AGENDA #11

MEMORANDUM

TO: Mayor and Town Council

FROM: W. Calvin Horton, Town Manager

SUBJECT: Joint Master Recreation and Parks Plan Work Group Report

DATE: March 27, 2000

RESUBMITTED: April 10, 2000

This memorandum addresses recommendations in the Joint Master Recreation and Parks Plan Work Group Report.

Resolution A would adopt the Joint Master Recreation and Parks Plan Work Group Report as a general planning document, indicate the Council’s desire to immediately pursue certain recommendations of the report, and recommend that a Working Committee be established to draft recommendations related to the charge of the proposed Parks and Resource Lands Council and equity issues, including distribution of land purchases and facilities to contributions and County funding to the Town’s Parks and Recreation Department operating budget compared to County use of Town programs and facilities.

Resolution B would adopt a statement supporting an Open Facilities Policy.

Resolution C would adopt the Joint Master Recreation and Parks Plan Work Group Report as written.

Resolution D would establish Chapel Hill as a partner in a joint Parks and Resource Lands Council.

We recommend that the Council adopt resolutions A and B.

BACKGROUND

In the spring of 1998 representatives from Chapel Hill, Carrboro, Hillsborough, and Orange County began meeting to discuss County-wide recreation and park issues. The group’s mission was to update and modify Orange County’s Master Recreation and Park Plan to be a joint long-range capital facilities plan for Orange County, Carrboro, and Chapel Hill.

The work group included elected officials, advisory commission members, public at large, and staff. Council Members Kevin Foy and Lee Pavão, Parks and Recreation Commission members Martin Feinstein and Dianne Lemasters, and Parks and Recreation Department staff Kathryn Spatz and Bill Webster represented the Town at the Joint Master Recreation and Parks Work Group meetings.

On May 26, 1999, the work group completed work on the Joint Master Recreation and Parks Plan Work Group Report. The report is intended to serve as a possible blueprint for the direction of future joint parks and recreation efforts in the County. The report includes an inventory of existing parks and recreation facilities and lands and offers recommendations to continue joint planning for the area’s leisure needs.

On September 11, 1999, the Council accepted and referred the report to the Greenways and Parks and Recreation Commissions and the Manager for comment.

DISCUSSION

We believe convening the Joint Master Recreation and Parks Work Group and the completion of the accompanying report are positive steps in County-wide cooperation on leisure issues. We agree with the report’s central message that the best hope for a strong parks and recreation program lies in partnerships, be it inter-jurisdictional or otherwise. In addition, the completed inventory of existing facilities and parklands is an important component of the document, which can be updated annually.

Key Areas and Opportunities for Cooperation: The report identifies 9 key areas for possible future cooperative efforts:

1. Permanent joint land use planning

2. Inter-jurisdictional efforts to standardize parks and recreation requirements

3. Joint siting, design, and management of school and park sites across jurisdictions

4. Public/Private partnerships

5. Coordinated land identification, acquisition, and banking

6. Open facilities policy

7. Payment-in-lieu changes

8. Address existing needs

9. Recommendations for use of current funds and future funding needs

For each of the issues identified, the report includes recommendations for addressing concerns.

1. Permanent Joint Land Use Planning

The Work Group identified a need for a permanent joint Parks and Resource Lands Council. The report contains a resolution asking the local governments to create the Parks and Resource Lands Council. The report lists possible areas of responsibility for the proposed Lands Council, including the development of unified parks and recreation standards; working closely with the Schools and Land Use Council to jointly site, design, and manage schools and parks; exploring the possibility of impact fees; and exploring a potential future bond referendum for parks and recreation.

Manager’s Comment: We believe the general concept of a joint Parks and Resource Lands Council is a positive approach to continuing the efforts of the Work Group. We believe that the Council should support the establishment of a Parks and Resource Lands Council after its charge has been clearly articulated and consensus has been reached. We believe that the needs of Chapel Hill must be fairly represented by any such body.

2. Standards

The towns and County currently utilize different standards to determine parks and recreation needs. The report recommends that unified parks and recreation standards be developed for the Towns of Carrboro and Chapel Hill and Orange County.

Manager’s Comment: The 1989 Chapel Hill Community Facilities Report included what were then national standards established by the National Park and Recreation Association. Chapel Hill’s draft 2000 Comprehensive Plan does not include recreation and park standards. We do not believe that the leisure values and needs of a specific community should be benchmarked or based on values of other jurisdictions.

The Parks and Recreation Department has chosen a consultant to develop a Parks and Recreation Master Plan. We anticipate that a key result of the plan will be to identify recreation and park needs specific to Chapel Hill and to develop target goals to fully address those needs. This can be done while allowing flexibility for trends and innovations.

We believe that Town residents expect a higher standard relative to recreation programming and facilities when compared to other areas.

3. School/Park Planning

Joint siting, design, and management of school and park sites across jurisdictions are important issues identified in the report.

Manager’s Comment: We agree with the report’s recommendation that any new Parks and Resource Lands Council work closely with the existing Schools and Land Use Council to address this idea. The role and relationship of a Lands Council to the existing Schools and Land Use Council should be more fully explored.

4. Public/Private Partnerships

The report highlights the need to pursue partnerships in order to expand parks and recreation opportunities in the area.

The report also recommends that the local governments (through the Parks and Resource Lands Council) work to identify properties for potential partnership and meet to explore these possibilities.

Manager’s Comment: We agree that the pursuit of partnerships is important in the expansion of parks and recreation opportunities in the area. Coordination with groups such as OWASA and UNC in locating future parks and facilities appears feasible.

We believe that identifying properties for potential partnership would be an appropriate charge for a newly created Parks and Resource Lands Council.

5. Coordinated Capital Funding and Land Acquisition

The report findings indicate that if local governments in Orange County are to be successful in providing for the long-term needs of County/Town residents, joint capital funding and land-banking efforts need to be addressed.

The report recommends that the County take the lead role in coordinating future land acquisitions, most of which will likely be located outside of the various Towns corporate limits.

Manager’s Comment: We agree that potential parks areas are disappearing rapidly and that whatever efforts local governments take to preserve open space or purchase space for park development should be activated immediately.

While pooling funding resources appears to offer the best opportunity for funding future land acquisition, we are mindful that historically Chapel Hill has devoted significantly more resources than the County or other towns within the County to meeting the community’s leisure needs. We believe that before the coordinated efforts are actualized, we must ensure that the program’s benefits are distributed equitably, and with regard to contributions.

6. Open Facilities Policy

The Joint Master Recreation and Parks Work Group’s report contains a resolution that would provide for all recreation facilities owned and operated by Orange County, Carrboro, Hillsborough, Chapel Hill, and OWASA to be open and accessible to all County residents.

Manager’s Comment: This idea is consistent with the current policy. We recommend adoption of the Open Facilities resolution.

The Town of Chapel Hill currently receives approximately $70,000 annually from the County in recognition of County, non-Town resident use of Town facilities and programs. The County’s financial contribution is about 4% of the operating costs for the Town’s parks and recreation programs.

Parks and Recreation Department records indicate approximately 20% of registered activity participants reside in non-Chapel Hill areas of Orange County (including Carrboro). The percentage of County, non-Town participants receiving fee waivers is significantly higher. Thirty-nine percent of fee waiver participants in the Town’s popular summer day camp program last year were County, non-Town residents. Fee waivers to County, non-Town residents for this program alone amounted to over $20,000.

We are concerned with the issues of equity raised by the fact that the County’s contribution does not appear to be commensurate with County, non-Town resident use. In addition, the Town of Chapel Hill currently operates significantly more indoor recreation facilities than the other jurisdictions.

7. Payment-in-lieu Changes

The report findings indicate that the current payment-in-lieu programs in Carrboro and Orange County have not been effective as the funds derived have not been sufficient to fund projects. In addition, the rules related to use of payment in lieu funds have prevented those jurisdictions from using some of the funds they have received over the past years.

The Work Group’s report also recommends exploration of the establishment of a recreation impact fee or impact tax.

Manager’s Comment: To date, Chapel Hill has not experienced similar problems. The report recommends currently maintaining separate payment-in-lieu systems, recognizing that Orange County and/or Carrboro may wish to change their own processes.

We believe the establishment of a recreation impact fee or impact tax is worth examining. We believe this would be part of an appropriate charge for a newly created Parks and Resource Lands Council.

8. Address Current Needs

The report recommends that one critical need is to immediately begin land banking in order to meet current and future land needs of the community. The report suggests that the County would need 645 additional acres of parkland just to meet current needs. The estimated cost to meet current needs would be 10 to 12 million dollars.

Manager’s Comment: We agree that land should be purchased as soon as possible even if funds for development are not currently available.

9. Use of Current Funds and Future Funding Needs

The report recommends that the remaining $2.89 million in Orange County Parks land acquisition bonds should be used for the immediate acquisition of park sites.

The report also recommends that an $8 million dollar bond issue be placed before the voters in November 2000.

Manager’s Comment: We agree with the report’s recommendation that the remaining $2.89 million in Orange County Parks land acquisition bonds should be used for the immediate acquisition of park sites.

We believe that the proposed Parks and Resource Lands Council could discuss the specifics of a future bond issue. We believe the dollar figure of a potential bond referendum should be more fully discussed among elected officials.

SUMMARY

The report suggests several ways for the jurisdictions in Orange County to coordinate efforts in providing parks and recreation facilities and programs.

We believe that the following aspects of the report could be implemented at any time:

· The adoption of an Open Facilities Policy would be consistent with current policy and could be an effective method of ensuring continued cooperation with other jurisdictions.

· The expenditure of the remaining $2.89 million in Orange County Parks land acquisition bonds for the purchase of park lands should be accomplished as soon as possible in order to maximize value of existing funds and options for selection of sites.

· We should continue to work together on joint siting, design, and management of school and park sites across jurisdictions. Until a Parks and Resource Lands Council is established we should continue to work with the existing Schools and Land Use Council to address this idea.

· Opportunities to pursue partnerships in order to expand parks and recreation opportunities in the area should be explored with groups such as OWASA and UNC. Chapel Hill could continue to explore opportunities for cooperation until such time as decisions related to establishment of a Parks and Resource Lands Council are implemented.

· The Town could pursue opportunities for coordinated expenditures for land acquisition on a case-by-case basis until such time as the idea for more formalized coordination of land acquisition funds can be explored.

However, we feel that there are several areas that should be further explored before they are adopted as policy:

· We believe that the proposed Parks and Resource Lands Council should be created only after its charge is more fully explored. We believe that the needs of Chapel Hill must be fairly represented by any such body.

· We are concerned by the report’s recommendation that County-wide standards be adopted. We believe that Chapel Hill residents are likely to support a different standard for development of recreation facilities than other portions of the County.

· We believe that prior to entering into any cooperative effort the Town should be assured that, based on our tax contributions, a proportional share of land purchases and facilities will be provided in or near Chapel Hill. We note that currently Chapel Hill taxpayers provide a significant portion of all recreation facilities and programs in the County, as well as a significant portion of the real estate tax revenues that the County would likely use to pay off the bonds.

· Although we support the concept of an Open Facilities Policy, we believe that the County’s funding to the Town’s Parks and Recreation Department operating budget should be higher. Currently, Chapel Hill taxpayers are subsidizing County residents who are not Chapel Hill residents.

RECOMMENDATIONS

Parks and Recreation Commission: On February 2, 2000, the Parks and Recreation Commission voted unanimously (8-0) to recommend that the Council adopt the Report of the Orange County Master Recreation and Parks Plan Work Group as a general planning tool. The Commission expressed concern over several ideas in the Report including the reciprocal relationship between jurisdictions for participation in programs, the County’s contribution to the Department compared to County, non-Town use of programs and facilities, the development of unified recreation standards, and lighting of existing and new playing fields.

Greenways Commission: On December 8, 2000, the Greenways Commission voted unanimously (6-0) to recommend the adoption of the Report.

Manager’s Recommendation: That the Council adopt Resolutions A and B:

Resolution A would adopt the Joint Master Recreation and Parks Plan Work Group Report as a general planning document, indicate the Council’s desire to immediately pursue certain recommendations of the report, and recommend that a Working Committee be established to draft recommendations related to the charge of the proposed Parks and Lands Use Council and equity issues, including distribution of land purchases and facilities commensurate to contributions, and County funding to the Town’s Parks and Recreation Department operating budget compared to County’s use of Town programs and facilities.

Resolution B would adopt a statement supporting an Open Facilities Policy.

Resolution C would adopt the Joint Master Recreation and Parks Plan Work Group Report as written.

Resolution D would establish Chapel Hill as a partner in a joint Parks and Land Use Council.

ATTACHMENTS

1. Report of the Master Recreation and Parks Work Group (begin new page 1).

RESOLUTION A

A RESOLUTION ADOPTING THE JOINT MASTER RECREATION AND PARKS PLAN WORK GROUP REPORT AS A GENERAL PLANNING DOCUMENT

(2000-04-10/R-14a))

WHEREAS, the Town of Chapel Hill Council recognizes the importance of inter-jurisdictional coordination and its importance to the provision of recreation and park services and facilities within Orange County; and

WHEREAS, representatives from all governmental jurisdictions in Orange County have worked toward and developed a report on issues surrounding the provision of recreation and park services within the County; and

WHEREAS, this report provides recommendations for the Chapel Hill Town Council to consider in regard to future improvement of recreation and park services for the Town; and

WHEREAS, the Greenways and Parks and Recreation Commissions have reviewed the report and provided comment to the Council;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council hereby adopts the Joint Master Recreation and Parks Plan Work Group Report as a general planning document.

BE IT FURTHER RESOLVED that the Council of the Town of Chapel Hill hereby adopts the following recommendations of the report:

· Adoption of an Open Facilities Policy

· Expenditure of the remaining $2.89 million in Orange County Parks land acquisition bonds for the purchase of park lands as soon as possible in order to maximize value of existing funds and options for selection of sites

· Inter-jurisdictional work on joint siting, design, and management of school and park sites across jurisdictions

· Pursuit of partnerships with groups such as OWASA and UNC in order to expand parks and recreation opportunities in the area

· Pursuit of opportunities for coordinated expenditures for land acquisition on a case-by-case basis until such time as the idea for more formalized coordination of land acquisition funds can be explored

BE IT FURTHER RESOLVED that the Council recommends to the County that a Working Committee be established to draft recommendations concerning the following issues:

· Exploration of the charge of the proposed Parks and Lands Use Council

· Re-examination of the issue of adopting County-wide standards

· Examination of how to assure equitable distribution of land purchases and facilities commensurate to contributions

· Examination of the level of County funding to the Town’s Parks and Recreation Department operating budget compared to County’s use of Town programs and facilities

This the 10th day of April, 2000.

RESOLUTION B

A RESOLUTION ADOPTING A STATEMENT SUPPORTING AN OPEN FACILITIES POLICY (2000-04-10/R-14b)

WHEREAS, the Towns of Carrboro, Chapel Hill, Hillsborough and Orange County have developed parks and recreation facilities to provide services to citizens in their jurisdictions; and

WHEREAS, the location and type of many parks and facilities is such that residents of adjacent jurisdictions are in close proximity to parks of a different jurisdiction; and

WHEREAS, the spirit of inter-jurisdictional coordination and future recreation programs and facilities has been furthered in recent years with cooperative ventures between local governments, OWASA and the school systems; and

WHEREAS, attempting to tie use of recreation facilities to users only of the providing jurisdictions would hinder community building and inter-local efforts;

NOW, THEREFORE, BE IT RESOLVED that the elected boards of all local governments in Orange County be encouraged to adopt this resolution for an Open Facilities Policy, which would provide that all public recreation facilities constructed by the member local governments of the County be open to use by all County and Town citizens,

BE IT FURTHER RESOLVED that upon adoption of this resolution by the elected boards of governments in Orange County, the resolution be transmitted to the Chapel Hill-Carrboro Board of Education and the Board of Directors of the Orange Water and Sewer Authority, asking their endorsement of the concept of an Open Facilities Policy,

BE IT FURTHER RESOLVED that the local governments agree to explore opportunities, at a later appropriate date, to clarify and explore modification of an open facilities arrangement with the University of North Carolina at Chapel Hill and Duke University.

This the 10th day of April, 2000.

RESOLUTION C

A RESOLUTION ADOPTING THE JOINT MASTER RECREATION AND PARKS PLAN WORK GROUP REPORT AS WRITTEN (2000-04-10/R-14c)

WHEREAS, this report provides recommendations for the Chapel Hill Town Council to consider in regard to future improvement of recreation and park services for the Town; and

WHEREAS, the Greenways and Parks and Recreation Commissions have reviewed the report and provided comment to the Council; and

WHEREAS, the Council agrees with all recommendations as written contained in the report;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council hereby adopts the Joint Master Recreation and Parks Plan Work Group Report as written.

This the10th day of April, 2000.

RESOLUTION D

A RESOLUTION ESTABLISHING CHAPEL HILL AS A PARTNER IN A JOINT PARKS AND LANDS USE COUNCIL (2000-04-10/R-14d)

WHEREAS, the Council agrees with all recommendations as written contained in the report; and

WHEREAS, the formation of a Parks and Lands Use Council was called for in the Joint Master Recreation and Parks Plan Work Group Report;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council hereby establishes Chapel Hill as a partner in a joint Parks and Lands Use Council.

This the10th day of April, 2000.