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HomeMy WebLinkAboutAgenda - 11-18-2014 - 7aORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: November 18, 2014 Action Agenda Item No. 7 -a SUBJECT: Proposed Orange County Parks and Recreation Master Plan 2030 DEPARTMENT: Department of Environment, Agriculture, Parks and Recreation (DEAPR) ATTACHMENT(S): Supplemental Report Draft Master Plan — Under Separate Cover Also Available at http: / /oran ecountync. ov /deapr /park sandfacilities. asp (Note: Summary of the Plan is Chapter 1) PUBLIC HEARING: (Y /N) No INFORMATION CONTACT: David Stancil, 245 -2510 P &R Master Plan Team Parks and Recreation Council 1 PURPOSE: To consider adoption of the Orange County Parks and Recreation Master Plan 2030. BACKGROUND: In July 1988, the County adopted its first Recreation and Parks Master Plan (also known as the Parks and Recreation Element of the Orange County Comprehensive Plan). Designed as a 20 -year plan, the 1988 Master Plan identified a vision and plan for a parks system in Orange County, which included the acquisition and construction of parks and recreation centers at strategically- identified locations around the County. While the County continued to offer recreation programs for County residents, the acquisition and construction of planned parks did not begin in earnest until the late- 1990's. Bond referenda passed by County voters in 1997 and 2001 funded many of the planned improvements and park site acquisitions envisioned in 1988. Most of the parks identified in the 1988 plan have now been constructed and /or acquired. In late 2008, the Orange County Comprehensive Plan 2030, which included the goals and objectives for the plan, was adopted. This document set the stage for the process to update the 1988 Plan. While many of the values and basic precepts of the 1988 Master Plan remain valid, there have been substantial changes in the County since that time, requiring a new comprehensive review and assessment. Additionally, having a recent master plan is a vital consideration for grant agencies such as the NC Parks and Recreation Trust Fund; and for addressing possible changes to the County's payment -in -lieu system. After delays due to the economic downturn and other pressing projects, work toward the new master plan began in earnest in the spring of 2012. The new master plan process was developed and coordinated by staff with the advice and direction of the Parks and Recreation Council. A new Community Needs Assessment (survey) was conducted by UNC- Greensboro, along with issue papers on tourism, economic development and standards. This staff -based approach was chosen to provide a product with a more -local flavor and at considerably lower cost, but it also acknowledged a longer timeframe for completion. The Community Needs Assessment (CNA) survey was conducted, with supplemental assessments solicited as well as a series of topic- oriented focus groups. An initial draft master plan was created by staff and the Parks and Recreation Council. Staff involved in this project includes a Master Plan Team comprised of staff members from DEAPR, and an inter - departmental Staff Resources Group with representatives from a variety of other County departments. After a round of community input sessions, a public hearing on the draft Master Plan was held on June 3 of this year. The draft Master Plan covers a great deal of territory and includes both an inventory and assessment of existing facilities, as well as plans for the future based on surveys, studies and other work. The plan includes sections on: • Overview of existing and past plans • Inventory and assessment of current and planned future facilities • Existing recreation programs and activity • Demographics and other driving factors • A multi -modal Community Needs Assessment and survey results • Linkages to the 2030 Comprehensive Plan and other County and related parks plans • Economic, health and environmental impacts of parks and recreation programs • Summary of park standards, classifications, service areas and plan "Findings" • Goals, objectives and plan recommendations • Issues for further study In general, the draft 2030 Master Plan focuses on protecting the substantial investment made in parks and recreation facilities in the past 15 years, and moving toward creation of the identified and planned parks acquired but not yet built. By virtue of having a very proactive land acquisition program for parks, the County is well "ahead of the curve" in terms of securing parkland in identified locations. However, important decisions are on the horizon concerning community centers, playing field surfaces, coordination with private and local non - profit organizations, and other matters as noted. Chapter 9 of the plan includes a review of standards and service delivery, and a set of 20 "findings" drawn from the plan and activities to date. Chapter 10 reiterates the Comprehensive Plan goals and objectives, and offers a series of nine (9) recommendations beginning on page 10 -5. The recommendations cover the following topics: • Protecting existing investments in park and open space facilities; • Building planned future parks over the next 10 years; • Complete three nature preserves with public accessible- areas; • Multi- partner parks and recreation capital facilities; • Master Plan for the Orange County Mountains -to -Sea Trail (MST) segment; • Build trails and connect open spaces; • Improve access and incorporate healthy lifestyle design into parks and open spaces; • Look at new program needs, identify partnerships; • Examine the role of community centers in providing public recreation. K After the public hearing, the master plan was conveyed to several advisory boards for review and comment. Three boards received presentations on the plan and provided comment, which was shared with the Parks and Recreation Council (PRC) on October 1. The Board of Commissioners also identified a number of topics and questions at the June public hearing. These topics, the plan recommendations and issues for further study are addressed in the attached Supplemental Report, which serves as a follow -up document to address these issues raised. The Supplemental Report covers the following topical areas from the plan and the Board's June 3 discussion: • Prioritizing planned parks and recreation facilities • Plans to address "Recommendations" and "Issues for Further Study" • Additional Community Outreach • Schedule for Completing Future Park Concept Plans • The County portion of the Greene Tract; Coordination with Hillsborough on baseball fields, and potential for trail network and connectivity FINANCIAL IMPACT: There is no financial impact associated with adoption of the Master Plan. Funding decisions for future capital investments and facilities addressed in the plan would occur through the existing budget and Capital Investment Plan (CIP) processes. The plan's identified capital investments for parks and recreation facilities are consistent with the adopted CIP, with the exception of some future renovations, repairs and replacement costs, a portion of which are in the current CIP. The remainder of the projects would be proposed in the upcoming CIP, and evaluated and considered as part of future CIP and budget approval processes each year. RECOMMENDATION(S): The Manager recommends that the Board review the Master Plan and supplemental report, and after providing any needed feedback, revision or direction, adopt the Orange County Parks and Recreation Master Plan 2030, with future actions consistent with the plan to be brought back to the Board for action according to funding and park planning timetables. M Supplemental Report Orange County Parks and Recreation Master Plan 2030 November 18, 2014 At the June 3, 2014 public hearing, the Board of Commissioners requested staff bring back additional information in several areas for use in considering the new master plan. Topical Area 1 — Prioritize Planned Parks and Recreation Facilities Included in the current adopted FY 2014 -19 Capital Investment Plan (CIP) are four new parks, five future phases of existing parks, two nature preserve access areas, one trail, and funding for the acquisition of land for future parks and public open spaces (including some of the CIP projects). Over the coming decade, a number of park improvements and facility replacements have also been identified. In the last three months, staff has researched prior system master plans and parks reports, CIP's and other related plans, as well as projected future activity and potential partnerships for these projects. Staff has also discussed prioritization with the Parks & Recreation Council (PRC) and the Intergovernmental Parks (IP) Work Group. Based on this analysis, the following table shows a newly - prioritized list of projects from Table 10 -1 of the draft Parks & Recreation Master Plan 2030: Priority Project Proj Total Cost Possible Outside $* Timeframe 1 Blackwood Farm Park $2,300,000 ? ?? 2017 -2018 1A River Park $250,000 $50,000 ** 2016 2 Millhouse Road Athletics Complex $6,500,000 Up to $3,500,000 2017 -2018 3 Soccer.com Soccer Center— Phase 2 $6,150,000 ? ?? 2018 -2019 4 Parks and Public Open Space Land Acquisition $2,500,000 $800,000 ** 2016 -2021 4A Mountains -to -Sea Trail $500,000 $250,000 2015 -2024 5 New Hope Preserve (Hollow Rock Public Access) $650,000 $450,000 ** Ongoing — 2020 6 Northeast Orange Park $8,000,000 $1,000,000 ** 2020 7 Twin Creeks Park — Phase 2 $8,000,000 $2,000,000 ** 2020 -21 8 Bingham District Park $8,000,000 $500,000* 2022 9 Upper Eno Nature Preserve $880,000 $225,000 ** 2022 10 Little River Park & Natural Area — Phase 2 $425,000 $275,000 ** 2022 11 Cedar Grove Park — Phase 2 $1,600,000 $500,000* 2022 - Projected portion of the cost that may be provided by partner or grant funds. Timing impacts how many projects may get funds. " - It is expected that grants and /or funding from partners will be pursued and leveraged for these projects. Exact amounts are not known, these are estimates from staff on potential funding. Decisions were made on which projects might be most - likely to receive funding from grant sources, and which would be least likely, based on current knowledge. Projects may also be further phased. Projects in gray shading may be able to be funded from pay -as- you -go (PAYG) revenues. The other projects would likely require some type of debt issuance. Topical Area 2 — Plans to Address "Recommendations" and "Issues for Further Study" The draft Master Plan includes a series of recommendations and several "issues for further study." The Board asked for elaboration on how these might be addressed. The following table outlines in brief some thoughts on steps going forward, if the adopted master plan includes these items. Item Action Proposed Timeframe Recommendation 1 Renovation and construction of facilities through 2015 -2025 and beyond (Investment in Parks /OS) the CIP Recommendation 2 Construction of new facilities through the CIP 2015 -2025 (Build Planned Parks) Recommendation 3 Acquisition /protection of remaining conservation 2015 -2025 and beyond (Nature Preserves, Trails) lands, construct and open trails & public access Recommendation 4 Look at possible joint capital funding models, 2015 -2017 (Joint Capital Facilities work with other partners, complete partnership Funding Structure) template Recommendation 5 Work with State Parks to complete more- 2017 -2025 and beyond (MST Master Plan, detailed master plan for MST. Identify segments Creation) for construction /access, and trail "nodes" Recommendation 6 Build trails through planned parks and trails, 2017 -2025 (Connect Open Spaces) look at new opportunities with other jurisdictions Recommendation 7 Address through future concept planning and 2017 -2025 and beyond (Improve Access, Healthy public transportation, incorporate healthy living Lifestyles Design) more fully into design. Recommendation 8 Follow -up surveys to clarify interests, develop 2015 -2017 (Program Needs, programs and work with partners (SportsPlex Partnerships) management, schools, local governments, non- profits) Recommendation 9 Develop level of service, types of programs for 2014 -15 (Role of Community Ctrs) community centers through space study and community dialogue Further Study Issue A Further discussion with Board and manager on 2015 (Level of Service) desired level of service Further Study Issue B Work with Planning Department to have new 2015 -16 (Land Dedication /P -i -L) analysis of dedication /PIL system Further Study Issue C Meet with SportsPlex management to develop 2015 -16 (SportsPlex coordination) integrated programming plan Further Study Issue D Additional surveys to determine nature of 2015 (Public Pool Need ?) need /interest. Discuss as part of capital plans Further Study Issue E Plan for a new Community Needs Assessment 2017 -24 (Updates to Plan) survey in 2018, master plan updates in 2024 Further Study Issue F Prepare working paper for BOCC on plans for 2015 and beyond (Artificial Turf Fields) artificial turf, incorporate into CIP as needed Topical Area 3 — Additional Community Outreach As noted in the draft Master Plan, minority categories were under - represented in the Community Needs Assessment survey. This is, unfortunately, an all- too - common occurrence for such surveys, for a variety of reasons that are well- documented. Staff has attempted to augment this situation by doing targeted follow -up surveys at community events, using existing minority groups or organizations. The results have had mixed success. The percentage of African - American responses, while still below the ratio of the county population, has been increased. Other efforts to solicit other minority responses, however, have had mixed success. In one case, 40 surveys (both English and Spanish) with self- addressed and stamped envelopes for return were provided to a Hispanic /Latino nutrition group, but none of the surveys were returned. However, staff was recently able to meet with a Latino parent group at a local elementary school, and gained valuable feedback on their interests in park facilities, programs and accessibility. Staff also recently engaged with approximately 50 parents at another local school in Hillsborough (approximately 80% minority parents) and gained feedback on park and recreation interests and needs. Staff is continuing to solicit survey responses within the African - American, Asian - American and Hispanic /Latino communities, including the following: Working with a Korean church in Chapel Hill to solicit feedback. Continuing to provide surveys at Movies in the Park and other Hispanic /Latino community events. Asking for assistance from African - American community groups to distribute surveys with return stamped envelopes. Topical Area 4 — Plans for Future Park Concept Plans Based on the prioritization schedule in section one of this document, and the projected potential for funding, partnerships and grants, staff recommends that outstanding park concept plans be prepared in the following sequence: Park Concept Plan Timeframe for Concept Plan Millhouse Road Park Fall 2014 — Spring 2015 Northeast District Park Spring 2015 — Winter 2015 Mountains -to -Sea Trail (Orange County) Summer 2015 — Winter 2015 (upon conclusion of State Parks master planning effort currently underway) Upper Eno Preserve Ongoing Topical Area 5 — Potential to Include Greene Tract (OC part) in Plan The Greene Tract is a 165 -acre property located in Chapel Hill jurisdiction abutting the former County landfill, the University railroad spur, the Purefoy Road community and Marin and Billabong Lane neighborhoods. While originally purchased as a solid waste Because of the confusion between individual park "master plans," and the system "master plan" staff proposes to return to the prior terminology for developing a plan for individual parks by using the term "concept plan" going forward. This term more accurately describes the nature of the product of park planning efforts. 7 asset, the property was partitioned at the time the County took over solid waste management into a 60 -acre parcel deeded to Orange County, and a 105 -acre parcel that has been purchased from the Solid Waste Enterprise Fund by the towns of Chapel Hill and Carrboro and Orange County. A question was raised at the public hearing on whether the 60 -acre portion owned by Orange County should be designated parks or public open space, and so reflected in the master plan. The County's only official statement on the future use of the 60 acres was a 2000 letter from the Chair of the Board of Commissioners to the mayors of Chapel Hill and Carrboro indicating an expectation that the land would be kept as open space. A Greene Tract Master Planning effort took place in 2002 for the 105 -acre jointly owned portion. Staff has not listed the 60 -acre County parcel as open space since it is still officially a Solid Waste asset, requiring "purchase" from the Solid Waste Enterprise Fund based on a formula in the Solid Waste interlocal agreement using purchase price and interest (over almost 30 years). As was done by the three jurisdictions for the 105 -acre portion, the County would have to buy back the 60 -acre portion. The estimated cost for this purchase as of October 1, 2014 is $752,107. Buy -back could be funded over multiple fiscal years if desired (as was done for the 105 -acre portion by the three jurisdictions). The Board may wish to discuss whether to have this property evaluated by Lands Legacy staff for parks /public open space uses, and whether and how to address the potential repayment to the Solid Waste Enterprise Fund — if desired. Topical Area 6 — Possible Coordination with Town of Hillsborough on Baseball /Softball Fields Town and County staff have met to discuss the potential loss of HYAA baseball /softball fields in Hillsborough to development and to accommodate the future Amtrak train station, and opportunities for replacement of these fields for community and non - profit league usage. A few opportunities may exist for acquiring new sites for fields, and these possibilities will be reported to the Board at a future date. Topical Area 7 — Potential for Expansion of Trail Network and Connectivity Based on comments at the June 3 public hearing, staff was asked to look at the long- term potential for an expansion of trail networks and connectivity among trails in the county. At present, Orange County operates one greenway segment (Jones Creek Greenway, at the future Twin Creeks Park north of Carrboro), has several miles of trails at individual park sites (such as Little River Regional Park and Natural Area and Cedar Grove Park), and is establishing several more miles of natural surface trails (at Blackwood Farm Park and the Seven Mile Creek Public Access at Upper Eno Preserve). There have been previous discussions by the County, Town of Chapel Hill, and Duke Forest about linking trails that would connect Town of Chapel Hill greenways through the former landfill property, the future Millhouse Road Park and Town of Chapel Hill Operations Center— to the Duke Forest trails and the Triangle Land Conservancy's Johnson Mill Preserve on the east side of Interstate 40. Completing this connection would require the concurrence of several private property owners, institutions, and the NCDOT. The N.C. Mountains -to -Sea Trail (MST) is also planned to traverse Orange County, eventually from the Haw River Trail at the southwest corner of the county, northwest through OWASA -owned lands at Cane Creek Reservoir, thence to the Upper Eno Preserve (Seven Mile Creek) and to Occoneechee Mountain State Natural Area, where it will connect with the Hillsborough Riverwalk, historic landmarks, and Eno River State Park as it heads east to Durham. This extensive effort — while an important project — will require multiple years to complete. The State Parks office is currently beginning a Master Plan effort for the MST through the Piedmont, to culminate in an official master plan in the summer of 2015. County and town staff and the public are participating in this effort. One of the follow -up items in the County's MST Master Plan would be the evaluation of any longer -term trail connectivity.