHMARK • Fort Worth utilizes revenues from Gas Lease Capital Projects, PayGo total, special donations, Worth does report reaching an additional 222,763 people and specially funded projects through efforts via NextDoor. • Cincinnati utilizes private grants or donations to the park agency

urisdic�on Caital Budet eneral und a edicated eveloment ency Bonds ter 3.4.3 SUMMARY OF BENCHMARK FINDINGS oula�on Most Recent Suorted unds ees

al�more, 02,5 2,8,08 12.0% .% 0.0% 2.% .5% As a whole, the peer agencies selected are high performing may be required to broaden the reach and support the t. ouis, 15,000 2,200,000 0.0% 0.0% 0.0% 100.0% 0.0% Department receives from the community as denoted by ort orth, 85,008 1,11,0 0.0% 5.2% 0.0% 8.5% 2.% park systems which allowed the Department to benchmark ndianapolis, 50,082 ,2,52 100.0% 0.0% 0.0% 0.0% 0.0% itself against best practice agencies across the country. the Department’s small reported number of social media emphis, 50,18 ,800,000 0.0% 0.0% 0.0% 100.0% 0.0% Most of the reported performance indicators portrayed the followers. Another area to continue to strengthen/ rlington, 8,112 ,270, 0.0% 0.0% 15.0% 58.1% 2.% Department near the median or bottom comparatively. analyze within the Department is financial performance. incinna�, 02,05 2,01,000 82.% 0.0% 0.0% 0.0% 17.% This relates to identifying the true cost of service for a�onal average for capital expenditures budgeted over the next five years ,007,250 all agencies It should be noted, however, that the benchmark comparison R ta�s�cs a�onal average for capital expenditures budgeted over the next five years 2,21,000 500,000+ programs, facilities, and operations because this will validated the strong performance by the Department with popula�on urisdic�ons help identify if a cost recovery model should be adopted arguably less staff as compared to the number of recreation to continue strengthen the services provided to the FIGURE 31: CAPITAL BUDGET BENCHMARK facilities managed by the system and the number of annual community defined by the Department’s mission, vision, recreation participations. and values. It may also identify where operational costs RECREATION PROGRAMS AND FACILITIES The benchmark study also uncovered some limitations and could be reduced or improved. Additionally, a dedicated opportunities for the Department. The level of service for The benchmark analysis also took into account number of recreation/community centers, indoor aquatics centers, funding source(s) other than bonds should be explored and outdoor aquatic centers/pools. These facilities and programs require many staff members and higher operation park acreage and trail miles are areas where the Department as it relates to capital improvement planning. expenses. The Department has the second highest reported participation totals. These individuals are served via 30 fall below the benchmark median and/or national best recreation centers (second highest), four indoor aquatic centers (second highest), and 13 outdoor pools (third highest). practices. Additionally, a stronger social media strategy

30 31 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 3.5 FINANCIAL ASSESSMENT PARK FACILITIES Park Facilities include the Pink Palace, Lichterman Nature Center, Mallory-Neely House, and Magevny House. These This section includes the Department’s financial The following is a list of the cost and activity data facilities are supported through a public/private partnership with Memphis Museums, Inc. (MMI). The Park Facilities assessment. As a key element of the Master Plan, the reviewed and included in the analysis: expenditure increased by 2% during the analysis period (Figure 36). Consultant Team reviewed available information to • Parks Budget for 2015 through 2020 assess the Department’s financial situation. • Parks Budget CIP Projects for 2011 through 2020 Parks Facilities FY FY FY FY FY FY The revenues, expenditures, and capital funds were A A A A F A analyzed to identify trends and assess the Department’s • Memphis Benchmark Report of 2020 T R ,177 ,177 0 0 0 financial strength. The cost recovery for facilities, The non-tax revenues and expenditures for fiscal programs, and services at major functional levels has years ending 2015 through Budget 2020 are shown E been analyzed to assess the cost of service recovery. in Figure 34. The total cost recovery for the 4-year 5,517 2,7 7,1 8, 5,0 855,70 analysis period is between 17% and 27%. Department 50,787 80,10 5,2 7,21 7,5 1,217 T E 1,2,0 1,78,557 1,2,5 1,,255 1,2,025 1,8,21 expenditures increased by 35% over the analysis period 3.5.1 FINANCIAL ANALYSIS Revenues vernder enditures 1,1,8 1,780,80 1,2,18 1,,255 1,2,025 1,8,21 whereas revenues increased by 20%. Data suggests the Cost Recovery from onas Revenues 0% 0% 0% 0% 0% 0% Department has not focused on revenue generation in OVERVIEW the park system. FIGURE 36: PARK FACILITIES REVENUES, EXPENDITURES, AND COST RECOVERY The Consultant Team reviewed the detailed cost and activity information prepared by Department staff. SPORTS CENTERS Sports Centers revenues and expenditures for fiscal years ending 2015 through 2020 are shown in Figure 37. Sports Centers facilitate events at the Liberty Bowl Memorial Stadium and Fairgrounds. The Sports Centers expenditures increased by 5% and the revenues increased by 53% over analysis period. FY FY FY FY FY FY A A A A F A ,,8 7,7,878 5,202,1 7,51,72 8,10,1 7,,127 Sports Centers FY FY FY FY FY FY 28,1, 28,1,05 2,77,107 ,82,1 ,81,0 8,11,1 A A A A F A Revenues vernder enditures 21,7,25 20,5,727 2,5, 27,5,81 28,75,55 0,2,18 T R 2,01,257 ,71,070 1,70,5 ,70,11 ,77,802 ,85,052 Cost Recovery from onas Revenues 2% 27% 17% 21% 22% 20% E FIGURE 34: REVENUES, EXPENDITURES, AND COST RECOVERY ,7,81 ,51,7 2,18,5 ,72,2 ,,107 ,8,15 57,8 5, 0,215 2,85 0,70 0 FUNCTIONAL PROGRAMS T E ,5,28 ,810,817 2,58,50 ,705,111 ,70,87 ,8,15 Revenues vernder enditures 1,2,027 ,77 1,255,005 ,8 72,5 181,08 PARK OPERATIONS Cost Recovery from onas Revenues 5% 1% 58% % 12% 5% The Park Operations program revenues and expenditures for fiscal years ending 2015 through 2020 are shown in Figure 35. Park Operations provide maintenance and operating support for Memphis parks and green spaces, including FIGURE 37: SPORTS CENTERS REVENUES, EXPENDITURES, AND COST RECOVERY playgrounds, walking trails, and sports fields. Revenues are primarily rental fees from the use of park facilities. RECREATION The Recreation revenues and expenditures for fiscal years ending 2015 through 2020 are shown in Figure 38. The FY FY FY FY FY FY Park Operations Recreation expenditures increased by 16% and the revenues decrease by 68% over analysis period. A A A A F A T R 0 0 0 0 11,000 11,000 Recreation FY FY FY FY FY FY A A A A F A E T R 1,01, 887,15 15,2 55, 2,118 ,500 0 0 ,520 ,020,5 2,1,052 ,21,11 1,10 12,00 51 2,755,8 2,8,1 2,17,80 E T E 1,10 12,00 ,571 5,77,528 5,51,8 5,0,120 ,7,258 7,05,281 7,550,00 ,575,55 7,8,87 7,870,5 Revenues vernder enditures 1,10 12,00 ,571 5,77,528 5,220,8 5,778,120 2,81,508 2,7,57 ,70,157 2,5, ,0,22 ,170,7 Cost Recovery from onas Revenues 0% 0% 0% 0% 2% 2% ,0 21,78 10,58 12,000 12,000 FIGURE 35: PARK OPERATIONS REVENUES, EXPENDITURES, AND COST RECOVERY T E ,55,85 10,057,21 11,270,115 ,521, 10,0,100 11,05,12 Revenues vernder enditures 8,525,225 ,170,00 10,85,71 8,25,721 10,57,82 10,718,12 Cost Recovery from onas Revenues 11% % % % % %

FIGURE 38: RECREATION REVENUES, EXPENDITURES, AND COST RECOVERY

32 33 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN SPORTS SERVICES CAPITAL IMPROVEMENT PLANNING The Sports Services expenditures for fiscal years ending 2015 through 2020 are shown in Figure 39. Sports Services The Department has averaged just shy of $5 million for annual capital improvement planning since 2011 (Figure 42). provide aquatic and other sport recreational activities. These activity types should generally recover 40% to 60% of the Forecasting ahead, that historical trend equates to approximately $23.5 million in available CIP monies between 2020 operations and maintenance costs. and 2024 (Figure 43).

Sport Services FY FY FY FY FY FY Capital Carry orard otal Fiscal Year Improvement A A A A F A BUGETE APITAL EPENITURE TYPES Budget T R 0 0 0 1,57 70,75 0,27 2011 $3,513,000 2012 $1,112,000 2013 $6,174,000 E 2014 $5,885,000 T B E 0 0 00 28,2 778, 0,517 2015 $5,450,000 2016 $4,810,000 0 0 2,20 ,08 28,70 7,00 2017 $3,995,000 FIGURE 43: CIP FORECAST T E 0 0 2,0 1,2,20 1,707,10 1,1,52 2018 $5,280,000 FIGURE 42: Revenues vernder enditures 0 0 2,0 1,7,7 1,,5 1,85,22 2019 $9,400,000 HISTORICAL CIP 2020 $3,800,000 Cost Recovery from onas Revenues 0% % % %

FIGURE 39: SPORTS SERVICES REVENUES, EXPENDITURES, AND COST RECOVERY 3.5.2 SYSTEM ECONOMIC IMPACT

GOLF In addition to the Financial Analysis presented in The total annual economic output resulting from Golf revenues and expenditures for fiscal years ending 2015 through 2020 are shown in Figure 40. Golf cost recovery has the previous section, the Consultant Team estimated Department spending is estimated to be $70.7 million been between 57% and 66% over the study period. Golf expenditures increased by 10% and the revenues increased by the economic contribution of the City of Memphis (Figure 44). Every dollar spent on Memphis parks 26% over the analysis period. Revenue generation did improve over the 4-year period. investments in the Division of Parks and Neighborhoods. translates to $1.81, supporting an additional $0.81 in Please see the Economic Contribution Analysis of City economic activity in the region. Because some of this of Memphis Investments into Parks and Neighborhoods activity is subject to taxation, Department expenditures Golf FY FY FY FY FY FY Technical Report for the full analysis. also support an estimated $2 million in state and local A A A A F A tax revenue every year. The Department also supports T R 2,72,882 ,02,22 ,070,02 ,05,711 2,82,50 ,5,278 FINDINGS 577 jobs throughout the region, with an average annual The assessment measured the effects of Department income of $62,600, totaling $36.1 million in wages E spending in the local economy, defined as the annually. 2,7,2 2,508,0 2,01,075 2,55,100 2,27,01 2,70,508 geographical boundaries of Shelby County. The region 2,102,52 1,70,28 2,08,5 1,1,1 2,18, 2,17,087 Beyond contributing to quality of life for those who 0,0 ,22 75,2 0,10 5,07 7,51 was chosen because it includes the City of Memphis, enjoy Memphis parks, Department spending supports ,187 7,88 1,28 0, ,82 55,71 but excludes neighboring counties in Mississippi and employment, wages, tax revenues, and additional sales T E ,820,71 ,1,812 5,121,1 ,8,81 ,2,155 5,2,02 , to focus on what is most relevant to City in industries such as real estate, Revenues vernder enditures 2,078,08 1,552,520 2,050,72 1,850,70 2,15,25 1,8,2 decision makers. It is important to note that this analysis office supply retailers, an Cost Recovery from onas Revenues 57% % 0% 2% 57% 5% does not attempt to measure the total economic effects insurance agencies. generated by Memphis parks, only the effect of the $70.7M FIGURE 40: GOLF REVENUES, EXPENDITURES, AND COST RECOVERY Department investments Department spending. Any attempt to estimate the total IN TOTAL ECONOMIC in the City’s municipal parks economic effects of the parks system would need to ACTIVITY examine visitor spending and its effects on the region broadly supports the local Parks & Recreation FY FY FY FY FY and the value of social and environmental benefits of economy, benefiting even those who do not enjoy Staffing A A A A F parks and greenspaces; however, this would require STAFFING additional data and is not the subject of this analysis. Memphis parks and park 577 JOBS Department staffing, shown in Figure 41, dministra�on 1 1 11 11 11 programming directly. demonstrates consistency over the 4-year lanning evelopment ar pera�ons 51 51 period. However, staffing did receive an Department expenditures support significant economic ar acili�es 28 28 28 28 28 activity in the region. The full economic output spurred $36.1M increase when park operations was formally emphis otanical arden CITY OF MEMPHIS IN WAGES included within the Division. Recrea�on 0 0 by Department spending is the total of all subsequent ports ervices - olf 1 17 17 17 17 spending it supports—this includes the direct spending INVESTMENTS ports ervices 0 0 0 5 5 on parks by the City, but also secondary spending IN PARKS AND for the goods and services that businesses require to TOTAL S 158 15 157 208 208 NEIGHBORHOODS $2M continue doing business, as well as induced spending by IN STATE & LOCAL TAX *Park Operations formerly included in General Services ANNUALLY SUPPORT... FIGURE 41: DEPARTMENT STAFFING LEVELS employees on groceries, rent, etc. REVENUE

34 35 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN CITY OF MEMPHIS DIVISION OF PARKS AND Department spending on operations is categorized NEIGHBORHOODS INVESTMENTS into 59 industries (Figure 46). The largest operational expenses were for local government employee payroll The Department’s operational expenditures and capital (47%); utilities such as electricity, natural gas, sewage, improvement program (CIP) expenditures from fiscal year and waste management (14%); supplemental budget 2017 (FY17) through FY19 were collected from the City FIGURE 47: CAPITAL IMPROVEMENT for the zoo and museums (8%); and arts and sports of Memphis (Figure 45). Actual operational expenditures PROGRAM (CIP) SPENDING BREAKDOWN promotion (4%). It should be noted, however, the were fed into the economic model, while budgeted CIP Department expanded park operations staffing through expenditures were used. Actual expenditures represent realignment and also added the Play Your Park Service the final tally of all spending at the end of each fiscal year, Center during the 2017-2019 analysis period. whereas budgets are estimates based on the Department’s resources and priorities. Using budgeted rather than actual Department spending on CIP is categorized into 7 expenditures introduces some uncertainty into the data, but industries (Figure 47), with the majority dedicated was necessary due to data availability and time constraints. to construction repairs and maintenance (48%). The Across these three-year periods, Department spending remainder was allocated to new construction (27%), BENEFITS PROVIDED BY OPERATIONAL DISCUSSION averaged $39 million per year, with $33 million spent on architecture and engineering services (14%), and SPENDING This analysis demonstrates how investments in the operations and $6 million on capital improvements. furniture, fixtures, and equipment sales (12%). The Department spent an average of $33 million on City of Memphis Division of Parks and Neighborhoods operations annually during FY17–FY19. These annual support additional economic activity across multiple expenditures support an estimated $59.3 million of total sectors of the region. Department spending supports economic output each year in the region. This means for over 500 jobs in the region through direct and every dollar spent on Department operations each year, an secondary effects. The magnitude of the effect of parks additional $0.79 of economic effect is supported. These investments on the economic output, jobs, incomes, annual expenditures support 509 full- and part-time jobs and tax revenue of the region makes plain that parks each year. About 68% of these jobs are a direct result of investments do not exist in a closed system, but instead Department spending, and the remaining 163 positions are ripple across the County and benefit even those who FIGURE 45: DEPARTMENT SPENDING in industries that are indirectly supported by Department do not make use of the facilities and programs that the BY FISCAL YEAR (2017-2019) operations spending. The average wage income supported Department has to offer. by the Department’s operational spending is $62,300, Comparing City investments in the Department which totals $31.7 million in annual wages for local workers. to similar investments by other local governments Operational expenditures also support $1.7 million in state across Tennessee reveals some useful comparisons and local tax revenue each year (not including direct sales for understanding baseline spending (Figure 48). tax) and $5.6 million in federal tax revenue. According to the U.S. Census Bureau, local governments in Tennessee allocated 1.7% of total expenditures to BENEFITS PROVIDED BY CAPITAL parks and recreation in 2017, whereas Memphis allocated IMPROVEMENT PROGRAM SPENDING 3.8% of its budget to the Department. However, it is The Department spent an average of $6 million on capital also apparent that Memphis spends less money per improvements annually during FY17–FY19. The annual capita than the rest of the state; $32 less per resident capital expenditures fund a variety of activities, including: in 2017. Population density and higher demand for building and repairing tennis courts; constructing a new access to natural areas may explain some of these greenway; a community center expansion; rebuilding a observed differences in spending between Memphis park; and major maintenance at the Memphis Zoo. These and other local governments, as may differences in expenditures also support an estimated $11.5 million of total local accounting practices (e.g., whether spending is economic output in the region each year. This means for categorized as parks and recreation). every dollar spent on capital improvements each year, an additional $0.89 is generated. These annual expenditures AMOUNT ($) SPENT PER FIGURE 46: OPERATIONAL support 68 full- and part-time jobs. Over half of these jobs DESCRIPTION RESIDENT ON PARKS AND SPENDING SUMMARY are a direct result of capital improvement expenditures, and RECREATION All Tennessee Local the remaining 31 jobs are in industries indirectly supported $84.42 by Department spending. The average income associated Governments with all CIP-supported jobs is $64,600, which totals $4.4 Capital $17.29 million in annual wages for local workers. CIP expenditures Operational $67.13 also support $300 thousand in state and local tax revenue City of Memphis $52.30 each year (not including direct sales tax) and over $1.1 Capital $6.13 million in federal tax revenue. AND PARKS 48: FIGURE BY SPENDING RECREATION (2017) GOVERNMENTS TENNESSEE Operational $46.17

36 37 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN DENVER PARK WOLF RIVER GREENWAY DENVER PARK ART

WHERE ARE WE Metodc�vity Reac The management approach is reactionary, lacks capacity, 4.3 PUBLIC MEETING SERIES #1 nterviews and ocus roups 0 and adequate resources most needed for improvement. ublic ee�ng eries 1 05 Funding was a significant part of each discussion. The Three public meetings were held during October GOING TOMORROW? ublic ee�ng eries 2 1,07 Department is grossly underfunded and the City has many 2019. The intent of the public meetings was to provide irected outh ngagement competing priorities. Alternatives should be explored a process overview followed by an opportunity for ta�s�cally-alid ommunity urvey 2 4.1 INTRODUCTION and existing financial resources should be allocated to residents to offer feedback on the current system nline ommunity urvey 580 alleviate the issues helping to correct the course of the ser-ntercept urvey 288 and provide opinions on its future development. park system. People articulated that a lack of value has After performing baseline analyses, a comprehensive otal Approximately 150 participants, representing a variety understanding of the existing system was identified. developed within the system and this is a contributing of interests, were present at the Consultant Team- FIGURE 49: PUBLIC ENGAGEMENT REACH The system is characterized by: factor to the current outcomes experienced by the led public forums. Feedback was captured through residents. Memphians desire to see monetary investment interactive electronic polling, dot exercises, comment • An extensive network of parks and facilities; Based on feedback from these stakeholder interviews, in what residents’ value. cards, and interactions with City staff, elected officials, the following key themes regarding Memphis Parks and • Aging infrastructure and deferred maintenance; Facilities and recreation are strong services for the and the Consultant Team. Neighborhoods emerged. It should be noted, however, Department. The many recreation centers around the • A strong economic impact attributed to parks and this summary reflects responses provided by interview The dates and locations of the three public City provide safe and structured places for youth along recreation investments; participants and comments do not necessarily constitute meetings were: with family activities and meeting places. Senior centers consultant recommendations. • A challenging financial performance as it compares to provide valuable services to the aging population within • October 15th, Douglass Community Center national best practices and local municipalities; and Memphis. There is a desire for additional programming • October 16th, Orange Mound Community Center • A variety of recreation program opportunities afforded and improvement to recreation centers and senior 4.2.1 SYNTHESIS AND KEY THEMES • October 17th, Hickory Hill Community Center to Memphis residents centers to ensure continued use and accommodate new The Memphis Parks & Neighborhoods system needs programming. These facilities need additional security An additional 21 meetings were held and facilitated by Taking this information into account, the Consultant better maintenance. There are great facilities within measures and technology enhancements that will benefit Department staff over the 2019-2020 winter months. Team implemented a public engagement plan to solicit MPN but there are challenges associated with field both visitors and employees. A total of 405 residents participated in the public feedback, input, and identify the needs of Memphis drainage issues, field maintenance, fleet and equipment, meeting series. residents as they relate to public parks and recreation A diversified approach to making the system more perceptions of safety within parks, signage, night lighting, programs, services, facilities, and opportunities. Then, sustainable is needed. Many stakeholders expressed a and illegal activity. Stakeholders acknowledge that a look at gaps in programs and park provision was desire for a stronger relationship with the Department focusing on developing standards and accountability for 4.3.1 ELECTRONIC POLLING completed. In all, a total of 3,080 individuals were to ensure recreation programs, services, and facilities the existing park conditions and apply to new ideas are engaged throughout the process (Figure 49). are not directly (or indirectly) competing against one During all Public Meeting Series #1 gatherings, brought forward for the Department’s consideration. another. Rather they are pooling resources to have consultants and/or Department staff handed out the greatest impact where it is needed the most. The Stronger security, activating parks, and staff presence “clickers” to attendees after a brief presentation. community should be included in the solutions moving 4.2 INTERVIEWS AND FOCUS is necessary. Many stakeholders articulated that parks These clickers allowed for a different sort of interaction forward. Stakeholders indicate a formalized partnership GROUPS are not being properly and consistently used for the by soliciting feedback on a variety of topics via process is needed to develop performance measures and intended purposes. Specific examples expressed by multiple choice and multiple answer questions. Using Over a three-day period in September 2019, the incorporate accountability to achieve the outcomes. The Memphians include vandalism, loitering for long periods clickers is a convenient way to ensure respondents Consultant Team conducted interviews in person and community needs are greater than what can be met by of time (deterring family and youth use), and parks that remain anonymous through the process. Using clickers by phone that included more than 30 individuals. any single organization; thus, partnerships are necessary are vacant without resident use. Additionally, staffing also has the added benefit of being a little more fun These interviews included key City staff, School District and should be formalized. the parks and providing programs and activities was and engaging than traditional public input methods. representatives, elected officials, non-profit groups, and a suggested as an approach that Memphians believe will collection of residents and user groups. help with all issues.

38 39 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN The location of the exercise for each of the collage boards Nature play and music play may be activities integrated can be identified by the color of dots on the boards. The into existing and proposed traditional play features; • information gathered was scored and synthesized. The on a playground or along greenway trails where future number of participants per session was not a determining interest is noted. Overall, the top three priorities were factor in prioritization assessment. consistent across the five youth engagement sessions, both individually and collectively. Each group was measured relative to itself, however a

collective summary is provided after the individual session findings. The following sections provide a summary of the 4.5 STATISTICALLY-VALID findings through qualitative and quantitative analysis. COMMUNITY SURVEY After concluding stakeholder interviews, focus groups, 4.4.1 SESSION DESCRIPTION and the initial public forum series, a statistically-valid Exercise 1 was evaluated qualitatively by compiling a list community survey was developed and implemented. from images sketched by each student of the outdoor ETC Institute administered a parks and recreation needs activities they enjoy. If an image was not legible, it was assessment in the Winter of 2020. This assessment was not assessed. Most images were very clear to interpret, administered as part of the City’s efforts to develop area and some were labeled with descriptions of the drawing parks, facilities, and programs. Information compiled from content. The content gives additional insight to the the assessment provided key data to set a clear vision 4.4 YOUTH ENGAGEMENT quantitative results of Exercise 2. for the future. This survey helped determine priorities for Exercise 2 was evaluated quantitatively by scoring each image parks, recreation facilities, program offerings, and special The public input process for the Master Plan included category by the number of dots placed on or near an image. event offerings in the community. KEY FINDINGS six youth engagement sessions from various parts of Each dot was worth one point. The categories scored were: the Memphis metropolitan area to help assess current The electronic polling exercise revealed several interesting Animals, Music Play, Nature Play, Puzzles and Obstacles, Forts 4.5.1 METHODOLOGY and future program elements that are top priorities for points, including: and Tree/Playhouses, Gardening, Bike Tracks, Greenways and youth activities. The session locations of the groups that ETC Institute mailed a survey packet to a random sample Riverwalks, Outdoor Education, Sports, Playgrounds, and • Top three existing facilities/amenities desired: participated in the youth engagement were: of households in the City of Memphis. Each survey Water Play. Some images resulted in scoring sub-categories packet contained a cover letter, a copy of the survey, and » Walking trails 1 Riverview Community Center such as types of sports and water play. a postage-paid return envelope. Residents who received » Community centers 2 Douglass Community Center the survey were given the option of returning the survey » Playgrounds 3 Glenview Community Center 4.4.2 FINDINGS by mail or completing it online at • Top three new facilities/amenities desired: 4 Katie Sexton Community Center The qualitative analysis takes into consideration all groups www.MemphisParksSurvey.org. 5 Hickory Hill Community Center » Free WiFi in the parks and the results from both activities. All group sessions Ten days after the surveys were mailed, ETC Institute The sessions at Riverview, Glenview, and Sexton centers » Outdoor music venues showed one or more of the following in their top three sent emails and placed phone calls to the households were conducted while the participants were attending » Multi-generational community centers ranking categories: that received the survey to encourage participation. day camps at the centers (the week of October 14 was The emails contained a link to the online version of the • Top three participated in programs: fall break for Shelby County Schools). The sessions at WATER PLAY | SPORTS | PLAYGROUNDS survey to make it easy for residents to complete the Douglass and Hickory Hill were conducted coincidental » Festivals/community events Water play and swimming are very desirable activities survey. To prevent people who were not residents of the with Public Forum stakeholder input sessions at those » Fitness classes that ranked first above all other categories which include City from participating, everyone who completed the locations. Adults participating in the public forums were » Adult enrichment above and in-ground splash pads, interactive water survey online was required to enter their home address invited to have children that they brought to participate • Top three programs desired for more offerings: features, and swimming pools for future enjoyment. Sports prior to submitting the survey. ETC Institute then in the sessions. A sixth session was scheduled during ranked second in priorities collectively across the groups. matched the addresses that were entered online with the » Festivals/community events the Orange Mound Community Center Public Forum on Football ranked highest in the sports category, followed addresses that were originally selected for the random » Fitness classes October 16, but no youth were brought to this session by basketball, then soccer. Multi-purpose fields may sample. If the address from a survey completed online » Nature and adventure programs and therefore it was not conducted. accommodate football and soccer together and basketball did not match one of the addresses selected for the • Top three preferred communication methods: Each session was assigned a corresponding color so courts may also be proposed in the future where they are sample, the online survey was not counted. The goal was that materials were able to be synthesized and assessed not already provided. Tennis courts and skate parks were to obtain completed surveys from at least 600 residents. » Email newsletter by location. Information was gathered by conducting ranked low or not at all under sports activities. Traditional The goal was exceeded with a total of 629 residents » Social media two exercises with the youth. The first exercise included play structures in a playground setting were ranked third completing the survey. The overall results for the sample » Text notification discussion time and drawing pictures of which outdoor highest in totals; however, their value was consistently of 629 households have a precision of at least +/-3.9% at • Top three barriers to participating more: activities were most enjoyed. The second exercise noted across all groups in both exercises. the 95% level of confidence. provided an array of images related to parks and » Awareness recreation that the youth created collages from, then » Sense of security/safety prioritized those images using dots. » Location

40 41 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 4.5.3 FACILITY NEEDS AND PRIORITIES

FACILITY NEEDS Respondents were asked to identify if their household had a need for 31 facilities and rate how well their needs for each were currently being met. Based on this analysis, ETC Institute was able to estimate the number of households in the community that had the greatest “unmet” need for various facilities.

The four recreation facilities with the highest percentage of households that have an unmet need were:

1 Fitness centers – 85,808 households (or 29%),

2 Neighborhood community centers – 59,551 households (or 20%),

3 Trails and pathways – 59,321 households (or 20%), and WOLF RIVER GREENWAY 4 Outdoor park games – 58,987 households (or 20%).

The estimated number of households that have unmet needs for each of the 31 facilities that were assessed is shown in Figure 50. 4.5.2 PARKS AND OVERALL RATINGS

OVERALL MODE OF TRAVEL Eleven percent (11%) of participants were “very satisfied” Seventy-one percent (71%) of respondents indicated and 33% were “satisfied” with the overall value received from that they and/or members of their household typically the City of Memphis Division of Parks and Neighborhoods. travel to parks and recreation facilities by driving. Twenty-nine percent (29%) indicated they are “neutral” Fourteen percent (14%) walk, 2% bike, 0.8% use public in regard to the overall value received from the City of transportation, and 0.2% use other methods of travel. Memphis Division of Parks and Neighborhoods and 18% of respondent households were either “dissatisfied” (12%) or USE “very dissatisfied” (6%). The facilities most frequently used by respondents 57% of respondents gave the City’s parks and recreational and/or members of their household, for indoor and/ opportunities an overall rating of “excellent” (10%) and or outdoor recreation, were: Memphis parks/recreation “good/satisfactory” (47%). 25% of assessment participants facilities (65%), churches/houses of worship (38%), gave a “somewhat unsatisfactory” rating to the parks public/private schools (23%), and City parks/facilities and recreational opportunities in the City and 9% gave a outside Memphis (21%). “poor” rating. Based on the sum of respondents’ top two choices, the most used organizations for recreation programs and RATINGS services for the age group of 0-17 years, were: Memphis parks/recreation facilities (34%), public/private schools Over three-quarters (76%) of respondents have visited (15%), and churches/houses of worship (14%). Based a City park in the last 12 months, of those residents that on the sum of respondents’ top two choices, the have visited a City park in the last 12 months, 66% rated most used organizations for recreation programs and the overall condition of the parks as “excellent” (14%) and services for the age group of 18 years and older, were: “good/satisfactory” (52%). Twenty-seven percent (27%) of Memphis parks/recreation facilities (46%), churches/ respondents gave a “somewhat unsatisfactory” rating to houses of worship (21%), YMCA/YWCA (11%), City the overall condition of park(s) visited and 7% rated the parks/facilities outside Memphis (11%), and public overall condition as “poor”. health fitness clubs (11%). The highest levels of satisfaction with various facilities, based upon the combined percentage of “very satisfied” and “satisfied” responses among residents who had an opinion, were: municipal golf courses (60%), walking/ /biking trails (59%), dog parks (57%), and parks (46%). The facilities with the highest rating of “needs much improvement” were; specialty center for disabled (31%), outdoor pools (30%), and indoor pools (26%). FIGURE 50: ESTIMATED NUMBER OF HOUSEHOLDS WITH UNMET NEEDS – FACILITIES

42 43 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN FACILITY IMPORTANCE PRIORITIES FOR FACILITY INVESTMENTS In addition to assessing the needs for each facility, ETC Institute also assessed the importance that residents placed on The Priority Investment Rating (PIR) was developed by ETC Institute to provide organizations with an objective tool for each facility. Based on the sum of respondents’ top four choices, the four most important facilities to residents were: evaluating the priority that should be placed on Parks and Recreation investments.

1 Trails and pathways (33%), The Priority Investment Rating (PIR) equally weighs (1) the importance that residents place on facilities and (2) how many residents have unmet needs for the facility. 2 Fitness centers (23%), Based the Priority Investment Rating (PIR), the following five facilities were rated as high priorities for investment: 3 Neighborhood community centers (18%), and 1 Trails and pathways (PIR=169) 4 Senior centers (17%). 2 Fitness centers (PIR=169) The percentage of residents who selected each facility as one of their top four choices is shown in Figure 51. 3 Neighborhood community center (PIR=126)

4 Senior centers (PIR=117)

5 Open play spaces for practice or other uses (PIR=113)

Figure 52 shows the Priority Investment Rating for each of the 31 facilities that were rated.

FIGURE 51: FACILITIES MOST IMPORTANT TO HOUSEHOLDS

FIGURE 52: PRIORITY INVESTMENT RATINGS – FACILITIES

44 45 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 4.5.4 PROGRAMMING NEEDS AND PRIORITIES PROGRAM IMPORTANCE In addition to assessing the needs for each program, ETC Institute also assessed the importance that residents placed on PROGRAMMING NEEDS each program. Based on the sum of respondents’ top four choices, the four most important programs to residents were: Respondents were also asked to identify if their household had a need for 26 recreational programs and rate how well their needs for each program were currently being met. Based on this analysis, ETC Institute was able to estimate the 1 Adult fitness and wellness programs (22%), number of households in the community that had “unmet” needs for each program. 2 Senior programs (19%),

The four recreation programs with the highest percentage of households that have an unmet need were: 3 Walking/biking groups (16%), and

1 Adult fitness and wellness programs – 102,275 households (or 34%), 4 Youth summer programs (13%).

2 Water fitness groups – 84,332 households (or 28%), The percentage of residents who selected each facility as one of their top four choices is shown in Figure 54. 3 Walking/biking groups – 82,524 households (or 28%), and

4 Family programs – 76,440 households (or 26%).

The estimated number of households that have unmet needs for each of the 26 programs that were assessed is shown in Figure 53.

FIGURE 53: ESTIMATED NUMBER OF HOUSEHOLDS WITH UNMET NEEDS – PROGRAMS FIGURE 54: PROGRAMS MOST IMPORTANT TO HOUSEHOLDS

46 47 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN PRIORITIES FOR PROGRAMMING INVESTMENTS 4.5.5 ADDITIONAL FINDINGS Based on the priority investment rating (PIR), the following 13 programs were rated as “high priorities” for investment: BARRIERS TO USAGE AND PARTICIPATION

1 Adult fitness and wellness programs (PIR=200) 8 Adult continuing education programs (PIR=119) Respondents were asked from a list of 9 potential reasons to identify what prevents them from using parks, facilities, programs, or events in Memphis. The top three reasons were: lack of adequate security (24%), parks and facilities are in 2 Senior programs (PIR=160) 9 Youth swim programs (PIR=119) poor condition (14%), and I/we have no time or interest (9%). 3 Walking/biking groups (PIR=155) 10 Nature/environmental programs (PIR=111) INFORMATION SOURCES 4 Adult swim programs (PIR=131) 11 Adult art, dance, and performing arts (PIR=107) Over half (56%) of survey participants learn about parks, recreation facilities, and programs in Memphis through friends 5 Family programs (PIR=129) 12 Special events/festivals (PIR=101) and neighbors. Twenty-nine percent (29%) learn about parks, recreation facilities, and programs in Memphis through the City website and 28% learn through television and newspaper articles. The top three most preferred ways to learn about 6 Water fitness programs (PIR=125) 13 Before and after school programs (PIR=100) the City of Memphis programs and services, based on the sum of respondents’ top four choices, were: television (42%), 7 Youth summer programs (PIR=124) City of Memphis website (38%), and friends and neighbors (38%). Figure 55 shows the Priority Investment Rating (PIR) for each of the 26 programs that were rated. INVESTMENT PRIORITIES When respondents were asked how they would prioritize the allocation of funds among various categories of funding, categories listed from highest priority to lowest (Figure 56):

1 Improvements/maintenance of existing parks 4 Acquisition and development of pathways and recreation facilities (27%) and greenways (13%)

2 Other (21%) 5 Construction of new sports fields (12%)

3 Development of new facilities (16%) 6 Acquisition of new park land and open space (11%)

FIGURE 56: PRIORITIZATION OF $100

FIGURE 55: PRIORITY INVESTMENT RATINGS – PROGRAMS

48 49 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 4.6.1 FACILITY PRIORITIES

FACILITY NEEDS Survey respondents exhibited a difference of opinion in terms of the most needed recreation facilities in the City of Memphis (Figure 57). However, trails and pathways along with fitness centers were both in the top five most needed facilities.

ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY 1. Trails and Pathways (89%) 1. Trails and Pathways (49%) 2. Open Play Space for Practices or Other Uses (68%) 2. Fitness Centers (40%) 3. Fitness Centers (59%) 3. Neighborhood Community Center (34%) 4. Outdoor Park Games (51%) 4. Open Play Spaces for Practice or Other Uses (31%) 5. Off-Leash Dog Park (47%) 5. Senior Centers (30%) 6. Practice Fields (Rectangular, Multi-Purpose) (45%) 6. Off-Leash Dog Park (25%) 7. Neighborhood Community Center (42%) 7. Outdoor Park Games (23%) 8. Tennis Courts (39%) 8. Computer Labs (23%)

WOLF RIVER GREENWAY 9. Splash Pads (36%) 9. Tennis Courts (22%) 10. Senior Centers (31%) 10. Indoor Adult Basketball Courts (20%)

FIGURE 57: FACILITY NEEDS COMPARISON

QUALITY OF LIFE PERCEPTION The online survey emulated the statistically-valid Seventy-one percent (71%) of responding households survey questions distributed by ETC. This allowed other FACILITY IMPORTANCE think that the quality of parks, facilities, and programs residents another opportunity to provide input even if When asked to select the top four facilities that are most important to respondent’s households (Figure 58), are “very important” to the overall pursuit of a health they did not receive the statistically-valid survey. respondents selected almost the same top five (combining the number of respondents selecting the facility as one and active lifestyle. Seventy- nine percent (79%) of of their first four choices). respondents indicated that they think the quality of Online survey results were similar to statistically- parks, facilities, and programs are important to the valid community survey results in terms of overall overall quality of life in Memphis. prioritization. Often times, there are percentage differences when analyzing the two data sets; however, LEVEL OF SUPPORT FOR INCREASE IN the majority of findings are closely related. Of note, PROGRAM/RECREATION FEES self-selected online surveys are largely completed by existing system users and therefore does not constitute ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY Over half (55%) of respondent households are either a representative sample of the Memphis community. 1. Trails and Pathways (66%) 1. Trails and pathways (33%) “very supportive” (16%) or “somewhat supportive” (39%) The following sections present the major findings for 2. Open Play Spaces for Practices or Other Uses (37%) 2. Fitness Centers (23%) of the increase in program or recreation fees to support facilities and programs. Shaded items represent survey 3. Off-Leash Dog Park (30%) 3. Neighborhood Community Center (18%) offering more recreation programs. response similarities. 4. Fitness Centers (29%) 4. Senior Centers (17%) 4.6 ELECTRONIC SURVEY 5. Neighborhood Community Centers (20%) 5. Off-Leash Dog Park (15%) 6. Outdoor Park Games (20%) 6. Open Play Space for Practice or Other Uses (14%) An online survey (powered by SurveyMonkey) was 7. Practice Fields (18%) 7. Indoor Youth Basketball Courts (11%) deployed to gain a better understanding of the 8. Splash Pads (16%) 8. Computer Labs (11%) characteristics, preferences, and satisfaction levels of 9. Tennis Courts (16%) 9. Tennis Courts (10%) Memphis Parks and Neighborhood users. The survey 10. Senior Centers (15%) 10. Outdoor Park Games (9%) was available from April 30 through May 24, 2020 and

received a total of 580 responses. FIGURE 58: FACILITY IMPORTANCE COMPARISON

50 51 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN FUNDING FACILITIES PROGRAM IMPORTANCE The majority of online survey respondents were in support of a tax increase to help fund the facilities identified as the When asked to rank the most important programs, the survey respondents presented a similar top five most important to their households (Figure 59). Less than 50% of statistically-valid survey respondents were supportive. to the identified most needed programs (Figure 61). Only two program types were included in each It should be noted that tax support is only one mechanism parks and recreation systems generally utilize to finance survey’s top five. facility development and improvements.

ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY Very supportive 28% 14% 1. Special Events/Festivals (44%) 1. Adult Fitness & Wellness Programs (12%) Somewhat supportive 39% 34% 2. Nature/Environmental Programs (34%) 2. Senior Programs (19%) Unsure 17% 23% 3. Walking/Biking Groups (32%) 3. Walking/Biking Groups (16%) Not Supportive 16% 22% 4. Adult Fitness & Wellness Programs (26%) 4. Youth Summer Programs (13%) 5. Outdoor Adventure Programs (26%) 5. Adult Swim Programs (13%) FIGURE 59: LEVEL OF SUPPORT FOR TAXES TO FUND FACILITY PRIORITIES 6. Adult Continuing Education Programs (17%) 6. Family Programs (12%) 7. Family Programs (17%) 7. Youth Swim Programs (12%) 8. Adult Art, Dance, and Performing Arts (15%) 8. Adult Continuing Education Programs (11%) 4.6.2 PROGRAMMING PRIORITIES 9. Youth Summer Programs (13%) 9. Before & After School Programs (11%) 10. Youth Swim Programs (13%) 10. Special Events/Festivals (11%) PROGRAM NEEDS

Respondents in both surveys identified adult fitness & wellness programs and walking/biking groups top needed FIGURE 61: PROGRAM IMPORTANCE COMPARISON programs (Figure 60). Other programs identified are very different relating to age segmentations and user groups they will attract. FUNDING PROGRAMS Respondents were asked if they would support an increase in fees to improve programs and recreation within the Memphis Division of Parks and Neighborhoods (Figure 62). There is a greater support for increased fees from the online survey participants; however, the statistically-valid survey did yield a majority would favor increased fees.

ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY 1. Special Events/Festivals (76%) 1. Adult Fitness & Wellness Programs (45%) 2. Nature/Environment Programs (72%) 2. Walking/Biking Groups (38%) 3. Walking/Biking Groups (67%) 3. Senior Programs (35%) ONLINE COMMUNITY SURVEY STATISTICALLY-VALID SURVEY 4. Adult Fitness & Wellness Programs (62%) 4. Water Fitness Programs (32% Very supportive 30% 16% 5. Outdoor Adventure Programs (59%) 5. Family Programs (30%) Somewhat supportive 44% 39% 6. Adult Continuing Education Programs (52%) 6. Adult Swim Programs (30%) Unsure 16% 21% 7. Family Programs (46%) 7. Nature/Environmental Programs (29%) Not Supportive 10% 15% 8. Water Fitness Programs (44%) 8. Adult Continuing Education Programs (28%)

9. Adult Art, Dance, and Performing Arts (42%) 9. Youth Summer Programs (28%) FIGURE 62: LEVEL OF SUPPORT FOR FEES TO FUND PROGRAM PRIORITIES 10. Senior Programs (35%) 10. Special Events/Festivals (28%)

FIGURE 60: PROGRAM NEEDS COMPARISON

52 53 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN WILSON PARK CANCER SURVIVORS PARK SOUTHSIDE PARK

4.7 USER-INTERCEPT SURVEYING

The Consultant Team implemented a non-traditional • Things that would encourage more participation/usage NEEDS PRIORITIZATION community outreach effort that focused on obtaining » Nothing (22%) input from Memphis residents. A user-intercept survey » Security (12%) was developed and distributed at several public events It is important to note that these LOS standards should » Cleaner parks (9%) 5.1 METHODOLOGY from September-December 2019. The survey’s intent be viewed as a guide. The standards are to be coupled was to capture general resident feedback about parks » Other (57%) – marketing, family events, trails, with conventional wisdom and judgment related to the With a lot of community input and Consultant and recreation service provision. A total of 288 surveys longer hours, etc. particular situation and needs of the community. By Team analyses, there is a lot of information to distill. were collected over the course of the outreach effort. The applying these standards to the population of the City, Consequently, data needs to be synthesized and presented following list provides a snapshot of key themes resulting that allows the Department to justify decision-making gaps or surpluses in park and facility types are revealed. from the data collected. 4.8 PUBLIC MEETING SERIES #2 effectively and efficiently. Needs are prioritized through a • Most often used park or facility feature process utilizing level of service standards, equity mapping, 5.2.2 PER CAPITA “GAPS” » Walking trails (37%) Division of Parks and Neighborhoods staff organized and priority rankings. According to the LOS, there are multiple needs to be and implemented a second round of public engagement » Playgrounds (23%) met in Memphis to properly serve the community today opportunities once community survey data, along » Basketball courts (16%) and in the future. The City does, however, provide a with baseline assessment data (see Chapters 2 and » Sports fields (9%) 5.2 PARK CLASSIFICATIONS AND good overall number of park acres per 1,000 residents 3), was made available. The meetings were more of a (while figuring in other service provider park land). Still, » Other (15%) – pool areas, running tracks, work out data sharing opportunity for residents to learn about LEVEL OF SERVICE STANDARDS given the community’s interests as derived from the facilities, etc. the preliminary findings and themes associated with community needs assessment portion of the planning them. Seven meetings in total were held. Most of these 5.2.1 OVERVIEW • Barriers to participation/usage process, a need exists for additional Neighborhood and meetings were streamed via Facebook Live and reached » Safety, crime, gangs (15%) Community Park acres. over 1,000 people, with 279 engaged throughout the Level of Service (LOS) standards are guidelines that define » Nothing (12%) service areas based on population and support investment For outdoor amenities, Memphis shows a shortage meetings’ duration (Figure 63). » Parking (8%) decisions related to parks, facilities, and amenities. LOS of trails (paved and unpaved), park shelters and pavilions, youth diamond fields (baseball and softball), » Other (65%) – work schedule, weather, lack of time, standards can and will change over time as industry trends adult baseball and softball fields, rectangular multi- park cleanliness, lack of restrooms, etc. ate ar eole Reaced naements change and demographics of a community shift. 18-ep Raleigh 5 128 use fields, outdoor basketball courts (full), tennis • Desired programs to see in the future The Consultant Team evaluated park facility standards 1-ep ert erguson 202 5 using a combination of resources. These resources included courts, playgrounds, sand volleyball courts, dog parks, » Camps such as basketball, soccer, and football (14%) skateparks, and splashpads/interactive water features. In 20-ep ouglass 1 market trends, demographic data, recreation activity » Summer programming (13%) participation rates, community and stakeholder input, terms of indoor space, Memphis has a large shortage of 25-ep udubon 28 5 » Activities (7%) NRPA Park Metric data, and general observations. This indoor recreation and aquatics space. otal » Other (67%) – water park, swimming pools, information allowed standards to be customized to the City The Memphis LOS standards are based upon population family-oriented programming, sport leagues, of Memphis. figures for 2019 and 2024 projections, the latest FIGURE 63: FACEBOOK LIVE STATISTICS enrichment programming, etc. estimates available at the time of analysis (Figure 64).

54 55 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3 GEOGRAPHICAL ANALYSIS THROUGH MAPPING

Service area maps and standards assist management staff and key leadership in assessing where services are offered, how equitable the service distribution is across the community, and how effective the service is as it compares to the PARKS I F F S F S demographic densities. In addition, looking at guidelines with reference to population enables the Department to assess gaps in services, where facilities are needed, or where an area is over saturated. This allows the Department to make appropriate capital improvement decisions based upon need for the system as a whole and the ramifications that may NRPA BEST PRATIE NEES ASSESSENT PRIORITY have on a specific area. . . . . . The maps contain several circles. The circles represent the recommended per capita LOS found on the previous page. . . . . . . The circles’ size varies dependent upon the quantity of a given amenity (or acre type) located at one site and the . . . . . surrounding population density. The bigger the circle, the more people a given amenity or park acre serves and vice . . . . . . versa. Additionally, some circles are shaded a different color which represents the “owner” of that particular amenity or . . . . . acre type. There is a legend in the bottom left-hand corner of each map depicting the various owners included in the . . . . equity mapping process. The areas of overlapping circles represent adequate service, or duplicated service, and the . . . . areas with no shading represents the areas not served by a given amenity or park acre type. T P A S A S A An additional needs analysis layer is added on each map: equity. The Memphis 3.0 Comprehensive Plan and Mid-South . . . . Regional Greenprint utilized an equity mapping database that provides equity scores for geographical areas within the T P A HIGH S A S A City. The darker shaded areas (with lower scores) indicate more poverty and social inequity. This is an important lens to TRAILS view current service provision when beginning to prioritize needs. . . . . . . . Figures 66-76 on the following pages show select service area maps. In all, equity maps were developed for the following . . . . . . . major categories: T T . HIGH .

OUTOOR AENITIES . . . . . . . . . . . . PARK ACRES Y . . . . . . Plaza/Pocket parks Special use parks . . . . . Neighborhood parks Undeveloped (open space) . . . . . Community parks Paved trails . . . . . . . . . . . . . Regional parks Unpaved trails . . . . . School grounds Greenways . . . . . . FACILITIES/AMENITIES . . . . . Adult baseball fields Pavilions . . . . . . Adult softball fields Playgrounds . . . . . Basketball courts Rectangular multi-purpose fields . . . . . . . . . . . Dog parks Skateparks INOOR AENITIES Indoor aquatic space Splashpads . . . . . Indoor recreation space Tennis courts . . . . . Outdoor pools Volleyball pits Park shelters Youth diamond fields (baseball/softball) FIGURE 65: MEMPHIS EQUITY MAP TOPICS N . . .

FIGURE 64: MEMPHIS LOS STANDARDS

56 57 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.1 NEIGHBORHOOD PARKS AND EQUITY5.3.1 NEIGHBORHOOD PARKS 5.3.2 COMMUNITY PARKS AND EQUITY5.3.2 COMMUNITY PARKS

Equity Score Recommended Standard Equity Score Recommended Standard 1 Acres per 1,000 People 2.5 Acres per 1,000 People 20 - 0 20 - 0 40 - 21 Owner 40 - 21 Owner 60 - 41 Memphis 60 - 41 Memphis Egypt Central 80 - 61 Georgian Hills Other 80 - 61 Managed Pickett 100 - 81 Managed 100 - 81 Pierotti New Chicago Denver Dave Wells Carver Heights Mary Elizabeth Malone Grandview Frayser Lucille Price Gooch Klondike Washington Raleigh-Bartlett Meadows John F. Kennedy University Bickford Greenlaw Douglass Morris Hollywood Headstart Fletcher Creek Health Sciences Hollywood Memphis Binghampton Gaisman Robert Howze Chandler Vance Williamson Gaston Jesse Turner Ashburn-Coppock Avon Tom Lee Martyrs Winchester Bert Ferguson L.E. Brown Peabody Chickasaw Gardens Chickasaw Heritage Rozelle-Annesdale Robert Church Trigg-West Glenview Texas Courts Charles W. Davis Orange Mound Brentwood Booth Marquette Riverview Lincoln Sea Isle Patton Lewis-Davis Cherokee Belz Minnie Wagner Wilson Willow Southside Robert O’Brien Holmes Charjean Lincoln School Alcy-Samuels Emerald Winridge Boxtown Alcy-Warren Alonso Weaver O. L. Cash Fairway Medal Of Honor Williams Hickory Hill Western Germanshire Whitehaven Oakhaven Westwood Walter Chandler Raines Rd. Dalstrom David Carnes Sea Isle Otis Redding Fairley Flowering Peach Mooney Zodiac 0 1 2 3 4 0 1 2 3 4 ´ Miles ´ Miles FIGURE 66: NEIGHBORHOOD PARKS EQUITY MAP FIGURE 67: COMMUNITY PARKS EQUITY MAP 58 59 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.3 PAVED TRAILS AND EQUITY 5.3.3 PAVED TRAILS 5.3.4 NATURAL TRAILS AND EQUITY 5.3.4 NATURAL TRAILS

Equity Score Recommended Standard Equity Score Recommended Standard 0.2 Miles per 1,000 People 0.05 Miles per 1,000 People 20 - 0 20 - 0 40 - 21 Owner 40 - 21 Owner 60 - 41 Memphis 60 - 41 Memphis Egypt Central 80 - 61 Georgian Hills Other 80 - 61 Other Pickett 100 - 81 Managed 100 - 81 Managed Denver

Frayser

Mary Elizabeth Malone

Washington Douglass Fletcher Creek Greenbelt Chandler Jesse Turner Gaisman

Overton Park Overton Park Gaston Morris McNeil Avon Shelby Farms Shelby Farms Bert Ferguson East High Sportsplex Wolf River Greenway Glenview Riverview Brentwood Audubon Southside Marquette

MLK (Riverside) Cherokee Sea Isle Belz

Godwin Holmes Halle Alcy-Warren Robert O’Brien Emerald Alonzo Weaver Charjean Flowering Peach Alcy-Samuels Winridge O. L. Cash Hickory Hill Williams Medal Of Honor Germanshire Western Lanier Oakhaven Westwood Raines Rd. Whitehaven Dalstrom Heroes Otis Redding David Carnes

Zodiac 0 1 2 3 4 0 1 2 3 4 ´ Miles ´ Miles FIGURE 68: PAVED TRAILS EQUITY MAP FIGURE 69: NATURAL TRAILS EQUITY MAP 60 61 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.5 BASKETBALL COURTS AND EQUITY5.3.5 BASKETBALL COURTS 5.3.6 INDOOR AQUATIC SPACE AND5.3.6 EQUITY INDOOR AQUATIC SPACE

Equity Score Recommended Standard Equity Score Recommended Standard 1 Court per 10,000 People 0.25 Sq Ft per 1 Person 20 - 0 20 - 0 40 - 21 Owner 40 - 21 Owner 60 - 41 Memphis 60 - 41 Memphis 80 - 61 Other 80 - 61 Pickett 100 - 81 ! 100 - 81 Pierotti Denver ! Westside ! Carver Heights ! !

Lucille Price Gooch

New Chicago ! Douglass Washington ! ! ! ! Bickford Bickford !

! Greenlaw Chandler !Treadwell Jesse Turner Gaston Morris ! Trigg West Robert Howze Booth ! Orange Mound Peabody Lucille Price

! ! Gooch Riverview ! ! ! ! ! Orange Mound ! ! Southside ! Charles W. Davis ! ! ! Lincoln Belz ! ! Cherokee

! ! ! Halle Alcy-Warren !

Boxtown! O. L. Cash ! Hickory Hill Westwood Minnie Wagner ! Charjean Alcy-Samuels

0 1 2 3 4 0 1 2 3 4 ´ Miles ´ Miles FIGURE 70: BASKETBALL COURTS EQUITY MAP FIGURE 71: INDOOR AQUATIC SPACE EQUITY MAP 62 63 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.7 INDOOR RECREATION SPACE AND5.3.7 INDOOR EQUITY RECREATION SPACE 5.3.8 PLAYGROUNDS 5.3.8 PLAYGROUNDS AND EQUITY Equity Score Recommended Standard 1 Sq Ft per 1 Person 20 - 0 Equity Score Recommended Standard 20 - 0 1 Site per 5,000 People 40 - 21 Service Function 40 - 21 Egypt Central Owner 60 - 41 Community Center 60 - 41 Georgian Hills Memphis Pickett Frayser-Raleigh 80 - 61 Other 80 - 61 Senior Center 100 - 81 Pierotti North Frayser Denver Managed 100 - 81 Special Needs Center Carver Heights Cunningham Raleigh George Alberson Grandview Lucille Price Gooch Frayser Ed Rice New Chicago University Sexton Klondike Hollywood Raleigh Bartlett Meadows Dave Wells Dave Wells Mary Elizabeth Malone Douglass Washington Fletcher Creek Douglass Bickford Overton Binghampton Bickford Greenlaw Gaisman Hollywood Winchester Gaisman Robert Howze J.K. Lewis Morris East High Sportsplex Williamson Avon Shelby Farms Gaston Rozelle L.E. Brown Burt Ferguson Lester Peabody J.J. Brennan Bert Ferguson Chandler Orange Mound Gaston Brentwood Skinner Orange Mound Senior Ctr Texas Courts Glenview Lewis Davis Charles W. Davis Orange Mound Community Ctr Trigg West Glenview Patton Audubon Davis Southside Lincoln Minnie Wagner MLK (Riverside) Riverview Cherokee Sea Isle Riverview McFarland Ruth Tate Belz Sea Isle Robert O’Brien Wilson Pine Hill Lincoln School Godwin Emerald Jesse Turner Willow Charjean Flowering Peach Alcy-Samuels Alonzo Weaver Winridge Alcy-Warren McFarland Boxtown Hickory Hill Fairway Mitchell O.L. Cash Williams Oakhaven Mooney Walter Chandler Germanshire Whitehaven Hickory Hill Western Raines Rd. Westwood Westwood Whitehaven David Carnes Dalstrom Heroes Fairley Otis Redding Zodiac 0 1 2 3 4 ´ Miles 0 1 2 3 4 ´ Miles FIGURE 72: INDOOR RECREATION SPACE EQUITY MAP FIGURE 73: PLAYGROUNDS EQUITY MAP 64 65 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.9 RECTANGULAR MULTIPURPOSE5.3.9 RECTANGULAR FIELDS AND MULTI-PURPOSE EQUITY FIELDS 5.3.10 SPLASHPADS AND EQUITY 5.3.10 SPLASHPADS

Equity Score Recommended Standard Equity Score Recommended Standard 1 Field per 11,000 People 1 Site per 100,000 People 20 - 0 20 - 0 40 - 21 Owner 40 - 21 Owner 60 - 41 Memphis 60 - 41 Memphis 80 - 61 Other 80 - 61 Other

100 - 81 Pierotti 100 - 81

Raleigh-Bartlett Meadows

Binghamton

Gaisman

Williamson Treadwell Shelby Farms Bert Ferguson Chickasaw Heritage Tobey East High Sportsplex Peabody

Carver Sherwood Sea Isle

Godwin May Robert O’Brien Roosevelt McFarland

Hickory Hill Whitehaven Lanier Raines Rd.

David Carnes David Carnes Whitehaven Golf

0 1 2 3 4 0 1 2 3 4 ´ Miles ´ Miles FIGURE 74: RECTANGULAR MULTI-USE FIELDS EQUITY MAP FIGURE 75: SPLASHPADS EQUITY MAP 66 67 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 5.3.11 YOUTH DIAMOND FIELDS5.3.11 YOUTH AND DIAMOND EQUITY FIELDS (BASEBALL AND SOFTBALL) AND SOFTBALL) 5.4 PRIORITY RANKINGS The purpose of the Priority Rankings is to provide a prioritized list of facility needs and recreation program Equity Score Recommended Standard needs for the community. This model evaluates both quantitative and qualitative data: 1 Field per 14,000 People 20 - 0 • Quantitative data includes the statistically-valid community survey, which asked residents to list unmet needs and rank their importance. 40 - 21 Owner • Qualitative data includes resident feedback obtained in community input, stakeholder interviews, 60 - 41 Memphis Egypt Central staff input, local demographics, recreation trends, and Consultant Team observations. 80 - 61 Georgian Hills Other A weighted scoring system is used to determine the priorities for parks and recreation facilities and 100 - 81 recreation programs (Figure 77).

DATA SOURCE COMPONENT WEIGHTING Unmet needs reported by the community survey is used as a factor from the total Klondike number of households stating whether they have a need for a facility and the 35% extent to which their need for facilities has been met. Survey participants were Quantitative Data asked to identify this for 31 different facilities. Washington Importance rankings reported by the community survey is used as a factor from the importance allocated to a facility by the community. Each respondent was 35% University asked to identify the top four most important facilities. Bickford Treadwell Synthesis of trends and anecdotal information is derived from the Consultant Qualitative Data Team’s evaluation of facility priority based on survey results, community input, 30% stakeholder interviews, staff input, local demographics, and recreation trends. Gaston Tobey Binghampton Orange Mound FIGURE 77: PRIORITY RANKINGS METHODOLOGY Chickasaw Heritage East High Sportsplex

Glenview These weighted scores provide Facility Overall Rank Program Overall Rank Davis an overall score and priority Trails & pathw ays 1 Adult fitness & w ellness programs 1 Fitness centers 2 Adult sw im programs 2 ranking for the system as a whole Senior centers 3 Senior programs 3 Neighborhood community centers Water fitness programs Lincoln Sherwood (Figure 78). The results of the - 4 4 Open play spaces for practice or other uses 5 Family programs 5 MLK (Riverside) priority ranking are tabulated Off leash dog park 6 Walking/biking groups 6 Belz into three categories: High Outdoor park games (checkers, chess, etc.) 7 Youth sw im programs 7 Minnie Wagner Computer labs Adult continuing education programs Priority, Medium Priority, and Low 8 8 Singleton Splash pads 9 Youth summer programs 9 Tennis courts Nature/environmental programs Mooney Priority. It should be understood - 10 10 Alcy-Samuels that the Department needs to be Indoor youth basketball courts 11 Outdoor adventure programs 11 Emerald Practice fields (rectangular, multi purpose) 12 Adult art, dance, & performing arts 12 flexible when addressing priority Indoor adult basketball courts 13 Before & after school programs 13 Boxtown rankings. The Department should Youth soccer fields 14 Special events/festivals 14 Outdoor youth basketball courts 15 Youth art, dance, & performing arts 15 be agile to address lower priority O. L. Cash Youth baseball fields 16 Youth fitness & w ellness programs 16 needs when situations arise that Football fields 17 Fitness boot camps 17 facilitate “easier to implement” Outdoor adult basketball courts 18 Youth camp programs 18 Youth softball fields 19 Martial arts programs 19 projects and services such as Western Westwood Sand volleyball courts 20 Youth sports programs 20 grant funding, volunteer support, Regional community centers 21 Programs for people w ith disabilities 21 Adult softball fields 22 Tennis programs 22 etc. Ultimately, higher ranking Pickleball courts 23 Gymnastics & tumbling programs 23 Heroes priorities should be addressed Adult soccer fields 24 Preschool programs 24 Fairley first, but common sense should Extreme sports/skate park 25 Golf programs 25 Disc golf courses 26 Pickleball programs 26 be taken when addressing Indoor soccer fields 27 community needs Lacrosse fields 28 Zodiac Adult baseball fields 29 FIGURE 78: PRIORITY RANKINGS FOR Rugby fields 30 FACILITIES AND PROGRAMS 0 1 2 3 4 Cricket fields 31 ´ Miles FIGURE 76: YOUTH DIAMOND FIELDS EQUITY MAP 68 69 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN MINI BUSINESS PLANS STAFF TRAINING AND DEVELOPMENT HOW DO WE GET THERE? The planning team recommends that Mini Business Plans All programming staff should be trained and equipped (2-3 pages) for each Core Program Area be updated to understand best practices associated with program The top two barriers for participating more in City of 6.1 ESTABLISHING THE on a yearly basis. These plans should evaluate the Core development and delivery. Additionally, key performance Memphis recreation offerings are: ORGANIZATION FOR THE FUTURE Program Area based on meeting the outcomes desired indicators (KPIs) should be developed for each program for participants, cost recovery, percentage of the market staff level with specific measurements tied to program COMMUNITY SURVEY BARRIERS and business controls, cost of service, pricing strategy and service delivery. The Master Plan process identified many focus areas for • Lack of adequate security for the next year, and marketing strategies that are to the Division of Parks and Neighborhoods. In order to be implemented. If developed regularly and consistently, continue closing the gaps for various community needs, a • Park and facilities are in poor condition they can be effective tools for budget construction and broad approach to organizational development is required. PROGRAM EVALUATION CYCLE justification processes in addition to marketing and Specifically, concentrating on the following areas will help CONSULTANT EVALUATION BARRIERS (WITH LIFECYCLE STAGES) communication tools. prepare the Department moving forward: • Lack of cohesive Department vision, mission, Using the Age Segment and Lifecycle analysis, and • Recreation programming framework and values PROGRAM DEVELOPMENT & DECISION- other established criteria, program staff should evaluate • Capital improvement planning • Internal communication (within the Department MAKING MATRIX programs on an annual basis to determine program mix. This can be incorporated into the Mini-Business Plan • Funding and revenue strategies and between City Departments) When developing program plans and strategies, it is useful process. A diagram of the program evaluation cycle • Organizational alignment These barriers address external and internal challenges. to consider all of the Core Program Areas and individual and program lifecycle can be found in Figure 79. During Externally, the public has difficulty with sense of security program analysis discussed in the Program Assessment. the program development stages program staff should 6.2 RECREATION PROGRAMS and facility conditions. These two barriers are critical Lifecycle, Age Segment, Classification, and Cost Recovery establish program goals, design program scenarios to delivering services because they directly influence Goals should all be tracked, and this information along and components, and develop the program operating/ public participation. Residents simply will not participate with the latest demographic trends and community input business plan. All stages of the lifecycle will conduct 6.2.1 CORE PROGRAM AREA ADDITIONS in recreation programs and services if they feel unsafe should be factors that lead to program decision-making. regular evaluations to determine the future of the while doing so and if they feel uncomfortable using Community input can help staff focus in on specific program. Based upon the observations of the Consultant Team, the facilities due to their condition and appearance. program areas to develop new program opportunities, meet If participation levels are still growing, continue to Department staff should evaluate core program areas and Internally, there are challenges to deliver programs the needs of diverse audiences, and even understand the provide the program. When participation growth is slow individual programs annually to ensure offerings are relevant and services due to a lack of a unified scope and best marketing methods to use. communication channels. There are a lot of community to no growth, or competition increases, staff should to the changing community. Current Core Areas are well A simple, easy-to-use tool should be created to help centers spread across the City of Memphis. Therefore, look at modifying the program to re-energize the aligned with the communities wants and needs; however, compare programs and prioritize resources using multiple there are a lot of different personalities delivering customers to participate. When program participation there are recommendations for new core program areas and data points, rather than relying solely on cost recovery. programs and services. A unified approach to delivering is consistently declining, staff should terminate the they include: In addition, this analysis will help staff make an informed, services across the system is warranted. Additionally, program and replace it with a new program based on Arts & Culture: Offerings could be expanded to include objective case to the public when a program in decline, but the ability to communicate both within the Department the public’s priority ranking, in activity areas that are performing arts for adults and youth. Performing arts for beloved by a few, is retired. and across Departments is crucial because this will trending, while taking into consideration the anticipated adults ranked in the high priority for the community, while ensure programs and services are delivered in the most If the program/service is determined to have strong priority, local participation percentage. youth performing arts ranked in the medium priority. Once effective manner possible. appropriate cost recovery, good age segment appeal, good you build a program for adults, it can be adapted to support partnership potential, and strong market conditions, the youth programs. Once major barriers are addressed department-wide, next step is to determine the marketing methods. program participation, participant satisfaction, and Nature & Environment: Currently, there are no core areas new opportunities may increase naturally. Correcting that include nature and environment programs. This the barriers first will assist with improving partnerships, program area could be accomplished through local partners increasing volunteers, and retaining quality seasonal staff. brought to the parks. Nature/environment programs ranked as a high priority for the community. 6.2.3 PROGRAM STRATEGIES

6.2.2 PARTICIPATION BARRIERS Department program staff should continue the cycle of evaluating programs on both individual merit as well Participation barriers were identified as the Consultant Team as the program mix as a whole. This can be completed evaluated programs and analyzed all information collected at one time on an annual basis, or in batches at key through the public engagement process. These barriers seasonal points of the year, as long as each program should be addressed before moving forward with additional is checked once per year. The following tools and program recommendations. strategies can help facilitate this evaluation process:

70 71 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN The Department should consider implementing In developing a Volunteer Management policy, some the following actions to address marketing and best practices that Memphis should be aware of in communication needs: managing volunteers include:

• Create a marketing plan specifically for Memphis Parks • Involve volunteers in cross-training to expose them to include the components identified in this section. to various organizational functions and increase their skill. This can also increase their utility, allowing • Utilize the current Communication Parks liaison for for more flexibility in making work assignments, and marketing requests, media inquiries, and organizing can increase their appreciation and understanding special events. Consider a separate, standalone of Memphis. marketing position for the Department in the future. • Ensure a Volunteer Coordinator (a designated • Establish priority segments to target in terms of new program staff member with volunteer managemen program/service development and communication tactics. responsibility) and associated staff stay fully informed • Establish and review regularly performance measures about the strategic direction of the agency overall, for marketing; performance measures can be tracked including strategic initiatives for all divisions. through increased use of customer surveys as well as Periodically identify, evaluate, or revise specific tactics some web-based metrics. the volunteer services program should undertake to • Leverage relationships with partners to enhance support the larger organizational mission. marketing efforts through cross-promotion that include • A key part of maintaining the desirability of defined measurable outcomes. volunteerism in the agency is developing a good reward and recognition system. The consultant team • Work with the City’s IT Department to create a better recommends using tactics similar to those found in web presence. Consider a separate, standalone frequent flier programs, wherein volunteers can use webpage in the future. their volunteer hours to obtain early registration at » Facilitate ease for residents to research and identify programs, or discounted pricing at certain programs, with the Division of Parks and Neighborhood brand; rentals or events, or any other Memphis function simplifying the steps to register for a program, Identify and summarize volunteer recognition policies view the parks, and/or rent a facility. in a Volunteer Policy document. • Regularly update volunteer position descriptions 6.2.4 VOLUNTEER MANAGEMENT AND Include an overview of the volunteer position lifecycle

FIGURE 79: PROGRAM EVALUATION CYCLE PARTNERSHIP DEVELOPMENT in the Volunteer Manual, including the procedure for creating a new position.

VOLUNTEERISM • Add end-of-lifecycle process steps to the Volunteer The reality of most public department budgets Manual to ensure that there is formal documentation often requires us to seek productive and meaningful of resignation or termination of volunteers. Also MARKETING AND COMMUNICATIONS partnerships with both community organizations and include ways to monitor and track reasons for The Department currently communicates with residents individuals to deliver quality and seamless services resignation/termination and perform exit interviews through the City website, flyers, direct mail (senior centers P to their residents. These relationships should be with outgoing volunteers when able. mutually beneficial to each party to better meet overall only), in-facility signs, television interviews, and social media. • Track volunteer hours as a valuable metric for policy Emails from City of Memphis community needs and expand the positive impact of the makers, partners, and grantors. An evaluation of the statistically-valid survey identified that the City of Memphis website agency’s mission. Effective partnerships and meaningful community prefer to learn about programs, services, and park volunteerism are key strategy areas for the Department to • Be consistent with City of Memphis volunteer activities via emails, the website, television, and friends Television meet the needs of the community in the years to come. management policies already existing in & neighbors (Figure 80). Friends & neighbors other Divisions. FIGURE 80: PREFERRED MARKETING METHODS

72 73 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN PARTNERSHIPS 6.2.5 PROGRAM OPPORTUNITY SUMMARY 6.3 CAPITAL IMPROVEMENT PLAN When seeking partnership, the Department should look (CIP) for organizations that could step into program/services • Staff development and training through development weaknesses to provide a program/service that currently of mission, vision, and values the entire department This section of the Master Plan reflects the capital • Visionary Projects represent a larger set of services does not have resource support and has high priority by can support. improvement recommendations that are necessary to and facilities desired by the community. It can help the community. • Staff development on internal communication, facility/ fulfill the facility needs of the community. In order to plan provide policy guidance by illustrating the ultimate Partnerships developed need to be equitable for both park safety, and customer service. and prioritize capital investments, the Consultant Team goals of the community and by providing a long- recommends that the City of Memphis applies specific range look to address future needs and deficiencies. organizations producing reasonable shared benefits • Improve facility infrastructure to support safety and guiding principles that balances the maintenance of In this Master Plan, Visionary Projects addresses between parties. quality programs. current assets over the development of new facilities. aging facilities to make improvements in operational Certain partnership principles should be adopted by • Develop safety plans for programs, events, and The framework is also utilized to determine and plan CIP effectiveness and the overall sustainability of the park Memphis for future partnerships to work effectively. facilities to encourage great participation. projects and make budget decisions that are sustainable and recreation system. The subtotal for Visionary These partnership principles are as follows: over time. These criteria (e.g., safety compliance, Projects is $130,000,000. Example projects include: • Staff should continue to evaluate programs using commitment, efficiency, revenue) and priorities are adding new amenities and facilities, expanding the trail • All partnerships require a working agreement with cost recovery, mini business models, classifications, also focused on maintaining the integrity of the current system, acquiring park land, etc. measurable outcomes to be evaluated on a regular and lifecycles. basis. This should include reports to the agency on the infrastructure and facilities before expanding and/or performance, tracked investments, and outcomes of the • Expand current program offerings to reflect Priority enhancing programs and facilities. Rankings. These programs could include but not partnership including an annual review to determine The community, through this planning process, has limited to: renewal potential. indicated strong support for this concept of prioritization. • All partnerships should track costs associated with the » Increased fitness and wellness programs As indicated in Chapter 3, there are infrastructure concerns and challenges currently facing the Memphis partnership investment to demonstrate the shared » Increased adult aquatics offerings such as a park system and funding is not sufficient to take care of level of equity. Master Swim Team and more water fitness classes. all existing assets and build new facilities. The result is • All partnerships should maintain a culture that focuses » Continue to expand 55+ offerings which may the recommendation to develop a three-tier plan that on collaborative planning on a regular basis, regular also need to be evaluated separately to identify acknowledges a prioritization process for addressing communications, and annual reporting on performance the 55+ populations barriers to participate. community needs. Each tier corresponds with a different and outcomes to determine renewal potential and type of capital improvement. opportunities to strengthen the partnership. • The induction of program fees has over 55% of the s upport from the statistically-valid survey, developing • All partners should report to Memphis staff on a a fee structure should be considered by the • Critical Projects are associated with addressing deferred regular basis to plan and share activity-based costs Department when moving forward with current maintenance (as outlined in Chapter 3), accessibility and equity invested. programs and program development. issues, and other critical needs at existing facilities • Each partner will assign a liaison to serve each • Create a Marketing Plan specific to the parks and Typically, these types of projects are funded via existing partnership agency for communication and planning neighborhoods that include website information, CIP monies. The subtotal for the Critical Alternative purposes. social media, flyers, direct mailing, and program is $13,000,000. Example projects include: installing guides to enhance program participation. Develop accessible pedestrian routes to ball fields, paving parking lots, replacing playground surfaces, etc. • If conflicts arise, highest ranking leader of each target markets for each amenity and program organization will meet to resolve the issue(s) in This plan may also include the addition of a full-time a timely manner. Any exchange of money or traded marketing staff member in the future. • Sustainable Projects include the extra services or capital resources will be made based on the terms of the • Establish Key Performance Indicators (KPIs) for improvements that should be undertaken when partnership agreement. Each partner will meet with programs and marketing through customer surveys additional funding is available. This includes strategically the other partner’s respective board or managing and increase use of amenities and programs. enhancing existing programs, beginning new alternative representatives annually. programs, adding new positions, adding amenities • Develop a Volunteer Management Plan to increase • and facilities that would enhance the existing user Additional partnerships can be pursued and developed resources, staff capacity, and advocacy for the system. experience within parks, efficiency upgrades, or making with other public entities such as neighboring other strategic changes that would require additional cities, colleges, state or federal agencies; nonprofit • Develop a Partnership Management Plan that will help operational or capital funding. The subtotal for organizations; as well as with private, for-profit increase marketing, increase offerings, increase staff Sustainable Projects is $20,000,000. Example projects organizations. There are recommended standard policies capacity, and increase resources available to the include: repairing erosion along walking paths, replacing and practices that will apply to any partnership, and system. This plan should be equitable for both partners. roofs, resurfacing walking trails, replacing park furniture, etc. those that are unique specific inter-sector partnerships.

BERT FERGUSON PARK WOLF RIVER GREENWAY 74 75 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN BERT FERGUSON PARK WOLF RIVER GREENWAY

6.3.1 ASSUMPTIONS AND LIMITATIONS • Costs are order of magnitude-only estimates and do 6.3.2 CREATING THE CIP 6.4 FUNDING AND REVENUE not include any quantity take offs, etc. and they STRATEGIES Dueo t the scope and constraints of the Master Plan process, should be used for conceptual budgetary purposes only. Continued investment in the park system is critical to Notations regarding these costs include: considerations must be accounted for when reviewing providing quality parks and recreation experiences for Opportunities exist for funding many areas of the and interpreting provided CIP amounts. Assumptions and » No costs were included for parks that the staff all Memphians. Capital improvement funding is finite; Department’s programs, services, amenities, and limitations include: noted as being undeveloped therefore, projects are prioritized based on the following programs. The following sources are financial options criteria, subject to the permitted uses of available funding: for the City of Memphis to consider in identifying funds • All costs are presented in 2020 dollars and should be » Allowances are included for Visionary Projects to support the recommendations outlined in this Master considered a snapshot in time indicating the dollar figure for complete renovations of parks whose All Improvements. All capital improvements must support Plan. This list is intended to serve as a resource to fit most closely related to addressing the existing park conditions were poor enough that a complete the goals and objectives of the most current Master Plan in a variety of project-, operational-, or partner-specific system conditions renovation is necessary to make them truly addition to alignment with Memphis 3.0. initiatives as well as provide inspiration in considering • All opinion of costs included are made on the basis functional as a park. The costs are allowances Priority 1. Capital reinvestment needs of deferred other strategies beyond these recommendations. of judgment as experienced and qualified professionals only; the true cost of renovation can only be maintenance. Since the condition of these facilities and generally familiar with park development projects. The determined through master planning the subject parks support systems have a direct impact on operational costs, Consultant Team cannot and does not guarantee that • With respect to the costs for parks that the Consultant capital repairs and replacements for deferred maintenance 6.4.1 EARNED INCOME proposals, bids, or actual construction cost will not vary Team inspected, cost items and estimated quantities facilities receive the highest priority. Any capital repairs or The Department has many opportunities where earned from Opinion of Probable Construction Costs. Costs for were determined from on-site observations and aerial replacements required to ensure the safety of visitors or income can be implemented or increased. Many services permitting, contractor’s temporary construction facilities, photographs and not from detailed quantity take employees will also be considered a Priority 1 project. and programs can create earned income by offering and controls are excluded from costs. offs. The estimated costs should be used for conceptual Priority 2. Capital reinvestment needs of existing parks, them for sale to the public and therefore gaining budgetary purposes only. • Not all park sites could be assessed by the Consultant facilities, or equipment. Memphians consistently place a revenue. Earned income funding may be a major source Team; therefore, costs were derived from parks inspected • All park costs do not include contingency, design, high priority on maintaining existing assets, as validated of funding for agencies, and it can certainly provide a by City staff based on narrative and photos provided. The permits, geotechnical, and surveying. through the community engagement process in the solid source to pursue. The following areas are utilized Consultant Team examined photos and noted development of this Master Plan. often by park and recreation systems across the country: obvious items that need to be addressed. Any required • Indoor recreation facility costs: Priority 3. New investments enhancing existing parkland improvements that were not shown in the photos • Land leases • Specialty license » Do not include cosmetic deficiencies, or community assets with consideration given for level of are not included. • Common area maintenance plate tags for parks facility ingress/egress, aesthetics, painting, etc. service (LOS) gaps. (CAM) fees on buildings and greenways » Do not include design and procurement costs Priority 4. New investments requiring the purchase • Program/special event fees • Grants based on cost recovery targets • Capital improvement » Do include labor and material (utilized RS Means) of new parkland or development of new facilities with consideration given for level of service (LOS) gaps. • Establishment of a fees on revenue- Park Foundation generating facilities • Naming rights • Memberships (based on impression points)

76 77 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN FIGURE 81: PROPOSED ORGANIZATIONAL STRUCTURE

6.4.2 TAX-SUPPORTED FUNDING • Real Estate Transfer. A transfer tax on real estate may be imposed by state, county, or municipal authorities Funding is available from various taxes within the city, for the privilege of transferring real property within county and state. These funds are sources that can the jurisdiction. The government is effectively taxing provide direct financial benefit to the Department the transfer of a legal deed, certificate, or title from a and fund CIP projects in parks as well as services and seller to a buyer. The amount of the tax is based on operations in park and recreation systems. Options the property value and the property classification. City of Memphis Division of Parks and Neighborhoods include: • Land Value Captive Taxes 6.5 ORGANIZATIONAL ALIGNMENT Proposed Organizational Chart • Local Option Income Tax Beyond programming, infrastructure, and funding recommendations, it is necessary to provide a • Tax Allocation District Tax support system that will facilitate the Master Plan’s Parks Director • Real-Estate Transfer Fees implementation. A functional organizational structure should be created that ensures intra- and inter- Departmental operations can effectively and efficiently Administrative 6.4.3 FUNDING RECOMMENDATIONS deliver recreation program services and provide needed Deputy Director Clerk (2) Assistant public recreation amenities and facilities. Figure 81 on Based on the sources available, and potentially available, the next page presents the proposed organizational the following funding sources are recommended structure. as proactive solutions that may work well for the Community & *Parks Department: The proposed organizational structure includes Play Your Park Golf Parks Business Planning Managed additional staffing positions that will be instrumental in Senior Center Administrator Operation Administrator • Transient Occupancy Tax (TOT). Used to support Administrator Administrator Contracts creating the park system vision outlined by Memphis Administrator Administrator* visitor events and attractions. The tax is usually residents while also facilitating this Master Plan’s 1-3% and is managed by county government, not *Facility Manager* Player Dev. Coordinator Business Supervisor implementation. New positions include: Play Your Park city government. TOT is a tax collected from guests Clerk Specialist (2) Spray Technician Foreman that occupy or have a right to occupy a living space • Facility Manager Irrigation Specialist Budget Landscape Parks Ops • Memphis Museums or establishment for 30 days or less. TOT is currently Coordinator Architect (2) • Development Manager Athletics Maintenance Inc. 8% of the rent and must be collected by the operator Recreation Manager Golf Facility Manager • Memphis Zoo (i.e., hotel rooms, condo rentals, etc.) per guest at the • Marketing Coordinator Manager (3) Manager (8) • Memphis Botanic time of payment. • Volunteer Coordinator Athletic Specialist (2) Payroll Project Garden • Land Value Captive Taxes. This is a Tax Increment • Parks Operation Administrator Ballfields Foreman Specialist Zone Manager • Brooks Museum Financing (TIF) process used to take the increased Foreman (10) • Overton Park taxes from private investment and use it for specific • Urban Forester Center Turf Foreman Conservancy projects that will enhance property values (e.g., Director (30) Aquatics • MRPP Manager (5) Human Maint. Mechanic (6) parks, trails, stadiums, etc.). TIF is a public financing 6.6 PARTNERSHIPS Resource Planning • Tennis Memphis method that is used as a subsidy for • Liberty Bowl Assistant Center Manager Tech redevelopment,infrastructure, and other community The City of Memphis supports the 10-Minute Walk Crew Chief Director (21) Aquatics Supervisor improvement projects. (7) campaign created and sponsored by the Trust for Public Custodian (16) Land, National Recreation and Park Association, and • Local Improvement District. This is a Business Cook (3) *Development Urban Land Institute. As mentioned in Chapter 2, only Truck Driver (15) Improvement District (BID) which is developed in Manager* a district’s boundaries as an additional tax (levy) and 45.8% of Memphians are within a 10-minute walk of *Urban Forester* pays for projects within the district. Funds generated a park. In order to close this gap by 2050 (the target Equipment Operator *Marketing Coordinator* generally support landscaping, lighting, cleaning of date of the 10-Minute Walk movement), partnerships Tree Trimmer *Volunteer Coordinator* sidewalks, trash pickup, and developing and improving to create and facilitate increased public access will be Grant Writer

parks and neighborhoods in downtown areas of necessary. Increased joint-use agreements with entities the city. such as Shelby County Schools can have a large impact * on overall walkability and fill high-need areas that NEW POSITION currently exist within the park system (Figure 82).

78 79 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN ACTION PLAN

O P S T The Action Plan provides a summary of the key action Additionally, there is space left for the Department to items recommended throughout the Master Plan. Items are identify needed Support (i.e., who also has a direct organized into four major sections: influence on completing each tactic) as this gives credence to the fact that tactics can be influenced by • Parks and Facilities ´ other entities and partnerships may be required. • Programs and Services The Action Plan is intended to serve as a dynamic • Financial and Budgetary Development document, reviewed on a regular basis by City Council and Department staff to plan work tasks and support • Policies, Practices, and Operations decision-making in order to carry out the Master Plan. At Vision Statements specific to Parks and Facilities; Programs a minimum, the Action Plan should be a part of regular

and Services; Financial and Budgetary Development; and monthly Board meetings. Typically, a status update/ Policies, Practices, and Operations are provided to assist progress report is reviewed. Additionally, a quarterly or with prioritization and decision-making. semi-annual update should be provided to City Council. This intentional review process allows the Department Within each section, key Strategies for implementation are listed. These strategies represent the major ideas or to document accomplishments, notate adjustments, and philosophies recommended by the Consultant Team that are add Action Items as necessary. required by the Department to implement the Master Plan. To help achieve each strategy, Tactics are identified along with recommended Performance Measures. 7.1 PARKS AND FACILITIES

Vision: “Our vision is to ensure well-maintained park land, facilities, and public spaces are accessible by all Memphis residents.” Strategy Tactics Support Performance Measure 1.1 Ensure the growth of the A. Annually assess progress towards Level • LOS spreadsheet parks and trails system of Service (LOS) recommendations and revision keeps pace with the needs update Capital Improvement Plan (CIP) • CIP updated of the community, but does accordingly. not outpace the financial or B. Add 8 acres of neighborhood parks. • Funded in CIP organizational resources of the (Visionary) City of Memphis. C. Add 491 acres of community parks. • Funded in CIP (Visionary)

D. Expand the trail system by 70 miles • Funded in CIP to move closer to best practice ranges. (Visionary) Approximately, 60 paved trial miles and 10 natural surface trail miles. E. Work with Shelby County Schools to • Number of Memphians enhance access to public spaces, increasing within a 10-minute walk 10-minute walk capabilities for all to a park Memphians. 1.2 Ensure the development of A. Establish utilization productivity goals for • Goals established recreation facilities keeps each facility (e.g., ratio of utilized hours to pace with the needs of the available hours). community, but does not B. Develop a business plan and pro forma to • Policy established for outpace the financial or inform operations and use when developing new facilities organizational resources of the a new facility or completing major City of Memphis. improvements.

80 81 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN C. Adopt a function-based park and facility • Park classifications 1.6 Focus on lifecycle management A. Calculate the total park system asset •% of total asset value classification system. adopted and reviewed and Total Cost of Ownership inventory value (less land) and commit 2-4% attributed to operations annually (TCO) principles. of the total value to annual operations and and maintenance D. Utilize equity mapping to assist with equity •% of increased equity maintenance in the Department’s operating annually and geographic spacing of future amenities. and access budget. E. Design facilities with the priority to meet • Increased geospatial B. Prioritize deferred maintenance •% of CIP projects the existing and future needs of core distribution of park improvements as part of the CIP process. attributed to deferred programs first. system No less than 5% of total system deferred maintenance maintenance estimates should be budgeted F. Replace the 40% of playgrounds rated as • Funded in CIP annually in order to keep existing deferred either fair or poor. (Visionary) maintenance estimates from growing. G. Replace the 39% of basketball courts rated • Funded in CIP C. Track and document the system’s asset • Asset lifecycle inventory as either fair or poor. (Visionary) lifecycle schedule and current replacement established H. Replace the 59% of multi-purpose fields • Funded in CIP costs to help determine maintenance •% of preventative rated as either fair or poor. (Visionary) schedules and when to replace/build new. maintenance standards I. Replace the 60% of baseball and softball • Funded in CIP conducted annually fields rated as either fair or poor. (Visionary) J. Add 180,000 square feet of indoor • Funded in CIP recreation space. (Visionary) 7.2 PROGRAMS AND SERVICES K. Focus on adding community park-related • Funded in CIP Vision: “Our vision is to offer recreational opportunities that align with the value system expressed by our residents.” amenities to the system once high priority (Visionary) assets are added. Consideration to be made Strategy Tactics Support Performance Measure for: playgrounds, park shelters and pavilions, youth diamond fields, multi-purpose 2.1 Implement consistent program A. Utilize additional methods of customer • User surveys created rectangular fields, and basketball courts. management principles surveys to collect more diverse feedback. and adopted for all programs to ensure L. Add 3 additional interactive water features/ • Funded in CIP B. Develop Mini Business Plans for each • Mini Business Plan equitable service delivery, play to the system. (Visionary) Core Program Area that identifies goals, implementation % quality delivery, and long-term outcomes, financials, and marketing 1.3 Continue to evolve the network A. Identify and prioritize ADA accessibility • ADA project list financial sustainability. strategies. of open space corridors, trails, concerns throughout the system. identified and green space, and active parks prioritization plan C. Provide training for recreation staff to •% of staff participated that reinforce the City of associated conduct Cost of Service analyses to in training understand the cost of providing each Memphis brand. B. Create a signature brand for the City of • City of Memphis program. Memphis Parks System and incorporate brand and wayfinding it into a comprehensive signing and developed and approved D. Develop a Recreation Program Cost • Cost recovery policy wayfinding system. Recovery Policy for all programs to clarify adopted and gain consensus on which programs C. Adopt and implement Crime Prevention • Maintenance standards should be subsidized by tax dollars versus Through Environmental Design (CPTED) document published user fees or a blend of both. standards. E. Adjust program fees to reflect residents’ • Pricing policy updated D. Adopt consistent design standards for the • Design standards willingness to pay and to achieve stated cost park system. published recovery goals. 1.4 Establish consistent and A. Formalize (document) all existing • Maintenance standards 2.2 Implement a comprehensive A. Enhance program evaluations to collect • Program evaluation comprehensive maintenance maintenance standards and keep them in document published program evaluation process. and track information needed to make protocol created and and design standards for parks, one place. data-driven decisions about programs. implemented trails, and facilities to uphold B. Develop a maintenance management plan • Funded in CIP Recommended data includes Core Program the quality of user experience for the park system. (Visionary) Area, Lifecycle Stage, Classification and promote financial C. Establish dedicated crew(s) for sports field • Crew(s) established (Essential, Important, or Value-Added), sustainability. maintenance and care. Target Cost Recovery, Actual Participation, 1.5 Continue to promote and A. Develop and adopt a Natural Resources Plan • Natural Resources Plan Actual Revenue, and Actual Cost Recovery. enhance natural resources. for the City of Memphis. adopted B. Establish formative and summative • Formative and B. Seek system enhancements that include • “Green” system evaluation criteria and processes for summative evaluation bioswales, rain gardens, “greenways,” and enhancements adopted programmers. protocols published tree canopy improvements. as part of CIP C. Adopt and track key performance indicators • KPIs tracked and (KPIs) that include program cancellation reported over time rates, customer satisfaction, and customer retention.

82 83 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 2.3 Align program offerings A. Establish regional and local core programs • Core program areas 7.3 FINANCIAL AND BUDGETARY DEVELOPMENT with community needs and areas. adopted priorities. Vision: “Our vision is to develop a network of sustainable funding mechanisms that allows us to reduce reliance on general fund dollars.” Regional: special events, nature and environment aquatics, fitness and wellness, Strategy Tactics Support Performance Measure and senior services. 3.1 Develop a consistent approach A. Adopt a 5-year Capital Improvement • CIP developed and Local: enrichment, before and after school to financing the system. Plan (CIP) based on prioritized/order of reviewed and updated programming (youth), family programming, magnitude (essential, sustainable, and annually sports, and arts and dance. visionary) projects and review and update • CIP is used as an annual B. Strengthen existing youth programming • Number of youth annually. reporting tool offerings. programs offered B. Ensure the annual operating budget will • Balanced budget • Number of youth project and produce a balanced budget for produced and adopted reached each fiscal year. C. Add two new core program areas: Family • Number of programs C. Set and achieve an overall system cost • Cost recovery goal Programming and Adult Enrichment. offered recovery goal and reflect it in the budget. identified • Number of participants •Cost recovery increase reached each year until goal is D. Track national and regional trends for • Trend report created met programs and services and how they may and revised/updated D. Continue to expand the ability to track • Core program and apply to the community. annually revenues and expenses by both core facility budgets E. Annually assess relevance of selected Core • Annual comprehensive program area and facility. numbers published Program Areas and determine if changes review of program E. Commit to financial transparency by • Standardized and need to be made based on current trends, inventory to adjust providing easy access to the organization’s accessible reports demographics, and community surveys. program mix financial data and reports. produced F. Track the lifecycle of all programs to • Annual revision of F. Establish a per capita and/or per acre cost •Per capita/per acre ensure they match the distribution lifecycle analysis goal/policy for the City of Memphis park policy established and recommended in the Program Assessment. land. adopted Program distribution should be 50-60% in G. Develop a long-term financial strategy that • Budget worksheet Introduction, Take-off, and Growth stages includes implementing a five-year budget created, adopted, and (collectively), 40% in Mature, and 0-10% in worksheet that is reviewed and updated used Saturated and Decline stages (collectively). annually. G. Sunset programs that fall into the decline • Number of programs 3.2 Incorporate different funding A. Adopt an overall earned income philosophy •% of earned income and or saturation phase. terminated strategies to finance the and framework for user groups, reservations, collected annually • Lifecycle distribution system. and rentals. aligns with best B. Utilize Transient Occupancy Tax (TOT) • Monies utilized practices monies from county government to support H. Work with Memphis City Beautiful to • Number of programs regional core programs and facilities. enhance nature/environment programming offered C. Incorporate Tax Increment Financing (TIF) for • Monies utilized opportunities. capital investment that will enhance property 2.4 Enhance marketing and A. Develop a strategic marketing plan • Strategic marketing values through community-improvement promotion practices. specifically for the City’s parks, recreation, plan created and projects. and events. adopted D. Create a Business Improvement District (BID) • Monies utilized B. Establish priority segments to target in • Number of programs to support landscaping, lighting, sidewalks, terms of new program/service development offered for priority age litter, and improving neighborhood parks in and communication tactics. segments downtown areas. C. Establish and review regularly performance • Number of people E. Use existing fees collected within the county • Monies utilized measures for marketing; performance reached (such as Real Estate Transfer Tax and Wheel measures can be tracked through increased • Number of surveys Tax) to improve system infrastructure. use of customer surveys as well as some implemented and F. Create operations and maintenance • Maintenance web-based metrics. returned endowments funds through naming rights endowment fund(s) D. Leverage relationships with partners to • Number of partners and long-term sponsorships. established enhance marketing efforts through cross- utilized for marketing promotion.

84 85 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN 3.3 Continue to leverage grants, A. Continue to seek and apply for park • Amount of grant money 4.4 Develop a stronger and A. Create more exposure and enhance cross • Increase of volunteer partnerships, and sweat equity improvement grants related to high need received and used more organized volunteer marketing for volunteer opportunities. individuals and hours to improve the park system. areas. annually system that builds advocacy B. Ensure volunteer record keeping systems are • Use of consistent B. Work with organizations to provide • Number of partnership and support for the City of coordinated so that it is easy to determine system operational support for park improvements. hours donated annually Memphis parks system. who is volunteering and where. C. Consider forming a dedicated park system • Foundation formed C. Keep volunteers fully informed of park • Number of volunteer foundation. • Number of dollars activities to gain support and advocacy from communications raised annually this important pool of park representatives. D. Increase volunteer use to augment staffing • Volunteer use is levels; additionally, explore the opportunity approximately 30% of 7.4 POLICIES, PRACTICES, AND OPERATIONS to establish "Friends Groups" for specific total park work force parks or the system in general. hours E. Track the annual costs saved due to • Hours/costs donated Strategy Tactics Support Performance Measure volunteer hours donated. published 4.1 Prepare the organizational A. Create and implement a comprehensive staff • Number of staff trained 4.5 Promote financial A. Consider purchasing a work order • Work order system structure to meet existing training program. sustainability through facility management system to assist with purchased and future demand. B. Create a process and budget that allows • Training provided management practices. calculating and tracking operations and • Data manager selection staff to achieve and retain professional maintenance costs. and training certifications. B. Develop policy-supported criteria for • Development of criteria C. As core program and facility areas expand, • Evidence of data-driven contracting operations and maintenance ensure personnel resources are expanded decisions • Policy adoption services. The policy should support the commensurate with the growth. guidelines for what work should be done in- D. Create a performance measure/indicator that • Comparison between house and what can be outsourced. Criteria ensures staff diversity reflects community staff and community and key performance indicators (KPIs) should demographics. demographics be developed to trigger an automatic review. 4.2 Functionally align the A. Rebrand the Division of Parks and • Rebranding complete organization to meet Neighborhoods to Memphis Parks. 4.6 Establish partnerships A. Establish a partnership policy/statement for: • Statement/ policies community needs. B. Adopt a new functional organizational • Organizational chart policies that outline public/public, public/non-profit, and public- created and adopted structure. adopted responsibilities, measurable private. outcomes, and demonstrate C. Create and hire a Parks Operation • Position created and B. Create quarterly check-in processes in which • Check-in process equity and fairness. Administrator position. hired all partnership agreements are reviewed and established assessed based on performance outcomes D. Create and hire a Facility Manager position to • Position created and •% of performance and equity. oversee community and senior centers. hired measures met E. Create and hire a Development Manager • Position created and 4.7 Integrate and create (as A. Adopt a formalized criteria-based land • Land acquisition criteria that would oversee Marketing and Volunteer hired necessary) policies and acquisition strategy. published Coordinators (two new positions) along with procedures to assist with B. Develop a park land encroachment policy. • Encroachment policy the Department’s grant writer. park land planning. published F. Create and hire an Urban Forester position. • Position created and C. Develop a community engagement policy. • Community hired engagement policy published 4.3 Update policies and A. Formalize the lead and supporting roles • System document procedures on an annual (functions) as they currently exist to maintain developed and D. Develop policy for creation and interaction • Policy/framework basis. Ensure all staff have the parks system and organize into one implemented with Friends Groups. published access to them, and that document (i.e., who is doing what, where, they create maximum how, and why). flexibility for staff in the field B. Teach staff how to effectively use marketing • Training provided to do their work in a timely data to make informed decisions. • Evident of data-driven manner. decisions C. Review all planning documents annually for • Evidence of data-driven relevancy and direction. Hold collaborative decisions review and discussion annually.

86 87 MEMPHIS, TENNESSEE DIVISION OF PARKS AND NEIGHBORHOODS MASTER PLAN GASTON PARK

MEMPHISTN.GOV