a»? I I‘ A . 2“» . Osttt- .' Q. ° \ t Q U ‘3‘:< ' THE REVIEW OF AN APPROACH DETERMINING LAND SUITABILITY FOR REGIONAL RECREATION AND OPEN SPACE Thais for the Demo a! M. U. P. MICHIGAN STATE UNIVERSITY William W. Bowdy I964 his}: ABSTRACT THE REVIEW OF AN APPROACH DETERMINING LAND SUITABILITY FOR REGIONAL RECREATION AND OPEN SPACE by William W. Bowdy This study was designed to record the approach used and the ex- perience gained by a particular planning agency involved in the develop- ment of comprehensive regional plans. Although Specifically concerned with only one element (recreation and open Space) of the total range of studies taking place, the defined step-by-Step procedure identifies how all studies underway were finally brought together and balanced one against another to reach the final conclusions and a resulting regional land use plan. Chapter I and the first part of Chapter H include mostly back- ground information needed to understand something about the setting and characteristics of the region under study. The remainder of Chapter II and Chapter III is a recording of the step-by-step procedure followed by the regional planning agency in determining land suitability for regional recreation and open Space. This description identifies an approach aimed at making such deter- minations primarily on the basis of physical land determinants. ’ The criteria finally decided upon as determinants were divided into two major classifications, locational and site criteria. Locational William W. Bowdy criteria consisted of the following features: vegetation, water features, land subject to flooding, Slope characteristics, soil characteristics, land in public ownership, nearness to pOpulation, and access to major thoroughfares. Site criteria included Size and physical make-up of regional parks and other open Space areas and, wherever applicable, the potential of multiple function characteristics was considered. All of these locational features were mapped and correlated. Where some combination of these features indicated the existence of lands having some potential for recreation and open Space deve10p- ment, the areas were outlined and thus represented the first prelimi- nary open Space thinking. Further detailed study allowed a continual narrowing and refining of these broad areas until finally the previously defined Site criteria could be applied. This over-all process continu- ally allowed more detailed investigations of all areas to a point where a "Preliminary Plan of Recreation and Open Space" could be deve10ped. Later these proposals were checked and balanced with other regional land use pr0posals and utility service capabilities in order to determine how each land area could be developed for its best use and greatest economic advantage. This process resulted in the deve10pment of the regional land use plan, which incorporated the recreation and open spaces plan. The final chapter reviews and evaluates the approach used. This approach, or variations of it, is considered useable for similar studies in other parts of the country. As evidenced from this study, William W. Bowdy combinations of certain physical land features can be used as criteria to identify areas which exhibit some potential for use as regional rec- reation and Open Space land. These features, although they may vary . slightly from one area of the country to another, can be classed generally as features exhibiting characteristics mostly unsuitable for intensive urban development. Although the individual features used as determinants may vary from place to place, the procedure followed, as described in this study, may still be considered useable and can serve as a guide to other agencies involved in similar programs. THE REVIEW OF AN APPROACH DETERMINING LAND SUITABILITY FOR REGIONAL RECREATION AND OPEN SPACE By William W. Bowdy A THESIS Submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF URBAN PLANNING Department of Urban Flaming and Landscape Architecture 1964 ACKNOWLEDGEMENTS The author would like to acknowledge the many persons who so generously gave their time to assist in the preparation of this thesis and all that has led up to it. I would like to extend particular thanks to the following individuals for their contributions. My parents, for their unwaivering confidence and continued opti- mism in all I have endeavored. Professor Charles W. Barr at whose sincere encouragement the author decided to undertake graduate studies in urban planning. Mr. Walter Bobotek, the director of the Tri-County Regional Flaming Commission at the outset of this study, at whose continual insistence this thesis was finally started. Dr. Arthur Wilcox, Secretary of the Akron MetrOpolitan Park Board, who provided assistance and innumerable valuable reference sources. Professor Robert Hotaling who provided guidance and encourage- ment near the critical end of the study when such often read lines be- came difficult to evaluate personally. And finally, but most important of all, I would like to thank my wife, Barbara, for her constant encouragement, patience, and assistance in this project and all that has preceded it. Without her this study would not have been completed. iii TABLE OF CONTENTS Page ACKNOWLEDGMENTS .................. . . . ii LIST OF TABLES AND CHARTS ................ v LIST OF MAPS ......................... vi INTRODUCTION . . . . . . . . . . ...... . ....... 1 CHAPTER I IDENTIFICATION OF THE PROBLEM-- THE PURPOSE AND SCOPE . . . ..... 3 CHAPTER II THE METHOD OF PROCEDURE ,,,,,,, 11 CHAPTER III RESULTS--THE GENERAL PLAN ,,,,,, 69 CHAPTER IV IN RETROSPECT ,,,,,,,,,,,,,,, 81 BIBLIOGRAPHY ......................... 92 iv TABLE 1 TABLE 2 CHART 1 LIST OF TABLES AND CHARTS Page Ratio of Acres of Regional Recreation Per 1, 000 Population--Selected Areas ........ 28 Approximate Acreage Totals of Recommended Sites for Development by 1970. . . ..... . . 74 Average Total Attendance--Akron Metropolitan Parks--1950-1954, 1955-1959 .......... 25 MAP MAP MAP MAP MAP MAP MAP MAP MAP MAP MAP 10 11 LIST OF MAPS Location Map - Developed Areas-~1800-1960 and Traffic Travel 1960-1980.................... Past and Present Recreation and Open Space Proposals Population Distribution and Projection ..... Vegetation.................... Flood Danger Areas and 10 Per Cent Slopes . . Drainage Basins of Principal Streams (Water BOdieS). O O O O O O O O O O O O O O O O O O O O O Generalized Soil Map .............. Potential Reservoir Sites ............ Preliminary Open Spaces Plan ....... . . Regional Land Use Plan. . . . . vi 20 33 47 58 59 6O 61 62 71 79 INTRODUCTION This thesis prOposes to undertake a review of the approach that was used by a regional planning agency in determining land suitability for regional recreation and Open Space. Although a great deal has been written on recreation and Open Space development, very little has been written in conjunction with comprehensive planning studies at a metrOpolitan or regional level. In this particular case the regional planning agency involved was actually in the process of preparing a comprehensive land use plan for a three-county area in Ohio. The identification of areas which had particular potential or which should be retained for development as recreation and Open Space land was obviously only one of the elements of this plan. However, the study of this one aspect in some detail identifies the importance of relating recreation and Open Space needs to all other elements of such a plan, something that is never accomplished when it is not part of a compre- hensive approach. In order to accomplish the objectives of this thesis, therefore, the study is organized in the following manner. First, a brief examina- tion of the total problem is considered, identifying both the purpose and sc0pe of the study. Next, the actual procedure followed by the planning agency in the identification of regional recreation and Open 1 Space lands will be discussed, and will include the following: (1) a description of basic information about the study region which had to be known in order to make such a study (this description is also intended to provide the reader with the general background he will need to understand succeeding parts of the study); (2) a discussion of the for- mulation of criteria to be used in identifying potential recreation and Open Space lands and; (3) a description of how this criteria was actually applied in the deve10pment of this part of the regional land use plan. The results are then discussed generally in terms of how this one element of the land use plan (recreation and Open space) fits in with all others. Finally in retrOSpect, critical comments and evaluations are made in the hope that the experience and understanding gained here can be of some use to others involved with this same type of program. CHAPTER I IDENTIFICATION OF THE PROBLEM THE PURPOSE AND SCOPE There has been an increasing interest in planning for future park, recreation, and Open Space needs in recent years. This in- creased concern has been due, in part, to the mounting problem of providing enough facilities to serve the increasing pOpulation. This problem has been amplified by the fact that much of this pOpulation has been locating in an ever-expanding area outside the large urban centers. This suburban deve10pment, as it has been termed, has required that expanded park and recreation facilities be located in these areas, too, so that they can be closer to the pOpulations they serve. To further amplify this problem, peOple have been and will continue to be given more leisure time to diSpOSe of as a result of Shorter work weeks, longer paid vacations, and the like. Increased mobility, by virture of better and more extensive highway facilities, and higher incomes, with which more automobiles can be purchased and more money Spent to travel longer distances and allow more frequent visits to parks, have also been added factors in this regard. A Similar interest in comprehensive land use planning at the metropolitan or regional level has paralleled the increasing interest in recreation planning. This interest in comprehensive land use planning has been due, in part, to the realization of a definite need for more and larger coordinated facilities to serve the expanding deve10pment taking place in these metrOpolitan regions. Also of Significance in the growth in importance of regional comprehensive planning has been the growing awareness that all available resources of a given region must be utilized and coordinated in the most sensible and economic fashion in terms of long-range needs. Planning for recreation and open Space on the regional level is only a logical step toward coordinating that portion of the region's re- sources lending themselves most beneficially to this use with the needs of other land use types. , It Should be pointed out here that land reserved and used for Open Space purposes can serve more than just the recreation needs of a region. Lands used for this purpose may serve to correct and, in some cases, reduce or even eliminate future problems of the region. Planned deve10pment and management of open Spaces can: 1. help prevent flood danger; 2. conserve forest lands and wild life; 3. protect existing and future water supply reservoirs and sites; 4. help reduce soil erosion and Silting of reservoirs; 5. preserve needed drainage ways; and 6. provide "breaks" in the urban Sprawl taking place in our metropolitan areas. In the practical and immediate sense, such planning now will identify areas which have particular potential or characteristics for these types of Open Space use so that measures can be taken to obtain these areas now, reserve them for later development, or retain them in their natural state if such is the Objective. In regard to the total question of planning for Open Space the late President Kennedy's statement to Congress on March 9, 1961, concerning the Federal Open Space program stated: Land is the most precious resource of the metrOpolitan area. The present patterns of haphazard suburban development are contributing to a tragic waste in the use of a vital resource now being consumed at an alarming rate. Open Space must be reserved to provide parks and recreation, con- serve water and other natural resources, prevent building in undesirable locations, prevent erosion and floods, and avoid the wasteful extension of public services. Open land is also needed toprovide resources for future residential deve10pment, to protect against undue Speculation, and to make it possible for State and regional bodies to control the rate and character of community deve10pment. Need For A Practical Approach A number of recent studies have indicated the need for further detailed information concerning planning for both locally and regionally oriented recreation and Open Space deve10pment. According to these studies it is obvious that no one totally agreeable method of determining need or locational criteria has yet been devised. Standards developed 1Preserving Urban Open Space, (Washington, D. C. : Urban Renewal Administration, Housing and Home Finance Agency, 1963) p. 3. mostly in the 1940's primarily for urban-type conditions and for rec- reation use only have been and still are being used both as local and regionally oriented determinants. In an effort to define how much and what type of recreation facilities are needed at the regional level, some agencies have undertaken park-user surveys and home surveys. Other studies have attempted to develop new criteria or techniques but readily admit that determination of the usefulness of such criteria or methods will be inconclusive until further study and tests have been made. Therefore, it would appear that agencies undertaking the deve10pment of a regional plan for recreation and open Space have the following options: 1. Use standards developed in the past for recreation purposes only and which have been oriented to and tested almost solely in purely urban situations. 2. Apply one of the newly devised techniques which are, for the most part, untested. 3. Use standards which have been develOped in nearby or similar regional settings through park-user surveys, home surveys, and other such methods. 4. Have the agency develOp standards itself through either undertaking such surveys (noted in number 3 above) or attempting to develOp entirely new techniques. 5. Use any combination of these methods, being aware that they are all oriented to determining need for recreation facilities and, for the most part, do not consider the over-all Open Space problem. Additional research and testing of newly devised methods of determining need and locational criteria is needed. However, the majority of today's regional and metropolitan planning agencies are 7 functioning under certain limitations and often do not have the economic resource to undertake the type of studies such research requires. If time and funds are limited, the agency may not have the advantage of selecting one of the aforementioned Options. The cost of doing a park-user survey and a home survey, for example, may be un- reasonably high in relation to the total amount of time and money allotted to the study. Analyzation of Similar type studies prepared by other planning agencies verify the existence of this practical problem. There- fore, there is a need to develOp an approach which: a. Takes advantage of available research information that has develOped general standards; b. Places primary emphasis on the identification of land areas which will most suitably serve the recreation and Open Space objectives and; c. Thus provides a good basis for further detailed Site-by-site study. The foregoing section has generally identified the need to plan for recreation and Open Space areas in a more comprehensive manner and on a larger scale. It also identified some of the basic problems involved and the need to develop a practical approach to these problems, one which could be used by agencies hampered by the limitations of time, money, inadequate staff, and other such Similar restrictions. It Should be noted that the foregoing discussion is indicative of the thinking and reasoning of the staff of the regional planning agency concerned in this study in the early stages of their program. The following section Specifically identifies the limitations under which the agency was functioning during the preparation of the plan. Limitations of the Study In order to identify the framework within which this study of recreation and Open Space was develOped, the reader must first under- stand the limitations within which it was conducted. This section enumerates those "administrative" limitations which, to some extent, defined the Sc0pe and objectives of this program. 1. Framework -- The regional planning commission was charged with preparing a comprehensive land use plan for the three-county area. 1 The preparation of a plan for recreation and open Space was only one element of this comprehensive plan and had to fit into the entire sequence of studies being prepared. Other parts of the program included: a. Other elements of the Land Use Plan: (1) Residential (2) Industrial (3) Agricultural b. Water Resource DeveIOpment Plan c. Sanitary Sewage DiSposal Plan The original intent was that work completion dates would be set for each stage of the study SO that each part could be evaluated and coordinated periodically with studies being 1 The "political" region consisted of the counties of Medina, Summit, and Portage in northeastern Ohio. Akron is the central city in this region. develOped for other portions of the over-all plan. AS will be noted later, the entire program was delayed at its outset, and reschedulings were required at various stages through- out the two-year period. Work was thus coordinated when- ever feasible. 2. Funds -- The entire program was to be developed with Federal aid under the 701 urban planning assistance pro- gram. The total funds available amounted to $100, 000 of which the local share was $50, 000. 3. Time -- The contract time limitation was two years. Be- cause of the lack of a full staff, the entire project was 1 Although the recreation and delayed nearly Six months. Open Spaces portion of the project was the first to be started, it was immediately realized that more detailed information was needed in many areas before getting fully underway. Thus, this portion, too, was delayed; and re- scheduling was required later in the program. 4. Inadequacy of Past Studies -- During the previous two years inventory studies of the region had been completed. The information in these studies was found to be inadequate in 1At the outset of the program the professional staff consisted of: five trained urban planners, a civil engineer, and two persons trained in economics and market research. Two more planners and two geographers were added to this total after the program had been started. 10 certain areas, thus requiring that some basic research be done before further planning studies could be accomplished. This additional research, of course, was time consuming; and since such studies were not accounted for in the original estimate of project timing, much of the program was delayed until their completion. There were other broader underlying limitations under which the agency was laboring; however, it is not within the SCOpe of this study to discuss them. These limitations have to do primarily with the general public acceptance of the regional planning agency due to past difficulties and problems of a political nature. In some reSpects these problems did have a bearing on this part of the Over-all program, and this aspect will be discussed in more detail later in the text. CHAPTER II THE METHOD OF PROCEDURE This chapter presents a detailed description of the procedure followed in develOping a plan for regional recreation and open space. It will become obvious that the primary orientation is to identify land areas which can most effectively and beneficially be used for these open type uses. In order to develOp such a plan a great deal of infor- mation had to be known about the physical make-up of the region. Then, criteria had to be developed upon which such identifications could be based. After preliminary areas had been delineated, they were checked and coordinated with information gathered in studies progressing simultaneously on other elements of the over-all plan. In this manner a balance was achieved between the land use needs of each individual element of the plan and the region's potential to provide for such needs. Since this study is, in essence, a case history which identifies the step-by-Step procedure followed by one particular regional planning agency in develOping such a plan, information will also be included describing the problems encountered in the process. The delay and rescheduling that resulted are also identified. This information will be important in understanding some of the afterthoughts and critical ll 12 evaluations, the subjects of the last chapter. Background Information -- Limitations and Determinants In order to give the reader some understanding of the character- istics of the study region as well as the basic information available at the outset, this part of the study briefly summarizes the physical setting and make-up of the region. It identifies some of the features which be- came limitations or determining factors in the preparation of the land use plans. The historical and climatic characteristics as well as the trends of population and land usage in the region are also discussed. Some limited study was also given to the identification of the de- mand for recreation and Open space areas and the consequent required land needs. Finally, consideration was given to past and present pro- posals for recreation and Open Space by other agencies in the area. This step allowed an evaluation of their programs, determinants used in identifying need, and an examination of any policy conflicts which might exist. All of these considerations are briefly summarized in the following sections . Regional Characteristics Prior studies prepared by the agency have outlined basic information on the characteristics of this region. The following is a list and brief annotation of each of these reports: Physical Geography -- An analysis of the principal geographic considerations and soils and their implications. 13 POpulation Projections -- POpulation analysis and projections for 1975. Water and Sewer Facilities -- An inventory of existing water and sewer facilities, their capacities, and projected needs for 1975. Manufacturing Complex -- A broad look at the make-up of manu- facturing in the region. Major HighwaL -- An inventory of major highway prOposals prepared by the various local, state, and Federal agencies. Industrial Requirements -- Results of a questionnaire on existing manufacturing plants and sites, with plans for future expansion. Schools -- Today and Tomorrow -- An inventory of existing facilities and identification of facilities needed by 1980. Recreation and Open Space -- An inventory of major existing facilities and identification of facilities needed by 1980. Shopping Habits -- A study to determine trading areas and con- sumer buying habits. POpulation and Labor Force -- Projections of area pOpulation to 1980 and 2000 with emphasis on the portion that will make up the future labor force. Existing Land Use -- An inventory of existing land use, history, discussion, and a 20-year comparison. Trades and Services -- An examination of wholesale, retail, and service trades in relation to their role and future effect on the local economy. Major Industries -- A depth study of the area's most important industries and the anticipated deve10pment as it affects the area. The Economy -- A comprehensive report summarizing the find- ings of previous reports and setting forth recommendations to strengthen the economic base of the region. Land with Industrial Potential -- An inventory of sites with possible industrial potential and their selected characteristics. Zonig Districts -- An analysis and discussion of the existing 14 zoning patterns with recommendations toward possible re- orientation. Major Arterial Thoroughfare Plan -- A preliminary plan for limited access expressways and the major highways. As previously stated, the information gathered in these studies was found to be inadequate in certain vital areas; thus further information is now included in the following reports: Recreation and Governmental Agencies -- A discussion of the recreation problem (land, water, and money) and an in- ventory of the governmental agencies who deal with public recreation. Regional Development Guide -- A summary report of the physical and man-made features which affect develop- ment. The effect of soil and underground water conditions, surface water characteristics, flood danger areas, population growth, existing development, and existing sewer and water systems, upon which future deve10pment is discussed. The DevelOpment of the Region: Past-Present-Future ~- Past forces in the development of the region are considered to provide a basis for discussion of the major problems resulting from urbanization. The role of planning and the alternatives for both regional and community development patterns are also discussed. Regional Land Use Plan -- A preliminary plan for the location Of major land use areas. Sanitarjr Sewage DiSposal Plan -- A preliminary plan for the development of central sanitary sewage disposal Systems. Water Resource DevelOpment Plan -- A preliminary plan for the deve10pment of water resources. The following is a brief description of the region's make-up 15 as described in these studies. Only information which is considered applicable to this thesis has been included. Physical Setting The entire region is inland (Map 1). Politically, it is made up of three counties, Medina, Summit, and Portage in northeastern Ohio. Together they represent over 1, 300 Square miles of land area and a population of approximately 670, 000 people. Akron is the core city of this region located in central Summit County and had a 1960 pOpulation of over 290, 000 persons. The Cleveland MetrOpolitan Area to the north on Lake Erie had a pOpulation of about 2, 500, 000 persons in 1960. The northern sections of the Tri-County Region have been receiving and can expect to continue receiving deve10pment pressures from this direction. The only other large urban centers in the vicinity are Youngs- town, approximately 45 miles to the east, and Canton, approximately 20 miles to the south of Akron. NO appreciable development pressures are being felt from either of these areas, and it is not likely that conditions will change in the future. Physical Resources The most significant factor in the composition and characteristics of both the soils and topography of the region is the effect of the glaciation >xoapzux . «zsoz. . .7, .2554: 0:8 , 52435223 ‘I/ IV 1: _ \\ 20.0wm >FZDOOIE... MI... mo zo_._.<001_ 3...... R w¥<4 17 movements. The advances and retreats of these glaciers have created a tOpography which iS, for the most part, gently rolling. There are very few large areas of flat land and the higher ridges of the area have been rounded. One Significant exception to this rolling character is the Cuyahoga River Valley which cuts west and north across Summit County. The Sides of this valley are very steep. Most of the region is part of the Appalachian Plateau and is 700 to 1, 200 feet above sea level. This area is several hundred feet above Lake Erie. Probably the most significant feature common to all three counties is the major watershed divide which crosses east to west. This divide separates the watersheds of the Great Lakes -- St. Lawrence River Basin and the Ohio-Mississippi River Basin. The five major watersheds within the region are: the Cuyahoga, Black River, and Rocky River in the north (Lake Erie Basin) and the Mahoning and Tuscarawas Rivers in the south (Ohio River Basin). Thus the region must abide by the inter- national treaty between Canada and the United States requiring that water secured from the Great Lakes watershed must be returned to that water- shed essentially undiminished in both quanity and quality. This factor has and will continue to cause concern to some areas of the region. Determination of water sources and the best and most economical locations for sewage treatment facilities must be planned ahead with these considerations in mind. Protection of future Sites of probable 18 water reservoirs and drainage channels should be an important part of the Open Space considerations. The soil type and capabilities within this region are extremely varied. However, in general they contain relatively poor drainage characteristics. Due to this factor there are many areas of the region which should not be allowed to develOp intensively for any purpose. This principle is especially true in the case of lands subject to periodic or frequent inundation. In the past indiscrimate deve10pment on lands containing poorly drained soils has actually increased the flooding pro- blems as well as the danger of wideSpread pollution. If such lands are recommended to be used for Open Space purposes and regulated locally to attain this objective then many of these problems can be greatly relieved. (Maps Showing many of these physical features are included later in this study.) Historical DevelOpment Agriculture was the basis of the economy of the study region in its early deve10pment stages. The city of Akron was established at the junction of the Ohio Canal and the Ohio and Pennsylvania Canal and soon became the focal point of the region's transportation system and sub- sequently the center of the region's market activity. In 1870 the rubber products industry was established marking the real beginning of industrialization in the region. POpulation increased significantly in the urban areas and began to gradually decline in the 19 outlying or agricultural areas. The advent of the mass-produced automobile had two major effects on this region. First, the need for rubber products made Akron with its rubber industries very important; and the population of the area rose significantly. Secondly, the automobiles and the deve10pment of the new all-weather roads allowed greater mobility and the consequent Spread of land development outward from the central cities. This decentralization has been even further stimulated by development of more improved high- way Systems originally constructed to relieve the traffic congestion problems occurring as a result of the increased use of the automobile. This Sprawling pattern of deve10pment which has been taking place, in turn, has resulted in a greater need for more wideSpread provision of public utilities and facilities including park, recreation, and Open Space areas. Map 2 Shows the generalized pattern of land deve10pment which took place in the region from 1800 to 1960. Climatic Conditions In general, the climate of the study region can be classified as moderately moist with an average annual rainfall of 36. 45 inches. Of this total, snowfall accounts for 3. 93 inches. Average temperatures 1 range from 27 degrees in January to 73 degrees in July. Snow is on 1Climatological Data -- Akron, Ohio (Washington D. C. : United States Department of Commerce Weather Bureau, 1959). (:33 MEDINA - SUMM ’ TIN-COUNTY REGIONAL P A 1 IllSOI [:29 \x/r he preparation of this map was financed in part through an urban planning grant from the Housing and Home Finance Agency under the provisions of Section 701 of the Housing Am of 1954, as amended. lthIPOOt lIICIFIEtD CNAINAI S'!I¢!I SPENCER NIIIISVILLI TRAFFIC I TRAVEL 21 the ground for about five and one-half months per year. It was noted that this factor Should be considered in the selection of recreation sites lending to year-round use. Winter Sports activities are gaining in pOpularity each year. POpulation Trends The 1960 pOpulation of the study region was 670, 682.1 POpulation projections prepared by the agency under study indicate that by 1970 the population will rise to approximately 850, 000 persons, and by 1980 it will reach 1, 100, 000.2 With the exception of the decade of the Great Depression, the population increase of the region has been quite steady and rapid. An increasingly important factor in this growth has been the out-migration from Cuyahoga County (Cleveland) to the north. The increasing lack of available develOpable land in these northern areas and the provision of better highway systems, which permit more distant commuting patterns, have encouraged this migration trend. There is no reason to expect that this trend will cease in the forseeable future. The natural increase (excess of births over deaths), of course, has been the other major factor in the pOpulation growth of the region. 1U. S. Census of Population (Washington D. C. : Bureau of Census, 1960). pp. 51-52. 2 . POpulat1on and Labor Force, Economic Base Report No. 4 (Akron, Ohio: Tri-County Regional Planning Commission, 1961), p. 64. 22 Demands and Needs for RecreatiOn Although this aSpect of recreation and Open Space planning must be mentioned, this thesis does not propose to involve detailed discussion of the various methods of determining demand and need. Of primary concern is the approach used in identifying land suitability and thus potential areas for Open Space use. Knowing something about the demand for recreation Space and subsequently how much land would be needed, however, seemed to be a prerequisite to further detailed study. AS previously mentioned, since funds and time were limited, the approach used in researching these factors was to examine studies pre- pared in other nearby or similarly situated regions as well as studies which had been prepared by nationally prominent authorities in the recreation field. Also statistics on the use of outdoor recreation facilities in the United States, the State of Ohio, and the Akron Area, Specifically, were gathered and studied. Identification of Demand Research on this tOpic did not result in any clear-cut or completely agreeable conclusions. In fact, the limited amount of study permitted considerably clouded the issue and further verified Often-heard statements that more study is needed to determine the value of recreation so that demand and the consequent need can be reasonably measured and deter- mined. Placing an economic value on recreation is a highly controversial tOpic. The recently completed report to the president on outdoor 23 recreation notes: AS outdoor recreation increases in importance, it will need more land, but much of this land can be used and will be demanded, for other purposes. Yet there is little research to provide basic in- formation on its relative importance. More needs to be estab- lished factually about the values of outdoor recreation to our society, so that sounder decisions on allocation of resources for it can be made. 1 Some authorities hold that, in order to be able to compare the impor- tance of recreation with that of other uses competing for the same resources, a monetary value must be applied so that it is comparably measurable. Contrary to this thinking, however, one source states: " . . . there is no acceptable standard of evaluation that can be used to place a monetary value on recreation that is not arbitrary. "2 So before study had even progressed to the point of examining the methods of measuring demand or determining need, it had become embroiled in the even broader implications of the measurement of value. As previously mentioned, however, it was soon decided that neither adequate time nor money was available to pursue this tOpic and that attention should be focused on the problem of adopting an acceptable standard or guide which could be used ultimately to determine the amount of land needed for regional recreation purposes. 1Outdoor Recreation for America (Washington D. C. : Outdoor Recreation Resources Review Commission, 1962), p. 5. 2Roy A. Prewitt, The Economics of Public Recreation--An Economic Study of the Monetary Evaluation of Recreation in the National Parks (Washington D. C. : National Park Service, Department of the Interior, 1949), p. 27. 24 The fact that there was a definite demand for park and recreation areas in this region as well as throughout the country is borne out by re- cent trends of park usage as well as participation in specific types of activities such as day camping, picnicking, bOating, swimming, fishing, and Skiing. The duplication of numerous tables of figures denoting these national trends is not considered an essential part of this study. To verify these trends one Simply has to consult the numerous reports prepared by Re- sources for the Future, Inc. ,1 or the recently completed report to the President, Outdoor Recreation for America2 or enumerable other sources, including statistics printed annually by the Ohio Department of Natural Resources. It might be of some Significance, however, to note the Specific trends Of park usage in the Akron Metropolitan Park System during the period from 1950 to 1960. (Chart 1.) Akron Metropolitan Park Board officials estimate an annual increase in park usage of about 5 percent. Chart 1 indicates a very large increase in the average total attendance during the winter months from the 1950- 1954 period to the 1955-1959 period. This increase is partially explained by the fact that during the 1955-1959 period a couple of years had par- ticularly good winters (good accumulation of snow for Sledding and 1Marion Clawson, Statistics on Outdoor Recreation (Washington D. C. : Resources for the Future, 1958). ZOutdoor Recreation for America, 25 mo<¢w> 0:3 .352 38.953 52.. 4:32.35: .35: mucaoo _ equo 00%. 000*... who... -824... .... «mm... email W . .35: ...+ ., SEE zhtjoaomemx 20.5.4 ..._. _.moz< 26 tobogganing purposes). There was also a general increase in park usage during these winter months. This increase in winter Sports activity is an important consider- ation in the selection Of sites to be used for multi-purpose recreation activities. Park Board officials note a particularly large increase in partic- ipation of Specific activities such as day camping and various group activities (outdoor classroom use, nature studies, etc. ). Identification of Need In the determination of need, close attention was given to the recreation study recently completed by the Cleveland Regional Planning Commission for the Cleveland Metropolitan Park Board. 1 In this study the amount of park land needed was based on a number of individual factors: (1) the type of activity being evaluated (1. e. day camping, pic- nicking, hiking, etc. I; (2) assumptions that the present participation rate of persons in this activity and the peak attendance figures would increase at a previously determined rate; (3) the number of peOple who can comfortably occupy an acre of land while participating in this activity; and (4) the ratio of acres of needed land in natural setting to acres of land in active use. A detailed study of individual Sites followed in order 1New Gems for the Emerald Necklace (Cleveland: Regional Planning Commission for the Cleveland MetrOpolitan Park District, 1961). 27 to determine their various potentials to meet such needs. The staff of the Tri-County Regional Planning Commission agreed that this approach had merit and should be studied in more detail. The staff noted that such a method was somewhat advanced and would be more applicable in succeeding phases of this region's studies. The staff further decided that the major intent was to determine a rough standard of needed acres per thousand persons. This standard could be used as a guide in formulating the over-all plan. As will be noted later, however, the rough standard agreed upon was actually usedindetermining specific land needs for 1970 when it was needed for another agency's immediate use. The classification ”marginal land and recreation" was finally used on the regional land use plan map. This classification was an effort to identify not only recreation Sites but all land which could be develOped or retained for Open Space purposes. Staff members of the regional planning commission and the metrOpolitan park board agreed that more detailed study would be needed to identify and further detail specific park sites within these broad areas and that it would be at that later stage that concentrated effort would be made to refine these standards for this region. The following quotation is included concerning this question of standards: Each recreation agency . . . Should establish its own standards, in accordance with what the peOple consider adequate and are willing and able to pay for . . . But recreation agencies . . . should bear in mind that their standards must satisfy four criteria: 1. They must adequately meet the needs to which they are related; 28 2. They must be tested by experience; 3. They must be acceptable to expert practioners; and 4. They must be reasonably attainable.1 In order to find an acceptable "rough" standard for purposes of this study, however, conditions and standards used in other metrOpolitan areas were considered. One study presented a comparison of existing conditions in several major metropolitan areas. TAB LE 1 RATIO OF ACRES OF REGIONAL RECREATION PER 1, 000 POPULATION--SELECTED AREAS ’ Number of Population Number of Acres per Region (1950) Acres (1954) 1, 000 Persons Detroit 3, 200, 000 . 64, 000 20. 0 Cleveland 1, 500, 000 14, 000 9. 3 New York 12, 900, 000 106, 000 8. 3 Chicago 5, 100, 000 40, 000 7. 8 Boston 2, 400, 000 15, 000 6. 3 Southeastern Pennsylvania 3, 100, 000 6, 500 2. 1 SOURCE: A Regional Recreation Policy and Program (Philadelphia, Pennsylvania: Southeastern Pennsylvania Regional Planning Commission, 1956), p. 12. 1Guide for Planning Recreation Parks in California (Sacramento, California: California Committee on Planning for Recreation, Park Areas, and Facilities, 1956), p 34. r\ 29 For many years the National Recreation Association recommended a ratio of 10 acres of park land for each 1,000 persons in addition to local community park needs. A number of studies have adOpted this standard, and others have increased this ratio to 15 and 20 acres per 1,000 persons. Recently completed recreation studies prepared by the New York Regional Plan Association recommend a standard of 12 acres of recreation land per 1, 000 persons. This figure was meant to include all so-called regional parks as well as large resource or conservation parks. In reference to the most often used standard Of 10 acres per 1, 000 persons, one source states: These standards have been acceptable in the past, but the parks now being discussed are for the future, so it would be preferable to establish a goal of fifteen acres of regional park and recreation land per 1, 000 pOpulation, in view of the continuing increase in leisure time, in growing accessibility to outlying parks, and in the expansion of built-up land. 1 In line with this general thinking and with the concurrence of Akron MetrOpolitan Park Board officials, the standard of 15 acres of regional recreation land per 1, 000 persons was finally agreed upon for use as a general guide. 1A Regional Recreation Policy and Program, (Philadelphia, Pennsylvania: Southeastern Pennsylvania Regional Planning Commission, 1956), pp.‘ 11-12. 30 Identification of Principal Recreation Activities Adaptable to this Region Some effort was directed to determining what type of recreation activities were adaptable to this region. The staff finally concluded that most all of the major forms of recreation activity could be accommodated. The more important question concerned to what extent they could be pro- vided. The region is inland. Therefore, the use of inland lakes and the multi-purpose use of reservoir facilities for water-oriented recreation purposes carried an increasing Significance. The region does not contain any large mountainous areas. Thus advantage would have to be taken of the few steep SlOpe areas which do exist for outstanding scenic value as well as active summer and winter Sports activities. Fortunately, the major large land area comprising these rugged natural features (Cuyahoga River Valley) is located very near, and partially in, the highly urbanized sections of the region where it can be of greatest value to the most peOple. Some activities could not be provided for in abundance, However, even a limited amount of certain Special types of recreation activities and experiences can provide great benefit to a region's residents (1. e. , Ski areas, toboggan chutes, natural outstanding scenic values). This benefit is especially enhanced if, over and above these special use Sites, sufficient park and open space lands are provided to satisfy the other leisure-time desires of the pOpulation. In essence, a well-balanced system of park and open Space lands will help eliminate the possibility of any individual sites being overused to a point where their natural 31 beauty and convenience are soon destroyed. Past and Present Recreation Proposals It was particularly important, at this point, for the staff to know what other studies concerning recreation and Open Space had been com- pleted for all or any portion of this region SO that advantage could be taken of all the research and recommendations available. The following sources were considered and the proposals mapped: the Olmsted Plan of 1925; recently completed studies, prepared by the Cleveland Regional Planning Commission and the Cleveland Metropolitan Park District; the Akron Metropolitan Park District; plans prepared for individual local communities in the region; and plans of other (state and national) agencies. The Olmsted Plan In October of 1925 a report was presented to the MetrOpolitan Park Board of Summit County by the Olmsted Brothers of New York. This report was defined as a general study of the opportunities Offered by Summit County for a system of public parks, reservations, and parkways. For discussion and map designation purposes the study included the following major classifications: The Cuyahoga Valley North of Akron Ravine Reservations Hill or Outlook Parks Water Reservations--Rivers, Canals, Etc. Opportunities for Incidental Park Services Parkways 03011-5me 0 Each of these classifications was discussed in detail and defined on 32 maps. Map 3 Shows a general outline of these areas. Particular attention was given to the means that might be used to safeguard scenic values in areas far‘too large to control by public ownership. The study, for example, suggests the possibility whereby the prOperty owner dedicates certain lands to the Park Board for maintenance as a woodland not Open to the general public or keeps lands in private ownership subject to a contract guaranteeing maintenance as woodland free from certain enumerated nuisances and objectionable features.1 Much of the land identified in this plan, land which Should have been retained for its natural beauty and scenic value, is being removed from this category by scattering intensive deve10pment of urban type uses. In other cases, such lands, because of their nearness to such intensive deve10pment, have risen so high in value that they become virtually impossible for public bodies to secure. However, some of the areas originally proposed in this plan have Since been converted to park use, and many of the sites being considered for future acquisition are also within the areas originally identified. The proposal does not con- sider only Specific Sites for recreation activities but also lands which, if retained for the most part in their natural state, would be most advan- tageous in terms of providing aesthetic and scenic values to the area. As far as Summit County is concerned, the plans finally develOped by the 1Outline Plan Of Proposed Park System for Summit County (Brook- line, Massachusetts: Olmsted Brothers, 1925), pp. 25-26. 4:) M E DI N'A "II-COUNTY REGII _..ll\ _ a» The preparation of this map was financed in part through an urban planning grant from the Housing and Homr Finnnrv Agency under the provisions of Section 3.11 .1! the Housing Act of [13.54, as amunrivd. ‘ " “I tunin- I S'IICII I s . \ {SJ I'LNCER f"_‘. O ® (’3 __._.l_..,--i,_-__l_ _ . --.- m,. mu- T unsou- ”-‘I 111mm w I 4 TM: (L-‘HRE I"I“~‘- ILI .I‘ will a _ CHAILESYOII DISTRICT PARK DISTRICT IPOLITAN Vuiwo' III-onsc- -7-7 ‘--_1 I ‘1 (1;) - swim u I A, ‘ GM 34 regional planning agency include many of the same proposals identified by this farsighted plan develOped more than 35 years earlier. Cleveland Regional Studies The Cleveland Regional Planning Commission recently completed a comprehensive study of park and recreation needs.1 This study covers areas located in the northern portion of both Medina and Summit Counties and thus was germaine to the study underway by the Tri-County Regional Planning Commission. Map 3 Shows the areas in the Tri-County region identified by the Cleveland Regional agency as potential recreation sites. The Cleveland area is already served by an extensive park and parkway system which forms somewhat of a semicircle or band around the more urbanized sections of the region. Therefore, this recent study was aimed at determining Specific sites needed in the future to supple- ment the existing system. Reaching south into Medina and Summit Counties is an Obvious indication of lack of available and good Sites within the intensively develOped region to the north. Such far-reaching prOposalS also indicate an awareness that the metrOpolitan area of Cleveland is continually ex- panding to the south, and the migrating population must be served with adequate facilities. 1New Gems for the Emerald Necklace. 35 Some small amountof COOperative study did take place between the Tri-County Regional Planning Commission and the Cleveland Regional Planning Commission in these studies and, where possible, effort was made to coordinate prOposals. Akron Metropolitan Park District Information Close cooperation was maintained with the Akron Metropolitan Park Board during the preparation of the plan for recreation and open Space. Information on existing park lands, park use figures, and information concerning proposed additions to the system which the Board was currently considering were provided. (See Map 3 and Chart 1.) The staff of the Akron MetrOpolitan Park Board assisted the Tri- County Regional Planning Commission staff in the preliminary research as well as in the evaluation of potential park and open space lands later in the program. Local Communities A number of communities in the region have comprehensive planning programs either completed or underway. Although it was assumed that each individual community would have to provide for its own local park and playground facilities, obviously, regional facilities would be made up of lands located in parts of many communities. Thus, information already gathered in the development of local community plans for recreation and Open Space lands was utilized in formulating the regional plan for this same purpose. Local plans were studied and 36 an attempt to correlate prOposals was made wherever possible. Other Agencies' Plans State and national level information was also studied and consid- ered. The Corps of Engineers, for example, was in the initial stages of develOping a 2, 500-acre reservoir in eastern Portage County. This reservoir was being constructed primarily to supply water to Youngs- town industries; however, definite and pointed effort was and is still being made to encourage the acquisition of a large amount of surrounding land that could be used for recreation purposes. On the other Side of the region in Medina County, a 300—acre reservoir is soon to be constructed. This lake is one of eight projects prOposed in the development of the Chippewa Watershed as part of the Muskingum Conservancy District Plan. Flood contrOl, recreation, soil erosion control, and wildlife deve10pment are the major purposes for the construction of this lake. A 900-acre recreational 'area is planned for the land immediately surrounding the lake. This facility is to be known as the River Styx Park. AS tentatively designed, this park will provide boating, fishing, and swimming Opportunities as well as facilities for picnicking, camping, and winter Sports. AS will be noted later, other portions of the total land use plan study identified the need for the deve10pment of other reservoir Sites, mostly for future water supply purposes. AS the potential Sites for these water bodies were identified, the surrounding lands were also 37 studied in terms of how they might fit the criteria developed for recreation and open Space land. The multi—purpose use of such facili- ties became more and more important in the consideration of lands which could, in the practical sense, meet the recreation and open Space needs of the region. The Formulation of Criteria For Determination of Land Suitability for Regional Recreation and Open Space With an understanding of the background information available, the staff of the regional planning commission directed their efforts toward formulating criteria which could be used in developing a pat- tern of open Space. The intention was to develop criteriawhich, when applied, would result in a pattern most beneficial and economical to the region and yet practically attainable within legislative capabilities. The staff decided to first study various theoretical Open space patterns. Then, with that knowledge at hand, they decided what Spe- cific location and Space factors were to be consideredinidentifying po- tential recreation and open space areas. Such an approach was hoped to finally result in the delineation of a pattern reflecting the benefits of a well- considered theoretical pattern and yet be one which would take advantage of this particular region's best potentials. Although this objective was not attained in full and the final result'was not indicative of any one of the theoretical patterns, the approach was fruitful inthat it provided a basis for many decisions on individual questions concerning how certain 38 land areas might be used. This process of making these individual decisions on questionable areas is explained more fully later in this chapter in the discussion of the deve10pment of the preliminary maps. Theoretical Concggts1 Although not always specifically identified or referred to by the same name, a number of open space concepts have been developed over the years. The absence of a definite nomenclature is probably due to the fact that there are actually many variations to each of these patterns. However, in order to provide a common frame of reference and a start- ing point, each was studied, and the following two concepts were deter- mined to be most useful in the case of the study region. The Greenbelt Pattern This pattern has been most often discussed as a method of pro- viding Open Spaces in England. It has also been used to limit growth to a predetermined area. A ring of Open space land encircling an area of urban intensity iS defined, and only such uses as agriculture, natural forest deve10pment, and open meadow lands are permitted. Legislative authority in the United States does not give the power to control such development in as stringent a manner as can be accomplished in England. 1Much of the information used in identifying and describing these patterns was derived from a graduate student project prepared at Michigan State University in 1958, Open Spaces, A Regional Plan and Program. 39 However, methods such as large lot zoning combined with the public purchase of individual sections within such a belt and in a few cases the use of certain types of easements do permit such a pattern to be a reality. Stringent administrative control of deve10pment regulations, however, is a requirement if such a pattern is to result. One of the biggest problems foreseen with such a prOposal iS that much of the land so defined would probably have particular value for many other use types. If forced into a competitive position the Open Space proposal would probably lose out to the use producing most tax monies at the earliest possible date. The individual governmental unit administering such regulations would be at a gross disadvantage Since justifying land use deve10pments that are not quick tax-producing enter- prises is often very difficult. Much work iS still required in the education of the general public in the advantages of long-range planning for long- range benefits. The staff finally decided that the basic foundations of this pattern have great merit and that variations might be used to advantage in this region to assist in breaking up the urban Sprawl that is taking place. The Water Bodies and TOpographical Features Pattern This pattern is designed on the basis of the natural elements of the physical region. It prOposes that the land adjacent to water bodies, streams, and significant tOpographical features be developed (or kept in their natural state if such is the desire) for Open Space purposes. 40 The resulting patterns are a system of meandering natural open spaces providing numerous advantages, particularly to residents living in the urbanized areas. The patterns provide breaks in urbanized areas that may be provided with trails for hiking and horseback riding. These trails are in natural surroundings which may be only minutes from high densities of residential deve10pment. From the aesthetic point of view, the feeling of Openness and country living is nearer the city dweller. Such patterns may also serve, in part, as connections between larger recreation and open space activity areas. Also, if left much in their natural state, some of these features can continue to serve as important and needed drainage ways. Often these lands are the easiest and least costly to obtain because of their bottom land positions or severe tOpographical conditions rendering them less desirable and valuable for any kind of intensive development. The concept combined with the basic greenbelt theory was finally decided upon as the theoretical basis to be used as the guide in develop- ing the open space pattern. This decision required that much be known about the physical characteristics and limitations of the region. Sub- sequently, a determination was necessary defining which physical features would be considered most important and how they could be combined to provide the greatest asset for this purpose of determining land suitability for recreation and open Space use. The determining land suitability criteria for recreation and Open Space were divided into two broad classifications: locational criteria, 41 which would allow a delineation of the broad areas of potential open Space lands; and Sitecriteria, which would allow more detailed study and identification of individual recreation Sites within the potential open Space areas. Locational Criteria The following is a listing and discussion of the Specific physical characteristics of the region determined most important in this land suitability determination. Vegetation This feature is obviously important in identifying lands with open Space potential. A naturally wooded Site without any other particular distinguishing features might be most useful for Open Space use. A tOpographically interesting site is made even more desirable if it is tree covered. Vegetation cover will also help reduce erosion and flooding problems, eSpecially on lands of excessive SlOpes. Wherever possible, areas containing large stands of natural cover Should be considered for incorporation into the Open Spaces plan of deve10pment. " More often than not heavily wooded lands are not in great demand for any form of (intensive use and thus are less costly to purchase. These lands are also usually easier to obtain and, if taken off the local tax rolls, do not represent a major loss to the individual community involved. 42 The United States Forest Service 1961 estimates indicate that almost 20 per cent of this study region was classified as forest lands.1 Dominant trees include maples, oaks, hickories, elms, ashes, sycamore, and walnuts. Water Features The use of water for recreation activities (i.}e., fishing, swim- ming, boating, skiing, ice Skating) is increasing rapidly throughout the entire United States. Surveys and statistics Show that boating and fishing license sales have increased greatly in recent years and that swimming and water Skiing are becoming continually more pOpular. Thus from the outset any existing or prOposed water feature was con- sidered for its potential recreation and Open Space value. p This factor became increasingly important as studies progressed, particularly for the multi-purpose potential many of these features diSplayed. Existing or prOposed reservoirs constructed for the purpose of providing water supply, flood control, low stream flow augmentation, and other Similar uses may also be utilized for recreation purposes. Constructing a reser- voir solely for recreation purposes does not appear to be a practical consideration Since so many such facilities are needed for other purposes. In most cases even though the recreation function is secondary, it is still 1Ohio Forest Facts (McArthur, Ohio: Ohio Forest Industries Committee, 1961), p. 11. 43 a good use of the surrounding land and still fills the need for recreation activity areas. Lands adjacent to a stream or other water body are obviously high on the priority list also and often, because of their bottom land position, are relatively easy to Obtain. Some of these same land areas are also subject to periodic inundation, which is the next factor considered. Lands Subject to Flooding Lands subject to periodic or frequent flooding Should not be permitted to be develOped intensively for any purpose. The. potential hazard such areas represent to any intensive deve10pment in terms of possible loss of life and excessive property damage expenditures precludes any advantage that could be gained taxwise or in services rendered to the area if allowed to be develOped. If flood control measures are considered too costly or impractical to construct, then the prudent use of such affected lands such as for recreation and Open Space purposes (conservation areas, game preserves, nature trails, and other similar type uses) will satisfy a definite need in the region as well as in the individual communities in which these uses are located. Such use will also eliminate the possibility that these lands will ever be used for some form of intensive urban deve10pment in the future and will further insure that the flooding problem will not be expanded. 44 SlOpe Characteristics (TOpography) As stated in the discussion on "The Water Bodies and TOpo- graphical Features Pattern," lands containing severe SlOpe conditions are usually considered least desirable and valuable for any kind of in- tensive deve10pment. Such conditions pose problems requiring large earth-moving projects or, if left much in their natural state, cause difficulty in designing adequate street Systems and means of providing central utilities for intensive deve10pment. In this section of the country ample areas of relatively flat land exist. These areas can be developed in higher densities of use; thus the steep SlOpe lands are not in a com- petitive position from this standpoint. At the same time such SlOpe characteristics are often the most picturesque and represent the most interesting lands for Open Space or a low intensity type of land deve10pment. Although this region is not endowed with any prominent mountainous areas, it does contain large areas of rolling land with some steep SlOpe sections. The staff decided that these SlOpe conditions Should be mapped so that they could be related to the other features being used in this land suitability determination. For purposes of this study land areas in which the elevation changed 10 feet or more for each 100 feet horizontally (a 10 per cent or greater SlOpe) were mapped. Soil Characteristics Information available on soil conditions in the region was already being gathered for other studies underway. Although the information was 45 general in nature, it was by far the best available to date. The regional planning commission realized the immense importance of this factor and later made application to the Department of Natural Resources, Division of Lands and Soil, for assistance in developing detailed soils information for the entire area. One of the staff members was in the process of completing a detailed study of the organic soils in the region. The study noted that some recreation-oriented use had already been made of areas con- taining these organic soils. It referred Specifically to two golf courses and a portion of the Swimming facilities at one of the private parks. The study also noted that certain nearly extinct Species of tamarack can yet be found in some of these areas and may be preserved if per— mitted to continue to grow in their natural surroundings.1 The primary benefit of the generalized soils information to the Open spaces study was that this information identified further where the poorly drained and unstable soils were most apt to be found and thus where intensive urban type deve10pment would be expensive and other- wise undesirable. It was assumed, and later verified, that when mapped many of these physical land features considered least desirable for urban type 1Thomas L. Nash, Urban Land Utilization Problems Associated with Organic Soils in the Tri-County Area (Unpublished Master's Thesis, Department of Geography, Kent State University, 1963). 46 deve10pment would overlap and, consequently, provide a partial basis for prOposing their utilization as open Space lands. The following quotation identifies the growing need to utilize these unstable lands for such purposes: The crowding of our urban regions has caused uS to look with new interest on such "useless" natural areas as marshes and swamps . . . It takes a perceptive eye to see the miracles of life in the woodlands and bogs where our forefath rs would have seen only another Opportunity to subjugate nature. Lands in Public Ownership The staff decided that it would be well to know the location and extent of lands presently in public ownership. Although this factor was not considered as having prime importance in determining land suitability it was realized that areas exhibiting some marginally desirable char- acteristics for Open space use may be considered more favorably if al- ready in public ownership. Nearness to POpulation and Access to Major Thoroughfares By 1980 most parts of the region will be within 30 minutes driving time of the major pOpulation concentrations of central Summit County via the newly constructed limited access expressways. Although prepared for another purpose, Map 2 shows this information graphically. Map 4 Shows existing and projected pOpulation distribution 1Stewart L. Udall, The Quiet Crisis (New York: Holt, Rinehart, and Winston, Inc.', 1963). 48 in the region. The location of large population concentrations later served as a priority determinant for identifying Sites for immediate acquisition. Information gathered by both the Cleveland and Akron MetrOpolitan Park Boards indicates that a relatively large number of this region's residents are using Cuyahoga County (Cleveland) parks and vice versa. It is thus difficult and possibly misleading to state that peOple will drive a distance of 25 miles or 30 minutes to reach recreation facilities because such distance and times vary greatly depending on the type of facilities provided at each park Site. Also if the route to a given park area is through aesthetically pleasing open territory, the traveler may be willing or even desirous of traveling greater distances to reach his objective. The staff thus decided that a site anywhere in this region would be considered reasonably located in relation to the region's residents; how- ever, efforts Should be made to provide for basically Similar types of facilities throughout the region depending, of course, on the other factors of location being used. In essence, not as much Significance was attached to specific recreation standards as is usually the case in local community planning. More often location of potential recreation and open space areas was based on the physical resource characteristics and suitability of the land for that purpose. Site Criteria After deciding what locational factors were most important in this ,‘\ 49 land suitability determination effort was directed toward determining what Site criteria would be used to identify individual areas which could be used for major recreation and Open space facilities. Size and Physical Make-up No absolute standard or formula exists for determining the Size or physical make-up of regional recreation and Open space facilities partially because there has been a variance in basic terminology of facility types from one section of the country to another. For example, regional park facilities have been referred to as country parks, regional parks, regional reservations, resource parks, conservation parks, and other Similar terms. When used in their correct context and defined adequately, such facilities may have distinctly different characteristics. They are too Often, however, referred to collectively and thus are difficult to compare. Even more nebulous has been the use of the term "Open Space. " Open Space has been referred to at times as the all-encompassing term for all types of parks and in other cases used to include not only parks but farm lands, pasture lands, airports, some forms of light industry in a park—like setting, institutions, parkways, cemeteries, very low density residential areas, and other Similar low intensity land use types. Without a common ground for comparisons, it was not a Simple matter of using the logical standards already developed in other comparable regional studies. This problem caused a re—evaluation at this point as to what was 50 actually being sought in the entire study. Was the terminology being used correctly, or did it imply much more than had originally been foreseen? Regional Park Sites In an effort to be more specific and definite about the terms and site criteria that would be used, the staff decided to accept a set of relatively general criteria for selection of regional park sites devised for a Similar regional study in southeastern Pennsylvania. These criteria are as follows:1 1. A site Should possess conSpicuous scenic value typical of the region and adequate recreation resources. Because of their greater social value, unusual recreation resources may compensate for the absence of outstanding scenic beauty. 2. A site Should be characterized by scenic and recreation re- sources of kinds which are unlikely to be preserved and de- veIOped for the enjoyment by the public of this and future generations under private ownership and which are sufficiently distinctive to attract and interest the people of the region. 3. Sites should be sufficient in number, extent, and variety of character to meet the present and future demands of the peOple and which are not ordinarily supplied by such other means as local or county parks. 4. Sites should be so distributed geographically as to serve the peOple of the region adequately and with a minimum of required travel time. 5. A site, if at all possible, Should provide a water feature for scenic value and for a recreation resource. 6. A Site Should be of adequate size, neither too large nor too small. Factors in determining correct size are these: 1A Regional Recreation Policy and Program, pp. 13-15. 51 (a) A park Should include within its boundaries one or more complete landscape units; the entire basin of a pond or small lake (natural or man-made) extending to the horizon land on each side; a bay or cove in the bank of a large river; the mouth of a tributary of a large river. (b) All incompatible sights, sounds, and smells and all high- ways except those giving access to the park Should be ex- cluded. (c) A park Should be capable of being developed for use by large numbers of peOple and the enjoyment of a wide variety of recreation resources without conflict, or with- out destroying the general effect of a natural enviornment. Essential to this is the presence of a sufficient amount of relatively flat Open land for recreation uses requiring such land. (d) A park should offer sufficient recreation opportunities and attract enough visitors to justify the establishment of adequate supervision and maintenance. (e) A park should not be so large or so develOped as to require supervision and maintenance at a cost out of prOportion to its social value. Although somewhat general, these criteria were to be used as guide- lines and not Specific requirements in identifying regional park sites. Item No. 6 in this listing points out the previously stated facts that no absolute standards can be justifiably established and that there are other more important considerations in site Selection than a set number of acres. With this information at hand the planner supervising this project felt that no minimum restrictions should be set and that each individual site Should be evaluated for its merits. Even a relatively small Site may contain all the characteristics considered most desirable for one or more of the many recreation and Open Space purposes. The major question in such a case appears to be whether the cost of supervision and maintenance 52 is justified. The answer, of course, depends greatly on how the park Site is to be utilized; and such decisions can only be made after careful consideration of the individual site. The director of the regional planning agency, however, felt that a minimum restriction should be set, and in his ”Preliminary Open Spaces Plan" report to the commission this problem was stated in the following manner: Adequate Size No Specific formula exists for determining the size of a regional park. One study completed in Pennsylvania in 1956 states: A park should be capable of being develOped for use by large numbers of'people and the enjoyment of a wide variety of recreation resources without conflict, or without destroying the general effect of a natural environment. Essential to this is the presence of a sufficient amount of relatively flat open land for recreation uses requiring such land. Other authorities have indicated that a regional park Should be no less than 100 acres in Size or it will not be capable of serving the varied needs of a large number of peOple. Further, it would probably not justify the cost of adequate supervision and maintenance. A more desirable minimum Size, they state, would be 500 acres. For the purpose of this Preliminary Plan it was determined that areas as small as 100 acres Should be identified if needed to conserve outstanding natural features such as rock ledges. However, in order to provide recreation land that would be buffered and isolated from surrounding urban deve10pment a Site of no less than 350 acres would be more desirable. The planner-in-charge of the project felt that this decision was relatively arbitrary and as stated was not very conclusive. Fortunately, 1Memorandum-~Preliminary Open Spaces Plan (Akron, Ohio: Tri- County Regional Planning Commission, 1962), p. 5. 53 the question of Size was never seriously contended again, and most of the prime potential sites finally identified were far in excess of this minimum figure. Other Open Space Since the study was aimed to include more than just regional park Sites, the staff decided that the term ”Open Space" was also pertinent and was to be used in the folloWing manner. This term would be inclusive of all the regional parks as well as lands that Should be retained in their natural or near natural state or Specifically developed to serve one of the following previously mentioned functions: 1. Prevent flood damage 2. Conserve forest lands and wild life 3. Protect future water supply reservoir Sites 4. Reduce soil erosion and Silting of reservoirs 5. Promote community identity, character, pride, and values such as preservation of historical Sites 6. Provide breaks in the continuous urban sprawl, which is rapidly creeping across the region 7. Promote and provide for orderly community growth and the efficient provision of sewers, water lines, and roads 8. Provide for part of the recreational needs of the people. The very nature of the use of the term Open Space in this sense automatically indicates that it would result in the designation of some flood plain lands, swamps, unstable soil areas, areas of very rugged topography, heavily wooded areas and similar lands unsuitable for 54 intensive or urban deve10pment. This fact, of course, was in line with previous thinking concerning the locational criteria just discussed. Until this stage the question of terminology had not been seriously evaluated. Prior to this time the phrase ”regional recreation and Open Space" was used unquestioningly. The other studies, which were progressing as part of the compre- hensive land use plan, identified the fact that much land, both in Medina and Portage Counties, should probably be proposed for agricultural and associated low intensity purposes. Although in its broadest usage the term Open Space may also include lands so develOped, the staff decided that such usage may lead to confusion and misunderstandings. Such areas were, therefore, identified finally on the land use plan as "Rural Residential" and "Farms and Allied Activities. " Multiple Function Characteristics One factor which became continually more important in defining potential Sites was the determination of the value each site might have for more than one purpose. The economics of such land utilization is obvious, and in some cases the controlled use of surrounding lands can serve to protect the principal use from the effects of undesirable develOp- ment. For example, the land around a reservoir constructed for water supply and/ or flood control reasons may also be utilized for recreation purposes in some cases. Such use partially fills the region's recreation need and at the same time ensures that indiscriminate deve10pment, 55 which could cause excessive pollution and /or erosion problems, will not take place at the water's edge. However, caution was used in identifying such multiple-use projects Since in some cases they may engender their own problems. Conflicts can . . . occur over the use of a reservoir after it is built. Flood control calls for an empty reservoir; municipal water supply calls for a full reservoir whose level can be lowered at will when needed; and recreation calls for a full reservoir with almost no fluctuation. ‘ A clear understanding of the functions a proposed reservoir is to serve, however, allows prior planning of the surrounding lands so that the multiple-purpose functions can be achieved satisfactorily. The use of flood plain areas for Open uses can also automatically serve a multiple function by: (1) providing recreation facilities; (2) en- suring that those lands will not be used for any intensive purpose, thus reducing the possibility of excessive prOperty damage, loss of life, and widespread pollution. Also considered was the use of land for multiple recreation functions including summer and winter Sports. For example, the Cuyahoga River Valley contains many areas which Should be retained for their natural beauty and scenic value; while at the same time the 1Proceedings of the Ohio Mid-Century Governor's Conference on Natural Resources, Report of the Sub-Committee on Water Use and Water Resource DevelOpment (Columbus: The Natural Resources Institute, 1959), p. 73. 56 steep sides of this valley in some areas might well be used for active winter Sports activities (i. e. , skiing, Sleeding, tobogganing). Application of the Criteria After the criteria to be used for determining land suitability for recreation and Open Space had been developed, the staff's next step was to apply the criteria. Office Survgy The first step to be accomplished in this application procedure was the so-called office survey. This survey was to include the actual map- ping of the Significant previously defined physical features and the corre- lation of these features enabling identification of lands exhibiting some potential for use as recreation and open space areas. The staff decided to map this information all at the same scale and on a tranSparent material so that the maps could be overlaid one on another to allow evaluation of any combination of features. These maps were prepared at a Scale of 1 inch equals 1 mile. Data Inventory The following iS a list of the features mapped including some of the sources from which the information was derived: 1. Vegetation (Forest Cover) Sources: (1) United States Geological Survey Maps; (2) Aerial Photographs, Department of Agriculture, 1959; (3) Field Check by Tri-County Regional Planning Commission (Map 5--an overlay). 57 2. Lands Subject to Flooding Sources: (1) County Engineers; (2) Chippewa Conservancy Subdistrict; (3) Department of Natural Resources, Division of Lands and Soils, Division of Water (Map 6). 3. SlOpe Characteristics (Areas of Excessively Steep SlOpes-- 10 per cent or greater) Source: United States Geological Survey Maps (Map 6). 4. Existing Water Features (including rivers, streams, and other existing water bodies) Sources: (1) United States Geological Survey Maps; (2) Aerial Photographs Department of Agriculture, 1959 (Map 7--Map included also Shows the major and minor drainage basin in the region). 5. Soil Characteristics Sources: (1) Francis Baker--Ohio Department of Natural Resources, Division of Land and Soils; (2) Soils Committee of Tri-County Regional Planning Commission including Unit Conservationists of the U. S. Soil Conservation Service (Map 8--Only the map prepared is included herein for illustration purposes. An accompanying table identified the generalized soil types and their characteristics in the final land use plan report). 6. Existing and Potential Reservoir Sites Sources: (1) Ohio Department of Natural Resources, Division of Water; (2) Chippewa Conservancy Subdistrict; (3) United States Corps of Engineers; (4) Feasibility studies by Tri- County Regional Planning Commission. (The engineer and a geographer on the staff with the help of the hydrologist of the state water resource agency identified and determined the sustained yield of these potential sites.) (Map 9). 7. Major Thoroughfares Sources: (1) Major Arterial Thoroughfare Plan; Tri-County Regional Planning Study No. 20 (Map 11--Also Map 2 Showing projected Travel Time indications 1960-1980); (2) State of Ohio, Department of Highways. Although not actually in the category of physical features, the following information was also mapped and was used in the recreation and open Spaces study. { \ ‘s D . I k! 'l , .. :3 , 5, l" ‘ I ‘ r 5' . V, ;. if ,3]? d A" R ‘._ ‘. t” a, :6 J: J j - \f_ ' t. a 7’ :34 — ‘U'J In: D ‘ a 1‘3 d ‘l 52': ' FLOOD AND IOO . VEGETA ) SOURCE; U.8. OEOL I—o—Inmma . PALMVIA Gift-v «lb-D 24 I'M... ' .‘II.V 5;] MEDINA - SUM ' O TRI-COUNTY REGIONAL jL ,,,,, ,_____,,_V ’TM... 7 nuSo-I Ci W” The preparation of this map was financially aided MIR-1M through a Federal grant from the Urban Renewal 7' T Administration of the Housing and Home Finance Agency, under the Urban Planning Assistance Program authorized bx: Section 701 of the Housing I Act of 1954, as amended. ._ RNA 4].] "”5”“ tumour; _ s l - ® ' ...... , :03 @ , : 3,... WINPIIAJ‘I m (19 1‘ 2’ r— —-. r -‘ ‘lp— ——. — <° —- - ' .- ’ 'Ju _ CHIILESIOIH HIIS ® I I ’ L I; - -—I-—-.———-—-+ {— ,_ ~~——« ’—-< -—- '———-'—‘—j "PINCEF Cfil’nlfl 'I‘F. n 'ILIIII ' I I I -II- 69 ____H_ I “.-.- E369 "III“ \@ IKLSOI EISVIllE «a: M F" ‘Z' I [REEBOK CARR ‘ n wmpHAM ® I [III I PI CHAILESIOWI nus PG PILMYIA N SERVED 5.) DEII'ItlD SOURCES Department of Natural Resources, Division of Water. Water Inventory Reports 2 & 16 and Unpublished Information Chippewa Creek Conservancy Subdistrtct of the N iaktnzum Conservancy District, Official Plan of 1 Ope plat Dos: avai Coul othe; Urba Urba; 1ine f which future 63 1. POpulation Distribution Source: POpulation Dot Map prepared by Tri-County Regional Planning Commission based on United States Census of POpu- lation, 1960, and Tri-County Regional Planning Commission population projections (Map 4). 2. ‘ Land in Public Ownership Source: County Plat Books. 3. Existing and PrOposed MetrOpolitan and State Park Sites Sources: (1) Previous inventory studies by Tri-County Regional Planning Commission; (2) Cleveland Regional Planning Commission and Cleveland MetrOpolitan Park District; (3) Open Spaces Plan of Summit County Area by Olmsted Brothers, Consultants, New York, 1925; (4) Ohio Department Of Natural Resources, Division of Parks; (5) Akron MetrOpolitan Park Board (Map 3). 4. Maps and aerial photographs showing existing land use were already available. Information which was being gathered and mapped for other portions of the comprehensive studies also became useful to the recreation and open spaces study. For example, as previously noted, the comprehensive plan was to include studies on water resources and sanitary sewage dis- posal. AS information on underground and surface water supplies became available and as preliminary determinations were made about what areas could and could not be economically served with central utilities, two other maps were constructed. One Showed "Land Unsuitable for Intensive II Urban Development, and the other Showed "Lands Suitable for Intensive Urban Development. " This step was not originally considered in the out- line for preparation of the regional plan. Lands containing steep lepeS, which were in danger of being flooded or exhibited a good potential as a future reservoir Site, were considered unsuitable for intensive urban 64 development. On the other hand, lands characterized by: soils with - good drainage capabilities, adequate supplies of underground water for industry, and/ or municipal supply, were relatively flat and could be served economically by central water and sewerage facilities, were considered suitable for intensive urban deve10pment. Of course, these maps served only as guides, but they did provide the arbitrating answer to some decisions of how certain land areas could best be utilized. Data Correlation Using the map Showing lands unsuitable for intensive urban develOp- ment as a starting point, the staff began more Specific identification of lands exhibiting some combination of characteristics desirable for recrea- tion and Open Space purposes. This identification was accomplished, as previously mentioned, by overlaying each of the previously mapped physical features (vegetation, soils, steep slopes, water features, existing and potential reservoir sites, and flood danger areas) one on tOp of the other in order to distinguish which land areas might "fit" the locational criteria that had been formulated. For example, lands containing a desirable or potential water feature in combination with a surrounding area containing steep SlOpeS and/or heavily wooded areas were identified as potential recreation and Open Space areas. Flat, poorly-drained lands subject to flooding but which were also adjacent to lands having steep SlOpes and some vegetation were likewise identified as having some potential for this purpose. Maps 5 and 6 illustrate this overlaying process, 65 and it is easy to see how successive overlays could be added. However, it should be remembered that this entire process was done on much larger maps, making for easier readability. This process allowed a narrowing down of the over-all areas initially identified as unsuitable for intensive deve10pment Since some areas so identified contained no particular characteristics which would lend well to open Space use. 7 A "balancing" of the total plan would be necessary at a later stage to determine how such areas might best be utilized. From this step a further refinement of potential site identification was completed. The refinement was accomplished by applying the Site criteria formulated earlier. Multiple use aspects were always uppermost in these considerations. Where large areas had exhibited some combination of desirable physical features, by the method just described some Specific Sites within these areas or even partially outside might be more practical to consider. For example, where heavily wooded lands containing very steep SlOpes had been outlined, the surrounding areas were examined to determine whether they were flat and open and could, in combination with the steep areas, be feasibly utilized as individual recreation sites. Such cOm- binations permit use for both active and passive and summer and winter forms of recreation. In other cases the delineation of just the steep SlOped or heavily wooded lands, or lands originally identified as unsuitable for intensive deve10pment, for open space purposes seemed to be more reasonable at this point. This Situation arose more often where areas 66 so identified would actually be serving more as a land use break in highly urbanized areas or as "Open natural connectors" between larger potential park Sites. The major point is that more detailed study of each individual area was taking place in each successive step. As a partial check of the criteria being used, the staff worked closely with Akron MetrOpolitan Park Board officials in these initial identifications and also compared the site characteristics of the existing metropolitan parks to these criteria. The one major discrepancy, as far as park board officials were concerned, was that some of their parks were too small to provide all the activities they felt were needed and in some cases the parks were not adequately buffered from surrounding land deve10pment to provide the needed protection from outside sounds, smells, and congestion. This condition is partially attributed to the fact that many of their sites had been donated. AS noted later, the board was moving to correct these deficiencies by trying to obtain lands adjacent to these existing parks before concentrating on a program of new) and com- pletely s eparate acquisitions. Field Survey With the preliminary investigation and identifications completed and mapped at a Scale of 1 inch equals 1 mile, a field survey was undertaken. This survey was aimed at verifying the mapped information as well as describing any particular features of possible interest apparently not discernible from the maps. Where conflicting information arose or where 67 particularly interesting features were identified (i. e., large rock out- croppings or ledges), areas were double-checked by the planner super- vising the project. This field survey also allowed updating of existing land use infor- mation on and around the potential sites and an evaluation of each Site in terms of the previously discussed Site criteria, As the field information was gathered, it was continually being correlated and examined in line with the Office data. This process also resulted in a further refinement and narrowing down or in some cases an enlargement of the potential Sites. In the meantime the chief planner of the regional studies division decided that for study purposes all information Should be mapped on composite United States Geological Survey Maps of the entire region. He decided that the information would be more meaningful and useful when mapped at 1 inch equals 2, 000 feet (U.S.G. S. map scale) than at the regional base map Scale of 1 inch equals 1 mile. U.S. G. S. maps with 10—foot contour intervals were available for most of the region and proved very useful, eSpeciallyinthe utilities portion of the comprehensive study. Thus information on potential recreation and Open space areas was trans- ferred onto the larger maps in order to be correlated later with other study information. As the individual Sites began to take form, a general check was made of property ownership in the area. Such information was hoped to be of some assistance if Short-range priority acquisitions were ultimately 68 requested. In many of the areas identified the multiplicity of owner- ships would render the total site very difficult to obtain; while on the other hand, large land holdings would lend themselves more readily to acquisition by public agencies. CHAPTER III RESULTS -- THE GENERAL PLAN At this point a decision of major importance was made, one which should be noted and described Since it resultedin a major staff disagree- ment and in the end a rather costly rework of studies completed at this stage. This description is included not for its critical assessment alone but for its possible value to others who may undertake similar projects and be faced with these same similar problems. At this time the recreation and Open Spaces study had progressed somewhat ahead of the other phases of the work. Therefore, in order to "check and balance" this information with the other prOposalS, some time had to elapse. Any newly acquired information gathered for other reasons during this time lapse would obviously be used to update and upgrade the information already available. Thus some changes were still very possible in this preliminary study of recreation and Open areas. The Preliminary Plan Report For a number of reasons, one being the need to Show evidence of work completed SO that additional Federal funds could be released, the director decided to prepare a memorandum report with maps entitled ”Preliminary Open Spaces Plan. " If this memorandum had been limited 69 70 to a description of the work completed to date as was the original intent, the staff dissension probably would not have occurred. However, as presented, the "Preliminary Open Spaces Plan" included hastily prepared maps that reflected a greater degree of completeness than was actually the case (Map 10). Although the basic over-all pattern did not change greatly in the final plan (Map 11), the total areas and the configuration of individual areas varied considerably. The final proposal reflected a great deal of study and balancing of the needs and desirability of one potential land use against another. This proposal resulted in a total plan based primarily on physical land capabilities of the region and an aware- ness of the economic problems of all future types of land deve10pment. On the contrary, the preliminary plan drawings reflected what appeared to be a somewhat arbitrary delineation of areas defined as "possible ultimate open Space pattern. " At this stage this pattern would have been quite difficult to justify. Some staff members felt that such drawings could do more harm than good by strengthening the attitudes of certain prominent persons who felt that plans prepared by planners and the Tri- County Regional Planning Commission in particular, were often not realistic, were without basis, and were impractical to implement. In other words, these staff members felt that adequate study of the total plan had not progressed to a point where even preliminary plan prOposals Should yet be presented to the public. However, the decision was made and- resulted in the following work. ll— r r . f' ' I. 1' '.'f\ I‘ ' f ., A .c ___l 1» O.‘ C -' .0 - _—4 >—-— —‘ ‘ __ - —‘ mama I." ...-'9 O .O .0 - ...- .. ..‘ @ 72 First, a ”Preliminary Open Spaces Plan” was drawn showing those areas identified to date as having some potential for use as regional park Sites. The plan also showed all existing park Sites. A "Possible Ultimate Pattern of Open Space" category was added and the areas were identified by a rather free form line. This line was drawn to connect and include the larger Sites already defined and to create a continuous linking system resembling the previously mentioned com- bination of the ”Greenbelt" and "Water Bodies and TopOgraphical Features” pattern. Next in another unplanned move the staff decided to determine metropolitan park needs by 1970. This step, of course, was thoroughly sanctioned and, in fact, encouraged by the Akron Metropolitan Park Board with whom the staff was working closely and who already had some definite ideas and plans for Short-range acquisitions. The park board, in fact, was at that time making applicatiOn to the Federal Government for acquisition funds and needed statements from the regional planning commission that their proposals were in line with regional plans. AS described in the section on ”Demands and Needs, " the staff had decided to use the standard of 15 acres of regional park and recreation land per 1, 000 persons as a general guide for this study. The previously prepared population study projected a 1970 regional pOpulation of 850, 000 persons, and thus there appeared to be a need for approximately 12, 750 acres of park land. 73 The staff then decided to include a plan of priorities identifying which areas Should be acquired first to take care of the projected 1970 needs. The priorities were established on the basis of the following considerations: 1. Proximity to pOpulation concentrations -- Those sites pre- sently or expected by 1970 to be served by good tranSportation facilities permitting quick and efficient movement to and from the large urban concentrations in the region. Other agency priority requirements -- Those sites identified as high priority areas by the Akron Metropolitan Park Board, the Cleveland MetrOpolitan Park Board, and any state or national agencies. Most desirable combination of locational and site character- istics as determined by previous studies -- Those Sites best located to serve themost peOple and still containing a good combination of site characteristics, which provide a country- type setting within their boundaries; Property ownership and availability -- Information on this aSpect was used when available and actually did assist in some determinations. For example, in one case a large Site iden- tified by the regional planning commission staff was initially proposed for acquisition by 1970. However, discussion with Akron MetrOpolitan Park Board authorities revealed that they also were interested in this site some time ago and found that one of the large gas companies in the area was using much of this area for underground storage. If ever developed for park purposes, the gas company stated that they would want to reserve the right of access into the prOperty which meant the possibility of large trucks traveling the park roads. The park board advised against proposing this Site for acquisition by 1970. Each of the sites finally agreed upon was inspected by the planner- in-charge and in some cases he was accompanied by a member of the metropolitan park board. The plan of priorities finally proposed acquisition and deve10pment 74 of eight new Sites and enlargement of Six existing metropolitan parks. Table 2 lists the existing parks, the acreage of prOposed expansions, and the acreages of prOposed new parks which were finally selected. Map 10 identifies these sites. TABLE 2 APPROXIMATE ACREAGE TOTALS OF RECOMMENDED SITES FOR DEVELOPMENT BY 1970 PrOposed Park Name Existing Expansion New Sites Sand Run 660 260 Cuyahoga River Gorge 245 750 Goodyear Heights 350 15 Firestone 192 70 Furnace Run 825 840 Virginia Kendall 1, 575 1, 120 Nelson Ledges 130 Medina Township 750 Montville Township 670 Hudson Township 1, 200 Stow Site 750 Rootstown Township 800 West Branch Reservoir 2, 000 Subtotal 3, 977 3, 055 6, 170 Grand Total 13, 202 Acres SOURCE: Memorandum -- Preliminary Open Spaces Plan, Appendix. This proposal included acquisition of a 1, 100-acre site in north- western Medina County and a 1, 000-acre enlargement of the Hinckley Reservation in northeastern Medina County both to be developed by the Cleveland MetrOpolitan Park Board. These areas, however, were not considered as part of the acreage needed by 1970 to serve residents 75 of this region Since they would probably be used more by Cuyahoga County residents. The existing and prOposed sites finally totaled 13, 200 acres. The Sites prOposed in Summit County were the result of joint study and determination of the staffs of the regional planning commission and the Akron MetrOpolitan Park Board. This fact is obvious from the included table which identifies some very small additions to the existing parks. These additions had already been Slated for acquisition by the metropolitan park board. After the Sites had been identified, a very preliminary Site deve10pment sketch was drawn up for each. These plans were prepared in conjunction with Akron and Portage County MetrOpolitan Park Board authorities primarily to ensure that the Sites could be suitably developed for metropolitan park purposes. Although the Cuyahoga River Valley north of Akron is not mentioned for acquisition by 1970 or any other date, the preliminary open Spaces plan did make Special mention of it. Public ownership of the entire valley is not economically realistic ;'however, preservation of this area for open Space is most important. Some discussion was included on how preservation might be accomplished (i. e. , public acquisition of key parcels; encouragement of partial usage for semipublic and commercial- recreation purposes such as golf, summer camps, and winter Sports areas; stringent zoning regulations which would encourage public and semipublic uses and/ or very low density residential deve10pment). It is interesting to remember that, when the Olmsted Plan was prepared, 76 many of the same problems of major concern in 1925 have not yet been solved and still represent major roadblocks in implementing such plans. Check and Balance -- The Regional Land Use Plan After completion of the preliminary open Spaces plan, some time elapsed before any further work was done on the open Spaces study. When work began again, it was in conjunction with studies of all other land use types (i.e., industrial, residential, agricultural). It is of some importance here to briefly summarize how the re- gional land use plan was actually formulated and how individual decisions were resolved into the resulting land use plan shown on Map 11. The following is a quotation from the Regional Land Use Plan Report; and although here it is oversimplified, one can realize how each individual study defined potential areas for certain types of development and how these studies were brought together to check, balance, and finally arrive at the resulting conclusions. The plans were prepared by first evaluating the water resource development potential of the entire region. Next, the land was studied to provide an evaluation of the best Sites for future industrial development. This was done first because the future economic deve10pment of the region can easily be hampered if the best sites for industrial deve10pment are not reserved. Land which is not well suited for intensive or urban deve10pment was studied next. This is land where metrOpolitan parks, wildlife preserves, golf courses, rural estates, farming and other Similar Open activities Should be located SO that land which is better suited for other things can be preserved for these uses. Next, the suitability of land for both urban-residential and rural- residential uses was evaluated. Urban-residential uses, due to their dense character, require both central water and sewage diSposal 77 systems. Rural-residential uses on the other hand depend upon in- dividual sewage diSposal systems and individual wells. After the potential land for these various uses was analyzed, a Sketch land use plan was prepared, giving careful consideration to the feasi- bility of providing sewage disposal and water supply systems. The sketch was further refined and then studied in much greater detail and the areas which should grow first were selected. One of the most important aSpects of a regional comprehensive plan is that it assesses the potential of the entire area rather than just looking at one particular local community. By doing this, a more realistic outlook regarding the best deve10pment of a particular local community can be made. Because of the large size of the region, it was divided into smaller discussion areas. The delineation of these areas was based on Similarity of physical characteristics, problems, and future potentials. At this stage detailed study was made evaluating the design, locational, and Spatial considerations of each land use type. Consequently, only at this stage could justified decisions finally be made about the extent and char- acteristics of areas to be used for recreation and Open Space purpose. Each discussion area was studied in terms of the existing physical characteristics and cultural factors it exhibited and then in terms of the relevant land use plan design considerations. During this detailed study stage the question of the validity of the portion of the preliminary Open Spaces study entitled "Possible Ultimate Pattern of Open Space” again arose. AS previously noted some of the areas included within this ultimate pattern were included on the premise 1Regional Land Use Plan, Regional Planning Report No. 25 (Akron, Ohio: Tri-County Regional Planning Commission, 1963), p. 38. 78 of a theoretical concept alone and as such were often without logical basis in terms of land suitability or economy of deve10pment for this purpose. Also some land areas initially defined as having potential for recreation and open Space use were found more suitable for another purpose and vice versa. The fact that the preliminary open Spaces plan had been published and publicly presented, however, did cause some concern and a hesitancy to make significant changes. In some cases, this problem caused serious re-evaluation and restudy which involved time and money not budgeted for this purpose. The final plan grouped the recreation and open Space areas into the classification "Marginal Land and Recreation." This classification was decided on near the completion of the entire project when there was more and more concern that the term Open Space might be confusing or might imply more than was intended. A greater degree of detail was finally accomplished than the final plan portrays. The recreation and open spaces portion of the study had identified, within these broad green areas, specific sites that could con- ceivably be develOped into regional parks. A plan of priorities was also identified. And the study identified areas of marginal land which Should not be develOped for any intensive purposes but which Should be pre- served in their Open natural character. As stated earlier, no one theoretical concept or pattern can be distinguished; however, if realized, this resulting pattern of Open Space 44 \N Aurora ka . FREEDOM I THF pREPARATa /f FIhANI’ KAI LY Al IJRANI FROM 252:?” ’Jfitl‘f’.” ems: ...»... I-nnr-a HR'IMNI ' ]. AI‘THURIFI'I' MY 1 . IIHLSIht. MT 1 \ ) 2 l §§§ J ) V13CTB I J I ) I J ’ I I 2; L Q If ' n _ - _ _ — _ _ _ ._ l - _ pNKLI AVCNNA ARLta‘rowN / L’ARIb—vr/ . 6 ( I l I If ’\.~ I \ L, fl I [g ' . ' / /’/ ' s“ I A 3 ,5 / i ..I I /"K \3‘ \ t I \ ”P ‘ A g . I/ OK. \ ‘ “ \ “ f F 1kg»? 3 . . l ’PENC - - __J \\ ‘ » \\\ g s . fl \ . e u I ' p . i r ' / l62 l? —'j x a / _ I/ I I l HOMER I | . .~—— 22.. I, l I Q I I ' I ‘J l .- L - “‘33—‘— - - , HUT—— .r: :\\ I ‘ j 43 \I 69 ’ 44 PORTA Imp WATER USES 1980 PLAN 2000 RESERVE = ETRML — MANUF TUTIONAI. — UNIVE —— ' —IMF.RCIAL E)“ — THE m: ===== - . REGIONAL RY . SUBURBAN 0 1... FAMILIES / mm — MULTl-s AL Ii - 10 FAMILIES I ACRE _ 71/1”. Row OR I j _ 6 FAMILIES / ACRE — SINGLE-F L 2 — 4 FAMILIES / ACRE :3 :3 SINGLE-F 1 - 2 ACRES / FAMILY [:1 SINGLE-F 3 — 5 ACRES / FAMILY I: SINGLE-F E1 Ls AND AND RECREATION C2: FARMS, w , LLIFD m :vITIEs [:2 PREDOMINAN RTFM? m, Hg I ,I — WATER SUPPLY, ‘ ‘ 80 can serve as a partial greenbelt to limit intensive deve10pment to those areas which can be economically served with central utilities. Con- sequently, this pattern can assist in controlling the Sprawl of urban development. It can also assist in providing an open natural country- like setting in or adjacent to the highly built-up portions of this region. In accordance with the intent of the "Water Bodies and Topographical Features" concept, it can help to preserve the land surrounding large water features, natural drainage courses, large stands of trees, ledges and large rock outcroppings, and other interesting topographical features. It is of major importance to remember that this entire effort was aimed at developing a general plan, and the methods used in determining land suitability for regional recreation and Open Space were oriented to that objective. Further detailed studies of the type now being undertaken in the Cleveland Region are needed. Such studies should become more Specific and Should endeavor to evaluate individual sites on the basis of their merit for Special kinds of activities. To reach such detail in this study was impossible, but at least a start was made. If further studies are completed in the future and some form of capital improvements programming is undertaken, a plan of priorities may be much more m eaningful. CHAPTER IV IN RETROSPECT The following discussion iS not an attempt to evaluate the results of the completed plan. A considerable amount of time must pass before any such evaluation can be undertaken in order to have the perspective to be objective and useful. Instead, this chapter is simply an attempt to summarize and critically evaluate the approach used and the pro- blems encountered and to determine where more study is needed. It is hOped that such a review, if objectively presented, will provide some guidelines and direction for others who may contemplate Similarly orient- ed programs. Problems Encountered The following is a brief discussion of some of the major problems encountered during the progress of the program. Over-all Time and Money Limitations The study was hampered. from the outset by certain very restric- tive limitations. Lack of sufficient time and money to complete the entire proposed program was the basis for most of these problems. The existence of this major limitation was primarily due to two factors, the 81 82 first being that the total contracted comprehensive program was too ambitious to complete within the required two-year period.1 Although it became quite obvious that land use, highway, and utility planning should be done Simultaneously in order to be coordinated in the best manner possible, it also became obvious that information required to complete such coordinated studies was badly lacking. The consequence was a period of backtracking to gather this needed infor- mation. Time and money consumed in this process proved to be a major problem later in the program and, in fact, required that a Significant amount of commission funds not originally allocated for this purpose be transferred to this program. It is, therefore, suggested that before any program for the pre- paration of a comprehensive planbe arranged, athorough study be made insuring that there is an understanding of the basic information needed and whether this information is available. If not, then possibly the agency is not yet ready for this step and a research and inventory pro- gram should be developed first. The second factor resulting in the time and money restrictions was that the staff was lacking in terms of the disciplines needed to develop such a comprehensive program. Nearly six months of the contract period had passed before the 1These factors are the author's Opinions and do not necessarily reflect the attitudes of the staff of the regional planning commission. 83 number of staff personnel was increased and their knowledge broadened to a point where the scope of information needed was realized and could be effectively evaluated. During this time period nearly one-fifth of the total amount of money budgeted for this entire project was Spent. Part of this expenditure had been used in the preparation of the report entitled "Recreation and Governmental Agencies" which actually had not been scheduled and did not contribute appreciably to any portion of the land use study. It is the author's belief that this report was prepared to help Show progress during a time period when the staff was inadequately prepared to carry out the needed regional studies. Both factors indicate inadequate preparation in the program out- lining stages. This preliminary stage is most important and, if not thoroughly studied, can cause many unpredictable problems in the later stages. Time Consumed in Determining Standards The staff of the regional planning commission decided at the outset to accept some of the standards of recreation land needs develOped by other agencies and informed authorities. However, the inherent desire to better what has been done over-rode this decision, and some of the staff Spent an appreciable amount of time researching this tOpic. As noted earlier, however, the actual minimal amount of time Spent further clouded the issues and brought forth new questions. In the end the standards adOpted were based on the results of more exhaustive studies 84 prepared by other agencies and recreation authorities. It is important to recognize the benefits of utilizing informative research available through university programs, respected experts in the field, and other agencies findings. Too often such information is looked upon as empirically conceived and not conducive to practical application. It must be realized that every study undertaken is not a pilot project and does not require the pure research approach. Need to Show Progress AS noted in Chapter III, the need to Show progress of work com- pleted, both to the commission(80 members) and the Federal Government, in order to justify the release of more funds caused a major staff dis- agreement and in the end the expenditure of additional unbudgeted funds. This problem was defined in the discussion concerning the pre- paration of the "Preliminary Open Spaces Plan" report. Had the original programming recognized the limitations of available information and staff inadequacies, such a problem probably would not have resulted. The program likely would have been more limited in scope or oriented, at least in part, to gathering the lack- ing information. AS it turned out, however, these inadequacies re- sulted in an unplanned delay in the early stages of the program. In turn, this early delay resulted in an insufficient amount of work completed later in the program when it was considered important to Show program progress. It was decided that this Show of progress 85 could be partially accomplished by the preparation of a very premature preliminary open Spaces plan and report. This report was prepared with the intention of intimating that this study had progressed to the actual plan preparation stage. A great amount of work was done in a relatively short period of time in order to prepare this report. Most of this work was done without the advantage of the needed comparisons and study with other sections of the comprehensive plan. The staff disagreement which occurred is relatively insignificant. The additional expenditures and the Significant departure from the work outline which resulted, however, are important and have been noted since anyone attempting to use this over-all approach would benefit from such information. Feasibility of Use in Other Similar Programs Variations of this same basic approach have been used in other Studies although an adequate amount of information on the step-by-step procedure is lacking. The results of the recreation and open spaces study and the incorporation of these results into the larger comprehensive regional land use plan indicate that the criteria applied and the approach used resulted in a practical means of identifying land suitability for regional recreation and Open Space purposes. Also, such a study pro- vides a good basis for further detailed site by site study. Other regional planning organizations contemplating such a program Should consider the following steps: 86 Prepare a preliminary program outline identifying what basic information is needed and whether it is available. This step Should determine immediately if the agency is prepared to undertake such a program or if initial studies can be geared to provide this information. NOTE: Whether completed as an entirely separate program or as an intregral part of the Open spaces study, a collection and updating of background information on all relevant regional characteristics and other pertinent information Should be made (i. e. , all relevant physical characteristics, all information on past and present recreation and Open space prOposalS, all information needed to determine standards to be used). If the recreation and Open spaces study is being prepared as part of a larger comprehensive program, much of this information may already be scheduled for collection; if not, then efforts should be directed to this data-gathering step initially. Prepare a work program and outline staging target dates for completion of each portion of the study. The following is an example of the basic outline used in this study: a. Formulate Criteria- -to be used in determining land suita- bility for regional recreation and Open Space (theoretical concepts, locational and site criteria). The physical features (locational criteria) used in this study are recom- mended. b. Apply the Criteria (1) Office Survey (a) Bring together all mapped information needed, as dictated by the previous step (b) Map any additional factors not previously available (c) Coordinate and analyze all mapped information (d) Prepare guide maps Showing lands suitable and unsuitable for intensive urban deve10pment (e) With guide maps as a basis further refine by identifying areas exhibiting some combination of desirable locational characteristics (a pro- cess of overlaying maps one on another) 87 (f) Further refine areas with potential for regional park sites by applying previously determined Site criteria (2) Field Survey--verify office survey information and further refine information on all potential areas (3) Prepare preliminary map of potential recreation sites and Open space lands c. Check and Balance--coordinate with other regional land use plan studies (1) Divide region into subsectors wherein detailed study of each land use type can be evaluated one against the other in terms of design, locational, and Spatial considerations (2) Prepare final regional land use plan If required, this process can be carried to the point of actually recommending park needs by a projected date. However, prior to em- barking on this step some detailed study should be given to the determination of a practical standard for use in calculating the amount of park land needed. AS quoted earlier, "Each recreation agency . . . should establish its own standards, in accordance with what the people consider adequate and are "1 even further study can be made generally de- willing to pay for . . . . fining how each potential area may be utilized. Of course, this latter step Should be accomplished, if possible, in COOperation with persons familiar with or experienced in park design and deve10pment. The approach used in identifying and continually refining these areas 1Guide for Planning Recreation Parks in California, p. 34. .11- 88 considered suitable for recreation and Open Space use is a most im- portant one to understand. This approach is the major concern of this study, and all the factors considered in developing the final criteria are Significant. It is also important to remember that the entire study was aimed at developing a practical approach that may be used by agencies involved in the preparation of comprehensive plans rather than in the preparation of research-oriented programs intended to develOp new techniques . Areas in Need of Further Study The statement, "No absolute standard or formula exists for deter- mining the Size or physical make-up of regional recreation and open space ' identifies a large area of interest that is in need of further facilities, ' study. At the outset park and recreation authorities cautioned the re- gional planning commission staff on becoming too involved in trying to solve this problem. Much more factual evidence of park use and park user trends on a metrOpolitan level is required before any conclusive statement or standards for regional facilities can be provided. As noted earlier, the methods used in the Cleveland regional recreation studies deserve closer scrutiny and may provide some good bases for determining recreation and Open Space land needs. More time is required to determine the validity and usefulness of much of the regional planning which is being done now or that has been completed in the recent past. The problem of planning for the most economical use of a region's resources is a 89 relatively new field of endeavor and little information is yet available that can be used to guide the programming of such studies. Another factor of considerable importance is the lack of contact and continued cooperation between adjacent planning units. In the case of this program some preliminary discussions took place but for the most part, the Cleveland Regional Planning Commission (to the north), Stark County Regional Planning Commission (to the south), Akron City Planning Commission, and the Tri-County Regional Planning Commission each carried out its studies pretty much independently of the others even though it was a known fact that a large interregional movement of peOple was taking place. For example, many of the persons frequenting parks in northern Summit County were residents of Cuyahoga County and vice versa. Certain Federal aid requirements have, in essence, forced co- Operative transportation studies; and it appears that Similar measures will be required before community officials can see the importance of continued cooperative study in all other aSpects of long-range planning. Although not directly tied into this study, an area which is of vital concern, particularly in the ensuing stages, is the problem of imple- mentatiOn. How can the region as a whole and the communities within the region be assured that an adequate amount of recreation and Open Space land will be available to the present and future pOpulations ? It is impractical to asSume that all of the areas identified for this use on the regional land use plan can be or should be obtained and develOped with 90 public monies. Yet private ownership does not insure the continued use of such areas for recreation or Open Space purposes. An Open spaces plan does not necessarily propose that all land so identified should be used for recreation purposes. If many of the areas defined as having marginal development characteristics could be retained in their natural conditions, a major part of the objective of providing Open space fOr the region would be accom- plished. Obviously, more study is needed to determine how this objective may be realized. Recently the state of Wisconsin took a major step in this direction by enacting legislation permitting the use of "conservation easements." The intent of such legislation is to allow the conser- vation of areas in their natural state by purchasing easements in- stead of purchasing the land in fee simple. In general, this method allows continued private ownership but restricts the type of develOp- ment permitted. The obvious intent is to insure that the land will be used for its present purpose. One authority describes the advantages of this method in the following manner. The purchase of "conservation easements" also can have a great pre-emptive value. There is, of course, no substitute for outright acquisition of land in fee simple for parks and other kinds of prOperty the public is going to need. At the same time, however, easements can provide future Options. Even though a community may not know what its precise land needs will be in twenty years or so, by the conserving of key Open Spaces it ensures that it will have choices to make 91 and that the developers bulldozers will not have gotten there first. Over-all Concluding Statement The purpose of this study was to review the approach by one regional planning agency in determining land suitability for regional recreation and open Space. It was felt that a step-by-step description, including examples of maps prepared in the process, would be most easily understood and most helpful to others interested in using this general approach as a guide in Similar programs. The criticisms made throughout the study were included simply to point out the author's views at certain stages in the process. This program was the first attempt on the part of this agency to prepare such plans, and few guides are available. The final result of the total plan is considered a valuable contribution to regional planning in this area, but it will be difficult for some time to assess how practical the criteria which were developed have been and how this approach might be altered to be of greater benefit and use. Further detailed studies will be directed at refining the completed plan and in the process will help to point out where the approach may be improved. 1Securing Open Space for Urban America: Conservation Easements, Urban Land Institute Technical Bulletin NO. 36, (Washington D. C. , Urban Land Institute, 1959), p. 9. BIBLIOGRAPHY Public Documents Bureau of the Census. U. S. Census of Population, Ohio: 1960. United States Department of Commerce Weather Bureau. Climatological Data--Akron, Ohio: 1959. Books and Reports A Regional Recreation Policy and Program. Philadelphia, Pennsylvania: Southeastern Pennsylvania Regional Planning Commission, 1956. Guide for Planngig Recreation Parks in California. Sacramento, California: California Committee on Planning for Recreation, Park Areas, and Facilities, 1956. Memorandum-~Preliminary Open Spaces Plan. Akron, Ohio: Tri-County Regional Planning Commission, 1962. New Gems for the Emerald Necklace. Cleveland, Ohio: Regional Planning Commission for the Cleveland Metropolitan Park District, 1961. Ohio Forest Facts. McArthur, Ohio: Ohio Forest Industries Committee, 1961. Outline Plan of PrOposed Park System for Summit County. Brookline, Massachusetts: Olmsted Brothers, 1925. POpulation and Labor Force. Economic Base Report No. 4. Akron, Ohio: Tri-County Regional Planning Commission, 1961. PreservingOpen Space. Urban Renewal Administration, Housing and Home Finance Agency, Washington D. C. : 1963. Prewitt, Roy A. The Economics of Public Recreation-«An Economic Study of the Monetary Evaluation of Recreation in the National Parks. Washington D. C. : National Park Service, Department of the Interior, 1949. 92 93 Proceedings of the Ohio Mid-Century Governor's Conference on Natural Resources. Report of the Sub—Committee on Water Use and Water Resource Development. Columbus, Ohio: The Natural Resources Institute, 1959. Outdoor Recreation for America. Washington D. C. : Outdoor Recreation Resources Review Commission, 1962. Regional Land Use Plan. Regional Planning Report No. 25. Akron, Ohio: Tri-County Regional Planning Commission, 1963. Securing Open Space for Urban America: Conservation Easements, Urban Land Institute Technical Bulletin No. 36. Washington D. C.: Urban Land Institute, 1959. Udall, Stewart L. The Quiet Crisis. New York: Holt, Rinehart, and Winston, Inc., 1963. Unpublished Material Michigan State University. Open Spaces, A Regional Plan and Program. Unpublished. Graduate Student Project prepared for the Depart- ment of Urban Planning and Landscape Architecture, East Lansing, Michigan, 1958. Nash, Thomas L. Urban Land Utilization Problems Associated with Organic Soils in the Tri-County Area. Unpublished Master's Thesis, Department of Geography, Kent State University, 1963. fli‘t‘mt .4' . r i ‘l " 7 Y . . .. L,- U 1.33mi «...? I-I tidy H ‘x'l 1 All ST A'E UNIVERSITY :1 "Ii [2 l l V MINI I ‘ "..‘MII III 293 03196 3 : iBFAF? 'rfg III