Parks & Trails to Building Community
Report Prepared for the City of St. Paul’s District 5 Planning Council
Prepared by: Adam Gerber, Brady Howe, John Kinny, Lucas Miller & Krista Schaefer University of Minnesota College of Natural Resources Group 3 of 4 9 December 2004 Acknowledgments
Many individuals have contributed to the content of this report. We are thankful for all the insight and advice that they have contributed during the past few months. We would like to thank our families and friends for all of the support they have given us. We would also like to thank the individuals of the Payne-Phalen neighborhood who have gone above and beyond in helping us with this report. They are:
Anderson, Jamel Kraus, James Farrell, Noreen Martinez, Bill Ganje, Don McMurray, Leslie Korum, Kathy Willhite, Suzann
i Table of Contents
Executive Summary ...... 1 Introduction ...... 2 Goals ...... 3 Study Area/Site Characteristics ...... 3 Methods ...... 4 Trail Evaluation ...... 4 Park Evaluation ...... 5 Detailed Park Survey ...... 5 Findings ...... 7 Public Opinion ...... 7 Graffiti ...... 7 Recreation Study in 2003 ...... 7 Intersection Survey of Payne-Phalen trails ...... 9 Trail Survey ...... 11 Community Perception of Safety on Parks and Trails ...... 12 Police Reports ...... 13 Park Recommendations ...... 17 Overview ...... 17 Maintenance ...... 17 Perception and Reputation ...... 18 Utilization ...... 18 Long-term Planning ...... 19 Specific Suggestions ...... 21 Bruce Vento ...... 21 Duluth ...... 22 Arlington-Arkwright Park ...... 23 Wilder Playground ...... 24 Eileen Wieda ...... 25 Arlington Recreation Center and Park ...... 25 Sue’s Park ...... 25 Lockwood Park ...... 25 Phalen Lake Elementary ...... 26 Cleveland Quality Middle School ...... 26 Swede Hollow ...... 26 Trail Recommendations ...... 26 Bruce Vento Regional Trail ...... 27 Maryland Avenue ...... 27 Johnson Parkway ...... 28 Arlington Avenue ...... 28 Idaho Avenue ...... 28 East Larpenteur Avenue ...... 29 ii Facilities Along the Bruce Vento Regional Trail ...... 29 Gateway State Trail ...... 29 Phalen Park Trails ...... 31 Recommendation Summary ...... 32 References ...... 33 Appendix A: Contact List ...... 34 Appendix B: Intersection Survey ...... 35 Appendix C: Student Survey ...... 36 Appendix D: Park Evaluation ...... 37 Appendix E: Park User Survey ...... 38 Appendix F: Park Questionnaire ...... 39 Appendix G: Trail User Survey ...... 40 Appendix H: District 5 Maps ...... 42 Appendix I: Park Survey Responses ...... 45 Appendix J: Table of Park Usage ...... 52 Appendix K: Park Survey–Inventory of Amenities ...... 54 Appendix L: Park Survey–Comments, Suggestions, and Notes from Citizens ...... 57 Appendix M: The 2001 Superintendent’s Report for the Minneapolis Park and Recreation Board ...... 60 Appendix N: Trails ...... 61 Appendix O: Park Names ...... 62
List of Figures
Figure 1. Frequency of Trail Use ...... 11 Figure 2. Activity conducted on trails ...... 11 Figure 3. Survey of Perception of Park Safety ...... 12 Figure 4. Survey of Safety Perception on Trails ...... 13 Figure 5. Alarms ...... 14 Figure 6. Aggravated Assaults in Parks of District 5 ...... 14 Figure 7. Burglary at the Parks of District 5 ...... 15 Figure 8. Citizen Assistance by Authorities ...... 15 Figure 9. Auto Theft ...... 16 Figure 10. Disorderly Conduct in District 5 Parks ...... 16
List of Tables
Table 1. During the past two years, have your or family members used any of the following City of St. Paul Park System facilities ...... 8 Table 2. How safe do you and household members feel using City Park System facilities ...... 8
iii Table 3. How safe do you think City Park System facilities are? ...... 8 Table 4. How do you get to the Recreation Center? ...... 8 Table 5. Arlington Avenue East ...... 9 Table 6. Idaho Avenue ...... 9 Table 7. East Larpenteur Avenue ...... 9 Table 8. Maryland Avenue ...... 10 Table 9. Johnson Parkway ...... 10 Table 10. Arlington Avenue ...... 10 Table 11. Edgerton Street ...... 10
iv Executive Summary
Payne-Phalen is a diverse neighborhood with a deep history and heritage. In September of 2004, the District 5 (D5) planning council invited students from the University of Minnesota Problem Solving course in Natural Resources to partner with the Council to identify areas within the district that could be improved and enhanced as well as develop ideas that would improve their overall use of available natural resources in this historic area of the city. To do this the group inventoried current conditions, assessed available opportunities, looked into areas of concern from community members, such as safety, education, available green space and community involvement.
To achieve the goals of the community, the students attended a community meeting and documented areas that seemed to be of major concern to the community residents.
The class was divided into four groups to ensure that all areas of concern were researched. The four areas were environmental education, public participation in community planning, parks and trails, and natural areas and green space.
This report focuses on improving and developing the existing parks and trails in the Payne-Phalen neighborhood. From September through November 2004, many surveys, observations, and interviews were conducted to determine what the needs and wants of the D5 residents were.
After careful analysis of our findings we have found that the major concern of residents is safety in the parks and on the trails. The idea of safety has been found to affect many issues such as clean parks, proper lighting, safe intersections, and many more.
The neighborhood is a beautiful place and with the implementation of the following recommendations, Payne-Phalen can also be a safe place for the residents of D5 to recreate in.
1 Introduction
When St. Paul became the State Capital of Minnesota the city grew rapidly and in 1854 became officially incorporated as a city. In addition to serving as the capital city, St. Paul was the leading port of the Upper Mississippi. The port was located on the north side of the river in a valley where Phalen Creek and Trout Brook joined the Mississippi, near what today is Swede Hollow Park. St. Paul’s East side has a rich history of supporting immigrant populations. Until 1920 when the Swedish immigrants made their mark in the city, the German immigrants were the single largest ethnic group in St. Paul. The Payne-Phalen neighborhood attracted immigrants because it provided places of employment for unskilled and semiskilled workers.
Today Payne-Phalen (District 5) maintains the history of supporting a diverse ethnic population. In the year 2000, D5 contained 31,531 people. This represents an annual growth of 18 percent since 1990, while St. Paul as whole only grew by 5.5 percent. Figures retrieved from the 1980 census show that more than 95 percent of the population was Caucasian in D5. Since 1980, the composition of the area has changed dramatically. Between 1990 and 2000, the Caucasian population decreased from 82 percent to 49 percent of the total population. The African American and Hispanic populations both grew from 5 percent to 11 percent. Of the total district population, the Asian population grew the largest from 7 percent to 24 percent of the total population.
People of different ethnic and cultural backgrounds often use the parks and trails very differently and as the area has grown and recreation and sport interests have become more diverse, people are seeking a wider range of recreation opportunities such as sport facilities and outdoor recreation areas. With such a dramatic shift in D5’s demographic composition it is important to determine the current trends of user preferences in the parks and on the trails in the area.
In 2004, the D5 planning Council invited students from the University of Minnesota’s Problem Solving course in Natural Resources to partner with the Council to identify areas within the district that could be improved and enhanced as well as develop ideas that would improve their overall use of available natural resources in this historic area of the city. To do this we inventoried current conditions, assessed available opportunities, looked into areas of concern from community members, such as danger in the parks at night, and much more.
The principle goal for the class was, in part, to empower the Payne-Phalen community by providing them with a planning framework to enhance natural resources while raising citizens' awareness of the benefits associated with their environment. The class was divided into four groups: Environmental Education; Public Participation in
2 Community Planning; Parks and Trails; and Natural Areas, Green Space, and Reclamation. Each group focused on different natural and social resource issues within the District.
Our group focused on the parks and trails of D5 and how they can be used to unify an ever changing and diversifying community. Our primary objective was to gather as much information as possible to give us a comprehensive understanding of the current situation of the parks and trails within D5. We identified what the community wanted as well as what the existing resources could currently support. This information was then assimilated and analyzed in the hopes of devising a plan that will build a stronger community in D5. The result of implementing this plan will be a community that is leading St. Paul into a new era by integrating its ethnically diverse neighborhoods and its natural resources, specifically parks and trails, to build a stronger and more unified community.
Goals • Improve overall quality of life by incorporating ideas from people inside and outside of the community to suggest ways for creating a continuous trail system within the community that targets existing natural resources. • Provide information to the people of D5 about how natural resources can enhance their quality of life and create a greater sense of place within their community.
Study Area /Site Characteristics
The Payne-Phalen neighborhood (District 5) is located in the Northeast corner of St. Paul, Minnesota. This area has a population of 31,531 people and is growing daily. The range of household income in the community is middle to lower level. The neighborhood is very diverse, with the Caucasian population making up approximately 49 percent of the area, Asian population making up around 24 percent, the Black and Latino populations, each making up around 11 percent, American Indians making up 1 percent, and 5 percent of the residents are multiracial.
Within this neighborhood there is a large number of students under 18 years of age, making up 67 percent of the total community. With this high number of young people and the very diverse backgrounds and cultures within Payne-Phalen, the park and trails system should be a very important part of the community. There are currently eight parks available that are evenly dispersed throughout D5. The parks range in acreage from 0.83 acres to 23 acres.
The children rely on safe areas to play and safe ways to get to and from these parks. Also many people in the Payne-Phalen neighborhood rely on the trails to get to and from work. There are three main trails in the Payne-Phalen neighborhood. These
3 trails are the Gateway State Trail, the Bruce Vento Trail, and the trails at Lake Phalen Park. The types of opportunity experiences and activities on these trails vary. Currently, many of these trails do not connect to other trails and some have dead-ends that go to nowhere in particular. For this reason, it is important to focus on trail accessibility and ensure safe connections among trails (US Census 2000).
Methods
Trail Evaluation During our research we surveyed all intersections of the Gateway Regional Trail and the Bruce Vento Trail that are within District Five. We measured several critical variables at each intersection. The variables and conditions measured were:
• Presence of a trailhead sign • Presence of parking facilities • Width of intersection • Speed limit of automobiles at intersection • Conditions and quality of road surface at intersection • Approximate level of automobile traffic at intersection • Approximate level of trail user traffic at intersection • Types of signs found at and near intersection, both on the trail and along the road • Possible visual obstructions along the road and the trail • Presence of lighting at intersection • Facilities at intersection (i.e., garbage cans, restrooms, parking)
We also drew a simple diagram of each surveyed intersection for future reference. To determine the width of the intersection we measured from where the shoulder of the road meets the trail surface. To determine the conditions and quality of the road surface at the intersection we looked for the presence of cracks and gravel on the road surface, which could be hazardous for some user groups such as rollerbladers. To determine the level of automobile traffic we counted the number of vehicles that passed through the intersection in one-minute time intervals. We took numerous samples for this data. Visual obstructions were determined by traveling down the road and trail. We looked for any physical objects such as parked automobiles and vegetation that could be a visual obstruction to either individuals operating a vehicle or individuals using the trail.
To conduct our on-site trail surveys, we asked every person encountered on the trail if they would fill out a survey. If the individual declined our request we pursued the issue no further. If the individual agreed to fill out the survey we explained why we were conducting the survey and informed them they did not have to answer all the
4 questions and were welcome to ask us any questions at any time that they might have. While surveying an individual, we did not ask others encountered to fill out the survey so we would be able to have one-on-one contact with the individual filling out the survey in case they had any questions. While conducting the surveys we visited the trails on bicycle and foot. The majority of surveys were conducted from bicycle to allow for easier mobility. Our surveys are not free of bias as we were only able to survey individuals that spoke English.
Park Evaluation For the first couple weeks we worked on familiarizing ourselves with the Payne- Phalen neighborhood. We began this by literally touring the entire neighborhood. This was accomplished by splitting the district into four quadrants, to make the traversing easier. We took a map of the area and used the north, south, east and west borders of the district to establish the borders. Within the district borders, transects were made by using the major roadways. Larpenteur was used as the northern border and the RR tracks were used to define the southern border. The north-south midline was defined by using Maryland and Arcade was used for the east-west midline. Upon completion of the transects we were ready to begin the traverse of the area.
A Global Positioning System (GPS) unit, a digital camera and a car were necessary. We drove nearly every street, making a zigzag pattern of the area. We drove east to the transect boundary and then north to the next street and then drove west to the west boundary. During the traverse, notes and pictures were taken and any possible points of interest were plotted into the GPS. They included: parks, green spaces, buildings both vacant and occupied, schools, changes in ethnicity and economic variations (if noticeable), trail crossings, side walks (present or not), bike lanes, dangerous intersections, busy streets, libraries, community centers, large complexes, malls, development, fire houses, police stations, anything that we felt would give us a sense/insight into the community.
Since we were specific to parks, a more detailed inventory was taken on foot. At each of the parks, we took more detailed photos and inventories of the park. Notes were made on condition of the equipment and the various facilities, and preliminary ideas were noted.
All of this was completed before the town meeting on September 14, 2004. This proved to be extremely beneficial because we were able to relate to the majority of the areas that the residents at the meeting talked about and we actually were more familiar with some areas than many participants at the meeting.
Detailed park survey After touring the neighborhood and attending the town meeting to get a sense of direction, a more detailed inventory of the parks in the district was undertaken. Each
5 park was given its own inventory sheet (see Appendix D). Interviews were conducted using a random sampling process following three guidelines: (1) if there were less than five people in the park, all subjects were interviewed; (2) if the number was 20 or less then every fourth person was interviewed; and (3) if there were 50 or fewer people every eighth person was interviewed. We also circumnavigated the parks to get the opinions of people that lived adjacent to or within a few blocks of the parks– every willing person encountered was interviewed (see Appendix F: Park Questionnaire).
Student interviews were conducted following one of two guidelines. We were fortunate enough to have two teachers at one of the schools willing to help us distribute the interviews to their classes (see Appendix C: Student Survey). Additional interviews were conducted adjacent to the school grounds immediately after school was released. Permission for this was sought and granted from the school principle or administrator to let them know what we were doing on and around the school grounds.
Interviews were also conducted with a variety of community members. The community leaders suggested many people that we should talk to at the first community-planning meeting. Other community members were found while conducting park and trail interviews or while traversing the neighborhood and locating places of business that we felt would have a strong sense of community, e.g., community education centers, clinics, firehouses. Many of the interviews conducted were from the various community groups. The underlying theme was to get an idea of how they, their families and their fellow community members used the parks and trails. We also inquired as to whether they had any ideas of how to get their circles of friends and acquaintances to increase usage of these resources.
A park usage spreadsheet was made to get a better idea of overall park usage (see Appendix I: Park Usage). Again, each park had its own sheet (see Appendix F: Park User Survey). Each sheet included a column for the number of people present in the park, the activities they were involved in while in the park and the time of day the survey was taken.
There were two biases involved in the conducting of park interviews. One was that the interviews conducted were only of people found inside the park using its facilities. The second was the presence of a language barrier that made it uncomfortable and challenging to interview Hmong and Hispanic groups and individuals.
6 Findings
Public Opinion In the winter of 2003, the City of Saint Paul conducted an anonymous phone survey to 700 randomly selected St. Paul residents. The survey took place between February 5 and March 4, 2003. The information that was of interest to us included who was using the parks and how safe the residents felt when they used the parks, or if they didn’t use the parks how safe they perceived the parks to be. This survey was conducted for many residents throughout all of St. Paul. Therefore, the results of the survey should be significant for use in this study.
Graffiti By allowing graffiti to remain visible for extended periods of time sends a message that this type of behavior is acceptable to residents, according to experts. Additionally, by allowing graffiti to remain in an area, it can encourage others to degrade the community with more graffiti or other acts of vandalism. As stated in one article, “ . . . removing graffiti as soon as it appears is the best way to deter further vandalism” (Slahor 1996).
James Q. Wilson, UCLA criminologist and framer of the “broken windows” theory, contends that a broken window left unfixed is a sign that nobody cares and leads to more damage; similarly, disorderly conditions and behaviors left untended are signs that nobody cares and lead to serious crime, abandonment of neighborhoods to criminals, and urban decay. The policy corollary is that minor problems warrant serious attention, a premise that challenges reigning criminal justice practice (Kelling 1997).
City ordinance prohibits vandalism in the form of graffiti and has defined it as a misdemeanor. The city will remove graffiti from public and private facilities. Call the citizen service office at 651-266-8989 (St. Paul City Council 2004).
Recreation Study in 2003 The majority of participants in this citywide phone survey were 25 years of age or older. Please note that it was required that anyone taking this survey be 18 years of age or older. A total of 700 individuals were surveyed. Table 1 shows the percentage of individuals who used or did not use parks in their area and if they did which types they preferred. Table 2 shows how safe people felt that used the parks on a regular basis. Table 3 shows how safe people who did not use the parks perceived the parks to be. Another important piece to this survey refers to how people get to and from the recreation centers. Table 4 illustrates what mode of transportation people use to get to and from the facilities.
7 Table 1. During the Past two years, have you or family members used any of the following City of St. Paul Park System facilities?
Park System Facilities Yes No DKR Smaller Neighborhood Parks 63% 37% 0% Larger regional parks, such as Como or Phalen Park 76% 24% 0% Ballfields? 29% 71% 0% Trails? 53% 47% 0% Golf Courses? 21% 79% 0%
Table 2. How safe do you and household members feel using City Park System facilities?
Very Safe 59% Somewhat Safe 37% Not too Safe 4% Not at all Safe 0% Don’t know/Refused 0%
Table 3 How safe do you think City Park System facilities are?
Very Safe 8% Somewhat Safe 53% Not to Safe 21% Not at all Safe 6% Don’t know/Refused 12%
Table 4 How do you get to the Recreation Center?
Car 58% Walking 39% Public Transportation 2% Something else 1% Don’t know/Refused 1%
8 Intersection Survey of Payne-Phalen Trails Over the past few months we spent time in the neighborhood investigating all trail intersections. When conducting these surveys, safety was our number one concern. The intersections on the Bruce Vento Trail are:
• Arlington Avenue (Table 5) • Idaho Avenue (Table 6) • East Larpenteur Avenue (Table 7) • Maryland Avenue (Table 8) • Johnson Parkway (Table 9)
Table 5. Arlington Avenue East.
Intersection Arlington Ave. E. & Bruce Vento Trail Trail Bruce Vento Trail Speed limit at Intersection 25 Mph Approximate level of Vehicle Traffic 7 cars per minute Signage near intersections (good or poor) Poor Possible view obstructions Hills on west side of trail Lighting at intersection 1 street light at intersection
Table 6. Idaho Avenue.
Intersection Idaho Ave. & Bruce Vento Trail Trail Bruce Vento Trail Speed limit at Intersection 24 Mph Approximate level of Vehicle Traffic 2 cars per minute Signage near intersections (good or poor) Poor Possible view obstructions Brush obstructing view Lighting at intersection Street light approx. 55ft W. of intersection
Table 7. East Larpenteur Avenue.
Intersection Bruce Vento Trail and E. Larpenteur Ave. Trail Bruce Vento Trail Speed limit at Intersection 30 Mph Approximate level of Vehicle Traffic 11 per minute Signage near intersections (good or poor) Poor Possible view obstructions Brush along edge of trail Lighting at intersection 2 streetlights approx. 180 ft. from intersection.
9 Table 8. Maryland Avenue.
Intersection Bruce Vento Trail and Maryland Ave. Trail Bruce Vento Trail Speed limit at Intersection 30 Mph Approximate level of Vehicle Traffic 30 per minute Signage near intersections (good or poor) Poor Possible view obstructions None Lighting at intersection 4 street lights at intersection
Table 9. Johnson Parkway.
Intersection Bruce Vento Trail and Johnson Parkway Trail Bruce Vento Trail Speed limit at Intersection 30 Mph Approximate level of Vehicle Traffic 30 per minute Signage near intersections (good or poor) Poor Possible view obstructions None Lighting at intersection 4 street lights at intersection
The intersections on the Gateway State Trail are:
• Arlington Avenue East (Table 10) • Edgerton Street (Table 11)
Table 10. Arlington Avenue.
Intersection Arlington Ave. E. & Gateway State Trail Trail Gateway State Trail Speed limit at Intersection 30 Mph Approximate level of Vehicle Traffic 6 cars per minute on average Signage near intersections (good or poor) Good Possible view obstructions None Lighting at intersection None
Table 11. Edgerton Street.
Intersection Edgerton St. & Gateway State Trail Trail Gateway State Trail Speed limit at Intersection 30 Mph Approximate level of Vehicle Traffic 3.5 cars per minute on average Signage near intersections (good or poor) Good Possible view obstructions Parking on Northeast Corner Lighting at intersection None
10 Trail Survey
From September 2004 to October 29, 2004, a survey was randomly given to trail users in the Payne-Phalen neighborhood. Please note that the survey was only given to people over the age of 12. The total number of people that completed the survey is 50. The survey was conducted at random times and days throughout the week. This was done to try and get the opinion of all types of trail users. The results of this survey are shown in the graphs to follow.
· Walking is the most frequently conducted activity · Recreation was the primary activity conducted
Figure 1. Frequency of Trail Use.
Figure 2. Activity conducted on trails.
11 Community Perception of Safety on Parks and Trails After attending the community meeting on September 14, 2004, we walked away with the feeling that the community believed their parks and trails were unsafe. Many people mentioned that the parks were not safe for their children to use alone and that the parks’ level of safety decreased after dark. The issue of a child not being able to attend a park without feeling safe concerned us, so we looked to the local police department for answers concerning the issue of attending the parks after dark. We were unable to acquire accurate findings about safety after dark because we feel that no matter what neighborhood one is in they should not be going out after dark alone. It does not matter if one lives in the safest neighborhood or the roughest neighborhood, it is not advisable to be out alone at night. The following graph shows safety perceptions from our park and trail surveys.
· Most people surveyed feel safe on trails
Safety Perceptions in Park N=68 50
40
30
20 # of Responses 10 0 Yes No Not @ night Do you feel safe?
Figure 3. Survey of Perception of Park Safety.
12
Safety Perception on trails n=50
50
40 30 20 10
# of responses 0 Yes No Do you feel safe?
Figure 4. Survey of Safety Perception on Trails.
Effects on perception of safety A great example of what cleaning up the neighborhood can do is illustrated in Little Havana, a traditionally Hispanic area in one of the oldest sections of Miami. José Martí Park had been a center for drug dealers and a way station for the homeless in that area. But once neighbors organized and began cleaning up the park, the atmosphere changed. Nowadays, schoolchildren play in the park and people of all ages can be seen shuffling dominoes at night. The key is to bring the community into the decision-making process about where gardens, playgrounds, and recreation facilities should be located and how they are managed (TPL 2004).
Police Reports We took the concerns of the neighborhood to the local police department who provided us with the crime reports for the areas surrounding the major parks in the Payne-Phalen neighborhood. These reports gave statistics from the past four years until October 2004. After reviewing the results we found crime to be much less of an issue than the neighborhood perceived it to be. The two major areas that we see as problematic are the Case and Arcade park areas. The following graphs illustrate the crime from the past four years.
13 Crime Statistics for Payne-Phalen Parks
Alarms
BV School BV School 37% Johnson HS Cleveland Jr High 51% Phalen Park Cleveland Jr Johnson HS High 11%
Phalen Park 1%
Figure 5. Alarms.
% of Aggravated Assaults in D5 Parks
Lockwood Park BV School 13% 19% BV School Wilder Playground Johnson HS Clev Jr. High Wilder 24% Playground Phalen Park 19% Johnson HS Phalen Park Lockwood Park Clev Jr. High 6% 19%
Figure 6. Aggravated Assaults in Parks of District 5.
14 Burglary
Arcade 17%
Case Walsh 11% Rose Walsh Rose 6% Case Arcade 66%
Figure 7. Burglary at the Parks of District 5.
Citizen Assistants by Authorities
Forest 10% Case 27% Case Jessie Walsh Arcade Wheelock 33% Jessie Arcade 12% Forest Wheelock Walsh 6% 12%
Figure 8. Citizen Assistance by Authorities.
15 Auto Theft
Forest Case 11% 6%
Case Arcade Forest
Arcade 83%
Figure 9. Auto Theft.
Disorderly Conduct
Case 2%
Jessie 2%
Walsh Case 36% Jessie Walsh Arcade 60% Arcade
Figure 10. Disorderly Conduct in District 5 Parks.
16 Park Recommendations
Our recommended goals for the parks center on four areas:
• Improving the overall condition of the parks, including cleanliness and quality of park facilities; • Building the reputation of the parks as safe and inviting; • Increasing use of the parks through various events and activities; and • Creating a long-term plan for park maintenance and development.
Overview As studies have shown (PPS 2004, Partnerships for Parks 2003) the perception of safety is directly related to use of park facilities. We feel this is the biggest problem the parks and trails in D5 face. All of our recommendations stem from the principle of creating a positive perception of the parks and trails of D5. This can be accomplished by addressing a number of the following issues defined by the aforementioned studies. In many instances the recommended changes are relatively easy and inexpensive, but require the integrated involvement of the schools and their students, the St. Paul Parks and Recreation and citizens of the community. Each of the parks and its facilities has been evaluated using the criteria addressing citizen and park user perception, and from this information the recommendations have been made.
Maintenance Increasing maintenance in parks is a good way to use the infrastructure already in place through the Department of Parks and Recreation. If funding is a factor for the Department to increase maintenance, volunteers can be used. This could include organizations such as neighborhood groups. Taking part in annual cleanups in the parks can bring the community together and increase the sense of pride for the wonderful parks and trails in the community of District Five.
We recommend that the current general maintenance of parks be re-evaluated. The current maintenance staffs are the ones in the parks everyday and would have some of the best insight into the most appropriate approaches and priorities for clean-up and improvement. There are many instances where we feel more could be done in the areas of cleanliness and field maintenance, including the upkeep of turf grass, regular trash pick up, and fixing vandalized facilities.
Each of the parks has substantial needs for improved maintenance and facilities. Maintenance is an important factor in the success of parks, largely because it is a factor that affects people’s perceptions of safety. Poor maintenance of park facilities and trails leads to poor physical conditions of these resources, which could indicate to potential visitors that the area is minimally used and seldom given attention. The lack
17 of attention can give parks an unsafe feeling. Minimal use may make it a more attractive place to conduct illegal activity. In this way poor physical conditions and crime interact causing a cycle of non-use.
Additional and more specific maintenance and facilities suggestions are included toward the end of the section, and are sorted by each park area.
Perception and Reputation As has been mentioned, a major factor in creating a positive reputation for the parks is the public’s perception of the safety of the parks. Studies have shown that the presence of graffiti and litter in parks is correlated with a decreased sense of security. In our inventory of the parks and trails in St. Paul District Five, we have witnessed areas of graffiti, overabundance of litter, and other forms of vandalism. This may be part of the reason that the some of the community feels the parks and trails are unsafe. It is our recommendation that an increase of maintenance in the parks and trails in the District will enhance the community’s perception of security.
Another important part of building the reputation of the parks is the development of a proactive public relations and marketing campaign. According to our surveying of area residents (see Figure 3); the park system currently has an image of being unsafe at night, underutilized and in moderate to poor condition. We recommend that D5 create a specific vision statement and a communications plan to reach the many diverse audiences who may have access to or be interested in visiting the parks. Creative and targeted messages that are developed proactively to spark the interest of the public have a far greater positive impact than the latent, word-of-mouth and sometimes negative “advertising” currently affecting parks utilization.
Utilization In order to increase the use of parks and trails, the District should seek to understand the unique needs of the various populations who may access the parks. Surveys were conducted by the City of Minneapolis concerning the lack of park usage by the minority communities, specifically African American, Hmong, Hispanic and Somali families. Similar to the demographics of Minneapolis, this group of minorities makes up 51 percent of the population of D5, so their needs should be considered if usage is to improve.
The survey found, as we did with our limited surveying, that people like the parks but the facilities do not meet their needs. These groups come to the park as people always have but they come with groups of larger families and like to play soccer, volleyball or basketball and the younger ones use the play equipment and swings. Additional requests were basic and included a “desire [for] benches under the trees, more trash cans and lights, clean grills and bathrooms.” All of these and more fall into the recommendations that we are proposing for D5.
18 An additional recommendation when re-evaluating the programs and facilities being offered is to consider the needs of all the diverse youth in D5 as an important constituency of the overall population. Times have changed and are continuing to change, and the parks, facilities and recreational activities provided need to continue to adjust to the needs of today’s youth. As US Representative Bruce Vento stated, “Urban recreation and sports programs are a proven, common sense and cost-effective means of preventing crime and delinquency.”
It has been shown that community/stakeholder involvement can be the major contributor to a reduction in crime and acts of vandalism (Partnerships for Parks 2003) D5 should engage all the stakeholders of these parks to develop various events and activities that will not only reduce crime but will attract an increased number of visitors. Successful park locations often host youth and adult sports leagues, hold concerts and festivals, and initiate other community-building events.
Further, we recommend that the city consult with local community leaders and evaluate their current park and neighborhood watch programs. Working with the Safe Park and Community Watch Programs, these programs can be used to keep a local eye on the parks and will encourage participation in activities that will ultimately drive utilization.
Long-term Planning Cleaning up the parks, building their image and motivating usage will improve the parks in D5 in the short-term. But we also recommend that the city build a long-term strategy and plan for not only maintaining these improvements but enhancing the facilities and services provided through the parks.
As part of this planning, best practices should be researched from other highly successful park systems across the country such as Seattle (TPL 2004), New York (PPS 2004), and even next door in Minneapolis (Appendix M). Many of these parks have faced similar challenges as the D5 park system, and particularly those in inner cities have relevant issues and solutions.
The ideal master plan should have, at the least, the following elements:
• an inventory of natural, recreational, historical and cultural resources • a needs analysis • an analysis of connectivity and gaps • an analysis of the agency’s ability to carry out its mandate • an implementation strategy (with dates), including a description of other park and recreation providers’ roles • a budget for both capital and operating expenses
19 • a mechanism for annual evaluation of the planning advisory board with which it meets regularly.
The planning advisory board should have members appointed by the mayor or the city council and its sessions should be open to the public. Its role should be to provide the D5 Planning and City Councils with constructive criticism, helpful advocacy, user feedback, and fresh planning ideas.
While most park and recreation departments have plans, too often they do not reach fruition because key elements are trumped by other agencies or private interests. The combination of planning and participation helps make the Seattle system one of the country’s best (TPL 2004) .
This long-term plan should include an ongoing mechanism for soliciting and incorporating feedback from park goers. We recommended implementation of a proven, successful system of evaluating and monitoring the parks as elaborated by the nonprofit Land Trust Fund (LTF) of San Francisco. The following are recommended questions from the LTF that should be evaluated to ensure the success of any programs implemented into the community parks.
User Satisfaction Is your park-and-recreation plan integrated into the full city-wide comprehensive plan? Do you have a park system master plan that is less than five years old? Does the agency have an official citizen advisory board or similar community involvement mechanism that meets regularly? How many contracts do you have with private non-profit organizations? Do you have a city-wide “park friends” organization? How many individual parks have “friends” groups?
Do you know the yearly use of your park system (i.e., user-days)? What is the attendance by time of day; by park; by activity? What are the demographics of your users and non-users? Is there at least one full-time person in the park agency (or elsewhere in the city government) devoted to surveying park users and non-users, and analyzing the surveys?
Safety from physical standard and crime Do you systematically collect data on crimes that occur in parks? Do you systematically collect neighborhood data comparing youth crime rates with the provision of recreational services? Do you know your system’s ratio of male to female users, preferably on a park-by- park basis (TPL 2004)?
20 Specific Suggestions Most of the parks suffered from some of the same issues relating to cleanliness and general maintenance. For example, a number of the parks were lacking an adequate number of garbage dumpsters and were in need of some general buildings and grounds repair, but the needs of each park are unique. Following, are specific recommendations for improving the facilities and grounds at each park area. See Appendix K for specific inventories and Appendix L for a summary of interesting quotes from local citizens surveyed and interviewed in the parks.
Bruce Vento Out of all the parks in the District, Bruce Vento is in need of the most improvements.
• We feel if there are going to be any field improvements in the District, Bruce Vento School should be evaluated first. This field is used by the Elementary school daily for outdoor activities, recess, etc., but it is in poor condition. - The field could be leveled and a better drain field/area could be implemented to stop the current erosion. The draining areas could be engineered to drain to a low area. This area would have a storm water garden that could be maintained by the school children through an educational program. This involvement by the local children would give them ownership and pride of the school and its facilities, a valuable tool for neighborhood improvement (see TPL 2004 and PPS 2004 for more details on involvement). - During the leveling process the field material itself could be improved, as it is currently full of rocks and debris. Once the field is leveled there would be room for a soccer field and the two current baseball diamonds and backstops could be improved. - The lower area of the field which currently houses the playground and sandbox would be improved. The north edge of the lower area is showing signs of erosion into the sandbox and equipment area. This recreation area is the filter for the sediment and runoff from the upper field, affecting the quality of the sand. This could be ameliorated by creating the rain water garden at Bruce Vento School • The blacktop area next to the school, where the old annex school buildings were located, could be repaired, making a substantial difference in appearance. This area could be designed for multi-use. One to two poles, backboards and hoops could be installed and lines painted for basketball, four square and hop- scotch in the same area. These changes should be made with the recommended improvements to the adjacent field as to facilitate flow. • Swings could be added to the existing playground equipment. • We recommend softer lighting, enough to illuminate the playground area so that vandals will not want to spend time in the equipment area.
21 Duluth • The area would benefit from a walking path that circumnavigates the park, connecting the trail and creating a great walking area. • We also recommend adding swings, as well as signage for “friends of the park” and to indicate it is a drug-free zone. • Basketball: - According to our inventory and use survey results, this was the most used park (Appendices J and K). - Replace the existing cracked asphalt that has grasses and weeds growing in it and repaint it. - Add a new hoop to replace the broken one and a second one to create a full space. • Fields: - The fields themselves are currently in good shape but some usage adjustments could be made. - There are eight softball fields but there is no soccer field or football field marked off. - From our observations Duluth Park was the second most used park in D5, and Phalen was number one. - Potential conflicts among users were observed. The after-school flag football program was using the field closest to Duluth Street (field #1) which also has soccer goals on it. There was an after-school program playing soccer on the lower field to the east (field #2), which has no goals. We recommend that field usage and allocation/location should be re- evaluated. Possibly there should be an additional dual usage soccer/football field put in area two (field #3). This would alleviate the problem of user conflict and promote the scheduling of the concurrent soccer and football programs. This change would not affect the current eight softball fields. - We suggest that a diagram of the football/soccer field areas be created/ posted (fields #1-3). - Football goal posts could be added. These posts should be removable so that it does not create a conflict with softball/baseball field usage in the summer. The funding for these could come from fundraising activities by the local community and team(s). • Barbeques and Pavilions: The recreation center is old and there might not be enough space for all the activities that could be hosted by the park. For example, the National Guard holds drills there on some weekends. There is a good basketball program but the gym is not full sized, etc. - There is sufficient space located behind or adjacent to the center for a pavilion that could also have two–three BBQ grills and benches located inside of it and/or next to it. This pavilion would provide for more
22 outdoor opportunities for the after-school and summer programs to use the outdoors in inclement weather. It would also be a good shelter for people using the park. BBQ’s and benches could be used on the weekends by area families when they are at the park. • Interconnection between the parks and schools - Cleveland Quality Middle School uses it for its flag football program. - Local softball and baseball teams use it.
Arlington-Arkwright Park • General: - The area is currently in great condition but there is a lot of unused grass space. Evaluation of the large open field located on the south end of the
23 baseball field that is used by the Arlington Phoenix could be transformed into a multi-use recreation field for soccer, football, and other field sports. - We recommend that the attractive wooded area in the southeastern quarter of the park and the storm water drainage area on the west side Arkwright and the south side of Arlington and south of Arlington be re-evaluated. The wooded area currently contains a few unofficial trails that were created by people cutting through the area but it is not very inviting to most people. The storm water pond is used by a number of species of waterfowl and other wildlife. A system of impervious and semi- impervious gravel trails could be added that would circumnavigate both areas and cut through the wooded area. This would allow these two natural areas to be interconnected with a cross walk on Arkwright. Evaluation of the species present could be done and a planting of native watershed, shrub and tree species could be conducted. Multilingual signage could be installed at the most visible points explaining the area, providing an excellent environmental education opportunity. • Barbeques and pavilions: - A pavilion, benches and BBQ stands could be added on the flattened hilltop that contains the basketball and tennis courts. This is a great location because families could come to the park and have a number of facilities at their immediate disposal. It would also be ideally located for parents to watch their children play at any of the fields while providing a birds-eye view of the area and shelter in inclement weather. • Add a sign labeling the park and put it on Arlington facing the Gateway Trail–a possible connection point. • Add volleyball courts–the space is available.
Wilder Playground • Provide bleachers for the fans/parents and benches for people enjoying the park. • Field: The football team’s coach is T-bone, and Mike is his assistant. They have been city champs numerous times so they deserve a better field, possibly with goal posts. The city could work with them to share the cost burden. There are no lines painted or they are very faded, and the field is full of rocks and gravel. • Add a path going around the park, integrated with workout stations. The kids at City Academy (contact Milo Cutter, director) would be willing to take on the responsibility to build it and maintain it. Work with them to keep the park clean. • Integrate the soccer field into the football/softball field. There is high usage of the fields for summer programs. • Possibly provide a soccer goal we would need to conduct more usage research.
24 • Lighting is good around the park except on Jessie; add lighting in the equipment area.
Eileen Wieda • Basketball: - Replace the missing and broken hoops. - It is different from the majority of the outdoor courts in that it has a full- size, court, unlike the normal half court seen at the majority of other parks. • Remove the unused volleyball court and/or move it. • Add drug-free zone and friends of the park signage. • There is a backstop but it is in poor condition. There is enough room on the field for a soccer field and possibly a net or two.
Arlington Recreation Center and Park • There is high usage for basketball (see Appendix J). We would recommend installing an outdoor basketball hoop. • Add swings and benches nearby for the parents watching their kids at the park. • Add “drug-free” and “friends of the park” signage. • Add garbage cans, as there is currently only a dumpster
Sue’s Park • Add a drug-free zone sign due to the current undesirable use of the area (see Appendix I)–possible user conflict may occur. • Fix the drinking fountain or remove it. • There is an exposed electrical box at the center of the park that should be fixed. • Plant a few more trees for shade. It would also be a great location for a community garden due to its openness and accessibility by a number of people living directly near the park.
Lockwood Park • Basketball: replace the missing pole from the pre-existing space, repave and repaint it. • Fix the volleyball court. • There is great potential for a soccer field. • Improve the park signage, including the name of the park and a drug-free zone sign. • Add a garbage can next to the potentially improved volleyball and basketball areas.
25 Phalen Lake Elementary • Fix the dilapidated field. The kids from the school use it for recess and it currently looks similar to the fields at Bruce Vento or Wilder Playground. • Add garbage cans that could be emptied and maintained by the students and janitorial staff of the school.
Cleveland Quality Middle School • Fields: The field and recreation area next to the school are in poor condition. There is a running track and two baseball/softball diamonds. There is also an impervious surface next to the school that serves as a parking spot and recreation area but is in disrepair. It contains a broken basketball hoop that should either be replaced or removed. This hoop could be taken down by the facilities maintenance staff as part of their evening duties to prevent further damage. • Add more garbage cans. There was a lot of garbage lining the fence around the running track and field. There was one garbage can behind one of the backstops and it was in poor condition.
Swede Hollow • This is a very nice, quiet park that is used primarily for walking and nonsport activities. The addition of lighting in the darker corners is recommended. Add emergency lights due to the feeling of seclusion one gets when in the back areas of the park.
Trail Recommendations
There are several actions that can be taken to increase the safety, aesthetics, and quality of the trails in the Payne-Phalen neighborhood of St. Paul. Some of the recommendations for the trails in Payne-Phalen are to:
• Increase lighting on trails, primarily at intersections that do not have lighting. • Increase maintenance of facilities on trails. • Connect schools to parks and recreation centers with bicycle lanes or routes. • Provide or install kiosk type signs with information and maps of trails and parks. • Increase perception of safety on trails through education. • Continue to connect existing trails to form a complete trail network.
During our research we were unable to find any signs on the trail system that had a map of all the trails in the area. The Minneapolis Chain of Lakes park area has several kiosks with maps and information regarding the parks and trails and this would greatly benefit the parks and trails of Payne-Phalen. This type of information
26 would show individuals where they can go on the trail network, where they currently are, and what facilities they might find.
Construction of kiosks could be done by a Boy Scout group or by another volunteer organization to help reduce costs. Maps printed on poster-sized paper could be used temporarily while new trails are being constructed to allow for updated maps to be produced when applicable. Once construction of all trails in the area is completed fiberglass embedment signs or a similar permanent sign material should be used. Fiberglass signs are relatively strong and resistant to vandalism and weather (Trapp, Zimmerman). Signs should be in several languages which reflect the diverse populations found within Payne-Phalen. All the signs should contain a similar logo for the Payne-Phalen neighborhood. This logo will help people attain a sense of community when viewing the signs.
Bruce Vento Regional Trail The Bruce Vento Regional Trail starts just south of Swede Hollow Park and continues north past Lake Phalen. The Bruce Vento Regional Trail connects Swede Hollow Park with Duluth Park and Lake Phalen. Currently, the majority of the Bruce Vento Regional Trail that is in the Payne-Phalen neighborhood is closed due to construction of the Phalen Corridor. The section that is closed is from Swede Hollow Park in the south to the intersection of Johnson and Maryland, which is south of Lake Phalen. The Phalen Corridor project will connect the Bruce Vento Regional Trail with the Gateway State Trail providing individuals with an expanded and continuous trail network.
There are five street and trail intersections in Payne-Phalen along the Bruce Vento Regional Trail. These intersections are located at Arlington Avenue E, Idaho Avenue, Johnson Parkway and Maryland Avenue E, Johnson Parkway, and Larpenteur Avene E. The two intersections south of Lake Phalen were found to have the highest level of traffic. These intersections are where the Bruce Vento Regional Trail crosses Johnson Parkway and the intersection where the Bruce Vento Regional Tail crosses Maryland Avenue E at Johnson Parkway.
Maryland Avenue Maryland Avenue is one of the busiest intersections studied along the Bruce Vento Regional Trail. This site has a small parking lot near the tennis facilities. There is a stop sign on the trail at the north end of the intersection but it is missing from the south end. There is a sign post on the south end though. There were no signs observed along the street that informed motorists of pedestrian traffic. There were no visual obstructions observed at this intersection. Four street lights are at this intersection which provide sufficient lighting at this intersection. Suggestions for improvement at this intersection are:
27 • Replace missing stop sign • Install “Pedestrian Crossing” signs on street
Johnson Parkway Johnson Parkway is another intersection along the Bruce Vento Regional Trail that receives high levels of vehicular traffic. The trail is parallel to Johnson Parkway to the north of the intersection and crosses Johnson Parkway shortly before Phalen Boulevard. There were no signs at this intersection informing trail users that the trail crosses Johnson Parkway at this site. A sidewalk continues running parallel to Johnson Parkway at this site that can cause confusion to trail users. A sign is on the west side of the intersection informing trail users that the trail is closed at this point due to the Phalen Corridor Project construction. There are many signs along the road near this intersection but none of them warn motorists of pedestrian traffic. There are four street lights at this intersection that provide adequate lighting. A bicycle lane is on Johnson Parkway and another bicycle lane can be found on Phalen Boulevard. Suggestions for improvement at this intersection are:
• Install “Pedestrian Crossing” signs on street. • Install signs on trail informing trail users where trail goes. • Provide a map at intersection showing trail users where they are and other features.
Arlington Avenue Arlington Avenue is on the east side of Lake Phalen. This intersection experiences lower levels of traffic than the previous intersections. This intersection has adequate signage on the trail. There is one Pedestrian Crossing sign on the west side of the intersection but none on the east side. The trail is on a slight hill on this intersection. The hill could be a possible visual obstruction for motorists traveling from the east. This could also be a visual obstruction for trail users. There is one street light at this intersection which provides sufficient lighting. Suggestions for improvement at this intersection are:
• Increase number of “Pedestrian Crossing Ahead” signs. • Paint cautions or warnings on the trail due to the hill obstructing the full view of the intersection from the trail.
Idaho Avenue Idaho Avenue is another intersection that experiences low levels of vehicular traffic. The road at this site is asphalt with pea gravel on top. This surface could be a safety issue for some user groups such as rollerbladers. There is adequate signage at this intersection both on the trail and on the street. There is one street light approximately 55 feet to the west of the intersection. There is a lot of brush growing along the trail at this site that is a visual obstruction for both motorists and trail users. The brush is
28 predominantly on the north side of the trail. Suggestions for improvement at this intersection are:
• Remove brush along trail. • Resurface intersection with smooth asphalt.
East Larpenteur Avenue East Larpenteur Avenue is the northern boundary for D5. This intersection receives slightly higher levels of traffic than Idaho and Arlington Avenues. There are bicycle lanes along East Larpenteur Avenue at this intersection. There is adequate signage on this intersection on both the trail and the street. There are two street lights on the street approximately 180 feet from the intersection. There is some brush growing along the trail at this intersection that creates a visual obstruction for both motorists and trail users. Suggestions for improvement at this intersection are:
• Increase level of lighting. • Remove brush from trail. • Provide a map at intersection for trail users. • Lighting along the Bruce Vento Regional Trail.
Currently, there are no lights along the Bruce Vento Regional Trail except at the intersections. Some small portions of the trail along Johnson Parkway receive lighting from the adjacent streetlights. The addition of lights on the trail would increase the level of safety that individuals using the trail would receive. Lighting would increase the level of visibility along the trail. This is especially important during the winter months when there are limited day light hours.
Facilities along the Bruce Vento Regional Trail Currently there are very few facilities such as garbage receptacles, signs with maps, and benches along the Bruce Vento Regional Trail. During our research we were able to find only one trash receptacle along the Bruce Vento Regional Tail, located where the trail closes at the intersection of Johnson Parkway. One of our main recommendations for the Bruce Vento Regional Trail is the addition of more garbage receptacles along the trail. The addition of garbage receptacles along the trail should help reduce the accumulation of litter along the trail and will also provide a place for individuals using the trails with their dogs to dispose of dog waste. Benches are another facility that could be added to the Bruce Vento Regional Trail. Benches would provide places for individuals to rest and relax and make the trail more inviting.
Gateway State Trail The Gateway State Trail runs from Cayuga Street in St. Paul to Stillwater. It is a total of 18.3 miles long with only 0.75 miles in Payne-Phalen. The Gateway State Trail
29 connects with the trails at Keller-Phalen Regional Park and will connect with the Bruce Vento Regional Trail when the Phalen Corridor is completed. Though only a small portion of the Gateway State Trail is in Payne-Phalen, it is an important resource for the community as it provides non-motorized transportation and recreational opportunities. The Gateway State Trail is to continue south from Cayuga Street to the State Capital in the future when land becomes available. There are two intersections along the Gateway State Trail in Payne-Phalen, one at Arlington Avene E and Edgerton Street.
The intersection at Arlington Avene E. has a parking lot with a bench, trail map and trail information board, and a portable bathroom facility. The level of safety at this intersection appears to be low. There are several factors that contribute to this. For instance, there is a sign at the entrance of the parking lot that warns people that vehicles are frequently broken into at this site. The portable bathroom at this site has been severely vandalized as well and needs to be replaced. It has been set on fire and is not in a condition that is usable.
Suggestions for improvement for this intersection are: • Replace portable bathroom. • Increase lighting at intersection and in parking facility. • Repaint “Stop Ahead” on east side of trail as it has worn off. • Replace vandalized and missing signs.
The intersection at Edgerton Street has a small parking area on the northeast section of the intersection. There is a map similar to the one at Arlington Avenue E. of the Gateway State Trail with other trail related information on it. Vehicles parked in the parking area may pose a safety concern as the parking area is in close proximity to Edgerton Street and the Gateway State Trail. Vehicles parked there may be a visual obstruction at this area. An additional safety concern at this intersection is the lack of lighting. There was no lighting observed at this site. North of the intersection on Edgerton Street is a sign that informs motorists of the speed limit restrictions for a school zone end. As a result vehicles are increasing in speed from 20 MPH to 30 MPH shortly before they approach the intersection.
Suggestions for improvement for this intersection are: • Install lighting at intersection to increase visibility. • Change location of school zone speed sign to after trail intersection. • Move parking facility farther off road. • Replace vandalized and missing signs.
30 Phalen Park Trails Phalen Park is the largest park in Payne-Phalen. Many different recreational opportunities are available, ranging from swimming at the beach, fishing, and golfing. Phalen Park has pedestrian and bicycle paths that go around Lake Phalen and throughout the entire park area and adjacent community center. The trail that goes around Lake Phalen is 3.2 miles in length (St. Paul Parks and Recreation). The Gateway State Trail is to the north of Phalen Park and the Bruce Vento Regional Trail is to the east. Both of these trails are easily accessed from trails at Phalen Park. The trails in Phalen Park were recently repaved with many sections of the trail being split to allow separate trails for walkers and bicyclists. The trails at Phalen Park are plowed in the winter months to provide recreational opportunities year round. The golf course at Phalen Park provides cross-country skiing trails in the winter. There is a total of ten kilometers (6.2 miles) of groomed trails for cross-country provided on three different loops (St. Paul Parks and Recreation).
Recommendations for Phalen Park Trails: • Increase lighting so entire trail network is lit. • Relocate bicycle rack on north side of Lakeside Center. It is currently too close to a retaining/landscaping wall and is unusable. • Replace signs along trails with updated signs. • Paint dividing stripe on trail where trail is multi-use and two-way. • Make trails two-way by replacing one-way signs to increase levels of use and provide safe nonmotorized off street transportation routes.
Maintenance is an important factor in the success of parks and trails. The use of parks and trails relies on people’s perception that they are safe places. If a park is perceived as being unsafe it will decrease the amount of potential users. Maintenance is a factor that affects people’s perceptions of safety. Poor maintenance of park facilities and trails leads to poor physical conditions of these resources. Poor physical conditions may indicate the area is minimally used and seldom given attention. The lack of attention can give parks an unsafe feeling. Minimal use may make it a more attractive place to conduct illegal activity. In this way poor physical conditions and crime interact causing a cycle of non-use.
Studies have shown that features of graffiti and litter in parks are correlated with a decreased sense of security. In our inventory of the parks and trails in St. Paul District Five we have witnessed areas of graffiti, overabundance of litter, and other forms of vandalism. This may be part of the reason that the some of the community feels the parks and trails are unsafe. It is our recommendation that an increase in the maintenance of the parks and trails in the District will enhance the community’s perception of security.
31 Maintenance of parks should include upkeep of turf grass, regular trash pick up, and fixing vandalized facilities. We recommend that maintenance be increased in the following categories.
Categories of parks structures for maintenance • Athletic Facilities - Includes all competitive fields - Baseball, soccer, and football fields - Basketball and tennis courts • Pavilion and shelter facilities • Playgrounds • Open spaces
Maintenance Maintenance of trails should include periodic mowing along the sides of trails to keep vegetative obstacles off the trail and to reduce visual obstacles at street intersections. Sign maintenance along trails should be increased to replace missing components and fix vandalism, such as graffiti.
Increasing maintenance in parks and trails is a good way to use the existing infrastructure already in place through the Department of Parks and Recreation. If funding is a factor for the Department to increase maintenance, volunteers can be used. This could include organizations such as the Gateway Trail Association or neighborhood groups. Taking part in annual cleanups in the parks or along trails can bring the community together and increase the sense of pride for the wonderful parks and trails in the community of District Five.
Recommendation Summary Enhancing the community’s perception of safety in the parks and along trails can lead to an increased use of these resources. Studies have shown that parks and recreation in urban areas can cause reductions in crime. Attention has also been given to the assertion that open space and recreational facilities can cause reductions in crime. In 1994, the Trust for Public Land (TPL) issued a report citing evidence that when adequate parks and facilities are available in inner-city communities, crime rates drop. The basic mechanism behind this is that the more opportunities for recreation and sports that youth are presented with, the less likely they will be to engage in criminal and gang activity. The reasoning behind this is if youth have recreational opportunities available to them they are less likely to get involved with criminal activity. This ultimately can make the community a safer place. Additionally, parks and recreation programs have been developed without community input. People must have the ability to make choices about what happens in their community, and planners must make sure that citizens have enough information to make the best decisions.
32 References
Ames Wetland Returns. 9/23/04. The Phalen Corridor. http://www.phalencorridor.org/Default.asp?page=22 Bruce Vento Nature Sanctuary and Trail Link. 8/30/02. The Trust for Public Land. http://www.tpl.org/tier3_cdl.cfm?content_item_id=10505&folder_id=2185 Haeker, A., and P. Seed. 9/13/04. History of Gateway State Trail. http://www.gatewaytrail.org/history.htm Korum, K. 9/29/04. Personal communication with K. Korum, Service Area Coordinator City of St. Paul Parks and Recreation, about parks and trails. Minneapolis Parks and Recreation. 2001. Paying for Life: Minneapolis Parks and Recreation Board, Superintendents Report. http://www.minneapolisparks.org/documents/about/2001_Superintendents_Report .pdf NY City study from PPS (Projects for Public Spaces). http://www.pps.org/upo/info/management/safetysecurity/ Accessed 11-2-04 Partnerships for Parks. 2003. Small actions that make a big impact, it’s my park.org a NY city partnership for parks. http://www.itsmypark.org/resources/workshops/tip_sheets/smallactions.doc Project for Public Spaces (PPS). 2004. Safety and Security http://www.pps.org/upo/info/management/safetysecurity/ St. Paul Parks and Recreation http://www.ci.stpaul.mn.us/depts/parks/userguide/phalen.html. Accessed 10-7-04 Small Actions that Make a Big Impact, It’s my park.org a NY city partnership for parks. A park initiative to taking back their parks. http://www.itsmypark.org/resources/workshops/tip_sheets/smallactions.doc Accessed 10-24-04 Trapp, S., M. Gross, and R. Zimmerman. 1992. Signs, Trails, And Wayside Exhibits, Connecting People and Places. Stevens Point, WI: UW-SP Foundation Press, Inc. Whyte, W. H. http://www.pps.org/upo/info/management/safetysecurity/. Accessed 11-2-04. Wilder Research Center. 07/2004. St. Paul D5 Census Fact Sheet. http://www.wilder.org/research/reports.html?summary=851
33 Appendix A
Contact List
Contact Name Title/Organization Theme Talked About Milo Cutter Director of City She works with education programs at all of the Academy community centers Mike Ball Coach of the Pee-Wee Football coach has been working with the team football team @ for years. Wilder Park Frank Fisher Janitor @ Bruce He is the janitor at the school. Ideas for Vento School improvement of the playground and facilities. No community pride. Fernando Runs Duluth Rec More space for programs and more money for Fuentes Center staff to run the programs–the kids are there. Steve Mueller MDNR Safety in the parks Jim Kraus Research Analyst II St. Getting crime statistics for parks in D5 Paul Police Department Kathy Korum Programming Covered many different topics. A lot of useful Supervisor of service info. was gathered from her. area 5 Lynnell Thiel D5 and schools Permission to pass out surveys consultant Frank Feinberg Johnson Elementary Talked about passing out a survey principal
34 Appendix B
Intersection Survey Intersection: ______Trail:______Date Surveyed: ______Time:______Surveyor(s):______Does this site have a trailhead: YES NO
Data:
Width of intersection:______Speed limit at intersection:______Condition of road surface at intersection:______Approximate level of vehicle traffic:______Approximate level of nonmotorized traffic:______Number and type of signs by intersection:______
Possible Visual Obstructions
On Road:______On Trail:______
Lighting at intersection:______
Facilities at intersection:______
Notes:______
Diagram of intersection:
35 Appendix C
Student Survey (Circle Answer) Ø Do you use the parks in your neighborhood? Yes No o If yes, which ones? o If no, why not? Ø Who do you attend the park with? Friends Family Alone Other Ø How often do you go to the park? o Less than once a week o Once a week o Twice a week o Three or more times a week Ø How do you get to and from the park? Please also list road names. o Walk o Bike o Car o Other Ø What time of day do you usually use the park? o Morning o Afternoon o Evening Ø Do you feel safe traveling to the park? Yes No Ø Do you feel safe in the Park? Yes No Ø How far do you live from the nearest park? o 1 to 2 blocks o 3 to 4 blocks o 5 or more blocks Ø What type of activities do you do in the park? (please list)
Ø Please list any ideas you may have for improving the parks in your neighborhood?
36 Appendix D
Park Evaluation Park name: Type of facilities available to public and their condition (e.g. playground, b-ball, BBQ):
Trash receptacles: Y N Usage by public if available:
Parking: Y N Condition of Parking Facility:
Signage in Park: Y N Type of Signage:
Amount of people in park:
Types of recreation going on in park:
Conflicts among users:
Types of vegetation in park:
Does Park feel welcoming: Y N Description:
Perception of Safety:
Ideas for improvement:
37 Appendix E
Park User Survey Name:
Address:
Telephone:
How long have they lived in the area?
What do they like about the area?
Which Parks and Trails do you use?
What types of changes would they like to see take place to the Parks and Trails?
How often do they use the Parks and Trails?
Do they ever feel unsafe? If so, when and where?
Other comments (ideas, thoughts, concerns, questions):
38 Appendix F
Park Questionnaire (Circle all that apply)
• Age 12-19 20-29 30-39 40-49 50+
• What Parks do you go to? Arlington Phalen Eileen Wilder Wilder Rec Center Sue’s Lockwood Duluth Johnson Elementary Bruce Vento School
• What type of activities do you perform at the park? (circle all that apply)
Soccer Volleyball Football Tennis Basketball Baseball Other
• What time of day you usually go to the park?
Morning Afternoon Evening
• How do you get to the park?
Bike Walk Rollerblade Skateboard Parents/Drive
• What activities would you perform if available to you?
Soccer Volleyball Football Tennis Basketball Baseball Other
39 Appendix G
Trail User Survey
Name:______Phone: ______
Addresse:______
Name of trail surveyed on:______
How often do you use this trail?______
What is your primary reason for using this trail? (recreation, transportation, etc…): ______
How long is your average trip on this trail?______
How often do you use this trail?______
When do you primarily use this trail?______
What is your primary mode of transportation on this trail? (Please circle)
Bicycle Walk Jog Rollerblade Other______
Do you use any other trails in the area? YES NO
If yes, what trail(s)?______
Do you use these trails for the same primary reason? YES NO
If no, what uses do you utilize other trails for?______
Do you ever feel unsafe on this trail? YES NO
If yes, why?______
Comments:______
40 Trail User Survey Results
Feeling/Perception of Safety on Trails yes 41 no 9 Trail use bicycle 10 walk 29 run 7 rollerbalde 3 other Reason for using trail recreation 49 transportation 1 other Do you use other trails yes 19 no 31
41 Appendix H
District 5
42 Phalen Park
43 Arlington Park
44 Appendix I
45 Park Survey Responses Usage
Wilder Bruce Arlington/ Eileen Arlington Johnson Swede playground/ Sue's Lockwood Duluth Vento Phalen Totals Arkwright Weida rec center Elementary Hollow Rec School How many times/wk visit parks? n = 55 Less than once a week 1 1 2 Once a week 3 2 2 7 Twice a week 1 8 2 1 5 3 9 29 > 3 times a week 1 2 3 1 3 2 4 1 17 Do you feel safe traveling to the park? n = 51 Yes 1 10 5 1 4 7 8 10 46 No 1 1 3 5 Do you feel safe in the park? n = 68 Yes 2 7 5 1 4 8 7 12 46 No 2 2 4 No - at night 2 1 2 2 3 4 4 18 How far do you live from the park? n = 55 1 - 2 blocks 2 1 3 4 2 5 17 3 - 4 blocks 9 2 7 4 3 25 5 + blocks 1 2 10 13 Visits
Park Survey Responses - Average Number of People in Park per Visit Wilder Bruce Arlington/ Eileen Arlington Johnson Swede Visit Criteria playground/ Sue's Lockwood Duluth Vento Phalen Arkwright Weida rec center Elementary Hollow Rec School Drive by's 9 7 9 7 9 8 7 10 9 2 1 Stops 4 3 4 6 4 4 5 2 3 1 # of people 96 4 32 138 4 15 183 2 61 8 22 Total Visits (N=) 13 10 13 13 13 12 12 12 12 3 1 People per visit 7.4 0.4 2.5 10.6 0.3 1.2 15.2 0.2 5.1 2.7 22.0 Park Survey Responses - Usage by Age - 19 years & under. N = 68
Wilder Bruce Arlington/ Eileen Arlington Johnson Swede playground/ Sue's Lockwood Duluth Vento Phalen Totals Arkwright Weida rec center Elementary Hollow rec School 4 2 10 21 7 11 2 8 3 68 Soccer 8 3 3 3 17 Volleyball 7 7 Football 8 16 8 32 Tennis 0 Current Basketball 2 2 4 Usage Baseball 1 1 1 1 4 hang out/chill 2 2 2 2 7 4 4 23 dog park 1 1 Other 2 2 9 3 2 4 22 Morning 8 1 1 4 14 Time of Day Afternoon 4 2 10 21 7 11 2 6 3 66 Night 1 1 6 3 2 13 Walk 4 2 10 15 7 6 2 8 54 Bike 1 3 2 2 8 Transport Rollerball 0 Skateboard 0 Parents/Drive 2 6 2 5 3 18 Soccer 1 1 2 Volleyball 2 8 1 7 1 19 Football 3 9 12 Tennis Basketball 1 1 Like to See Basketball Outdoor 2 9 8 7 4 4 34 Baseball 1 1 2 don't know 1 1 3 5 Other 2 2 2 5 1 12 Park Survey Responses - Usage by Age - 20 - 29 years. N = 13 Wilder Bruce Arlington/ Eileen Arlington Johnson Swede playground/ Sue's Lockwood Duluth Vento Phalen Totals Arkwright Weida rec center Elementary Hollow Rec School 3 1 2 1 4 2 13 Soccer 0 Volleyball 0 Football 0 Tennis 0 Current Basketball 2 2 Usage Baseball 0 hang out/chill 1 1 dog park 2 2 Watch Kids 1 1 1 1 4 1 9 Other 2 1 1 1 4 1 10 Morning 1 1 Time of Afternoon 3 1 2 1 4 1 12 Day Night 1 1 Walk 2 1 2 1 1 1 8 Bike 1 1 2 Transport Rollerball 0 Skateboard 0 Parents/Drive 2 1 3 1 7 Soccer 2 2 Volleyball 0 Football 0 Tennis 0 Like to Basketball 0 See Basketball Outdoor 1 2 1 4 Baseball 0 don't know 0 Other 1 1 1 3 none 1 1 Park Survey Response - Usage by Age - 30 - 39 years. N=17 Wilder Bruce Arlington/ Eileen Arlington Johnson Swede playground/ Sue's Lockwood Duluth Vento Phalen Totals Arkwright Weida rec center Elementary Hollow Rec School 7 1 1 2 5 1 17 Soccer 0 Volleyball 0 Football 1 1 Tennis 2 2 Current Basketball 2 2 Usage Baseball 0 Hang out/chill 2 2 Dog Park 7 Watch Kids 2 1 1 3 1 8 Other 6 1 1 3 1 12 Morning 5 2 2 9 Time of Afternoon 5 1 1 2 4 1 14 Day Night 1 1 2 Walk 3 2 1 1 7 Bike 2 1 3 Transport Rollerball 0 Skateboard 0 Parents/Drive 5 1 1 4 1 12 Soccer 0 Volleyball 0 Football 1 1 Tennis 0 Like to Basketball 0 See Basketball Outdoor 2 2 Baseball 0 don't know 1 1 Other 7 1 1 2 3 1 15 Park Survey Response - Usage by Age - 40 years & up. N = 14 Wilder Bruce Arlington/ Eileen Arlington Johnson Swede playground/ Sue's Lockwood Duluth Vento Phalen Totals Arkwright Weida rec center Elementary Hollow Rec School 6 2 1 1 3 1 14 Soccer 0 Volleyball 0 Football 0 Tennis 0 Current Basketball 0 Usage Baseball 0 hang out/chill 1 1 2 dog park 6 6 watch kids play 2 2 1 2 1 8 Other 6 2 1 1 3 1 14 Morning 3 2 2 7 Time of Afternoon 6 2 1 2 1 12 Day Night 0 Walk 3 2 1 1 1 1 9 Bike 0 Transport Rollerball 0 Skateboard 0 Parents/Drive 4 1 3 8 Soccer 0 Volleyball 0 Football 0 Tennis 0 Like to Basketball 0 See Basketball Outdoor 0 Baseball 0 don't know 2 1 3 Other 6 2 1 1 2 1 13 Appendix J
52 Table of Park Usage.
Average Number of People in Park per Visit
25 22 20 15.3 15 10.6 107.384615385 Park 5.1 5 2.5 2.7 1.3 0.4 0.3 0.2 0 Sue's Average Number of People in the Duluth Phalen Center Bruce Vento Arlington Rec Arlington/Arkwright Parks Appendix K
54 Park Survey - Inventory of Amenities
Wilder Cleveland Bruce Arlington/ Eileen Arlington Phalen Swede playground/ Sue's Lockwood Duluth Quality Middle Vento Phalen Arkwright Weida rec center Lk Elem Hollow rec School School Basketball hoops 2 2 1 4 1 1 2 condition* g p, u p, u 2-g, 2-p,u p, u p, u g Volleyball court y 1 y condition* p, u p, u g Tennis Court 1 2 4 condition* g i g Playground equipment y y y y y y y y condition* i g i i i i i g gravel area y y y y y y y y condition* g g g g g g p g swings y y y y y y y y condition* g g g g g g g g Field(s) 1 1 y Football lines 1 1 2 y Football goalposts condition* i p i i p g Soccer lines y y soccer nets 1 pair 2 pairs Softball fields 2 1 1 6 1 2 6+ condition* 1-g, 1-i i g g p p g Baseball fields 1 1 1 1 1 2 1 2 condition* g i g i i i g g Additional facilities Dog park y Picnic table(s) 2 1 2 1 y Wilder Cleveland Bruce Arlington/ Eileen Arlington Phalen Swede playground/ Sue's Lockwood Duluth Quality Middle Vento Phalen Arkwright Weida rec center Lk Elem Hollow rec School School Benches 2 y y Bleachers 1 BBQ stands 2 2 drinking fountain 1 - u* 1 Signage name of park y y y y y n drug free zone y ?? y y Friends of the park y 2 dog free zone y Vegetation y y y y y y y y y y y condition* g g g g i i i p p g g Trails impervious y y y y semi-impervious y y y Circumnavigate almost Garbage cans 6 3 2 2 2 1 6 1 4 Type** 6b 3b 1d, 1b 2b 2b 1b 6b b, p b Evidence of usage y y y y y y y y y Parking lot y y y y y Condition g g g g g * Condition: g - good; i - needs minor improvents; p - poor; b - broken; u - unusable ** Type: b - 50 gal drum; c- concrete box (photos); d - dumpster Appendix L
Park Survey – Comments, Suggestions and Notes from Citizens
Arlington – Arkwright • Questioned use of the huge green space • Doesn’t like to come to the park because the dog owners do not leash their dogs outside of the area (in the big green space) • Add a soccer field • Volleyball court requested by five people • Three people commented that they have to park their cars on Arkwright Street because it is not safe in the parking lot – cars have been broken into by the local kids while they were at the dog park • Bigger dog park–they have all that unused space (to the Southwest) behind the dog park • Come and watch grandchildren play baseball and there are no benches • More dog park maintenance • Add bathrooms • Would go if there were BBQ’s • Lighted parking area
Eileen Weida • Only observed four kids playing on the equipment out of the six total visits made to the park • One adult observed was there to watch her grandkids play • Observed two adults in the park after dark but did not feel comfortable approaching them, both due to the hour and somewhat suspicious activity • Merrick Community Services uses the park for their activities but they commented on the lack of facilities, i.e., the two broken basketball hoops and volleyball court.
Arlington Rec Center and Park • Does not feel safe at night • Add BBQ’s • Loves the park but suggested adding a basketball hoop • Likes that he can use the park and not get a ticket • The center should be open more often • Why don’t they use the lights at night? • Thankful for the meal program and the park • As a woman, feels she gets harassed in the park • Well maintained
57 Wilder Playground • Adults and older kids harass the younger kids in the park • After football practice there are fights from the older kids that hang around to cause trouble (witnessed one such occasion) • Doesn’t feel safe because of the older kids • Lots of swearing • Better than being at home • Wishes there was not so much trash • Likes the center’s programs • The rocks in the field hurt when kids get tackled–there is no grass • The park has a bad reputation but he has been coming here for years and it is not bad at all • Soccer nets and goals–the staff person can take it in
Lockwood • Wishes they would just clean it up–remove the gang markings and pick up the trash (quotes from two 12-year old boys) • The city came in and took out the hoop a few years ago and they don’t know why (a group of five Hmong boys that live around the park and the two 12- year old boys) • There is a volleyball court but no net (a group of five Hmong boys that live around the park) • BBQ area (two local Hmong residents)
Duluth • Three people commented that they need a bigger recreation center and a bigger gym • Fix the outdoor basketball hoops • Fighting is an issue during the after school program • Three people requested BBQ’s • The back of the park feels creepy • Questioned whether there are nets for the soccer goals
Bruce Vento • Equipment is beat up and there is a lot of garbage (general response from six kids under 19) • There used to be a sense of community with the school but now the kids are getting bussed elsewhere and there is an increase in vandalism (two adults in the area interviewed that do not use the park) • Eight of the kids interviewed also attended Bruce Vento Elementary school. The majority of those (6) said that during the school day they use the grounds for playing various sports but said it hurts to fall. • Do not feel safe at night because of the big kids that use the park
58 Phalen • Love to golf–it is one of the best in town • Nothing to do for the little kids, the 3-6 year olds • More natural woods–too much manicured and open green space • Nowhere to go at night
Responses from people interviewed that don’t use the parks (n = 18) • Don’t have kids (three people) • Don’t think they are safe (eight people); why: - They are dangerous (3) - Because there are too many unsupervised youth/bad people (4) - There have been incidents in the past (2) - Nothing good comes from the parks (1) • I do not let my kids go because they are not safe there (three people) - There are bad people in the parks (2) - Nothing but trouble (1) • The facilities (referring to basketball) are no good (1 for Lockwood, 1 for Eileen Weida and 2 for Duluth) • I would never go to a park (2)
59 Appendix M
The 2001 Superintendent’s Report for the Minneapolis Park & Recreation Board
“The 2001 Superintendent’s Report for the Minneapolis Park & Recreation Board (MPRB) is published by the Superintendents office. It reflects the leadership and good work of the Commissioners, the Superintendent and their staff. The report is actually a performance report card representing the commitment to public accountability for tax dollars. It is focused on strengthening the infrastructure of parks and facilities to provide the best foundation for the delivery of park and recreation programs and services (Minneapolis Parks and Recreation Department).
We feel this is an excellent and relevant model for what can and should be done as it relates to the parks, trails, green spaces, community education and involvement of District 5 and greater St. Paul. This report covers the majority of the aspects we have focused on in this report as part of our class and goes into significantly more detail. It has been compiled by the MPRB and is recognized nationally for making the connection to what has been done, is being done and will be done.
We understand that this is a rather extensive undertaking for a single district but D5 could be the torchbearer by presenting this plan/idea to the St. Paul Parks and Recreation department. This model is a great way to show the tax paying citizens of the city that the administration not only cares but also holds itself accountable.
The parks in Minneapolis are our gathering place for the people who live in our city. It is where we connect in very profound ways with our friends, neighbors, family, ourselves and our environment, to celebrate, learn, communicate, contemplate, play, or console. It is our shared space, our public home. It has grown to be recognized as one of the finest park systems in the country. In fact USA Today, described it as ‘closest to park nirvana,’ as a city can get” (Mary Merrill Anderson, Minneapolis Park & Recreation Board Superintendent).
60 Appendix N
Trails
61 Appendix O
Park Names
62