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State Parks and Forests: Funding

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State Parks and Forests: Funding Staff Findings and Recommendations State Parks and Forests: Funding January 23, 2014 Legislative Program Review and Investigations Committee Connecticut General Assembly 2013-2014 Committee Members Senate House John A. Kissel, Co-Chair Mary M. Mushinsky, Co-Chair John W. Fonfara Christie M. Carpino Steve Cassano Brian Becker Eric D. Coleman Marilyn Giuliano Anthony Guglielmo Brenda L. Kupchick Joe Markley Diana S. Urban Committee Staff on Project Brian Beisel, Principal Analyst Eric Michael Gray, Associate Legislative Analyst Legislative Program Review and Investigations Committee Connecticut General Assembly State Capitol Room 506 Hartford, CT 06106 (860) 240-0300 www.cga.ct.gov/pri/index.asp [email protected] PRI Staff Findings and Recommendations Highlights January 2014 State Parks and Forests: Funding Background Main Staff Findings In June 2013, the program review The Parks Division FY 13 budget expenditure level is comparable to committee authorized a study of the level of FY 06 using constant 2013 dollars. Although several funding Connecticut’s state parks and forests. The sources exist, the system has become heavily reliant on the state’s study focuses on funding of the state park General Fund, with little directive or incentive to focus on revenue system, including a comparison of generating activities. revenues and expenditures within the park system and an assessment of the Connecticut’s state park fees are at or above other states in the adequacy of funding to support short- and region. There has been a decrease in paid attendance following fee long-term operational needs. increases in FY 10. The percentage of use by residents (~80% of day use) was not impacted by the fee increase. State parks were first established in Connecticut 100 years ago, under the Staffing levels are down and have reached a critical point regarding supervision of the State Park Commission. operations. Several management units do not have permanent, full-time Now under the Department of Energy and supervisors. Connecticut’s use of seasonal workers exceeds the national Environmental Protection (DEEP), there average. are 139 state parks and forests (255,000 acres) providing public outdoor recreation Planning for the state park system has defaulted to “crisis areas in the state. While several divisions management” as the level of resources available to parks has decreased. and bureaus within DEEP are involved in Though there is some collection of data, information is not analyzed and parks, park operations are handled within park performance is not measured in meaningful ways to fully inform the State Parks and Public Outreach planning and resource allocation. Division (Parks Division) by a combination of park supervisors, maintainers, and Either an increase in funding and staffing or a decrease in services is seasonal employees. necessary for continued adequate state park operations in the long- term. It is possible the current service offerings can be maintained with The state park season runs from Memorial new, lower levels of staffing and funding for a short while longer. However, Day to Labor Day, though park operations it is unlikely the current situation can be maintained indefinitely as the extend beyond these months. During the current balance relies on deferring maintenance, which may lead to season, 35 (of 139) parks charge fees for increased future costs. parking, admission, or camping. Fee levels are set by regulation and can vary by PRI Staff Recommendations location, residency status, and time of day. The last fee change occurred in 2010. Staff makes recommendations throughout the report in support of the key Prior to FY 10, a portion of the revenues improvement areas mentioned here. In order to enhance planning efforts, from collection of park fees was used by the Parks Division should perform regular reviews of all park the Parks Division through a non-lapsing resources and annually track park performance through the special fund. Since FY 10, park-generated development of a Results Based Accountability report card. revenues have gone to the General Fund. Specific recommendations contribute to the recommended reviews and Committee staff used a variety of data report card, including requiring measurement of three key areas: collection methods to conduct the study, attendance, safety, and customer satisfaction. The major aspects of including a review of financial and individual parks to be considered during each park review are: staffing informational documentation provided by needs; the use and level of fees; and the condition of existing facilities. DEEP and interviews with DEEP staff as well as knowledgeable persons and A portion of park-generated revenues should be appropriated to the interested parties outside of DEEP. Parks Division, contingent upon demonstration of park performance Nationwide state parks comparison data through the RBA process. The division must develop a plan for use and were reviewed and selected other states distribution of this increased funding. Any appropriated park-generated were interviewed. revenue should not supplant existing General Fund monies. Legislative Program Review and Investigations Committee Staff Office State Capitol * 210 Capitol Avenue * Room 506 * Hartford, CT 06106-1591 P: (860) 240-0300 * F: (860) 240-0327 * E-mail: [email protected] Acronyms AIX National Association of State Park Directors Annual Information Exchange ATV All Terrain Vehicle BESB Bureau of Education and Services for the Blind BOR Bureau of Outdoor Recreation DCS Department of Construction Services DEEP Department of Energy and Environmental Protection EC Fund Environmental Conservation Fund EnCon Environmental Conservation Police Division FTE Full-time equivalent OFA Legislative Office of Fiscal Analysis PRC DEEP’s Project Review Committee RBA Results Based Accountability RTP Recreation Trails Program SCORP State Comprehensive Outdoor Recreation Plan Executive Summary State Parks and Forests: Funding In 2013, Connecticut celebrated the hundredth anniversary of its state parks. Under the governance of the Department of Environmental Protection (DEEP), Connecticut’s state park system consists of 107 parks and 32 forests covering over 255,000 acres. The purpose of state parks is to provide: outdoor recreation, including hiking, biking, boating, fishing, swimming, picnicking, and camping; protection of natural areas; and educational opportunities and programs. In June 2013, the Legislative Program Review and Investigations Committee authorized a study of state parks and forests. Specifically, the study focused on funding for state parks and forests and whether it is “adequate” to support short- and long-term operational needs. The committee formally adopted the study scope on September 26, 2013.1 Within this report, committee staff provides information and analysis of resource trends for state parks, including expenditures (operational and capital), revenue, and staffing. To further help determine whether resources are adequate, the study examined three metrics of park use: attendance, safety, and customer satisfaction; additional information and analysis of park system performance measurement and planning are provided. Although this report examines funding for state parks and makes conclusions on resource levels, ultimately, the determination of whether state park funding is adequate is a public policy decision. Connecticut’s state park system provides a wide range of recreational services for residents and non-residents while also protecting the state’s natural resources and heritage. The system is a network of land types and involves different programs across several bureaus within the Department of Energy and Environmental Protection for its overall operation. To keep the study scope manageable, and still allow for proper examination of state park system funding, a comprehensive review of the department’s State Parks and Public Outreach Division (Parks Division) was made. The division has primary responsibility within DEEP for the operation of state parks, which is accomplished through a system of central and field-level programs. Overall, committee staff found funding for state parks steadily increased during FYs 05- 10, but has been on a downward trend since then. The funding level for FY 13, adjusted for inflation, is slightly below the FY 06 level. Connecticut is also more reliant on general fund support than most other states. Conversely, almost all other states have funding mechanisms allowing them to retain either all or a portion of the revenue they generate within their systems of state parks. Connecticut law currently allows some parks to retain revenues from renting facilities in special accounts, but the revenue generated through parking, admission, and camping fees – which is the vast majority of revenue – goes to the state’s General Fund. 1 The Connecticut state park system includes parks and forests. The remainder of this report will use the term “parks” to refer collectively to parks and forests. Program Review and Investigations Committee Staff Findings and Recommendations: January 23, 2014 i Staffing levels within the park system are down since FY 08. Decreases in key field personnel, namely park maintainers and supervisors, have occurred generally since FY 09. This has resulted in some park management areas with maintenance staff levels below what would normally be considered functional and safe, given the types of work performed. In addition, there are not enough field supervisors to fill all
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