Parks and Recreation Master Plan I. Introduction of the Planning Context

Acknowledgements

County Board of Commissioners Randy Fairbanks Chip Baker Greg Martin Warren Mackey Katherlyn Geter David Sharpe Sabrena Smedley Tim Boyd Chester Bankston

Administration Jim Coppinger, Mayor Lee Norris, General Services Administrator

Parks and Recreation Advisory Board

Tony Reavley Shawn Whitfield Sam Guin Jody Grant Ronnie Philips Robert Hoff Gerald Perry Dawson Wheeler Will Smith Michael Kirk Tara Viland

County Project Team Tom Lamb, Director Tim Morgan Dawson Wheeler Melissa Taylor Dr. Drew Bailey

Consultant Team GreenPlay, LLC Robert and Co. / RRC Associates

Parks and Recreation Master Plan

Executive Summary A. Purpose of this Plan The Master Plan was created as a blueprint for providing quality Recreation Services, Parks and Facilities throughout Hamilton County for the next ten to twenty years. The plan is a comprehensive strategy for evaluating parks, recreation, green spaces, trails, facilities and programs. The objectives of the Master Plan are to establish benchmarks, goals, procedures, achievable strategies and implementation approaches over a ten-year term.

B. Planning Process Summary A Project Team consisting of key Department staff, staff from other County departments, local stakeholders, and members of the Parks and Recreation Advisory Board was formed. This team provided input to the GreenPlay consulting team at key points throughout the planning process. As such, this plan leverages the consultant’s expertise and incorporates the local knowledge and background which is only experienced when community and staff members are involved. The project consisted of the following tasks:  Review and Assessment of Existing Plans and Conditions  Community/Stakeholder Engagement, Community Surveys, and a Statistically-Valid Survey  Comprehensive Facility Inventory and Level of Service Analysis  Trends and Demographic Analysis  Community Needs Assessment  Operational and Program Analysis  Recommendations: Goals, Objectives, and Action Plan C. Key Issues Summary Generally, findings from the needs assessment process consistently identified an appreciation of existing facilities, programs, and services being offered by the Department. Key issues were identified using a mixed method of qualitative and quantitative sources. The information gathered was evaluated, and recommendations were developed that address these key issues: • Trails and pathway connectivity • Deferred maintenance and maintenance standards • Accessibility: ADA, transportation, entry level • Water access • Teens and Youth, Outdoor and Fitness programs • Branding, wayfinding, and marketing • Improving amenities: playgrounds, shade, parking • Maintaining partnerships • Affordability • Special Events and Community Events • Environmental protection and preservation • Adventure based activities

D. Inventory Assessment Summary The existing park system in Hamilton County is diverse, from large regional parks to small rural community parks and sport facilities. The functional differences between each site are generally a reflection of location, acreage, available components, and ecological significance. Sites that serve large segments of the population tend to be proportionally large with a wide range of components. Smaller parks with fewer components typically serve smaller geographic areas and populations.

GRASP® (Geo-referenced Amenities Standards Process) is the proprietary name for an approach that has been applied in more than one hundred communities across the country to evaluate LOS for park and recreation systems. With GRASP®, information from the inventory of parks and facilities described in Section IV was used in combination with Geographic Information Systems (GIS) software to produce analytic maps and data that show the quality and distribution of park and recreation services across Hamilton County.

E. Recommendations and Action Plan Summary Table Recommendations and Action Plan Summary Table The Consultant Team acknowledges that a number of services are notably working well to achieve the County’s mission and vision. The Department is on a good path and has, through this process, identified actions to keep addressing identified action items and moving forward. The Action Table below summarizes the improvements that can be made in the coming years.

Goal #1: Improve Facilities and Amenities Objective 1.1: Expand greenways, bike path, and trails connectivity Objective 1.2: Continue to maintain and improve existing facilities and amenities Objective 1.3: Continue to improve ADA accessibility at all facilities Objective 1.4: Expand open space and parks Objective 1.5: Make improvements to or replace some existing facilities and amenities or develop new amenities at existing parks based on current level of service analysis Objective 1.6: Upgrade convenience and customer service amenities at existing facilities Goal #2: Continue to Improve Organizational Efficiencies Objective 2.1 Build on existing and look for opportunities to increase appropriate partnerships within the community Objective 2.2 Staff appropriately to meet current demand and maintain established quality of service Objective 2.3: Continue to enhance and improve internal and external communication regarding department activities and services Objective 2.4: Continue to engage the County Municipalities Objective 2.5: Review and make changes to the existing permitting process Objective 2.5: Reactivate the Parks and Recreation Advisory Board Goal #3: Contiune to Improve Programs and Service Delivery Objective 3.1 Work with other service providers to develop programs and service to meet demand and trends Objective 3.2 Develop additional recreational opportunities Objective 3.3: Explore opportunities to increase the number of community events based on demand and trends Objective 3.4: Partner with the County Municipalities and other service providers to deliver programs and services Goal #4: Increase Finincial Opportunities Objective 4.1 Review existing fees and restructure to meet current situation Objective 4.2: Explore additional funding options Objective 4.3: Pursue grant and philanthropic opportunities Objective 4.4 Explore opportunities to increase sponsorships Objective 4.5: Explore developing and implementing a cost recovery and pricing philosophy and policy

Parks and Recreation Master Plan

I. Introduction of the Planning Context

A. Purpose of this Plan The Master Plan was created as a blueprint for providing quality Recreation Services, Parks and Facilities throughout Hamilton County for the next ten to twenty years. The plan is a comprehensive strategy for evaluating parks, recreation, green spaces, trails, facilities and programs. The objectives of the Master Plan are to establish benchmarks, goals, procedures, achievable strategies and implementation approaches over a ten-year term. The 2020 Parks and Recreation Master Plan for Hamilton County is first comprehensive master plan the County has undertaken for parks and recreation. The County desired a concise document that was visually appealing and easy to read, with actionable recommendations that hold the Department accountable for their implementation. B. Parks and Recreation Department Overview Hamilton County has a strong commitment to providing high quality parks and recreation facilities and programs for its citizens. The County is located in “The mission of the Parks and Southeastern Tennessee and has a population of Recreation Department is to provide about 368,000. The Parks and Recreation Department exceptional parks, open spaces, provides an abundance of programs and community recreational facilities and services activities through 3 regional parks and 16 community parks, with 7 designated athletic facilities serving with safety and security in harmony organized youth sports. Hamilton County is also home with community needs and priorities to 6 state parks and protected areas, as well as a for the betterment of Hamilton National Military Park. Hamilton County is comprised County” of 9 Commission Districts. Each district has similar populations, ranging between 35,000 in District 1 to 47,000 people in District 9.

The Department was originally created in 1978 to serve as caretakers of Chester Frost Park. Originally known as The County Park, the property provided opportunities for swimming, camping, boating, fishing, and picnicking. Large open areas were utilized for self-directed group activities. Park planning services were accomplished through the Development department.

Early studies by the County identified the important link between natural resource planning and recreation in the community. The County’s natural features were credited with attracting tourism – long before recognizable trends in outdoor recreation. In 1979, the Chattanooga-Hamilton County 5-year Recovery Action Program Comprehensive Recreation Plan was completed. Following the study, the County hoped to provide all residents with access to quality outdoor, open-space recreation opportunities. However, most of the recreation developments over the next decade focused primarily on community athletic facilities. Through Joint-Use Agreements, civic groups and organized community volunteers offered youth sports programs on County-owned facilities.

In 1989 Tennessee Riverpark began development. The first major recreation project coordinated between the Chattanooga and Hamilton County resulted in the development of the walk/bike pathway and park that has become central to the area’s identity. Hamilton County Parks and Recreation maintains and manages nearly 11 linear miles of Riverwalk and associated green space.

Enterprise South Nature Park was established in 2010 through a transfer of the former Volunteer Army Ammunition Plant to the Chattanooga and Hamilton County. The 2,800-acre parcel is dedicated to passive recreation through the Federal Land to Parks program. Following extensive planning for the property, the County’s Parks and Recreation Department was tasked with maintenance and management of the park. A mixture of pedestrian and single-track trails and supporting amenities were designed and installed through multiple grants and a successful partnership with SORBA. This model of passive use design and strong partnerships allows Hamilton County to accomplish operations and services with fewer personnel than previously required in the other regional parks.

F. Methodology of this Planning Process

The process utilized in developing this Master Plan included the formation of an integrated project team comprised of staff, stakeholders and appointed officials, a review of institutional history, analysis of existing conditions, and engagement with members of the Hamilton County community. The development of this plan included the key tasks displayed in the following graphic:

II. Key Themes

Generally, findings from the public input process consistently identified an appreciation of existing facilities, programs, and services being offered by Hamilton County.

Key themes were identified using several tools including review of existing plans and documents, focus groups, stakeholder meetings, a community survey, inventory, and level of service analysis. The information gathered from these sources was evaluated, and the recommendations were developed that address the following key themes:

Key Issues Matrix Key issues and themes for focus were identified using a number of tools, including review of existing plans and documents, focus groups, stakeholder meetings, a community survey, leadership interviews, inventory and level of service analysis, and staff/project team input. The information gathered from these sources was evaluated, and the following recommendations and action plans were developed.

The findings are summarized on the Key Issues Matrix, which captures all of the key issues that surfaced during the Master Plan process and prioritizes them on one matrix. The key issues were placed into five categories on the matrix:  Organizational and Administrative  Programs and Service Delivery  Facilities and Amenities  Level of Service  Financial

Rating Scale a) Priority b) Opportunity to Improve c) Minor Issue 

The qualitative data planning tools used to determine the priority of key issues include: 1. Staff input 2. Public forum input 3. Leadership Interviews 4. Consultant Team

The quantitative data planning tools used to determine the priority of the key issues include: 1. Community Survey 2. Existing planning documents 3. Facility Assessment / LOS

Preliminary recommendations were listed for each key issue and presented to the Parks and Recreation project team to gather input on the prioritization of the final recommendations and action plans. The Key Issues Matrix summarizes the areas that need immediate attention and determine the direction of the implementation of recommendations in the Master Plan.

The Key Issues Matrix was provided to the Project Team as a staff document.

III. Recommendations and Action Plans Context Residents and community leaders are increasingly recognizing that parks and recreation facilities, programs, and services are essential to creating and maintaining communities where people want to live, work, play, socialize, recreate, learn, and visit. These amenities should be investments in the long- term vitality and economic sustainability of any active and desirable community. The Hamilton County Department of Parks and Recreation is committed to providing comprehensive, high quality parks, programs, facilities, and services to the community.

A. Recommendations

After analyzing the issues that resulted from this process, including the Key Issues Matrix, qualitative and quantitative data, inventory of existing assets, Level of Service analyses, citizen surveys, the Leadership summits, Elected Official interviews, and stakeholder and public input, a variety of recommended goals and objectives were developed to provide guidance for the improvement of parks, recreation facilities, and greenways, trails, and bike paths in Hamilton County. These recommendations focus on enhancing public recreation in the county through improvements to existing park facilities and recreation amenities, increased organizational efficiency, improved programming and service delivery, and expanded financial opportunities.

Goal 1: Improve Facilities and Amenities

Objective 1.1 – Expand greenways, bike paths and trails connectivity A high priority from the public engagement process was the desire for expansion and improved connectivity of the existing trails and public pathway system. The Department should continue working with the other agencies and the County municipalities as it looks to develop and expand greenways, bike paths, and trails that regionally connect communities, neighborhoods, schools, and parks.

Using the gap analysis and current existing and planned greenways, the Department should make trails and greenways that link the regional system to existing and future parks and facilities a priority. These linkages can provide the “last mile” for citizens and visitors to connect to the County’s parks system.

Several planning initiatives already exist to help connect the County as well as the region. The County should continue to collaborate on the Rails-to Trails project and well as Great Eastern Trail. There are several regional and statewide planning efforts in the works including the 2008 Tennessee Greenways and Trails Plan, and these plans should be considered when looking to expand the County’s connectivity.

Additional key concepts identified through the level of service analysis to expand trails and improve the connectivity of bicycle and pedestrian infrastructure that should be considered are:  Focus on initiating a regional trails master plan. The plan should include mapping of existing and future trails, and providing a web access platform as a clearinghouse for trail data.  Development and implementation of a wayfinding signage program for pedestrians and cyclists. The program should cover signage standards, directional and distance signage, maps, branding guidelines, and the integration of apps. The wayfinding system, when successfully implemented, will help connect residents and visitors to greenways, bike paths, and trails, as well as create an

awareness of these amenities. These should all be accomplished in coordination with the county-wide greenways development planning.

Objective 1.2 – Continue to maintain and improve existing facilities The top factor identified by survey respondents that would increase their use of facilities was the condition and maintenance of parks and amenities. The Department has done an excellent job with routine maintenance; however, asset replacement and upgrades to amenities need to be addressed. The age and usage of many facilities present additional challenges in maintaining and upgrading these facilities and amenities. The Department currently has several projects underway or in the planning stages. They should continue to implement existing plans and projects identified in the Capital Improvement Plan. Additionally, the inventory from this Master Plan should be used to address the deferred maintenance backlog and create an asset replacement schedule that will address the low scoring components identified as part of the inventory. These plans should be reviewed annually and updated as needed.

One way to improve the existing parks and the park system in general is to widen the user group for each park site by providing secondary facilities that compliment and expand the primary use.

The Department should maintain the GIS database for parks and trails assets using the current inventory from the Master Plan. As new parks, trails, and amenities are added or existing assets are upgraded, replaced, or repurposed, the GIS database should be updated to reflect those changes and current condition of assets.

Objective 1.3 – Expand open space and parks A top priority of leadership interviews, survey respondents, focus groups, and other public engagement respondents was the expansion of open spaces and parks in Hamilton County. Based on the GRASP analysis, 95% of the County’s population has access to a Regional Park and 99% of the population has access to some recreational component. While there is a community perception that additional park land is needed, a more current need and use of available funding would be to use current dollars towards replacement/upkeep.

Objective 1.4 – Make improvements to or replace some existing facilities and amenities or develop new amenities at existing parks based on level of service analysis Demand for usage of Hamilton County parks, trails, and facilities continues to grow, and the Department should look for opportunities to add new park sites and recreation amenities to enhance the experience for users. Other opportunities exist to expand the user base of individual parks by adding secondary uses that support the primary park use. This will create more activity at the parks and potentially expand the times of day that the site is active.

Additionally, based on the level of service analysis, the Department should look for opportunities to add new components at existing parks where the level of service may be below the desired threshold. Refer to the Existing Conditions Report section of the Master Plan for those areas identified most in need of improvement on a park by park basis.

Some areas of focus identified during the information gathering phase of the master plan were:  Camping: The County should continue operations of Chester Frost Park campgrounds with a focus on financial sustainability. To achieve this, the County should review current fees and charges compared to operational expenses and determine a desired cost recovery philosophy.

Additionally, the County should explore opportunities for primitive camping throughout underutilized natural areas.  Special event infrastructure: The County currently produces several large, high quality special events throughout the year. Current park infrastructure to support those events and future events needs to be addressed. Re-evaluation of parking, sewer, electrical and staffing should be considered to determine the true impact of the events. The County should also consider the development of alternative sites for popular events that are better equipped to handle the impacts of the event.  Increased access to water: The County has an abundance of natural water elements that the community enjoys. The County should seek to build additional trail access points on the river for kayak, canoe, stand up paddleboard and other non-motorized vehicle access. These access points should be easily accessible online or through a County app and included in any Wayfinding program.

Leadership interviews, focus group participants and survey respondents identified addressing conditions of existing Community parks and public-private management issues as priorities. Using the inventory and assessment, the Department should develop a schedule to address the low scoring components and amenities at each park. Low-scoring parks with a threshold of 1.5 and below need extensive renovations to make them functional. For those parks, a master plan and site design process are recommended to comprehensively address the required program elements and incorporate the features to remain. Medium-scoring parks with a threshold of 1.5 to 2.5 need significant equipment and/or site improvements to certain areas of the park. For those parks, a partial master plan and site design process may be indicated depending on the extent of the park that is impacted. Finally, high-scoring parks likely need only targeted equipment replacement which can be addressed through the Capital Improvements Plan.

Sports facilities are aging, overused and need upgrades. These facilities have been developed under a Public/Private Partnership with the regional youth sport organizations. Many facilities have been developed in phases over time and/or reconfigured to meet current demand. This has created additional stress on the fields as they are not able to recover from previous seasons. The County needs to develop consistent standards for park and amenity maintenance, renovation, and development to ensure all County facilities are safe and accessible to all. Additionally, the inventory and assessment of each sports facility indicate that, based on site use, some may benefit from expanded improvements such as trails and playgrounds to create new park features that complement the exclusive field sports use.

Objective 1.5 – Continue to improve ADA accessibility at all facilities According to the ADA.gov website, “Access to civic life by people with disabilities is a fundamental goal of the Americans with Disabilities Act (ADA). To ensure that this goal is met, Title II of the ADA requires State and local governments to make their programs and services accessible to persons with disabilities… One important way to ensure that Title II's requirements are being met in cities of all sizes is through self- evaluation, which is required by the ADA regulations. Self-evaluation enables local governments to pinpoint the facilities, programs, and services that must be modified or relocated to ensure that local governments are complying with the ADA.”

The Department should continue to inspect existing facilities, conduct self-evaluations, and update its transition plan as needed to continue to improve accessibility for all citizens. As facilities are upgraded, the installation of inclusive playground and park equipment should be considered as 25.73 percent of Hamilton County households have 1 or more persons with a disability.

Objective 1.6 – Upgrade convenience and customer service amenities to existing facilities As the Department upgrades and improves existing facilities, it should explore opportunities to add shade, storage, restrooms, drinking fountains/water bottle filling stations, security lighting, public art, and other amenities appropriately at existing facilities.

Priorities for new or improved amenities from the public engagement included the installation of an outdoor archery range to support program development and user needs. In addition, the Department should transition underutilized tennis courts into pickleball courts to support the growing demand in the county.

Rock climbing and bouldering are extremely popular activities in the county, the Department should help support infrastructure that facilitates daily usage as well as events. One opportunity is the development of Mowbray Mountain Community Park to accommodate primitive camping and access to climbing sites in the area.

Objective 1.7 – Explore parking options at parks and popular venues In general, parking was an issue that was identified at most of the focus groups and public meetings. The Department should continue to monitor parking during peak usage times and explore the need to improve or develop parking plans to accommodate peak usage or events. Existing parking at facilities should be evaluated for reconfiguration for more efficient use. Another consideration would be to explore shared parking with neighboring facilities and possible alternative transportation options to reduce parking demand.

Goal 2: Continue to Improve Organizational Efficiencies

Objective 2.1 – Build on existing and look for opportunities to increase appropriate partnerships within the County There are 10 municipalities in Hamilton County, and several provide parks, trails, facilities and amenities. The County should continue working with the municipalities for the delivery of parks and services to the citizens. To eliminate duplication of facilities and services, the County should consider becoming the unifying department in the county by focusing on supporting the smaller communities and unincorporated areas to cater to all community members. The Department should continue to work closely with the City of Chattanooga as the two largest providers of parks and recreation programs, facilities and services in the county.

The Hamilton County Parks and Recreation Department currently partners with a number of youth- serving organizations, agencies and businesses to provide programs and activities to the community. The Department should enhance partnerships using the following recommendations:  Continue to develop relationships with the school system to provide open space and use of school facilities for the community.  Continue to explore additional opportunities as well as build on existing partnerships.  Ensure that all existing and future partnerships are accurately documented in a signed partnership agreement.  Continue working with youth athletic organizations and provide training and expertise to help them be successful.

Objective 2.2 – Continue to enhance and improve internal and external communication regarding Department activities and services The Department currently does a good job of promoting its programs and activities through its website, flyers and social media. When asked how residents prefer to receive their information from the County, survey respondents noted that social media, the local media (newspaper, TV), and the internet/website, were the best communication methods. To continue to be successful, the Department should develop a marketing plan that will guide communication and promotion of its activities and facilities. Such a marketing effort will create greater awareness of county recreation offerings and should include branding of Hamilton County as an outdoor destination and the Department’s role in creating experiences in the outdoors through use of social media, the Department website and partnership opportunities.

Once developed, the Marketing Plan should be updated at least every five years or as needed and include marketing strategies that incorporate the efforts of partner departments, other local parks and recreation departments, and projects.

As part of the Marketing Plan, the Department should evaluate wayfinding signage to facilities on roadway, pathways, and within parks. The Department should develop signage standards for parks, trails and providing measured distances and loops. Improved wayfinding signage will contribute to a greater sense of connectivity to parks, facilities, and pathways.

Finally, the Department should develop its own mission and vision statement to reflect the goals and values of the organization. These statements should serve as a guiding document for internal use, as well as a strong external branding element of the Department.

Objective 2.3 – Continue to engage the County Municipalities to promote recreation The Department’s outreach and engagement efforts should continue to use a variety of methods to engage the community and the municipalities in the County in current and future parks, recreation, and trails planning efforts. Hamilton County is a diverse recreation-based community, and the Department must continue its current efforts to promote and create awareness of the impact that these amenities have on the community as well as the public health benefits. As such, it is important to provide accessible, well maintained open spaces to help improve the health and vitality of the community.

In addition to health benefits, the Department should promote the impact of natural resources for economic sustainability. A focus moving forward should be to bring awareness to natural and outdoor recreation as a key role in tourism and economic development for the County. The Department should complete an economic impact study to understand role of recreation on the area.

The Department should take the lead in developing a Community Task Force to regularly engage leaders from the county municipalities, unincorporated areas, businesses, non-profits, schools, and state and federal governmental agencies. The Community Task Force can serve as the clearinghouse and point of contact for residents and visitors looking to recreational opportunities in the region.

Objective 2.4 – Review and make needed changes to the existing permitting process Participants in the public engagement process identified weaknesses in the current permitting process. The Department should review the current process and develop consistent standards for rentals and event permitting. These new standards should ensure equitable access for the public and rental groups to popular parks, facilities and amenities in the county. Additionally, using the current registration

software data, the Department should continue to evaluate the processes of renting spaces in parks, review the existing fees structure and make adjustments. Current contracts between existing partners for programs and events should be updated as needed.

Objective 2.5 – Reactivate the Parks and Recreation Advisory Board Review existing policies and bylaws for the Parks and Recreation Commission and make needed revisions that will support the structure of ongoing improvements to the Department’s operations and service to the community.

Objective 2.6 – Staff appropriately to meet current demand and maintain established quality of service As recommendations in the Master Plan for expanded programs, services, new facilities, greenways, bike paths and trails, parks, and facility upgrades are implemented, it will be vital for the County to increase staffing levels as the Department’s responsibilities grow. This will require new positions in both recreation programming and facility maintenance. Additionally, the use of contractual part time and seasonal employees could be considered to ensure that the practice is meeting the needs of the Department and the customers being served.

Goal 3: Continue to Improve Programs and Service Delivery

Objective 3.1 – Ensure equitable access to County parks and facilities Leadership interviews, survey respondents and focus group participants indicated that access to popular facilities were an issue keeping them from participating. As part of the review and update of the permitting process, the Department needs to develop policies for the use of popular facilities by non- departmental users. An example was the exclusive use of the boat ramp at Chester Frost Park for fishing tournaments that monopolize the parking and exclude the public. Policies need to be developed to reduce displacement of residents while allowing reasonable event permitting at the Park. The Department should enact a communication plan to ensure visitors are aware of events that may impact their recreational activities.

Objective 3.2 – Work with other service providers to develop programs and services to meet demand and trends Leadership interviews and focus group participants indicated that programs and services are not equally distributed throughout the county. Many programs and services are provided by youth organizations or other service providers. The Department should continue to evaluate programs and services, and work with other municipal government agencies and for-profit partners (like REI and Rock Creek) to provide recreational opportunities and services for county residents.

As popularity in program offerings and activities increases, the Department should continue to look for opportunities to expand programs while working with the other service providers within the county, and formalize these agreements in writing. Continue to expand on the Joint Use Agreements with the school district and municipalities that provide both open space and amenities for the community but also facility space for additional programming to neighborhoods and underserved portions of the county.

Objective 3.3 – Develop additional recreational programs and services The county is home to an abundance of outdoor recreational amenities. The Department should continue to look for opportunities to expand recreational programs and activities based on community demand and current trends. The community would like to see outdoor adventure, nature and

environmental, and fitness and wellness programs expanded, as well as additional programs for teens, seniors, and people with disabilities.

Survey respondents indicated that lack of equipment, knowledge and skills was a barrier to participation. The Department and other service providers should develop introductory programs and access to equipment particularly to youth and underserved populations to become familiar with and be able to experience outdoor recreational opportunities in the county. These may include rock climbing, bouldering, kayaking, mountain biking, orienteering, archery, and hiking. The Department should continue to work with private businesses and non-profits to provide specialized programs as needed.

In addition to active recreation programming, the Department should promote passive recreation opportunities throughout the County. These activities require fewer resources from the Department and can enhance the perception of Hamilton County. Online information, trailhead signage, and maps can assist in promoting passive recreation.

In order to ensure the long-term viability of natural resources, the Department should establish principles for sustainability throughout parks, with programmatic elements to teach trail etiquette, Leave No Trace, and other environmentally friendly measures.

The Department should continue to monitor recreational trends and community needs to stay current with programming and demand. As new programs and services are developed and implemented, continue to create a balance between passive and active recreation.

Objective 3.4 – Explore opportunities to increase the number of community events based on demand and trends Increased community events were a priority for focus group participants and survey respondents. The Department should continue to look for opportunities to expand neighborhood and community special events. Working with the municipalities in the County and neighborhood groups, the Department can help facilitate the growth of community events. In order to ensure that the events reflect the diversity of the community, the Department should engage the community, volunteers, and relevant organizations in event development.

Objective 3.5 – Partner with Municipalities and other service providers to provide programs and services As part of the master planning process, key leaders from the municipalities, businesses and state and federal agencies were brought together for a Leadership Summit. This summit helped to identify common goals, visions, and opportunities within the county, and develop lines of communication. These meetings should continue as a way of providing programs and services to the community and not duplicating services. The Department should serve as the convener of these meetings.

Goal 4: Increase Financial Opportunities

Objective 4.1 – Review existing fees and restructure to meet current situation The current fees have not been reviewed in several years. As part of master planning process, revenue and expenses were evaluated to determine current subsidies. The current fees need to be adjusted to reflect operational and maintenance costs that have increased over time. The County can appreciate immediate benefit by the implementation of a Recreation Revenue Fund as a dedicated revenue source for park maintenance or capital improvement, where revenue generated by the Department is retained by the Department for current and future expenses.

Objective 4.2 – Explore additional funding options Other funding strategy options include donations, grants, and sponsorships. These are generally short- term, specific to a project or amenity, and normally require some matching funds. These strategies are a great source of supplemental funds but are not a long-term solution.

For long term funding for park maintenance, the County could consider a transient tax that would tax visitors who stay in hotels, bed and breakfasts, and short-term rentals (i.e. Airbnb). This would tax visitors who are using parks and trails, increasing maintenance, and relieving residents of some of the burden.

Objective 4.3 – Pursue grant and philanthropic opportunities The Department currently takes advantage of grant opportunities available for programming and facility improvements. The Department should continue to pursue any and all grant opportunities at the federal, state, regional, and local levels. To accomplish this, the Department should continue contracting with a dedicated grant writer to research, submit, and track such grants.

Objective 4.4 – Explore opportunities to increase sponsorships The Department currently has sponsorship arrangements for special events, programs, and activities. It should continue to explore additional sponsorship opportunities and build on existing sponsorships. All existing and future sponsorships should be evaluated to ensure that they are accurately portrayed in a signed sponsorship agreement.

Objective 4.5 –Explore Developing and Implementing Cost Recovery and Pricing Philosophy and Practice The Department currently tracks its expenses and revenues (cost recovery) for programs and events. The Department should pursue a formal resource allocation and cost recovery philosophy, model, and policy that is grounded in the values, vision, and mission of Hamilton County. The GreenPlay team conducted a workshop for staff on the Pyramid Methodology and provided resource materials for the Department. The Department should consider developing a pricing methodology that reflects the community’s values, while generating revenues to help sustain Hamilton County facilities, parks, programs, and services.

B. Action Plan, Cost Estimates and Prioritization

The following Goals, Objectives, and Action Items were developed from public input, surveys, intercepts, inventory, level of service analysis, issues feedback, and all the information gathered during the master planning process. The primary focus is for Hamilton County to build upon its existing assets, and to maintain, sustain, and improve parks, recreation, and trails/bike paths. All cost estimates are in 2019 figures where applicable. Most capital and operational cost estimates are dependent on the extent of the enhancements and improvements determined. The Operational Budget Impact is a dollar range calculated as the annual number of hours estimated multiplied by an average hourly rate of $24 per hour to cover all levels of staff including benefits.

Timeframe designations recommended to complete tasks are noted as:  Short-term (up to 3 years)  Mid-term (4-6 years)  Long-term (7-10 years)  Ongoing (occurs on a continuous basis)

Goals, Objectives, and Action Steps

Goal 1: Improve Facilities and Amenities Objective 1.1: Expand greenways, bike paths, and trails connectivity Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete State road Class Additional staff for 1.1.a 1: $520,000/mile maintenance Continue working with other agencies and the Local road Class ($3,000 - $5,000) is Short-Term municipalities in the county to provide regional 1: $400,000/mile necessary for any Priority connectivity to neighborhoods, schools, parks Off-road new developed and the community. greenway: park land $1,300,000/mile State road Class Additional staff for 1: $520,000/mile 1.1.b maintenance Local road Class Plan and construct trails and greenway that link ($3,000 - $5,000) is Short-Term 1: $400,000/mile the regional system to existing and future parks necessary for any Priority Off-road and facilities. new developed greenway: park land $1,300,000/mile Potential additional 1.1.c staff or contract Continue working with other departments and management municipalities to develop and expand Ongoing ($5,000 - $8,000) greenways, bike paths, and trails to connect for maintenance of communities, neighborhoods, and parks. new trails

1.1.d Continue to collaborate on regional initiatives such as the Rails-to-Trails project and the Great Staff Time Ongoing Eastern Trail, as well as other projects from the 2008 Tennessee Greenways and Trails Plan. Major trailhead / trail junction 1.1.e signage: $10,000 Develop and implement a wayfinding program per sign Staff Time ($5,000) Mid-Term that covers signage standards, directional and Secondary and distance signage, maps and the use of apps. directional signage: $3000 – $5,000 / sign. 1.1.f Initiate the development and implementation of TBD Staff Time Mid-Term a regional trails master plan to include mapping and web access to the trails data. Objective 1.2 Continue to maintain and improve existing facilities and amenities Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 1.2.a Cost will vary Address the deferred maintenance backlog and based on Ongoing create an asset replacement schedule that projects, address Priority addresses the low scoring components from the in the Capital Master Plan inventory. Budget 1.2.b Cost will vary Maintain and keep updated the GIS database of based on parks and trails assets using the current GRASP Ongoing projects, address Staff time inventory. Conduct annual component-based Priority in the Capital inventory and assessment to identify low Budget scoring components. 1.2.c Capital cost Address low scoring components and amenities estimates per Staff time or from the Master Plan inventory by upgrading, facility should be contract replacing, or repurposing components or Ongoing included in each management amenities where appropriate. master planning ($8,000 - $12,000)

process

1.2.d Develop a maintenance plan and schedule to Will vary based address the condition and maintenance of the on condition and Staff time ($5,000) Mid-term County’s neighborhood parks, athletic fields and scope of project campgrounds. 1.2.e Will vary based Develop an asset replacement schedule to Staff time ($5,000) Ongoing on asset monitor assets and keep replacement up to date

based on recurring inventory updates and assessments. 1.2.f Maintain GIS database for parks and trails assets by continuing to build on GIS dataset from the $0 Staff time ($7,500) Ongoing Master Plan inventory and include new or additional amenities or components. Objective 1.3: Continue to improve ADA accessibility at all facilities. Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 1.3.a Ongoing Continue to inspect existing facilities, conduct Staff Time self-evaluations, and update transition plan as Priority needed. Objective 1.4: Expand open space and parks Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 1.4.a Cost will vary Look for opportunities to add new open space based on Long-Term and parks as development occurs in the county. location and size Objective 1.5: Make improvements to or replace some existing facilities and amenities or develop new amenities at existing parks based on current level of service analysis Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 1.5.a $50,000 to Consider components or opportunities $100,000 per Short-Term identified in the needs assessment to add park depending Priority secondary uses to existing parks to expand user on use base and support the primary park use. 1.5.b $750 to $1,000 Short-Term Identify opportunities to develop primitive per primitive site Priority camping throughout underutilized natural areas. 1.5.c Develop an alternative site for special events $60,000 to Short-Term that is appropriate with parking, sewer, $80,000 per acre Priority electrical, and vendor space. 1.5.d Based on the Inventory and LOS Short Term recommendations, develop individual park $12,000 to Mid Term master plans to address low scoring $50,000 each Priority components and repurpose spaces for better usage.

1.5.e Develop Mowbray Mountain Community Park to $1,500 to $2,000 Short-Term accommodate primitive camping and access to per primitive site Priority climbing sites in the area. 1.5.f Develop standards for park and amenity Staff Time or RFP Short-Term maintenance, renovation, and development to for consulting Priority ensure all County facilities are safe and services accessible to all. 1.5.g Based on the needs assessment look for Additional staff opportunities to add new components at TBD ($10,000) for Mid-Term existing community parks to enhance the user maintenance experience and broaden users of the facility. 1.5.h Explore opportunities to provide primitive Staff Time ($5,000 - Mid-Term camping at Chester Frost Parks in underutilized $7,500) natural areas. 1.5.i Staff Time and Explore opportunities to provide increased maintenance Short-Term access to water. ($5,000 - $7,500) 1.5.j Install infrastructure and amenities to support emerging new outdoor activities in the County TBD Mid-Term such as archery, pickleball, and entry level mountain biking. Objective 1.6: Upgrade convenience and customer service amenities to existing facilities Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete Include these 1.6.a types of Explore opportunities to add restrooms, amenities within Additional staff drinking fountains/water filling stations, shade, the master ($30,000 - $40,000) Mid-Term storage, storage, restrooms, and other planning process for maintenance amenities appropriately at existing parks and for each park facilities. and facility Cost per parking space: $3,000 Additional staff or 1.6.b per parking contract Explore the need to improve and potentially add space for asphalt management Mid-Term additional parking at appropriate facilities and parking lot with ($5,000 - $8,000) parks. curb and gutter for maintenance (no lighting)

Goal 2: Continue to Improve Organizational Efficiencies Objective 2.1: Build on existing and look for opportunities to increase appropriate partnerships within the community Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.1.a Develop and employ a strategy to increase May vary based and pursue additional partnerships with Staff Time ($5,000 - Ongoing on project and local youth athletic organizations, municipal $7,500) Priority parks and recreation departments, and the approach. school systems to provide parks, trails, facilities, programs and services. 2.1.b Take the lead in creating a Community Task Force to regularly engage leaders from the Short-Term and county municipalities, unincorporated areas, Staff Time Ongoing businesses, non-profits, schools, and state Priority and federal government agencies to coordinate recreational opportunities in the County. 2.1.c Staff Time Work with other municipalities and the ($2,500 - $5,000) school system to provide open space, $0 Potential increased Ongoing recreation amenities, and programs to the revenue or community. decreased expenses 2.1.d Staff Time Continue working with the youth athletic ($3,000 - $5,000) organizations to serve the need in the $0 Potential increased Long-Term county. Provide training and expertise the revenue or help the organizations to be successful. decreased expenses 2.1.e Continue to ensure all existing and future Staff Time $0 Short-Term partnerships are accurately portrayed in a ($2,500 - $3,500) signed agreement. Objective 2.2: Staff appropriately to meet current demand and maintain established quality of service Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.2.a Increase staffing levels as the Department’s Short-Term $0 TBD responsibilities grow, new positions in Priority recreation programming as well maintenance will be required. Staff Time 2.2.b $0 Short-Term ($2,500 - $3,000)

Hire and train staff for current and future park, facilities, and greenway/trails/bike path maintenance demands. 2.2.c Hire, conduct orientation with, and train Staff Time $0 Mid-Term staff for current and future recreation ($2,500 - $3,000) programming and facility usage demands. 2.2.d Assess the advantages and disadvantages of Staff Time $0 Mid-Term using contractual services for part time, ($5,000 - $7,500) instructional, and seasonal staff. Objective 2.3: Continue to enhance and improve internal and external communication regarding department activities and services Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.3.a Develop a marketing plan for the Department that includes but is not limited to: Staff Time ($25,000)  Branding of the Department $0 or $40,000 to hire Mid-Term  Wayfinding and signage standards consultant  Increased use of social media  Use and development of the Department’s website  Partnership opportunities 2.3.b Review marketing plan annually. Update the $0 Staff Time ($5,000) Ongoing marketing plan every five years. 2.3.c Continue to engage the community in Staff Time $0 Ongoing current and future parks, recreation, and ($5,000 - $8,000) open space planning efforts. 2.3.d Continue to promote and create awareness Staff Time Ongoing $0 of the programs and activities through the ($5,000 - $7,500) Priority County website and social media. Objective 2.4: Continue to engage the County Municipalities Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.4.a Continue to engage the 10 municipalities in Staff Time $0 Ongoing the County in current and future parks, ($2,000 - $3,000) recreation, and open space planning efforts.

Objective 2.5: Review and make changes to the existing permitting process Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.5.a Review the current process and develop consistent standards for rentals and event Staff Time Short-Term $0 permitting to ensure equitable access for ($2,000 - $3,000) Priority the public and rental groups at popular parks, facilities and amenities. 2.5.b Use data from the registration software to $0 Staff Time Short-Term evaluate the existing fee structure and adjust as needed. Objective 2.6: Reactivate the Parks and Recreation Advisory Board Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 2.6.a Review current policies and bylaws for the Staff Time Board and make needed revisions that will $0 Short-Term ($2,000 - $3,000) support the structure of ongoing improvements in the Department.

Goal 3: Continue to Improve Programs and Service Delivery Objective 3.1: Work with other service providers to develop programs and service to meet demand and trends Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 3.1.a Continue to look for opportunities to expand Staff time programs while working with other service $0 Ongoing ($3,000 - $4,000) providers within the county. Formalize partnership agreements in writing. 3.1.b Continue to expand on Joint Use Agreements with the school districts, municipalities, and $0 Staff Time Ongoing private businesses to increase programs and services in underserved portions of the county.

Objective 3.2: Develop additional recreational opportunities Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete Staff time to plan 3.2.a with instructors Develop and implement a plan to address the conducting needs for outdoor adventure, nature and $0 programs Short-Term environmental, and fitness and wellness ($8,000 - $12,000) programs. including required supplies Staff time to plan with instructors 3.2.b conducting Identify and explore additional recreational $0 programs Ongoing opportunities for specials needs, teens and ($8,000 - $12,000) seniors. including required supplies Staff time to plan 3.2.c with instructors Explore opportunities to provide introductory conducting programs and access to equipment to become $0 programs Ongoing familiar with and be able to experience outdoor ($8,000 - $12,000) recreational opportunities in the county. including required supplies Staff time to plan 3.2.d with instructors Keep current with trends in recreational conducting programming and develop new programs based $0 programs Ongoing on current trends and community need and ($8,000 - $12,000) demand. including required supplies 3.2.e As new programs and services are developed and implemented, continue to create a balance $0 None Ongoing between passive and active recreation opportunities. Objective 3.3: Explore opportunities to increase the number of community events based on demand and trends Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete Staff time to plan 3.3.a and conduct events Continue to look for opportunities to expand $0 ($10,000 - $15,000) Mid-Term community special events throughout the including required county. supplies

Objective 3.4: Partner with the County Municipalities and other service providers to deliver programs and services Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 3.4.a Continue to engage and partner with the Staff Time municipalities, businesses, and state and federal $0 Ongoing ($2,000 - $3,000) agencies in the County in current and future program planning efforts.

Goal 4: Increase Financial Opportunities Objective 4.1: Review existing fees and restructure to meet current situation Timeframe Capital Cost Operational Budget Actions to Estimate Impact Complete 4.1.a Review and adjust existing fees to reflect current Short-Term $0 Staff Time operational and maintenance costs incurred by Priority the Department. 4.1.b Pursue the implementation of a Recreation Short-Term Revenue Fund as a dedicated revenue source for $0 Staff Time park maintenance, where revenue generated by Priority the Department is retained by the Department for current and future expenses. Objective 4.2 Explore additional funding options Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete 4.2.a Will vary based Seek increased General Fund allocation to Staff Time on projects Short-Term address recommendations from the Master Plan ($2,000 - $2,500) recommended and increased capital funding. 4.2.b Will vary based Explore the feasibility of implementing a Staff Time on projects Mid-Term developer impact fee for new construction to ($3,000 - $5,000) recommended provide funding for park development. 4.2.c Staff Time Explore the feasibility of a transient tax for long $0 Long-Term ($2,000 - $2,500) term funding for park maintenance.

Objective 4.3: Pursue grant and philanthropic opportunities Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete Staff Time or hire a 4.3.a Potential part-time grant Short-Term Continue to pursue grant opportunities and Matching Funds writer Mid-Term philanthropic donations. ($20,000 - $30,000) 4.3.b Continue contracting with a dedicated grant Potential Mid-Term writer to research, submit, and track federal, Matching Funds regional, state, and local grants. Objective 4.4 Explore opportunities to increase sponsorships Capital Cost Operational Budget Timeframe to Actions Estimate Impact Complete Staff Time 4.4.a ($3,000 - $4,000) Explore additional sponsorship opportunities $0 Potential increased Ongoing and build on existing successful sponsorships. revenue or decreased expenses 4.4.b Ensure that all existing and future sponsorships Staff Time $0 Short-Term are accurately portrayed in signed sponsorship ($2,000 - $3,000) agreements. Objective 4.5: Explore developing and implementing a cost recovery and pricing philosophy and policy Capital Cost Operational Timeframe to Actions Estimate Budget Impact Complete 4.5.a Develop a resource allocation and cost recovery $45-$65K if philosophy, model, and policy that is grounded Staff Time Long-Term contracted in the values, vision, and mission of Hamilton County. 4.5.b Establish a pricing methodology that continuously reflects community values, while generating adequate revenues to sustain $0 Staff Time Short-Term Hamilton County facilities, parks, open space, programs, and services. Review the user fee structure annually.

IV. What We Have Now – Inventory and Level of Service Analysis A. Parks and Facilities Inventory and Assessment

An inventory of parks and facilities was conducted in April 2019. Each site was evaluated using the GRASP®-IT audit tool. See Level of Service Analysis for definitions and details.

Park features were classified into one of two categories: components and modifiers. A component is a feature that people go to a park or facility to use, such as a tennis court, playground, or open lawn area. The quality of each of component was evaluated. Amenities such as shade, drinking fountains, restrooms, etc. that enhance the comfort and convenience of a site are thought of as Modifiers.

A formula was applied that combines the assessments of a site’s components and modifiers to generate a score or value for each component and for the entire site. The resulting values can be used to compare sites to each other and to analyze the overall performance of the park system.

Summary of Inventory Locations The existing park system in Hamilton County is diverse, from large regional parks to small rural community parks and sport facilities. The functional differences between each site are generally a reflection of location, acreage, available components, and ecological significance. Sites that serve large segments of the population tend to be proportionally large with a wide range of components. Smaller parks with fewer components typically serve smaller geographic areas and populations.

For the purposes of this study, properties were cataloged according to predominate use. The following park classifications and descriptions have been updated to reflect the current inventory and component- based methodology used during this study.

Regional Parks: • Chester Frost Park • Enterprise South Nature Park • Tennessee Riverpark – main segment including multiple amenities and open space • Tennessee Riverwalk – the extended pathway and associated green space

Observations: • Large parks or facilities that draw visitors from a wide service area • Good street visibility, frontage and offer adequate public access • Maintenance at these facilities is very high • Some nicely incorporated natural areas in parks • A variety of recreation opportunities exist at these properties • Abundant trails providing access to many amenities. • Limited ADA access in many areas

Sports Complexes:  Bakewell Park  East Hamilton County Park  Harrison Recreation Area  Middle Valley Park  Redoubt Soccer Fields  Shackleford Ridge Park  Snow Hill Recreation Area  Standifer Gap Recreation

Observations: • Sports complexes are well distributed around the county • Generally, offer large number of fields at each location • Often lack development and construction standards that promote adequate ADA access and component maintenance sustainability • Courts (basketball, tennis) surfacing in need of repair or replacement throughout • Turf quality needs improvement at most sports fields

Community Parks:  Apison Park  Ben Miller Park  Bonny Oaks Arboretum  Meadowview Park  Mowbray Park  Tree of Life Park  Vandergriff Park

• Many of these parks provide an important neighborhood level of service in outlying rural areas of the county • Inconsistent safety surfacing and dated structures at many playgrounds • Courts (basketball, tennis) surfacing in need of repair or replacement throughout • Limited ADA access in many areas

Regional Parks: These 4 large areas (size varies) contain park uses and recreation facilities that attract visitors from throughout the region, generally within a 7-mile radius, depending upon the amenities provided. The parks range from 72 to 2660 acres. The most common features in these parks are playgrounds, trails, and water access. Excluding the camping sites, these four parks average 37 components each.

use

en Turf en Location GIS Acres

Camping, Defined Camping, Concessions Golf Disc Experience Educational Facility Equestrian Space Event Course Fitness Area Natural Op Node Passive Ground Picnic Local Playground, Art Public Large Shelter, Small Shelter, Court Tennis Trail, Multi Trailhead Court Volleyball Developed Access, Water General Access, Water Open Water, Park per Components Total Chester Frost Park 284.9 228 1 1 3 1 1 2 4 5 5 2 1 14 3 1 272 Enterprise South Nature Park 2659.5 1 1 1 3 5 19 5 1 36 Tennessee Riverpark 72.1 1 1 2 2 2 4 1 2 1 8 24 Tennessee Riverwalk 99.2 2 8 4 12 1 4 31 Totals: 3115.7 228 1 1 1 1 4 1 2 3 3 11 14 8 6 19 2 21 5 1 26 3 2 363

Sports Complex/Facility Hamilton County has 8 parks in this classification which is a hybrid between a neighborhood park due to size and a community park due to user draw. The parks range from 5 to 106 acres. Like neighborhood parks in containing basic components, these slightly larger parks also contain higher intensity use components such as diamond fields, tennis courts, and concessions suitable for events and tournaments. These sites are mostly large enough to adequately accommodate the uses, which attracts residents from near and far to use park components and activities. The total components in these parks range from 4 to 32 with the most common components are diamond fields and tennis courts. The average number of components in this classification is 14.

mponents per Park per mponents

GIS Location Acres

Batting Cage Batting Concessions Field Diamond Complex Field, Diamond Practice Field, Diamond Experience Educational Walk Loop Area Natural Turf Open Grou Picnic Local Playground, Complex Field, Rectangular Large Field, Rectangular Multiple Field, Rectangular Small Field, Rectangular Large Shelter, Small Shelter, Court Tennis Complex Tennis, Trailhead Court Volleyball Developed Access, Water Open Water, Co Total East Hamilton County Park 23.4 1 6 1 1 1 1 1 12 Harrison Recreation Area 7.4 1 2 5 1 1 10 Middle Valley Park 38.9 3 11 2 1 1 2 1 1 2 8 32 Redoubt Soccer Fields 32.9 2 1 1 1 2 1 2 10 Shackleford Ridge Park 106.5 1 3 1 1 1 1 2 2 1 1 1 15 Snow Hill Recreation Area 17.8 1 1 4 1 1 1 1 10 Standifer Gap Recreation 25.7 1 3 1 1 1 2 1 1 8 1 1 21 Bakewell Park 5.0 1 1 1 1 4 Total: 257.5 2 12 33 6 4 1 3 3 1 3 1 3 6 5 2 2 6 16 1 1 1 1 1 114

Community Parks These parks vary from 1 to 16 acres have approximate service area radii of up to two (2) miles, are often “drive-to” facilities, and provide a much broader range of community-based components than neighborhood parks. Natural areas of community parks are preserved and integrated into overall site designs. They typically contain playgrounds and picnic shelters, sport fields and open turf, sport courts, and passive green space as standard components. The most common components include loop walks, open turf, playgrounds, and natural areas. Several also offer basketball courts, diamond fields, and tennis courts. Community parks are appropriate sites for community recreation and play for general populations. There are 7 parks in this classification, and they offer a range from 2 and 11 components. The average number of components at a community park in Hamilton County is 7.

Location GIS Acres

Basketball Court Basketball Practice Basketball, Field Diamond Park Dog Display Garden, Court Horseshoe Walk Loop Area Natural Turf Open Node Passive Ground Picnic Destination Playground, Local Playground, Art Public Large Shelter, Court Tennis Feature Water Par per Components Total Apison Park 6.1 1 1 4 1 1 1 1 1 11 Ben Miller Park 7.0 1 1 1 1 2 6 Bonny Oaks Arboretum 1.0 1 4 1 1 7 Meadowview Park 14.2 1 2 1 1 1 6 Mowbray Park 16.1 1 1 1 1 1 1 1 2 9 Tree of Life Park 9.6 1 1 2 Vandergriff Park 4.5 1 1 1 3 1 7 Totals: 58.5 2 1 3 1 1 4 6 3 6 4 2 3 2 1 3 5 1 48

Indoor Facilities Indoor facilities were also inventoried and cataloged on the following table. Indoor facilities vary greatly in their offerings, and in this system is hosted restrooms, access to water, and shelter.

Kitchenette

purpose

Location

Kitchen Lobby/Entryway Multi seating Patio/outdoor Amnicola Marsh Meeting Room 1 Chester Frost Pavilion 1 1 Enterprise South Visitor Center 1 1 1 1

Trails The bulk of Hamilton County’s involvement and responsibility in respect to trails consists of trails within its park boundaries. Approximately 147-miles of trails have been identified on the following system map. These trails include:  East Brainerd Trail  Harrison-Ooltewah Route  North Chickamauga Trail  South Chickamauga Greenway Trail  South Chickamauga Trail  Tennessee Riverwalk  Tour de Signal

Enterprise South Nature Park Trails: http://parks.hamiltontn.gov/325/Hiking-Biking-and-Horse-Trails This park offers extensive hiking, biking and equestrian trails:  Over 12 miles of walking/hiking trails  Over 10 miles of mountain bike trails  5 miles of paved walking and biking roads  7-mile driving loop  1-mile ADA accessible woodland trail

Below are maps currently available on the Hamilton County website.

Enterprise South Nature Park trails maps

In late 2008, SORBA Chattanooga reached an agreement with Hamilton County to construct 10 miles of trail at the yet to be opened Enterprise South Nature Park (ESNP). Construction began in January 2009 and was completed in October of 2010 just prior to the grand opening of this amazing park. Since the initial phase was completed, an agreement has been reached with the Hamilton County Park Service that will allow the club to construct an additional 10-15 miles of trail, thus making the system an even more attractive destination for the region’s mountain biking community. In addition to the single-track trails that have been, and will be, constructed at ESNP, SORBA Chattanooga hopes to be building the areas first dirt jump course in the future. To complete the initial 10 miles of trail, SORBA Chattanooga contributed nearly 1400 hours of trail work.

Approximately 10-miles of equestrian trails exist in the northern end of this park.

Tennessee Riverpark includes the Riverwalk, a hard surface trail and trail amenities:

System Map The following map shows park and recreation facilities across Hamilton County. Detailed maps available on the Department website: www.parks.hamiltontn.gov

Figure A: Example of GIS inventory map and data sheet. A complete Inventory Atlas was provided as a staff document to guide priority maintenance and replacement

Park Rankings by Type In addition to locating components, the functional quality of each element was assessed during the site visits. The following tables display the ranking of each park based on an overall GRASP® score for its components and modifiers. They are separated into their three park categories, Regional, Community, and Sports. In general, parks at the top of the list offer more and better recreation opportunities than those ranked lower. The length of the bar for each park reflects its overall score in proportion to that of the highest-ranking park (Chester Frost).

Regional Parks Table C: Regional Park Ranking Table LOCATION GRASP® Score Chester Frost Park 2007 Enterprise South Nature Park 464.4 Tennessee Riverwalk 169 Tennessee River Park 124.8

Community Parks Table D: Community Park Ranking Table LOCATION GRASP® Score Apison Park 49.5 Bonny Oaks Arboretum 38.4 Ben Miller Park 36 Vandergriff Park 33.6 Meadowview Park 23.1 Mowbray Park 17.1 Tree of Life Park 13.2

Sports Complexes/Fields Table E: Sports Complex Ranking Table LOCATION GRASP® Score Middle Valley Park 167.2 Standifer Gap Recreation 136.8 Shackleford Ridge Park 105.6 East Hamilton County Park 67.2 Redoubt Soccer Fields 61.2 Harrison Recreation Area 60 Snow Hill Recreation Area 24.6 Bakewell Park 16.5

Indoor Ranking Indoor facilities can also be ranked based on the number and quality of the indoor recreation opportunities. The following table represents the current indoor facility rankings based on the inventory visits. The length of the bar for each facility reflects its overall score in proportion to that of the highest- ranking Enterprise South Visitor Center.

Table F: Indoor Facility Ranking Table Location GRASP® Score Enterprise South Visitor Center 19.2 Chester Frost Pavilion 7.2 Amnicola Marsh Ranger Station 4.4

GRASP® National Dataset Comparisons The following graphics represent comparisons of the Hamilton County Parks and Recreation system the GRASP® national dataset. This represent comparative data from other agencies communities of similar population to Hamilton County across the country. Because every agency/community is unique, there are no standards or “correct” numbers for these, however, there are several interesting similarities and differences when making these comparisons. These comparisons would tend to suggest that a significant portion of the Hamilton County inventory ranks very high when compared to other agencies.

Extent of current GRASP® National Dataset

Hamilton County park rankings as compared to national dataset

Population Distribution and Density When discussing access to parks and recreation, it is helpful to understand the population distribution and density in Hamilton County. In the image below, areas of higher population density are shown in darker orange/red while areas that are less densely populated are lighter in color.

2019 Population density based on population per acre by census block group

Level of Service Analysis Level of Service (LOS) measures how parks, open spaces, trails, and facilities in Hamilton County serve the community. They may be used to benchmark current conditions and to direct future planning efforts. An analytical technique known as GRASP® Why Level of Service? (Geo-Referenced Amenities Standard Level of Service may be defined as how a recreation Process) was used to analyze Level of system provides residents access to recreational assets Service provided by assets in Hamilton and amenities. It indicates the ability of people to County. This proprietary process, used connect with nature and pursue active lifestyles. It can exclusively by GreenPlay, yields analytical have implications for health and wellness, the local maps and data that may be used to economy, and quality of life. Further, LOS for a park and examine access to recreation across a study recreation system tends to reflect community values. It area. A detailed history and description of is often representative of people’s connection to their GRASP® Methodology may be found in the communities and lifestyles focused on outdoor Appendix. recreation and healthy living. GRASP® Analysis GRASP® (Geo-referenced Amenities Standards Process) is the proprietary name for an approach that has been applied in more than one hundred communities across the country to evaluate LOS for park and recreation systems. With GRASP®, information from the inventory of parks and facilities was used in combination with Geographic Information Systems (GIS) software to produce analytic maps and data that show the quality and distribution of park and recreation services across Hamilton County.

Perspectives Maps and data produced using the GRASP® methodology are known as perspectives. Each perspective is a model of how service is being provided across the study area. The model can be further analyzed to derive statistical information about service in a variety of ways. Maps are utilized along with tables and charts to provide benchmarks or insights a community may use to determine its success in providing services.

Types of Perspectives The LOS offered by a park or other feature is a function of two main variables: what is available at a specific location and how easy it is for a user to get to it. The inventory performed with the GRASP®-IT tool provided a detailed accounting of what is available at any given location, and GIS analysis was used to measure its accessibility to residents. People use a variety of transportation to reach a recreation destination: on foot, on a bike, in a car, via public transportation, or some combination. In GRASP® Perspectives this variability is accounted for by analyzing multiple travel distances (referred to as catchment areas). Different travel distances were used to produce distinct types of Perspectives for examining the park system: 1. Regional Park Access 2. Sport Complex Access 3. Community Park Access 4. All Park Access

For each perspective, the defined catchment area is plotted around each park and assigned a value using scoring from the inventory. When these catchments are combined into one overlay, a shaded map results, with the shading representing the cumulative value of all features.

GRASP® Level of Service perspectives use overlapping catchment areas to yield a “heat map” that provides a measurement of LOS for any location within a study area. Orange shades represent the variation in LOS values across the map.

Assumptions 1. Proximity relates to access. A feature within a specified distance of a given location is considered “accessible” from that location. “Access” in this analysis does not refer to access as defined in the Americans with Disabilities Act (ADA). 2. Access to recreation can be affected by barriers, obstacles to free and easy travel on foot or even drivable access based on river crossings for example. 3. The LOS at any given point on the map has a value that is the cumulative value of all features that are considered accessible from that location.

Access To Regional Parks Regional Park Access perspective uses large catchment distances intended to capture users from a greater area. This distance can range from as short as 1-mile to as far as 7-miles depending on the park type. These catchments were enlarged to account for commuters from the surrounding area since these types of parks have features which attract people from throughout the county. Regional Parks analysis uses three service areas of 1-mile, 5-mile, and an assumed maximum travel distance of 7-miles.

Access to Regional Parks

The shading in the map allows for a quick understanding of how the LOS is distributed across the county. In the case of Regional Parks, the highest level of service is provided by Chester Frost Park, which is represented by the darkest shading.

Access to regional parks based on population. This chart displays level of service based on where people live. It was produced using the Access to Regional Parks analysis, as compared to census data provided by ERSI GIS data enrichment techniques. The analysis would indicate that regional parks are generally well placed in or close to residential areas and capture a greater percent of the population than land area. With only five-percent of residents outside of regional park access areas, Hamilton County is well positioned.

Access To Sports Complex/Facility Sports Complex Access perspective also uses longer catchment distances intended to capture users from a greater area. This distance can range from as short as 1-mile to as far as 5-miles depending on the park type. These catchments account for users from the surrounding area since these types of parks have features which attract teams from throughout the county. Sports Complex analysis uses three service areas of 1-mile, 3-mile, and an assumed maximum travel distance of 5-miles.

Access to Sports Complex/Facility

The shading in the map allows for an understanding of how the LOS is distributed across the county. In the case of Sports Complexes, the highest level of service is provided by Middle Valley Park and Standifer Gap Recreation, which are represented by the darkest shading.

Access to sports complexes based on population. This chart displays level of service based on where people live. It was produced using the Access to Sports Complex analysis, as compared to census data provided by ERSI GIS data enrichment techniques. The analysis would indicate that sports complexes are generally well placed in or close to residential areas outside of Chattanooga and capture a large percentage of the population. With the assumption that Chattanooga city parks are providing access to sports fields within the city, Hamilton County is well positioned.

Access To Community Parks A Community Park Access perspective uses three service areas of ½ mile, 1 mile, and an assumed maximum travel distance of three miles. This represents suitable distances for bike rides, short drives in a car, or perhaps longer walks. This catchment is intended to capture users travelling from home or elsewhere to a park or facility by way of bike, bus, or automobile.

Community Parks

The shading in the map allows for an understanding of how the LOS is distributed across the county. In the case of Sports Complexes, the highest level of service is provided by Apison Park, which is

represented by the darkest shading. However, the facility has been impacted by new construction that has limited the availability of sports field usage. This should be targeted for development due to LOS.

Access to community parks based on population. This chart displays level of service based on where people live. It was produced using the Access to Community Park analysis, as compared to census data provided by ERSI GIS data enrichment techniques. The analysis would indicate that community parks are generally placed in more rural areas of the county where population density is less. It is assumed that within Chattanooga, that city parks are providing most neighborhood access.

Access to All Outdoor Recreation The final analysis was created by combining the previous three analyses and their varied service areas. Access to All Outdoor Recreation Opportunities shows where there are more or fewer recreation assets available based on the described various service areas for the three different park classifications. In general, this map shows that Hamilton County has good distribution of parks and outdoor facilities. Access to recreation is more limited at the edges of Hamilton County and in more rural areas.

Access to All Outdoor Recreation

Areas of greater access extend through much of southern Hamilton County, with greater gaps in service in the more rural regions of the north. The regional parks of Chester Frost, Enterprise, and the River parks have particularly high GRASP scores and therefore score highly for level of service and provide large populations with recreation opportunities. Given the geographic spread of the park system there are some areas on the periphery who may not have immediate access to recreation. Nevertheless, much of the population does have reasonable access and can go to a county park space with a short ride or drive.

Access to all Hamilton County parks based on population. This chart displays level of service based on where people live. It was produced using the Overall Park Access analysis, as compared to census data provided by ERSI GIS data enrichment techniques. The analysis would indicate that Hamilton County parks are generally placed throughout the county and provide essentially everyone with a reasonable opportunity to visit and enjoy a park.

Access to Trails The trail analysis was created using existing trails data provided by the county and supplemental data collected in Hamilton County park during site inventory and assessments. It is recognized that this data is incomplete in terms of all available trails and trailheads provided by the many providers throughout the county. Additional time and resources may need to be allocated to compiling this additional data for a more complete and accurate trails assessment. For the purposes of this analysis, trail centerline data and trail point data (loop walks, multi-use trails, and primitive trails) within county parks were buffered by one mile. The assumption with this type of analysis is that access to any trail is available at regular intervals along any trail. In more urban instances this is likely very true. In rural areas access points may be more limited. No qualitative scoring was used in this analysis.

Access to Trails

Areas of greater access extend through much of southern Hamilton County, with greater gaps in service in the more rural regions of the north.

More on Utilizing GRASP® Perspectives and Other types of Analysis Used in conjunction with other assessment tools such as GRASP® perspectives are used to evaluate Level of Service community needs surveys and a throughout a community from various points of view. Their public input process, Perspectives purpose is to reveal possible gaps in service and provide a can be used to determine if current metric to use in understanding a recreation system. levels of service are appropriate in a However, it is not necessarily beneficial for all parts of the given location. Plans can then be community to score equally in the analyses. Desired Level of developed that provide similar Service for a location should depend on the type of service levels of service to new, developing being analyzed, the characteristics of the location, and other neighborhoods. Or it may be factors such as community need, population growth determined that different Levels of forecasts, and land use issues. For example, commercial, Service are adequate or suitable institutional, and industrial areas might reasonably be and therefore a new set of criteria expected to have lower Levels of Service for parks and may be utilized that differs from recreation opportunities than residential areas. existing community patterns to GRASP® Level of Service analysis perspectives are intended reflect these distinctions. to focus attention on gap areas for further scrutiny.

Capacities Analysis One of the traditional tools for evaluating service for parks and recreation is the capacity analysis, which compares the quantity of assets to population and projects future needs based on providing the same ratio of components per population (i.e. as population grows over time components may need to be added to maintain the same ratio). The table below shows the current capacities for selected components in Hamilton County. This table can be used in conjunction with other information, such as input from focus groups, staff, and the general public, to determine if the current capacities are adequate or not for specific components. Hamilton County Capacities

Basketball Court Batting Cage Camping, Defined Concessions Diamond Field Diamond Field, Complex Diamond Field, Practice Educational Experience Event Space Horseshoe Court Loop Walk Natural Area Open Turf Other Passive Node Picnic Ground Playground, Destination Playground, Local Public Art Rectangular Field, Complex Rectangular Field, Large Rectangular Field, Multiple Rectangular Field, Small Large Shelter, Small Shelter, Tennis Court Trail, Multi-use Trailhead Volleyball Court Developed Water Access, General Water Access, Water, Open INVENTORY Hamilton County 2 2 228 13 36 6 4 2 4 4 9 8 10 2 7 16 3 17 9 3 6 5 2 11 25 23 21 6 2 27 3 3 CURRENT RATIO PER POPULATION CURRENT POPULATION 2019 372,935 Current Ratio per 1000 Population 0.01 0.01 0.61 0.03 0.10 0.02 0.01 0.01 0.01 0.01 0.02 0.02 0.03 0.01 0.02 0.04 0.01 0.05 0.02 0.01 0.02 0.01 0.01 0.03 0.07 0.06 0.06 0.02 0.01 0.07 0.01 0.01 Population per component 186,468 186,468 1,636 28,687 10,359 62,156 93,234 186,468 93,234 93,234 41,437 46,617 37,294 186,468 53,276 23,308 124,312 21,937 41,437 124,312 62,156 74,587 186,468 33,903 14,917 16,215 17,759 62,156 186,468 13,812 124,312 124,312 PROJECTED POPULATION - 2024 392,574 Total # needed to maintain current ratio of all existing facilities at projected 2 2 240 14 38 6 4 2 4 4 9 8 11 2 7 17 3 18 9 3 6 5 2 12 26 24 22 6 2 28 3 3 population Number that should be added by all providers to achieve current ratio at 0 0 12 1 2 0 0 0 0 0 0 0 1 0 0 1 0 1 0 0 0 0 0 1 1 1 1 0 0 1 0 0 projected population Components: practice basketball, disc golf, dog park, equestrian facility, fitness course, display garden, and tennis complex all were singular components within the Hamilton County system and therefore have a ratio of 1:3372,935 and no additional projected future needs based on population growth

The capacity table can also be used to project future facility needs based on population growth, if: a) the future population’s interests and behaviors are the same as today’s, and b) that today’s capacities are in line with today’s needs.

The capacities table is based on the quantity of assets without regard to distribution, quality or functionality. Higher LOS is achieved only by adding assets, regardless of the location, condition or quality of those assets. In theory, the LOS provided by assets should be based on their location and quality as well as their quantity, which is why this table should be used with discretion, and only in combination with the other analyses presented here. One of the major limitations of this type of analysis is striking in this example.

Similar calculations can also be made based on acres of land and parks per 1,000 residents. This capacity table indicates that Hamilton County provides approximately 9.2 acres per 1000 people or 109 people per acre of “park”. Based on this calculation Hamilton County will need 181 new park acres to provide similar LOS based on population projects for 2024.

Acres of Park Land per 1,000 Residents

Park GIS INVENTORY Acres # Hamilton County 3432 CURRENT RATIO PER POPULATION CURRENT POPULATION 2019 372,935 Current Ratio per 1000 Population 9.2 Population per acre 109 PROJECTED POPULATION - 2024 392,574 Total # needed to maintain current ratio of all existing acres at projected 3613 population Number that should be added by all providers to achieve current ratio at 181 projected population

# current acres LOS and projected acres LOS based only on current Hamilton County park lands and limited by the accuracy of current GIS data.

Key Conclusions Proximity, availability of transportation, and barriers such as the river are relevant factors impacting Hamilton County’ levels of service. The access to recreation opportunities is reasonably equitable across Hamilton County, especially given resident access to motorized transportation. Analysis would indicate that Hamilton County is currently providing its recreation opportunities in the form of a diverse system that includes large more developed regional parks, sports complexes and smaller community parks. A variety of trails are available within the county both within county parks and as stand-alone trail corridors.

Much of the “no service area” has very low residential population. Carefully planning future park lands will be important to the level of service in these areas. The most obvious way to increase overall LOS is to add assets in any area with lower service or acquire land or develop partnerships in areas lacking current service. Additional analysis and a review of the information received from surveys, focus groups, and other sources including staff knowledge will be needed in context to further identify the best locations for future improvements.

V. Community and Identified Needs

Hamilton County, Tennessee

A. Recreation and Park Demographic Profile By analyzing population data, trends emerge that can inform decision making and resource allocation strategies for the provision of parks, recreation, and open space management. This demographic profile was compiled in May 2019 from a combination of sources including the ESRI Business Analyst, American Community Survey, and U.S. Census. The following topics will be covered in detail in this section of the report:

Population Gender & Age Race/Ethnic Educational Household Health Employment Summary Distribution Character Attainment Data Rankings

Figure X: Hamilton County Demographic Overview

Commission Districts

Hamilton County is comprised of nine commission districts. Below is a list of key points that describe the demographic composition of the areas.  Each district has similar populations, ranging between 35,000 in district 1 to 47,000 people in district 9.  Regarding population growth, districts 6 through 9 had an annual growth rate of over 1 percent, while districts 1 through 5 had a growth rate under one percent. Growing at the fastest annual rate is district 9 at 1.66 percent (2010 – 2018).  District 7 had the highest median annual income at $75,328. District 4 had the lowest at $24,644.  The median age ranged from 33.8 years old in district 4 to 44 years old in district 3.  Home prices are valued the highest in district 2 at $240,369 and the lowest in district 4 at $93,545.  The highest minority population is found in district 4, where 73 percent identifies as an ethnicity other than White/Caucasian. The least diverse area is district 1, with only 6 percent identifying as a minority.  The unemployment rate is highest in district 4 (11%) and lowest in districts 7 and 8 (3.3%).

Variable District 1 District 2 District 3 District 4 District 5 District 6 District 7 District 8 District 9 2018 Total Population 35,775 36,426 40,280 38,722 39,454 38,424 46,720 44,760 46,797 2010-2018 Population: Annual Growth Rate 0.55% 0.77% 0.72% 0.94% 0.72% 1.45% 1.58% 1.05% 1.66% 2018 Median Household Income $56,208 $60,089 $63,776 $24,644 $39,857 $39,711 $75,328 $46,471 $68,284 2018 Median Age 44.1 43.3 44.0 33.8 40.0 36.9 41.2 41.3 42.5 2018 Median Home Value $178,657 $240,369 $191,314 $93,545 $127,142 $220,891 $238,037 $148,970 $209,799 2018 Total (SIC01-99) Businesses 749 813 1,381 2,173 2,095 3,253 847 2,521 822 2018 Minority Population 6% 11% 13% 73% 68% 25% 23% 28% 16% 2018 Unemployment Rate 4.5% 3.6% 4.0% 11.0% 6.0% 3.9% 3.3% 3.3% 3.6% 2012-2016 Households Below the Poverty Level 1,539 1,441 1,422 4,864 2,514 3,045 1,158 2,283 1,007 56

Population

Growth rates can be a strong comparative indicator of an area’s potential for economic development. From 2000 to 2018, the population of Hamilton County grew about at a rate of .90 percent annually each year. From 2010 to 2018, the rate increased to 1.07 percent, roughly the same at Chattanooga (1.08%). The growth rate of the State of Tennessee (0.87%) was lower than the county but still higher than the United States. The figure below shows a visual representation of the population growth rate between 2010 and 2018.

Hamilton County Population Projected Annual Growth Rates (2010 – 2018) USA Tennessee Hamilton County Chattanooga 0.81% 0.87% 1.07% 1.08%

In 2000, the population was just over 307,000 people. The growth rate is expected to increase to 1.07 percent from 2018 to 2023. If that same trend continues, population growth is projected to reach 429,201 in 2032.

Projected Population Trends from 2000 to 2032 500,000 429,201 450,000 407,405 386,716 400,000 367,367 336,463 350,000 307,896 300,000 250,000 200,000 150,000 100,000 50,000 0 2000 Total 2010 Total 2018 Total 2023 Total 2028 Projected 2032 Projected Population Population Population Population Population Population

Age & Gender Distribution

In 2019, Hamilton County was made up of more females (51.74%) than males (48.26%). A comparison of state and national gender breakdown is below.

Hamilton County Gender Distribution Compared to State and National Averages Hamilton County Chattanooga Tennessee USA 2018 Female Population (%) 51.74% 52.24% 51.11% 50.77% 2018 Male Population (%) 48.26% 47.76% 48.89% 49.23%

The median age in Hamilton County is 2010 was 39.2 years old; this number is projected to increase to 40.8 years old in 2023.

Median Age of Hamilton County between 2010 and 2023 2010 2018 2023 39.2 40.8 41.9

Looking at the population age breakdown by five-year increments in the Figure below, there are a few key conclusions.  Age distribution is expected to stay relatively the same from 2010 to 2023. Projected changes are only within two percentage points.  Those 65 and older are expected to increase in population, making up almost twenty percent of the community in 2023.  Age groups between 15 to 24 and 45 to 54 years old will see a decline in population.

Age Distribution in Hamilton County from 2010 to 2023 10% 9% 8% 7% 6% 5% 4% 3% 2% 1% 0% Age Age Age Age Age Age Age Age Age Age Age Age Age Age Age Age Age Age 10- 15- 20- 25- 30- 35- 40- 45- 50- 55- 60- 65- 70- 75- 80- 0-4 5-9 85+ 14 19 24 29 34 39 44 49 54 59 64 69 74 79 84 2010 6% 6% 6% 7% 7% 7% 6% 6% 6% 7% 7% 7% 6% 4% 3% 3% 2% 2% 2018 5% 6% 6% 6% 6% 7% 7% 6% 6% 6% 7% 7% 7% 6% 5% 3% 2% 2% 2023 5% 6% 6% 6% 6% 6% 6% 7% 6% 6% 6% 6% 7% 6% 5% 4% 3% 3%

2010 2018 2023

Race/Ethnic Character

In the United States, communities are generally becoming more diverse. Before comparing the data for Hamilton County, it is important to note how the U.S. Census classifies and counts individuals who identify as Hispanic. The Census notes that Hispanic origin can be viewed as the heritage, nationality, lineage, or country of birth of the person or the person’s parents or ancestors before arrival in the United States. In the U.S. Census, people who identify as Hispanic, Latino, or Spanish are included in all of the race categories. The figure below reflects the approximate racial/ethnic population distribution.

 In 2019, the majority of Hamilton County residents identified as White/Caucasian (74%).  Chattanooga is more diverse, with approximately one third of the population identifying as Black/African American.  Less than 6 percent of the county identified as being of Hispanic origin; that number is consistent with what is seen in Tennessee overall.

2018 Racial/Ethnic Diversity of Hamilton County 80.00% 70.00% 60.00% 50.00% 40.00% 30.00% 20.00% 10.00% 0.00% American Black/Afric Pacific Population White Indian/Ala Asian Other Race Hispanic an Islander of Two or Population ska Native Population Population Population American Population More Races Population Population Hamilton County, TN 73.65% 19.18% 0.31% 2.08% 0.09% 2.55% 2.12% 5.81% Chattanooga City, TN 58.78% 32.58% 0.34% 2.35% 0.12% 3.47% 2.35% 7.02% Tennessee 75.92% 16.93% 0.35% 1.84% 0.07% 2.66% 2.23% 5.54%

Hamilton County, TN Chattanooga City, TN Tennessee

Educational Attainment

Analyzing the highest levels of educational attainment indicates that Hamilton County had education levels similar to Chattanooga and the State of Tennessee. Of note, the County had higher levels of Bachelor and Graduate/Professional Level Degrees than the other areas, with 31 percent receiving these degrees.

2018 Hamilton County Educational Attainment Level of Education Hamilton County Chattanooga Tennessee Less than 9th Grade 3.45% 3.89% 4.51% 9-12th Grade/No Diploma 7.50% 9.06% 8.03% High School Diploma 22.02% 22.14% 26.30% Some College/No Degree 23.38% 23.53% 21.42% Associate's Degree 8.69% 8.42% 7.54% Bachelor's Degree 19.85% 18.91% 16.94% Graduate/Professional Degree 10.75% 9.98% 9.50% GED/Alternative Credential 4.37% 4.07% 5.75%

Household Data

 The median household size was 2.42 in Hamilton County in 2019, compared to 2.3 in Chattanooga, and 2.59 in the United States.  One quarter of the residents in Hamilton County identified as living with some sort of hearing difficulty, vision difficulty, cognitive difficulty, ambulatory difficulty, self-care difficulty, and/or independent living difficulty.  The median home value in Hamilton County in 2019 was $185,090, higher than the median home value of Chattanooga ($163,395) and Tennessee ($170,899).  Less than 15 percent received food stamps in the County, compared to Chattanooga (20%) and Tennessee (13%).  Hamilton County median household income was $51,711 in 2019, compared to Chattanooga at $42,196, Tennessee at $49,776 and the United States at $58,100.  Income distribution data indicates that most residents made between $35,000 and $75,000 in 2019. Chattanooga had a high percentage that make less than $15,000 (17%), when compared to the County and the State

Median Household Income Distribution in Hamilton County 20% 18% 16% 14% 12% 10% 8% 6% 4% 2% 0% less than $15,000- $25,000- $35,000- $50,000- $75,000- $100,000- $150,000- $200,000 $15,000 $24,999 $34,999 $49,999 $74,999 $99,999 $149,999 $199,999 or greater Hamilton County, TN 12% 11% 10% 14% 17% 13% 12% 5% 5% Chattanooga City, TN 17% 13% 11% 14% 17% 11% 9% 3% 3% Tennessee 13% 12% 11% 15% 19% 12% 11% 4% 4%

Hamilton County, TN Chattanooga City, TN Tennessee

Employment

 Of the 226,000 employees, roughly 60 percent were employed in white collar positions, which typically performs managerial, technical, administrative, and/or professional capacities. About 20 percent were employed by blue collar positions, such as construction, maintenance, etc. An estimated 16 percent worked in the service industry.  4.6 percent of the population was unemployed in 2018, compared to the rate of Tennessee (4.5%) and the United States (4.8%).  In terms of commuting, over 15 percent of workers spend seven or more hours commuting back and forth to work each week; 83 percent of commuters drive alone in a car to work.

Employment Overview in Hamilton County, Tennessee

B. Park and Recreation Influencing Trends

Hamilton County Trends

Part I: Outdoor Parks and Recreation Trends Relevant to Hamilton County

Parks and recreation agencies have the unique responsibility of providing unique experienced-based recreation opportunities. Understanding current and future trends in recreation can help facilitate memorable experiences for residents and visitors alike.

Hamilton County is an area surrounded by beautiful natural landscapes, perfectly suited to offer a wide variety of outdoor activities. Below is a concise list of national recreation trends that apply directly to the offerings of Hamilton County. Many of these were voiced in public meetings and throughout the survey.

Adventure Racing • Multi-disciplined team race. Common activities include mountain biking, paddle sports, trail running, orienteering • Can be as short as a 5k or longer such as a multi-day event; Typical races take between 12 to 36 hours. • Over the last five years, participation in adventure racing has grown an average of 10.5% annually Dog Parks •Off-leash dog areas are the fastest growing parks •Dog parks are community driven; early advocates can assist in all facets from planning to maintenance •Special events can bring the community together and can include live music, contests, food and beverages

Splashpads/ Spraygrounds •There are two kinds of splash play areas: those within a pool, generally in a zero-depth beach entry environment OR those on dry surfaces •Design of splashpads have changed from concrete pads to bright, vibrant colors with play features in a variety of shapes

Camping •A variety of camping experiences exist, from primitive tent camping to resort- style RV camping, and everything (from cabins, yurts, glamping) in between. •Resort RV parks generally have food onsite, regular events, wi-fi and upgraded pools and playgrounds. Millennials and Baby Boomers are target audiences. •Primitive camping offers an off-the-grid experience, ideally with prime access to other outdoor activities.

OHVs/ATVs •ATVs are all-terrain vehicles that describe 3-wheelers, 4-wheelers, and side-by- sides (not street legal) •OHVs are off-highway vehicles made by manufacturers that are generally 4x4 trucks and SUVs. •OHMs are off-highway motorcycles that are typically motorcross bikes and gtrail bikes.

Rock Climbing •Participation has increased 3 percent since 2012 according to the 2018 SFIA report •According to the Physical Activity Council, climbing is the 5th popular outdoor sport for those between the ages of 18 to 24 •4.6 million people participated in either sport climbing, bouldering or indoor climbing in 2015

Water Recreation •Stand Up Paddling has seen a 20 percent increase in participation in the last five years •Whitewater Kayaking and Recreational Kayaking have also seen increases in participation (6 and 5.2%, respectively) •Rafting, water skiing, and jet skiing have seen declines in participation over the last five years

Cycling and Mountain Biking •Mountain Biking has increased in participation 4 percent since 2023, compared to BMX Biking (12%), and Road Cycling (-0.4%). •One of the newest trends in adventure cycling is “fat bike,” multiple speed bikes that are made to ride where other bikes can’t be ridden, with tires that are up to 5 inches wide run at low pressure for extra traction. Most fat bikes are used to ride on snow but they are also very effective for riding on any loose surface like sand or mud. • Electric Assist Bikes, or e-bikes, are becoming commonplace on both paved and non-paved surfaces. For commuters, this option allows for a quick, convenient, and environment-friendly method of transportation

Triathlons • Off-road triathlons have seen approximately 17% average annual growth for the last five years. • These races, such as XTERRAs, consist of a competitive combination of swimming, mountain biking, and trail running.

Recreation Behavior

 Adult Participation in Outdoor Activities  Adult Participation in Individual and Team Sports and Fitness Activities  Adult Participation in Fitness Activities  Adult Participation in Leisure Activities  Estimated Household Spending on Participation in Recreation

30%

25%

20%

15%

10%

0% Aerobics Pilates Swimming Walking Weight Yoga Zumba Archery For Lifting Exercise

Chattanooga City, TN Hamilton County, TN Tennessee

16% 14% 12% 10% 8% 6% 4% 2% 0%

Chattanooga City, TN Hamilton County, TN Tennessee

10% 9% 8% 7% 6% 5% 4% 3% 2% 1% 0% Rock Baseball Basketball Football Soccer Softball Tennis Volleyball Climbing

Chattanooga City, TN Hamilton County, TN Tennessee

Part II: Other Parks and Recreation Trends Relevant to Hamilton County

Active Transportation – Bicycling and Walking

In many surveys and studies on participation in recreational activities, walking, running, jogging and cycling are nearly universally rated as the most popular activities among youths and adults. Walking, jogging and running are often the most highly participated in recreational activity and cycling often ranks as the second or third most popular activity.

These activities are attractive as they require little equipment, or financial investment, to get started, and are open to participation to nearly all segments of the population. For these reasons, participation in these activities are often promoted as a means of spurring physical activity and increasing public health. The design of a community’s infrastructure is directly linked to physical activity – where environments are built with bicyclists and pedestrians in mind, more people bike and walk. Higher levels of bicycling and walking also coincide with increased bicycle and pedestrian safety and higher levels of physical activity. Increasing bicycling and walking in a community can have a major impact on improving public health and life expectancy.

ADA Compliance On July 26, 1990, the federal government officially recognized the needs of people with disabilities through the Americans with Disabilities Act (ADA). This civil right law expanded rights for activities and services offered by both state and local governmental entities (Title II) and non-profit/for-profit entities (Title III). Parks and Recreation agencies are expected to comply by the legal mandate; which means eliminating physical barriers to provide access to facilities and providing reasonable accommodations in regard to recreational programs through inclusive policies and procedures.

It is a requirement that agencies develop an ADA Transition Plan, which details how physical and structural barriers will be removed to facilitate access to programs and services. The Transition Plan also acts as a planning tool for budgeting and accountability.1

Community Events and Festivals Festivals and other special events are often popular activities in communities that not only provide entertainment, generate economic activity, and serve to celebrate community identity, they are also fantastic means of introducing people to the event organizer’s facility, and provide opportunities for additional events. Local parks and recreation departments and local businesses play a major role in planning, managing, and hosting festivals and other community events that often serve to draw new users into their facilities. Attendees to events hosted in parks, or other facilities, who enjoy their experience may want to return for another event or program, or simply to enjoy the park or facility.

There are a growing number of smaller, more local, community-based festivals and events in communities, most often supported by local councils that have been spawned partly as a reaction to larger festivals that have become prime economic-drivers. These community-based festivals often supplement existing festivals based on their social, educational, and participative value.

In the competitive festival environment, it’s more important than ever to create a unique, unforgettable experience for the attendees. There’s a premium on experience these days. The website Eventbrite.com release a publication “The Future of Festivals: Eight Trends You Need to Know”, their recent research has shown that over 75% of millennials and 59% of baby boomers say they value experiences over possessions. Nine out of ten Boomers believe experiences lead to a more fulfilling life. Nearly half of the Baby Boomers are attending more events now than they did ten years ago. Going out isn’t a rarity, it’s a habit. In a recent Eventbrite.com survey of more than 5,000 festival-goers, 80% of millennials had attended three or more food, wine, or beer events in the past year. Besides attracting attendees, another strategic reason to offer food at festivals: 84% of food festival-goers are likely to post pictures of food while at an event. That’s priceless social media marketing. The survey also found that Boomers have both time and money to spend and they’re spending it on events and experiences. Events don’t have to be generation-specific to appeal to Boomers, they just have to offer an opportunity for connection. After all, 38% of Boomers said that events help them connect with younger generations. That means an event organizer doesn’t have to appeal exclusively to Boomers to attract them to your event. The festival market is saturated, and competition is fierce, but audience demand for unique outdoor experiences is still very high. Creating a festival that fills a unique niche is a great way to attract crowds hungry for new experiences. According to Kimberly Moening, VP of experiential marketing agency Moening Presentation Group, “Audiences want hands-on, personalized experiences now more than ever.” When you focus on a niche, you make a specific group of people feel taken care of. Millennials in particular look for unique, combinations of themes that will make a festival stand out: art and wine, beer and history, film and

1 Mark Trieglaff and Larry Labiak, National Recreation and Park Association: “Recreation and the Americans with Disabilities Act,” Accessed August 2019: https://www.nrpa.org/parks-recreation-magazine/2016/august/recreation-and-the-americans-with-disabilities-act/ 66

cupcakes. Smaller niche festivals like these create an opportunity to cater to attendees’ yearning for new and different experiences. Conservation One of the key pillars of parks and recreation is the role that it plays in conservation. Managing and protecting open space, providing opportunities for people to connect with nature, and educating communities about conservation are all incredibly important. One of the key components of conservation is addressing climate change. Local parks and recreation can help by building climate resilient communities through water management, green infrastructure, and sustainability. A report by NRPA in 2017 titled “Park and Recreation Sustainability Practices” surveyed over 400 park and recreation agencies and found the top five ways that local departments are taking action on conservation and climate change include:  Alternative Transportation – 77% reduce carbon footprint through offering transportation alternatives  Watershed Management – 70% adopt protective measures for watershed management  Air Quality – 53% plant and manage tree canopy that improves air quality  Sustainable Education – 52% educate the public about sustainability practices  Stormwater Management – 51% proactivity reduce stormwater through green infrastructure2

Economic and Health Benefits of Parks In 2017, the Outdoor Industry Association estimated that national consumer spending on outdoor recreation generated $887 billion in consumer spending, and directly supported 7.6 million jobs.  Trails, parks, and playgrounds are among the most important community amenities considered when selecting a home.  U.S. Forest Service research indicates that when the economic benefits produced by trees are assessed, the total value can be two to six times the cost for tree planting and care.3  Nearly half of active Americans regard outdoor activities as their main source of exercise.4

The Benefits of Parks: Why America Needs More City Parks and Open Space, a report from the Trust for Public Land, makes the following observations about the health, economic, environmental, and social benefits of parks and open space5:  Physical activity makes people healthier.  Physical activity increases with access to parks.  Contact with the natural world improves physical and physiological health.  Residential and commercial property values increase.  Value is added to community and economic development sustainability.  Benefits of tourism are enhanced.  Trees are effective in improving air quality and act as natural air conditioners.  Trees assist with storm water control and erosion.

2 NRPA, “NRPA Report: Park and Recreation Sustainability Practices,”2017. https://www.nrpa.org/our-work/Three- Pillars/conservation/climate-resilient-parks/

3 Nowak, David J., “Benefits of Community Trees,” Brooklyn Trees, USDA Forest Service General Technical Report 4 Outdoor Recreation Participation Report 2016 5 Paul M. Sherer, “The Benefits of Parks: Why America Needs More City Parks and Open Space,” The Trust for Public Land, San Francisco, CA, 2006 67

 Crime and juvenile delinquency are reduced.  Recreational opportunities for all ages are provided.  Stable neighborhoods and strong communities are created.

Generational Trends in Recreation Activity Participation varies based on age, but it also varies based on generational preferences. In regard to generational activity, according to the SFIA report, Millennials had the highest percentage of those who were “active to a healthy level,” but a quarter also remained sedentary. Nearly 28 percent of Generation X were inactive, with Baby Boomers at 33 percent inactive. Baby Boomers prefer low impact fitness activities such as swimming, cycling aquatic exercise, and walking for fitness.

Outdoor Fitness Trails A popular trend in urban parks with trail use for health, wellness, and fitness activities is to install outdoor fitness equipment along the trails. These kinds of exercise stations have been modernized to withstand weather and heavy use. These can be spaced out or a more popular option is to cluster the fitness apparatus just off the trail with a peaceful and pleasing view of nature or playgrounds.

Signage and Wayfinding To increase perception and advocacy, a parks and recreation professional needs to prioritize opportunities that impact the way the community experiences the system. This can start with signage, wayfinding, and park identity. The importance of signage, wayfinding, and park identity to encourage awareness of locations and amenities cannot be understated. A park system impacts the widest range of users in a community; reaching users, and non-users, across all demographic, psychographic, behavioral, and geographic markets. In a narrower focus, the park system is the core service an agency can use to provide value to its community (ex. partnerships between departments or commercial/residential development, high-quality and safe experiences for users, inviting community landscaping contributing to the overall look or image of the community). Signage, wayfinding, and park identity can be the first 68

step in continued engagement by the community, and a higher perception or awareness of a park system; which can lead to an increase in health outcomes.

Urban Park Revenue A study prepared by the Penn State Department of Recreation, Park, and Tourism Management analyzed the impact of park visitor spending in the state and local economy in 2010. Urban Parks provide unique spaces to recreate which serve as economic drivers. The website, ConservationTools.org, has tools and research to make the case for conservation, including reports on the economic benefits of open space, wetlands, trails, water quality, outdoors, and more.

Figure 2: The Seven Economic Benefits of Parks

5% increase in property values for houses within 500 feet of park

Increased sales tax from tourist spending

Free and low cost recreation (compared to cost of private market)

Medical Savings; Parks help maintain and improve mental and physical health

Stronger relationships with community members which leads to social capital

Lower storm water treatment costs with improved management of runoff

Reduce health care costs by absorbing air pollutants

C. Community and Stakeholder Input

Focus groups, stakeholder interviews, and a public forum were conducted during April 15-17, 2019. These meetings were held throughout the County. The goal of these sessions was to gather information that would guide the development of the community recreation needs assessment survey. Participants included: • Users/community members • County/Department Staff • Stakeholders • Commissioners • Parks and Recreation Advisory Board • Special Interest Groups • Alternative Providers • Regional Directors • School Distric

Over the course of three days, GreenPlay hosted 10 meetings and spoke with over 70 community members and stakeholders.

Top priorities that were identified during this portion of the planning process include:

• Prioritizing maintenance, preservation, and enhancement of current parks • Planning for future growth • Developing additional outdoor, special events, and interpretive programs • Establishing strong public private partnerships • Increasing collaboration with other agencies • Focusing on ADA access and inclusivity • Developing a dedicated revenue fund • Playing a key role in tourism

The full Hamilton County Parks and Recreation Master Plan – Community Engagement Memo was provided as a staff document, as well as the Public Meeting summary presentation.

D. Random Invitation Community Survey Summary As part of the project, a statistically valid survey was conducted to assess the opinions, desires, and needs of residents in Hamilton County. The survey was conducted using three primary methods: 1) a mailed survey to 5,000 households in Hamilton County, 2) an online, password protected invitation website, 3) an open link survey for all other residents who were not included in invitation sample. Invitation or invite respondents were given a unique password to participate through the online survey. Approximately two weeks after the mailed surveys began arriving in mailboxes, the open link survey was made available to all residents who did not receive an invitation survey. Results are kept separate to maintain the statistical validity of the invitation sample. The invitation sample contains 440 completed surveys (response rate: 9.3%) with the open link closing with 395 completed surveys.

After reviewing all data received through the survey the consultant team summarized key findings which are in the graphic below. These findings present a quick overview of the survey outcomes. The purpose of the community needs assessment study was to gather community feedback on Hamilton County Parks and Recreation facilities, services, programs, amenities, future planning, communication, and more.

Key Findings from the Community Survey

The top used regional park among invite and open link respondents is Tennessee Riverpark. The average respondent uses the park every few months. Nearly one-third of invite respondents use Tennessee Riverpark at least once a month.

Familiarity among both invite and open link respondents is moderately strong for Hamilton County parks and recreation opportunities.

In terms of greatest needs for Hamilton County for facilitates and amenities over the next 5 to 10 years, both invite and open link respondents placed highest importance on trail and pathway connectivity (4.0) and improved maintenance/cleanliness at parks (3.8).

The greatest needs for Hamilton County in terms of programs and activities over the next 5 to 10 years centered on teen and youth programs (3.8) and fitness/wellness/health programs (3.8).

Other findings from the survey are listed below and were integrated into the development of recommendations and actions for the Master Plan update.

Demographic Profile

The majority of invitation respondents live in Chattanooga, followed by Soddy-Daisy and Collegedale. Some of the other areas listed in the comments were Harrison, Hixson, and Ooltewah. Open link responses had a slightly larger share of respondents living outside of Chattanooga.

One in ten of invite respondents has a need for ADA-accessible facilities and services.

Travel Time to Regional Park

Survey respondents were asked how long they drove to access regional and county parks. The majority of the overall sample drives an average of 10 to 20 minutes to access Tennessee Riverpark. Usage seems to correlate with driving time to access the parks. Chester Frost Park is the least used regional park, it also on average takes respondents the longest time to drive there.

Future Needs – Facilities and Amenities

When asked what are the greatest needs for Hamilton County in terms of facilitates and amenities over the next 5 to 10 years, invite respondents placed high importance on trail and pathway connectivity (4.0) and improved maintenance/cleanliness at parks (3.8); this is consistent with open link respondents. Following were ADA access at parks and playgrounds

(3.7) and updated playground equipment (3.6). The least important for both invite and open link respondents is the need for a gear shed.

Future Needs – Programs and Activities

When asked what are the greatest needs for Hamilton County in terms of programs and activities over the next 5 to 10 years, respondents placed high importance on teen and youth programs (3.8) and fitness/wellness/health programs (3.8). Following were water- based activities (3.7) and adventure-based activities (3.5).

Top Ranked Priorities for the Future

Respondents were then asked to prioritize their top needs for the future. Invite and open link respondents identified trail and pathway connectivity (35% invite, 36% open link) as most important. Fitness/wellness/health programming rated 2nd from invite respondents and adventure-based activities was No. 2 for open link.

E. Organizational and Marketing Analysis

Departmental Organization Hamilton County Parks and Recreation Department is comprised of five divisions:  Administration  Recreation (Chester Frost Park)  Tennessee Riverpark  Enterprise South Nature Park  Community Parks

There are also a citizen advisory groups that support the Parks and Recreation Department:  Parks and Recreation Advisory Board

CURRENT DEPARTMENT PERFORMANCE GOALS To support the mission and vision of the department, service and spending priorities have recently been defined by four (4) goals – each include multiple objectives and results.

GOAL: PROMOTE ORGANIZATIONAL EXCELLENCE OBJECTIVE RESULT Maintain high-quality workforce Improved Evaluation scores Implement regular safety training Decrease on the job injuries (OJI) Implement regular skills training Increased skills and abilities Build positive work environment Reduce costly turnover and gaps in service GOAL: IMPROVE BUSINESS PRACTICES OBJECTIVE RESULT Best Practices - Asset Management Extend life of infrastructure and equipment Best Practices - Consumable Inventory Control Budget savings or minimal increase Inform and engage public Increase user participation, satisfaction, and revenue Leverage technology Increase maintenance efficiency and user satisfaction Optimize services and operations Improve facilities and user satisfaction GOAL: STRENGTHEN FINANCIAL SUSTAINABILITY OBJECTIVE RESULT Seek partnerships for advanced program services Reduce costs of increasing recreation opportunities Engage public and user groups for investment Expand alternative funding Develop cost recovery targets for services Meet increasing facility demands with limited funds GOAL: INCREASE ACCESS AND VALUE TO COMMUNITY OBJECTIVE RESULT Transition plan for achievable barrier removal Inclusive park system increases available benefits Increase number and draw of events in parks Tourism and Community events generate revenue Guided by citizen and user group input Data-driven Strategic Planning

Organizational Analysis GreenPlay broadly assessed the organizational and management structure of the Parks and Recreation Department and staffing to determine effectiveness and efficiency in meeting current and future departmental responsibilities as related to the community’s needs. The needs assessment – including input from staff interviews, community and key stakeholder engagement, and level of service analysis, along with the consultant’s expertise – has identified a few areas for operational enhancement.

These key areas for operational enhancement identified and observed as areas for improvement include:  Address deferred maintenance and the aging infrastructure.  Address wayfinding and signage at parks and facilities.  Address staffing for maintenance to meet current and future demands for services.  Address staffing for events and facilities operations to meet future demand.  Increase marketing and communication of services, programs and activities.

Detailed actions to address these areas of improvements can be found in VII, Recommendations and Actions.

Staffing Analysis GreenPlay broadly assessed the management structure and staffing levels of the Parks and Recreation Department to determine effectiveness and efficiency in meeting current and future departmental responsibilities as related to the community’s needs. Observations and staff feedback were considered to determine if the Department had the right mix of staffing in the right places within the Department.

The staffing analysis process included the observations and assessments from:  Community input  Community satisfaction rates  Staff focus group  Facility tours  Observations of quality of maintenance  SWOT Analysis

Staffing Considerations After considering all the organizational observations and staffing assessments, the consultant team has determined that the Parks and Recreation Department has an adequate number of maintenance staff to operate its current system with the right mix of staff in the right places within the Department. However, focus group participants and survey respondents saw the need for improved maintenance and upkeep of facilities and amenities. To maintain the current level of service as the Department’s responsibilities increase, it will be important to increase staffing both in recreation programming as well as maintenance. Immediate needs include additional staffing within the Department administration to coordinate communications as well as multiple partnerships and volunteer activities.

One hurdle the Department must deal with is getting an appropriate pool of qualified applicants for open positions. This is a national issue and reflects the changing workforce of both the Millennial and Baby Boomer Generations. To combat this trend, organizations need to be willing to allow for flexible scheduling, allow for remote workplaces, part-time and “gig” positions, and second career applicants.

To operate more effectively in the future and to implement the Master Plan, Parks and Recreation will need to hire additional positions to supplement existing staff. This will ensure that staffing resource levels can maintain existing and new facilities at or above acceptable standards as the Master Plan is implemented

Recreation Programming Analysis

Program Development Understanding core services in the delivery of parks and recreation services will allow the Hamilton County Parks and Recreation Department to improve upon those areas while developing strategies to assist in the delivery of other services. The basis of determining core services should come from the vision and mission developed by the county and what brings the greatest community benefit in balance with the competencies of the department, current trends and the market.

The Department should pursue program development around the priorities identified by customer feedback, program evaluation process, and research. The following criteria should be examined when developing new programs.

 Need: outgrowth of a current popular program, or enough demonstrated demand to successfully support a minimal start (one class for instance)  Budget: accounting for all costs and anticipated (conservative) revenues should meet cost recovery target established by the Department  Location: appropriate, available and within budget  Instructor: qualified, available and within budget  Materials and supplies: available and within budget  Marketing effort: adequate and timely opportunity to reach intended market, within budget (either existing marketing budget or as part of new program budget) Further research into what types of programming would be successful needs to be done. Successful programs utilize continuous creative assessments, research, and planning. The Department has a process that evaluates the success of current program offerings and criteria to determine if new program ideas should be instituted or if changes should be made to current programs. Maintaining the current registration data and evaluation process will help to assure success.

Moreover, new leisure and recreation trends may drive different needs. It is very easy to focus on programs that have worked for a number of years, especially if they are still drawing enough interested participants to justify the programs continuation. Starting new programs, based on community demand and/or trends, can be risky due to the inability to predict their success. If the program interest seems great, as with those identified in the citizen survey, then the programs should be expanded. Lack of available space may hinder new or expanded opportunities in some cases.

Not all successful programs have to be solely organized or managed by the County. Partnerships with non-profits and businesses can prove to be a wise use of resources. Many other organizations have expertise, time, and staff to conduct introductory and advanced programs. By working with those organizations, the County can ensure that residents are offered a wide variety of high-quality programs without having to have those resources in-house.

Using historical participation levels to determine program popularity and participant feedback can be helpful in deciding if programs should be continued. In addition, utilizing citizen surveys and participant feedback, and researching trends in park and recreational programming are useful tools in determining future programming needs and desires. Sources for trends information include:  State Parks and Recreation Associations and Conferences  National Recreation and Parks Association  International Health, Racquet, and Sports Associations  Parks and Recreation Trade Publications  Outdoor Recreation Publications

Programs and Activities Hamilton County offers a variety of recreational programs, services and activities. Special events, sports programs, youth programs, cultural/educational programs, adult recreational programs, and summer camp programs are offered at the various locations around the county. When asked what the greatest needs for Hamilton County in terms of programs and activities are over the next 5 to 10 years, respondents placed high importance on teen and youth programs (3.8) and fitness/wellness/health programs (3.8). Following were water-based activities (3.7) and adventure-based activities (3.5).

Festivals Role of Festivals in the Community Both County-produced and co-sponsored festivals and events offer diverse cultural, historical and recreational experiences to citizens and visitors while providing a strong economic impact on the region. Hotels, restaurants, retail shops, and stores all benefit from the thousands of people that attend these events. County-produced festivals also provide opportunities for sponsorship and booth space, which helps to promote local businesses, merchants, and non- profit organizations. Through co-sponsored events, the County has the opportunity to have a presence at each special event.

County produced festivals should work to support the local community. Input to the operations of the events themselves; direct involvement along the lines of providing opportunity for local artists/exhibitors and non-profit organizations; consideration of local businesses; and minimizing negative impact to the local community are roles that the County should embrace.

Financial Analysis Current Circumstances Parks and recreation facilities, programs, and services are essential to maintaining Hamilton County’s diverse and desirable community. However, not all facilities, programs, and services are equal. In general, the more a facility, program, or service provides a community benefit to its citizens as a whole, the more that element should be paid for by all citizens as part of the County’s general fund. The more a facility, program, or service provides individual benefits, the more that element should be paid for by user fees. This funding and cost recovery philosophy acknowledges the tremendous public benefits of parks and recreation to the community. Parks and recreation services also promote and support a community’s economic development, crime prevention, and community health. The County should continue seek to leverage partnerships wherever possible to help fund the facilities, programs, and services that it provides to the community.

Focus group participants and survey respondents expressed an interest in having the County maintain the access and affordability of programs and services. Parks and Recreation staff needs to continue to work diligently to control expenses and improve revenues to maintain the access and level of affordability to which residents of Hamilton County and participants of the various programs and services have become accustomed.

Financial Sustainability for Program Delivery It is important for the County to develop a Resource Allocation and Pricing Philosophy that reflects the values of the community and the responsibility it has to the community. This philosophy will be especially important if the County moves forward in the development of new programs and additional and/or expanded facilities, and as it strives for sustainability and determines how much it is willing to subsidize operations with tax dollars.

One means of accomplishing this goal is applying a process using an industry tool called the “Pyramid Methodology.” This methodology develops and implements a refined cost recovery philosophy and pricing policy based on current “best practices” as determined by the mission of the agency and the program’s benefit to the community and/or individual.

Critical to this philosophical undertaking is the support and understanding of elected officials, and ultimately, citizens. Whether or not significant changes are called for, the agency wants to be certain that it is philosophically aligned with its residents. The development of the core services and cost recovery philosophy and policy is built on a very logical foundation, using the understanding of who is benefitting from recreation services to determine how the costs for that service should be offset.

Recreation programs and services are sorted along a continuum of what delivers the greatest individual benefit to what delivers the greatest community benefit. The amount of subsidy for each level (not necessarily each individual program) is then determined to create an overall cost recovery philosophy.

Developing effective ongoing systems that help measure success in reaching cost recovery goals and anticipate potential pitfalls are dependent on the following:  Understanding of current revenue streams and their sustainability.  Tracking all expenses and revenues for programs, facilities, and services to understand their contributions to overall Department cost recovery.  Analyzing who is benefiting from programs, facilities, and services and to what degree they should be subsidized.  Acknowledging the full cost of each program (those direct and indirect costs associated with program delivery) and where the program fits on the continuum of who benefits from the program or service to determine appropriate cost recovery targets.  Defining direct costs as those that typically exist purely because of the program and the change with the program.  Defining indirect costs as those that would typically exist anyway (like full-time staff, utilities, administration, debt service, etc.).  Program fees should not be based on ability to pay, but an objective program should be in place that allows for easy access for lower income participants, through availability of scholarships and/or discounts. In many instances, qualification for scholarships and/or discounts can mirror requirements for free or reduce cost lunch in schools.

Potential Funding Support Revenue enhancement was a key priority for focus groups and stakeholder participants, as well as survey respondents. The Department should continue to pursue funding strategies that provide alternative funds from the County’s General Fund:  Explore alternative funding sources that strategically align with targeted services.  Implement a Recreation Revenue Fund as a dedicated revenue source  Consider new or increased activity-based fees.  Expand alternative funding for strategic initiatives through grants.  Explore additional Community Partnerships.  Explore the opportunities for (and use of) sponsorships.  Consider a bond referendum for expanded and new facilities.  Consider a local option sales tax (hospitality tax)  Establish a state of the industry Cost Recovery and Financial Sustainability Program.