1980 Study: Capital Improvements for Recreation by JCCI

---------

~AC.IS$9NYJJ..l.e 9QM~\JN.ITXQQUNCI.I.v INC.~ A Report To The Citi~ens Of Jacksonvrlle IMTEQ'PA'PpAS, C~Alij&1AJ~,

JANU~RY,

CAPITALIMPROVEM~NtS ~

,'-'

FOR RECREATION ,

198()

SCOPE OF THE STUDY The JacksonvHle Cor.munity Council, Inc. (JCC!) Board of Managers authorized "Capital Improvements Program for Recreation" as one of the three studies to be undertaken by the Council during the 1977-1978 year. The initial charge of the Recreation Study Committee was to determine the public acceptance of an upcoming recreation bond issue based on the 1980 Recreation Master Plan. After an orientation by resource persons and an analysis of surveys made by other yroups and from ,"ithin the cOli1ilittee itself it was obvious that a referendum for a recreation bond issue was unlikely to succeed. At that point the committee had completed its original charge. The committee believed however that the goals which the 1980 Plan and the bond issue were trying to accomplish were worth\'/hile but that the Plan was unrealistic and unaffordab1e. The committee commencedon a new directioft seeking to effect the development of a new plan for better recreation and leisure services for the ci~ of Jacksonville. This plan would be based on the following assumptions: '

(l)

Recreation and leisure citizens.

time are vital

to the health and quality of life of Jacksonvf11e

(2)

Recreation and leisure services are as integral a part of city services as transportation systems, medical care facilities, education and housing, and an important part of Jackson. vi1le's economic and/or tourist development.

(3) Jadsonville's major assets of climate and geographic location on the St. John's River and the Atlantic Ocean make it unusually well suited for year-round outdoor recreation and leisure. DEFINITIONOF RECREATION Though recreation

can be broadly

defined

as "time spent

focuses largely on time spent in out-of-door space (beautification), individual resources unique to Jacksonville.

activities

in relaxation

and enjoyment, II the JCCr study

and environment.

This includes parks, green

and group sports and activities, and the access and use of the natur~l This study does not include recreation activities which are perfonned

for the most part indoors or are supported by private funds such as watching television, to movies, attending cultural activities, museums, etc.

reading, going

HIGHLIGHTS MAJOR PROBLEMS:

Recreation facilities deficient in quality

RECOMMENDED SOLUTIONS:

in Jacksonville and quantity.

are

Jacksonville's extensive land area, low tax base, low density and dispersed population contribute to the problem of providing recreation and leisure services to the community.

A Recreational Design Consultant should be retained by the city to create a master plan that is innovative, realistic and affordable and includes suggested funding mechanisms. Jacksonville's distinctive natural resources. the beaches, the St. John's River and

tributaries,

should be more fully utilized

in futu~e recreational

development.

The proposed 1978 bond issue for $70 million was deemed unacceptable because it sought to implement the 1980 Recreation Master Plan; resource persons generally

As capital in~rovements are funded, additional tax revenues must be allocated to maintenance.

approved by the voters and there was no assurance of sufficient funding in future years for maintenance.

The City of Jacksonville should assign a higher. priorityto financing, developing, promoting and maintaining recreation and leisure services, activities and facilities.

agreed that the bond issue would not be ,

The potential of Jacksonville's natural resources tor recreation has not been fully developed.

The,Mayo.'should create a Recreation and leisure Services Convnission to bring about a better quality of life in Jacksonville through leisure services.

FIN DINGS

1. Recreation in Jacksonville

DevelopmentAdvisory Committee has repeatedly allocated a substantial portion of the HUDCDmoney to fund capital improvements for recreation. See Table II.

A. Current Status Jacksonville's large land area of 766 square miles and low tax base make it difficult for the City to supply and maintain adequate recreational facilities to' all its citizens. In fact. t~e percentage of city funding for recreation financed by ad valorem taxes had decreased in recent years from 3.9% in 1971 to 3.0% in 1977. There has been a gradual increase in expenditures since 1977. See Table I.

TABLEII

TABLEI

YEAR

AMOUNT OF REC. BUDGET

1971-72 1972-73 1973-74 1974-75 1975-76 1976-77 1977-78 1978-79

$2.8 $2.9 $3.0 $3.4 $3. 8 $3.8 $4. 1

Source:

mill ion million million million milli on million mill ion

$4. 6 mi111on

City of Jacksonville Office Summaries

YEAR

% OF CD ALLOCATION TO RECREATION

1975 1976 1977 1978 1979

10% 15% 22% 28% 25%

SOURCE:Jacksonville

HUD.

In 1979 Jacksonville's $10,489,000 CDbudget included a recommended$2.6 million or 25% for recreation. The federal government urged the advisory committee to reconsider this allocation and limit recreation to 10%of the budget since Jackson~ille has grave needs in housing.

%OF TOTAL CITY BUDGET

3.9% 3.6% 3.0% 3.0% 3.0% 3.0% 3.2% 3.4%

In the past. these CDfunds for recreation have been spent on amongother things. swimmingpools, ball fields. lighting. park acquisition, parking and restroom facilities.

Budget

Since the majority of capital improvements for recreation in Jacksonville has

According to national standards. Jacksonville has about 30%of the park area of many cities of comparable population size. Jacksonville spends approximately $6.00 per person on recreation, whereas a Department of Housing and Urban Development-funded study, Open Space and Recreation Opportunity in America's Inner Cities (Dunn. 1974), estimated that in order to provide adequate programs and maintenance, per capita operating expenditures in 1970 dollars shOuld be at least $20per person ($30 in 1977 dollars).

been directed to low incomeHUDtarget neighborhoods, there is some resentment in other parts of the city that poor neighborhoods get all the recreation improvements while higher income areas get no improvements. In fact, though the capital improvements are funded through ~D, the additional maintenance must be absorbed by the already limited operations budget.

Most of the Department of Recreation and Public Affairs' budget is allocated for operations with a small amount allocated to capital improvements such as replacing lawn mowers and machinery. For example. of the $2.8 million spent in 1971-1972. $30,000 was allocated to capital improvements. For 1979 the department's operating budget is $4.643.701. Of that amount. $52,000 was spent on replacing maintenance equi pment.

Maintenance Jacksonville's parks are poorly maintained. In order to sufficiently maintain existing parks the Recreation Department's maintenance staff would have to be double or triple its present size, according to resource persons, including the previous department head, Gordon Sprague. In addition, Gene McLeod,City Finance Director, stated that the Recreation Department was initially rated amongthe lowest productivity levels in city government using the resource managementcriteria. but that productivity has increased in recent years.

Jacksonville has had a substantial increase in funding for recreational capital improvements through the Housing and Urban Development CommunityDevelopment (CD) Block Grants. HUDCDmoney is desioned to revitalize substandard housingJand neighborhoods. The Community

According to KenO'Neill, Division Chief of Parks and Recreation, a substantial amount (35%) of Department of Recreation's budget is devoted

.2.

to repairing and replacing vandalized facilities. Twelve and one-half percent of the annual budget is allocated to mowinggrass around parks and streets.

Increased Funding for Recreation In 1977 and 1978 resource persons from the city administration and the City Council stated that there was not support for a bond issue from the community. After studying the details and the expense of the plan. the JCCI committee members could not themselves support a bond issue for 1978.

C. Recreation as a Priority The city budget reflects its priorities for services. The recreation portion of the Jacksonville budget has decreased in recent years. In 1978 there were no plans for increasing the amount of funding to recreation. However, MayorGodbold has increased the recreation budget by $500,000 per year which is an increase of two-tenths of one percent of the entire city's budget.

The implementation of the 1980 Recreation Master Plan (1980 Plan hereafter) was estlmated at a cost of $72.8 million (in 1973 dollars). Maintenance for these new facilities is generally figured at 10%of the capital outlay per year for an esti~ mated increase in recreation funding of $7 million for maintenance alone. In 1977 one additional mill of ad valorem taxes would have provided $5.5 million in revenues.

JCCI resource persons stated that essential services such as fire protection. police, water, sewer, hospitals. drainage and health were of higher priority than recreation. They advised the committee that the recreation needs should be considered in the context of all Jacksonville's needs. Someresource persons felt, however, that the general public was very supportive of recreational improvements. Hard data on the public need for recreation were not available from the city councilor recreation department. ManyCity Councilmen said that they were often called about recreation but not for new facilities, rather for help in obtaining the necessary maintenance for existing facilities. Neither the City Council nor the Recreation Department keep records of citizen requests.

Therefore, it would take approximately 1.3 mills to provide the maintenance alone for new facilities funded by the bond issue. Since bond moneyis for capital improvements and cannot be used for mair.tenance, the city's ad valorem taxes would have to be either reallocated or increased to provide maintenance. None of the city officials who served as resource persons would offer support for committing the necessary maintenance moneyfor a capital improvements bond issue slated for November1978. In order to finance a bond issue of $75 million for capital improvements, ad valorem taxes would have to be increased by almost one mill to produce the necessary payback income. A total of approximately 2.3 mills then would be needed to repay the bonds and to maintain the facilities prescribed in the 1980 Plan.

In attempting to locate the demandfor increased recreation, it was found that there were special interest groups who, for example, wanted more ball fields, tennis courts or equestrian trails, but there was no group or network of groups who were advocates for recreation and leisure services generally.

The proposed amount of the bond issue fl uctuated between 50 and 100 mi11ion dollars. Though there was never a firm amount given, it was the philosophy of the pr~vious head of the Recreation Department that a large bond issue was as easy to pass as a small one.

Recreation as a citizen priority varies with the different districts or regions within the county. In Arlington, for example, increased recreation is a priority: it was an election issue in 1979. Arlington citizens are looking into the possibility of having a separate taxing district just for recreation. Resource people to the recreation committee felt that separate taxing districts were not appropriate in light of consolidation because they conflict with the concept of a consolidated city.

An alternative to the bond issue was suggested by resource persons who did not support

a bond issue

-- a

millage

in-

crease which would provide for both capital improvements and maintenance at the same time. City Councilmen and admini strati oni n 1978 felt that a total millage increase of one-half to one mill devoted to recreation would be acceptable to the people. It was stated that any increase in ad valorem taxes should take place in 1979 after local city council elections were held.

Someprivate citizens resent the fact that they have maintained public facilities themselves to make them usable. These citizens are not in favor of increasing recreational facilities until current facilities are adequately maintained. .3~ '

BOND ISSUE FACT SHEET U'""l

~1~ 1 mil. = 5.5 million dollars for 1977 in Jacksonville Jacksonville Bond rating as of 1973 (last general obligation bond) MoodyA-l Standard & Poorls AA Current (11-7-77) interest rate for these r~tings = 5.5% (low percent) To calculate the payback per year on a bond issue for 30 years, multiply total bond amount times .06881 = $2,064,000 annual required payback. Translated into 1977 Jacksonville millage = .375 mils. Bond (in millions)

$30

$45

$50

$75

Payback required per year for 30 years.

$2,064,000

$3,096,243

$3,440,270

$5,160,404

Millage required

.375 mils.

.563 mils.

.626 mils .

.938 mils.

Taxes on $25,000 home

$ 9.38

$14.75

$15.65

$23.48

Taxes on $30,000 home

$11. 25

$16.89

$18.78

$28.17

Taxes on $45,000 home

$16.88

$25.32

$28.17

$42.26

Taxes on $50,000 home

$18.75

$28.15

$31.30

$46.95

Taxes on $75,000 home

$28.13

$42.23

$46.95

$70.43

NOTE: Assessments do notallow for the $5,000 homestead exemption. SOURCE: City of Jacksonville

Budget Office

A designated millage for recreation can be established in two ways: (1) the State Legislature can legislate the millage, and (2) the City Council can pass an ordinance every year for the mi11age. There are advantages and disadvantages to both methods. If the State Legislature designates the millage, the millage cannot be easily changed. If the City Council legislates the designated millage, it might be discontinued, raised or lowered the next year. There is a trade-off between having flexible tax money (City Council) and having a guaranteed budget for recreational improvement (State Legislature).

increase would not have any impact on the City at all. Others disagreed, saying that 5 million dollars worth of capital improvements would be the maximum the City could build in one year anyway.

E. Other Resources Possibilities of federal funding for recreation were explored. Grants for bikeways in urbanized areas were provided through the Federal Aid HighwayAct of 1975. The Land and Water Conservation Act of 1965provides assistance to stat~s and thei r politi ca1 s ubdivi sions for preparation of comprehensive statewide acts or recreational plans and for acquisition and development of recreation areas and facilities. A 50X match is required. Three national foundations were also listed as possible supporters of recreation.

There was disagreement among resource persons concerning the impact that a millage increase of one-half to one mill for recreation would have on the community. Somefelt that a small millage -4-

The Urban Park and Recreation Recovery Act of 1978 will fund 70-85% of the cost of rehabilitating urban parks in selected cities, and the city or the state will fund the remaining. Jacksonville qualjfies for this program. Another alternative for funding is the tourist development tax, or bed tax for short. Supervised by the Tourist Development Commission appointed by the Mayor, this 2% tax on motel and hotel accommodations produces revenues to be used to build or maintain tourist-related facilities, to advertise and to pay debt service on tourist-related capital improvements. Each percent of tax will generate over $400,000 in Jacksonville per year. Some of tourist-related capital improvements could be recreational.

River to serve as a central location for a theme Park. Jersey City took an unused railroad yard and created a waterfront park with a view of the Hudson River and Statue of Liberty. San Diego has developed its potential recreational facility in innovative ways including empty parking lots as race courses for wheelchair races. In addition, they have pioneered and perfected recreation in their 27 miles of bayfront. In addition to the regular leisure activities, they have an 18 hole frisbee golf course and an underwater park. II.

SURVEYS A.

There are other public facilities, such as public schools, that can be used for recreation. Many City Councilmen and city administrators felt that good relationships and coordination with the Duval County schools could relieve some of the pressures on recreational facilities. It was also stated that taxpayers would appreciate using their tax-supported schools as recreational facilities. The Community Schools Consortium provided a good mechanism for joint recreational school facility use. Despite the ending of the consortium, some school facilities could still be used to expand recreation. According to other resource persons, the relationship between the schools and the city could be improved. The 1980 Plan reported that 56 of the 134 public schools were currently being utilized for recreational purposes and 26 more sites could be added.

League of Women Voters Survey on Recreation - 1977

JCCI studied

the League of Women Voters survey and the consensus of League of Women Voter members. The survey and consensus agreed that .a1though many people would like to have more recreational facilities, they would not be willing to pay very much more in taxes for these facilities. In fact, only 35.8 percent said they would support. any tax increase. The majority of those supporting an increase indicated they would

The

Recreation

be willing

League

members

developed

San

Antonio

as a lovely

River

people

sample by council districts.

and

activities.

Ofthose

interviewed who were aware of facilities,

less than 20 percent had usedany of them.

Lack of interest

commonresponse

were not

used.

was the most

as to why activitiQs

Of those responding who

were not familiar with facilities, were not interested in participating

was

recreational

the activity

and shop area in that city, appealing to citizens and tourists alike.

. Memphis has embarked to develop an island

271

Most people interviewed (64.3 percent) were not aware of existing physical

facilities

small

interviewed

famil i es.

Seattle's urban park situated between expressways was a unique innovative approach to utilizing available, obtainable, affordable space to serve the leisure needs of its citizens. very

$1.00

Most of those interviewed owned their own hOmes (62.46). Most (79.5%) had small

The Recreation Committee gathered data from cities with outstanding recreational leisure services and recreational areas which served as distinctive landmarks for the cities. Some of the interesting approaches to recreation include:

. The

from

door to door who were selected as a

Highlights of Other Communities

representative

to pay

$25.00 more in annual taxes. There was a more positive response in favor of a system of user fees than for a tax increase. Over two-thirds of the people indicated that they would be willing to pay a fee to use recreational facilities.

centage existing

anyway.

(66.7 percent) art activities,

Even

most in

larger per-

were not aware of and of those

responding who were not aware of facilities. less than 6% expressed an interest

upon a project in the Mississippi ;5.

in participation. An average of 62.5 percent of the people interviewed were not aware of existing cultural programs such as libraries. lecture discussion groups, art shows. plays and concerts. The 1i brary was the best knownwith 67.2 percent of the people interviewed being aware of it. Of those who were aware of the cultural programs. approximately half used them.

"The most popular leisure activity named by those polled was reading with 11.1 percent saying that was their favorite." Other popular activities were fishing (10.9%); television (7.3%); physical exercise (6.4%); bowling (5.6%); arts and crafts (5.3%); sewing (4.9%); gardening (4.5%); tennis and water sports (4.1% each); ~olf (3.9%); movies (2.4%); games and music (2.3% each); dancing (1.9%); and travel (0.8%).

The League of WomenVoters consensus of its own membersreflected many of the same attitudes of those persons surveyed. They felt that recreation should be a higher priority for funding; however, they did not find clear support for a millage increase or for a bond issue for the generation of newmonies for recreation. They did lean toward support of a millage increase with these additional recommendations: 1.

"A thorouQh and more creative look at a reallocation of current available funds within the city's budget.

A conscientious effort to involve the individual neighborhoods in helping to maintain and to provide security for the parks jn their areas."

III.

PLANS:

A. The 1980 RecreatiOn r~aster Plan According to Jacksonville Area Planning Board planner, Bob Riley, there has been a need for a recreation plan in Jacksonville since 1960. In 1973 work began on a short range development plan. Later, the 1980 Recreation Master Plan was begun. In order to design the 1980 plan, it was necessary to use some criteria, classifications and standards. Fifteen sets of criteria. classifications and standards from around the state and the nation were examined and adapted into the criteria designed into the Jacksonville 1980 Recreation Master Plan. These criteria developed in Jacksonville are now being used by the state of Florida. The plan was designed to be specific and readable for the general public. It was based on specific neighborhood characteristics. neighborhood needs, age groups and population density. The plan was broken into Classifications:

If new monies are forthcoming the League recommendsthat they be tied to specific plans and for better maintenance. They also support City Council policy requiring developers to.set aside a certain percentage of their development to be used as park 1and.

. NeiQhborhoodParks - serve

up to 5,000 people within ~ mile radius from 3 to 20 acres based on 2.5 acre per 1,000 population.

11 new land

is acquired the League supports both active use and passive space along with an increase in bike paths, wa1king/ jogging trails and a city golf course. usi ng exi sti ng resources wheneverpossib1e.

. CommunityParks - serve 4 to 6 neighborhoods with a maximumpopulation of 25,000 within a service radius of three miles from 15 to 100 acres with 2.5 acres per 1,000 population.

B. The Florida Times-Union Survey In March 1978, the Florida Times-Union conducted a telephone poll of 533 persons to discover how they felt about the statement: "Recreation facil ities and activities are adequate for mYneeds and those of mY fami 1y ." A tota 1 of 65 percent sai d they felt that the facilities were adequate with 36 percent saying they "agreed strongly" and 39 percent saying they "agreed somewhat." Thirty percent disagreed with the statement and five percent had no opinion. Whites were more likely to agree with the statement (48.1 percent agreed). Amongblacks only 37.1 percent agreed.

. Metropolitan Parks - serve 50,000 people within 30 minutes drive. Five acres per 1,000 population. The Recreation Master Plan was prepared by the Jacksonville Area Planning Board with assistance provided by the Recreation Department of the City of Jacksonville. Assistance was also provided by the Recreation Technical Coordinating Committee. Jacksonville's Commissionon Aging, the CommunitySchool Program, Duval County School Board, and the six ...

Subarea Citizens Advisory Committees. This plan was coordinated with the Short Range Development Plan.

regions (subareas) of the city, and proposed developing an additional 8,288 acres for parks, almost tripling Jacksonville's park areas. The 1980 Plan would increase the 241 existing parks in 1974 to 353 by 1980 and more than double the amount of acreage devoted to parks.

The 1930 Recreation Master Plan made recommendations for developing public open space and recreational facilities, protecting environmentally significant areas, and improving the aesthetic qualities of all existing public open spaces. Specific program proposals were developed using standards adapted in part from many municipal, state and federal standards. Private recreational facilities were considered in developing the public facility proposals. Areas with a concentration of private clubs and private or quasi-private recreational facilities received fewer public recreational facility proposals unless these areas were deficient in particular facilities. However, private facilities provided recreation to only two percent of Jacksonville's population.

Park Acreage 1974

.............

2,176

Proposed. .. . . ....

2,899

Total............

5,075

Additional Parks

1974 Proposed Total

Mini-Parks 40 NeighborhoodParks 122 75 ConmunityParks

75 29

4 Metropolitan Parks ----. 8 ------------------------

Specific program proposals were made based upon intensive consideration of the following as stated in the plan itself:

115 151 75 12 -----

TOTAl

353

."the projected population increase in Jacksonville from 542,000 in 1974 to 625,000 in 1980 and an increase in Duval County from 570,400. in 1974 to 660,000

The 1980 Plan made specific recommendations for improving existing and proposed park sites, both passive and active.

. The existing

It recommendsthe following additional facility improvements:

in 1980

public park facility inventory prepared by the Department of Recreation and Public Affairs-

Baseball fields

. the

on-site evaluation of the Jacksonville Area Planning Board staff of the existing public recreational and open space facili-

. the inventoryand analysis of existing facilities

Little

League

.............. .................. .................

ties -

private recreational

................ fields .. ..................

26 151 Tennis Courts 332 206 Basketball Courts 25 Yard Pools 34 50 Meter Pools 21 Shuffleboard Courts ............ 84 82 Handball Courts ................ Play Equipment Areas ........... 107 7 Boa tRamps. .................... Golf Courses 3 20 Community Buildings ............ 65 Football-Soccer Playing Fields. Picnic Areas ................... 754 acres Campsites ...................... 100 acres Softball

. the input by the planning Subarea's Citizens Advisory COIlIDittees -

...................

. Deve information from the 1980 Short Range 1opment Pl an . the socio-economic factors by census tract throughout Jacksonville . and the analysis of the plan's standards in relation to the aforementioned

Based on figures from the 1980 Plan only $55 million dollars (1974 dollars) would n~ed to be funded by a bond issue. The additional $17 million should be provided through other means. However, maintenance and park personnel would require financing by ad valorem taxes.

factors." Total costs related to the program proposals for the whole city are $72,842,580.

The Plan recommendedthat the recreation budget be increased to 12.5 million dollars annually by 1980 to cover maintenance and operations.

This plan made specific recommendations for facilities in each of the six geographic

.7.

Application of Priority

Rating System

Coordinating Committee, enactment of Codes and Ordinances,.adoption of river-related policies, and implementation of design guidelines. Numerousstudies were also recommended."

The five factors used to determine the priority of a recreational improvement were vulnerability, availability, user group, demandand need. Ratings were given on a three point scale with High (1). Medium(2), or Low(3).

The river study suggested recreational improvements in each of the 21 areas. Though the improvements are rather detailed, there is no cost estimate for these improvements.

The 20.7 linear miles of beaches along the Atlantic Ocean and more than 125 linear miles of the St. John's River and its navigable tributaries were not calculated in the standard for determining recreational improvements prescribed in the 1980 Plan.

Several of the proposed policies of the river study had an impact on the Recreation Study Committee and bear repeating:

The Plan called for a fairly even distribution of facilities scattered throughout the county. For example, of the 55 suggested swimmingpools in the Plan, four pools the are to be located in Subarea six downtownarea, eleven pools would be located in subarea two which stretches from Arlington to the Beaches.

"I. I I.

III. IV. V.

The resource persons were ambivalent at best in their support of the 1980 Recreation Master Plan. Most thought that the plan was too expensive. Manydisputed the plan's validity since it did not take into account access to the natural water resources of the river and the ocean. Thoughthe plan was a good inventory, most resource persons did not think it was the answer to Jacksonville's recreational problems.

VI. VII. VIII.

Improve the environmental qualities of the river and its tributaries Improvethe qua1ity of development along the ri ver Preserve and enhance the scenic beauty of the river Intensify recreational uses of the shore line Increase awareness of the historical importance of the river and preserve its past Assure that development and activities are economically efficient and ma~e best use of limited resources Provide greater public access to the river Increase regional awareness of the ri ver and its resources."

The River study suggested several strategies for implementing the recommendations:

B. The St. John's River Study The committee examined the St. John's River Environmenta1 and Urban Des.ign Study prepared by the Jacksonville Area Planning Board in 1977. The study's abstract is an overview of the content:

1) A department under the f1ayor which would review all proposed developments along the river.

"The St. Johns River flows for approximately 39 miles through Duval County to the Ocean. Shoreline uses range from residential, industrial, military. port, central business district, open spaces, to saltwater marshes. "The entire shoreline was divided into 21 study areas. Each of these areas was mappedwith specific deve10pment proposals. Functional programs to improve the river and shoreline were formulated. The programs developed addressed housing, recreation, environmental inprovement, industry. historical preservation, commercial areas, and transportation.

River DevelopmentAuthority similar to the DowntownDevelopmentAuthority. It would be empoweredto acquire, develop, lease and sell land.

River Park Commissionwhich would ac.quire selected properties, then manage and lease recreational areas and facilities along the river.

4) A separate division of the Recreation Department. 5) A regional coordinating' committee which would coordinate local, regional, state and federal actions concerning the river.

C. 2005 Comprehensive Plan

"Several strategies were developed to ensure proper shoreline development and implementation of the plans. Strategies include development of a

.8.

Each city in Florida is required to have a comprehensive plan. Jacksonville's 2005 comprehensive plan is being developed by

the Jacksonville Area Planning Board. One of its elements, the recreation element, was studied by the JCCI Recreation Commrtttee. The 2005 Recre~tion Element followed very closely the content of the 1980 Recreation Plan. However, it accentuated the development of stream valley parks, that could be developed in the flood plain areas. The major contributions of the recreation element were in the areas of goals, objectives and priorities for recreation in the future. D. ArmyCorps of Engineers Studies

The ArmyCorps of Engineers is responsible for the dredging operations of the St. John's and for the man-madeis 1ands in the ri ver such as Quarantine Island, Reed Island and others. The islands in the river could meet Jacksonville's need for more access to the water and could provide recreation space- in populated areas of Jacksonville. This approach is in contrast to many of the 1980 Recreation Master Plan recommendations which call for development of recreation land manymiles from the population center of Jacksonville. The Recreation Committee asked Lieutenant Colonel Robert J. Waterston. Deputy District

Engineer. Jacksonville District, about the status of the islands in the St. John's River. He reported that Quarantine Island is currently being used as a fill area and will be used through. the year 2000. It will not be suitable for a considerable number of years as a recreational site. By 1982 there will be about 76 acres available on Reed Island which could be developed as a recreational area and about 105 acres on the eastern end of Quarantine Island by fiscal year 1990. Exchange Island underneath the Matthews Bridge was a recreational facility previously. but was vandalized because there was not supervision. Methods could be used to make Exchange Island more accessible. One of the methods that was suggested by the ArmyCorps of Engineers was a trail ferry. Causeways or walkways have been suggested as well. The Army Corps of Engineers' Chief of Recreational Development Section. has developed recreational -plans for these island which are available through the ArmyCorps of Engineers. The committee asked Lt. Col. Waterston about the possibilities of other man-made islands in the river perhaps placed on pilings. Lt. Col. ~aterston said it would be technically. feasible but in his opinion there would probably be some problem with the islands because of environmental concerns.

CONCLUSIONS 1. Recreation facilities deficient 2.

in Jacksonville in quality and quantity.

agreed that the bond issue would not be approved by the voters and there was no assurance of sufficient funding in future years for maintenance.

are

Recreation funded by local tax revenues has not been considered essential and is of low priority.

~. The potential of Jacksonville's natural resources for recreation, the St. John's River, its tributaries ann the Atlantic Ocean, has not been fully developed.

3. Jacksonville's

extensive land area, low tax base, low density and dispersed population contribute to the problem of providing recreation and leisure services to the community.

4. There is a public mood resisting taxation.

increased

A comprehensive leisure service plan making creative use of existing natural -assets and exhausting all possible funding sources is needed.

9. Jacksonville needs an organized and fund-

5. The 1980 Recreation Master Plan was overly

ed advocate for public leisure services.

ambitious, unimaginative, unrealistic and unaffordable.

10. Maintenance for existing i nsuffi ci ent.

6. The proposed 1978 bond issue for $70

facilities

11. The system of funding operations and

million was deemed unacceptable because it sought to implement the 1980 Recreation Master Plan; resource persons generally

capital improvements for recreation inadequate.

.g.

RECOMMENDATIONS

The JCCI Recreation Committee recommends: *1.

*2.

*3.

That the 1980 Recreation Master Plan no~ be used as the basis for a bond issue. The 1980 Plan is too expensive and based on national recreational standards rather than the actual need. funding capabilities, and utilization of Jacksonville's natural resources.

**1.

That the 1978 bond issue be deferred until an effective and potentially acceptable plan can be developed.

That a Recreational Design Consultant be retained by the city to create a master plan that is innovative. realistic.and affordable and contains suggested funding mechanisms.

That as capital improvements are funded by the Ci ty Council. addi ti"onal tax revenues must be allocated to maintenance.

That the Mayor and City CouncH encourage citizen participation in:

advocacy for recreation and leisure services improvements

. maintenance. . vandalism prevention .

private donations of usable land and facilities, like the Parks for Peop1e Program.

help select

* Recommendations1, 2, 3, were implemented duri"9 the study.

and work with

the consultant.

Mayor GOdboldhas continued the Task Force. The Task Force is comprised of representatives from the Department of Recreation; the Department of Housing and Urban Development. the City Council, the. Jacksonville Area Planning Board. the Beaches, and the Jacksonville CommunityCouncil. Inc. In addition to the two JCCI r~presentatives on the Task Force, the entire JeCI Recreation Conlnittee wi11 provide a valuable resource for the consultant.

Through cooperation with the Mayor's Office

and City HUD, the committeewas instrumenta1 in convincing the city leadership to allocate moneyfrom CommunityDevelopment funds for a nC\i plan. The City CouncH passed an ordinance transferring the CO funds to the Department 0 f Recreation

specifically

That the Mayor create a Recreation and leisure Services Conmission to bring about a better quality of life in Jacksonville through leisure services.

That the Recreation Department's budget should be increased by City Council to provide adequate maintenance and better utilization of existing facilities.

and

That City Council and the Mayor should include user fees as additional tax revenues into the Recreation budget rather than the general fund.

included JeC! as a parti-

cipant in the development of the plan. Th~ next step in the process was to compose the scope of services (project description) necessary to engage a consultant. The O)::1mi ttee developed parameters to be employed by the consultant in conformance with the city purchasing office requirements and the Department of Recrc.1tion.

** This recreation report predates Mayor Godbold's proposal for a spQrts commission. The recreation committee sees the Recreation and Leisure Services Commissionwith a broader purpose than spectator sports. The Recreationand Leisure

Services Commission

will serve as an advocate for improving the quality of life through participatory leisure activities. sports and facilities. Since their emphases will be different, the conillissions should be separate.

As a result of the involvement of the JCtI Recreation Study COlilnittee. Mayor Tanzler formed a Task Force on leisure services to -10-

RECOMMENTATIONS (Cont'd.)

9. That the Jacksonville Area Planning Boardand the Recreation Design Consultant retained by the City should incorporate the following goals into their future planning for recreation and 1eisure services.

To acquire an inventory of open space in the city for use in planning leisure services. To expand the cultural opportunities of the citizens of Jacksonville by promoting the arts, music, theatre and special cultural events such ~s rotating exhibits.

GOAlS

Develop

To enrich the human experience in Jacksonville particularly in the areas of leisure services and aesthetic enjoyment.

To develop leisure facilities and open space for active and passive recreation that are grouped and located equitably for maximumaccess.

The Ci~ of Jacksonville, through a Leisure Services Commissionshould finance, develop. promote and maintain recreation.

To plan activities that have the most impact, visibility and potential use for citizens.

Finance

To improve communications to all segments of the population, encouraging the use of facilities and space by passive as well as active parti ci pants.

To develop affordable leisure facilities for the public including utilizing private, state, federal and local financing as well as system of user fees.

To utilize more fully public buildings, churches, old railroad right-of-ways and buffer areas as recreational sites.

To design leisure activities and facilities in areas and in a manner that will encourage private investment and economic development.

To develop along with the professional recreational consultant an affordable, innovative recreational plan.

Promote

Maintain

To promote Jacksonville's natural resources for leisure use, emphasizing the use of the river and the beaches and the islands.

To design new facilities

for ease of maintenance

and promotemaintenance as an integral part of

any capital improvements and promote neighborhood care of leisure facilities and grounds to ease the maintenance problems, encourage neighborhood involvement and pride and to discourage vandalism.

To promote civic pride in Jacksonville's unique and rich water resources. To promote, expand and coordinate the use of existing school facilities, buildings and open space for public use in recreation and leisure.

To coordinate the use and upkeep of leisure facilities and areas with other city departments, especially the police department for prevention of vandalism.

To promote the beautification of Jacksonville by developing a campus effect through the use of trees and green plants.

To promote civic pride in recreational resource so that the facilities will be adequately maintained.

.11.

RESOURCE PERSONS The committeedeveloped findings based on testimony gathered from resource people during their meeti~gs. Many interviews with public officials were held in addition to full committee meetings to clarify the JCCI role and interest in recreation and to follow-up on the discussions and directions of the full committee. J)hn Lauwaert Chief of Recreational Development Section, Environmental and Resources Branch, AnrrI

Julian Barrs 1977-1978 - Division Chief of Parks and Recreation, City of

Jacksonville

COrps of

1978 to present Head of Department of Recreation and Public Affairs Richard l. Bowers Executive Director

Council, Inc.

- 1978, Jacksonville

tbn Brewer City Councilman,District 2

fene McLeod City Finance Director,

Community

City of Jacksonvi1le

William Merwin Assistant General Counsel, City of Jacksonville

- 1978

Ebb" Rn efianner, Jacksonville

Joe Carlucci

Chalnnan 1978, City Council Finance Comnittee, City of Jacksonvi 11e Ivan Clare Director of Information Services. Jac ksonvi 11e

Engineers

Area Planning Boal

G:>rdonSprague Department Head. RecreatiOn and Public Affairs. les i gned, 1978

- 1979, City of

Herb Underwood

Chief Administrative Officer

Jacksonville Yank Coble Endocrinologist

- 1978, City of

Lieutenant Colonel Robert J. Waterston, Deputy District Engineer, Jacksonville

District, U. S.

Army Corps of

Engineers

Other officials who were instrumental in the committee's progress were Don McClure, David Harrell, Jim Wells, Rodney Hurst, Gene Suggs, Ken O'Neill, Mike Tolbert, John Van Ness, Ernie Whitaker, the City Council, and the HUDCitizen Adviso~ Comnittee.

COMMITTEE MEMBERSHIP AND WORK *Robert H. Ad~ ~1urray B1ad James Bledsoe *Julie Buckingham John Burrows Ken Cebeck Alex Crotzer

The manage~ent team met frequently during the fall of 1977 to define the direction of the study. From January to the end of May 1978 the full committee met weekly. Thereafter, the conmittee met at least monthly. In addition, the cOlmJittee took field trips down the St. John's River and some of its tributaries to better visualize the recreation capital improvements which might be developed along the waterfront. The committee completed its work in the fall of 1979.

*Ted Pappas *Eleanor Ashby Delores Carn *Gerald Dake .George Harmon *Esp;e Patrinely Gary Sams

J. J. Daniel

"1arian .Dowling *Susan Fisher *Betty France *Elwood C. Geiger James Griffith Helen Howarth .Alberta Jackson *J. A. Jackson

Chairman Management Management Management Management "'anagemcnt Management

Team Team Team Team Team ieam

*Lillian Johann *Madelyn levin *George Longworth John .."r-tan;s Doug Milne Nancy Mi"ton *Sally Morrow Brenda Priestly *Nac Reigger Del Revels Gay Robbins Sue Nell Spiro *Courtenay Wilson Lowell Wood Wayne

Wood

*"!emberfor two years The committee was staffed by Carot S. Miner, Associate Director and Annette Brinson secretary.

.12.

BIBLIOGRAPHY

BondIssue Fact Sheet: Consolidated City of Jacksonville Property Tax Analysis for 1977. Source: Bonnie Cole, City of Jacksonville Budget Office. "ChamberSurvey: Jacksonvi lle: A GoodPlace to Live, Residents Say." Focus, 12 July 1978. City of Jacksonville 1971 1979.

Dillin, Mike. Criticism." 1979.

St. John's

Jacksonviile Area Planning Board. Element.

2005 Recreation

National Urban Recreation Study Executive Report. U. S. Department of Interior, February, 1978.

Financial Summaries,

Ordinance 78-228-112. Introduced by the Council President at the Request of the Mayor.

"City's HUDProposal Draws Federal The Florida Times-Union, 11 June,

Recreation Survey 1977. League of WomenVoters, Jacksonville, Florida.

Harmon, George. "Architect Envisions St. Johns Island Park." The Florida Times-Union and Jacksonville Journal. Sunday, 4 February 1979.

~quest for Proposal: Plan. (JCCI)

Leisure Services Recreation

Summaryof Selected Sections of the 1978 National Urban Recreation Study. U. S. Conference of Mayors and the Urban Environmental Foundation, March, 1978.

Hogan, Dick. "Recreational Facilities 'Okay'." The Florida Times-Union and Jacksonville Journal, 11 March 1978. Jacksonville Area Planning Board. ~'aster Plan.

Jacksonville Area Planning Board. River Study.

1980 Recreation

.13.

APPEN DIX

This fs a summaryof the Scope of Services written to obtain the consultant who will design a new plan for the city of Jacksonville. The contract with the consultant was approved in July 1979.

REQUEST FOR PROPOSAL LEISURE SERVICES RECREATION Section I

- General

PLAN

The consultant will workwith specific representative communitygroups and the Mayor's Task Force on Leisure Services to assure that the plan is responsive to the needs and desires of the public.

It is the intent of this Request for Proposal (RFP) to obtain the services of a consultant to assist in determining the most desirable means of implementing a comprehensive capital improvement program responsive to the immediate and future needs of the ci thenry. The Mayor or his designee will chair the Task Force on Leisure Services, which will include representatives from the Department of Recreation and Public Affairs, Chairman of the City Council's Finance Committee, Department of Housing and Urban Development, Jacksonville Area Planning Board, Jacksonville CommunityCouncil, Inc., and the Chairman of the Agriculture/Recreation Committee. The consultant will periodically meet with the Task Force for direction and presentation of results. The total work effort of the consultant will require between six and nine months to complete. 1-1 Background Jacksonville communitygroups and citizens in Comnunity Development Public Hearings have consistently expressed a need for the development of additional leisure related facilities throughout the city. At the request of the Mayor, the Council passed an ordinance to provide funding for the development of a city-wide plan of leisure needs and priorities on a regional, metropolitanj community and neighborhood basis. The leisure activity plan should be affordable and include all of the consolidated City of Jacksonville, the beaches, and Baldwin. The plan should also emphasize the natural assets of the county: the St. Johns River, its tributaries, the marshes and the coast line. The plan should serve to link the population with the natural assets through urban and suburban facilities, open space and parks. Thouqh the county has much undeveloped land within its 800 square miles, the goal of this plan will be to provide faC"i1ities that are closer or accessible to the most people.

The plan should be a synthesis of existing and new facilities. It should be a design unique to the geography, climate and culture of Jacksonville. The plan should be affordable and include an implementing strategy as well as a phasing design and financing package. Section II

- Administration

and Contractual

Information

11-1 Purpose The purpose of this RFPis to secure the services of a consultant to assist in establishing a concl~sive plan for comprehensive delivery of recreational services. Primarily, this plan is to include a realistic capital improvement recommendation. 11-2 Project Scope and Objectives The objective is to develop a plan to provide a creative solution linking leisure activities with the Jacksonville setting. It should incorporate a master plan to enrich the humane~perience related to leisure activities and time. It should provide a definitive recommendation for a local open space/recreation policy. Further, it should provide a timetable of development and a parallel financial plan for funding such development identifyin9 local. state 1nd federal participation. 11-3 Reference Documentsand Data Consultants submitting responses to this RFPmay wish to review certain documents and data which will be used in developing the Leisure Services

.14.

111-3 Elements of Four Stages

Plan. Arrangements to do so may be made through the Department of Recreation and Public Affairs as identified in 11-4.

A. Fact Finding

Available documents and data include. but are not limited to:

The first stage in the planning process is to understand Duval County. an area of 800 square miles. Duval County includes the Consolidated City of Jacksonville and the municipalities of Baldwin, Atlantic Beach. Jacksonville Beach and Neptune Beach. Document~ from which data will be drawn are available from the Jacksonville Area Planning and include the 1980 Recreation Master Plan. The St. Johns River Study. and the Jacksonville 2005 Plan. recreation elements of the comprehensive plans for the cities of Jacksonvill Beach, Neptune Beach, Atlantic Beach and Baldwin should also be available. The responsibility of the consultant will be to incorporate these studies, which describe in detail the short and long term needs of the Jacksonville area. to form a viable comprehensive plan which can be realistically implemented. Additional information will be made available including data from the state of Florida and other agencies. Demographic information reflecting the Jacksonville population will be provided also.

1980 Recreation Master Plan. prepared by Jacksonville Area Planning Board St. Johns River Study. prepared by Jacksonville Area Planning Board Jacksonville 2005 Plan. prepared by Jacksonville Area Planning Board Recreation Element of the Comprehensive Plans for the Cities of Jacksonville Beach. Neptune Beach. Atlantic Beach and Baldwin Demographicinformation Geographical information including identification of available natural resources Inventory and description ities.

of existing

park facil-

The information above is available prior to and subsequent to the date proposals are to be received. All materials may be reviewed at the address given in Section 11-4, and the city official referenced in that section should be notified in the event you with to examine them. Due to the bulk of the information and expense of duplication. no materials will be mailed. Section III

- Componentsof the Recreation Plan

The Task Force on leisure Services will work with the consultant to identify the needs and desires of the citizens of Jacksonville. Various combinations of techniques for assessing the public's needs and wants may be employed. Assistance for this assignment will be available through the City and civic groups.

B. Program Development leisure

Services

The initial factors in the plan will be the feasibility of the study in terms of affordability and its vision and excitement. Based on communityneeds, the consultant will design a program which would emphasize the development of Jacksonville's natural assets including but not limited to, the river, its tributaries, marsh lands and the beaches. Emphasis 'should also be on improving existing facilities and utilizing natural areas that are distinctive to Jacksonville. All facilities should be designed with careful consideration for the maintenance required. Facilities should be planned and located where they will have the greatest impact, accessibility and use. ThoughJacksonville has much open space, it is located outside the areas of dense population. It will be important to locate facilities where the people are. Consultants who can document their success using ~ocio-

111-1 As stated,

the consultant will report to and be

assisted by a Task Force on leisure Services

appointed by the Mayorand chaired by the Mayor's designee. II 1-2 The consultant will provide services in four (4) stages as identified and outlined below: a) b) c) d)

Fact finding Program development Preliminary presentation Final document presentation

.15-

logical input or surveys will have advantage over a formula approach to planning.

Based on data obtained in the first phase of this study and on previous experience, the consultant will make recommendations to the Task Force on alternative strategies to maintain an adequate level of service and maintenance of existing facilities and of new improvements and services. The Task Force will decide on alternatives for the future operation, maintenance and development of various facilities. These alternatives will include the priorities for the development of various facilities, methods of financing and level of financing.

This is a leisure time activity plan. Open space, picnic facilities, scenic walks should be included in addition to actual capital improvements. The consultant should also design strategies for participation of private enterprise and for beautification of major arteries and areas along the river. Local, state, federal and private funding should be explored and assistance rendered to the appropriate officials to secure available funds.

c. Preliminary Presentation The concept of the Task Force approved alternatives for the plan will be presented in loose leaf form in at least 16 copies. The consultant will also prepare material for public presentation. All alternatives and the consequences of each are to be presented to the public and to the Task Force.

The consultant will also prepare a summary of operating cost with the Department of Recreation and Public Affairs related to the various phases of activities included in the study.

Based on specific recommendations of the consultant and decisions of the Task Force, the consultant will then prepare the final document.

The consultant will submit a schedule of improvements with corresponding cost for' development and operation for the various types of facilities to be incorporated in the plan.

~. ~~

ABOUT THE JACKSONVILLE COMMUNITY COUNCIL, INC. The Jacksonville Com;l\unity Council, Inc. is a non-profit broad based citizenorganization chartered in 1975. JCCI represents a merger of three former community groups:

JCCI functions primarily thr~ugh the volunteer citizen study committee process: A Program Committee from the JCCI membership recommends issu~s of community interest.

The Community Planning Council The Commission on Goals and Priorities for Human Services Delegates to the Jacksonville Community Planning Conference a t Amelia Island

Its .

and management

Study committee participants are recruited framJCC! membership and the community.

To build citizen competence and awareness participating

in community The Study Committee obtains a data base by means of regular meetings with responsible, knowledgeable resource persons, and staff research.

To strengthen and improve the capability of community institutions to serve citizens of the community.

When the fact finding the committee reaches makes recommendations final report.

To forecast emerging trends and opportunities that will impact life.

Study C01lll1ittee chairpersons teams are selected.

the

goals are:

in effectively affairs.

The JCCI Board of Managers approves issues of study for the year.

the quality of community

To act as a catalyst

for bringing

phase is completed, conclusions and as part of the

The report of the Study Committee is released to the public after consideration and approval by the Board of Managers.

together

decisio~akers. .lCCl is fundedby:

.JCCI members work to implement the recommendations of the report by communicating their findings to appropriate public officials and the community a t. large.

The United Yay of Jacksonville The Ci:ty 0 f Ja cksonville Gifts from private corporations Grants for specific research and evaluation projects

BOARD. OF MANAGERS

Robert D. Davis George Corrick Joan Carver Eleanor Ashby Jacquelyn Bates John Bryan Betty Carley Yank Coble

J. J. Daniel

President

President-Elect Secretary

Albert Ernest HowardGreenstein David Hicks Ken Johnson Daniel L. Lauray Flo Nell Ozell

.t7.

James Rinaman Robert Schellenberg Suzanne Schnabel Robert T. Shircliff Eddie Mae Steward

JCCI MEMBERSHIP

Edythe

James W. T.

Abdullah

H. Abernathy, Adam

Robert

Adams

Frank

Allcorn,

III.

Bannister

Ba rbee Barrett

L. Covey Crabb

Eartha

Gerald Howard

Bennett

Stephen Berry W. O. Birchfield Richard

Bizot

Crossen

Davis

George

Davis Dawkins

Bowers Boyd

Joseph Honey Dottie

J. Dodge Donziger Dorion

Boyer

Walter

Chyrlene

Mary-Louise

Bowman

W. Boyer, Brandvold

Jr.

Lew Brant ley Alexander Brest K.

Brooks Brown

Tally

Brown

Bryan

Shepard

Bryan,

Jr.

Bryant Bryant

Buchanan,

Jr.

Sherman Burgess James W. Burke

Hugh

Burnette Lee Byrd Byrts H. Caldwell

Carithers,

Betty Carley Joe Carlucci Tom Carpenter Da Ie Carson

Ernest

Jimmie

Farmer

James

Jr.

Ferguson Ferguson

George Susan

R. Fisher Fisher

Fowler

Ginger George

Frailey A. Frank

Moses Robert Frank Diana

Marvin

William Judith

Sears Segraves

Isabella

5. Mathias, Ann lt8ttison

Jr.

Sharpe

Sandra Robert Mary

May

L. Clifford Mayfield, Donald McClure

Douglas

Jr.

Holzendorf

L. T. Lou

Sheppard Shircliff Short

George Charles Frances

Shuman Simmons, Simmons

Sylvia Kenneth

Simmons M. Smith

III

R. Myers

David

Steve

Pajcic

William

Jackson Jackson

Jackson

Jefferson

Andrew

Johann E.

Kenneth

Johnson

Morton

Kesler

Charles E. Ira Koger

King

Margaret Koscielny Daniel Kossoff Julie

FIo

Nell

Ozell Padgett

Espie Jesse Pam

Kuntz

Petersen

Alice

Phelan

Brenda Priestly Ann Radwan

Earle C. Traynham Israel Tribble Arnold Tritt Darlene Tye B. J. Walker

Welch,

Jim

Wells Weston-Jones

Co by R. White Susan Whitesides Margaret Abel Wiegand Walter Williams, Jr.

Reagan

Courtenay Hugh

Reid Regier

Jr.

Al Wells

G. W.

Jr.

Taylor

Bobby Jarold

Tanzler,

Terbrueggen

Harry

Wilson

Stephen

Wise

Mac Reigger Franklin Reinstine

Wayne Julie

Wood Woodruff

De I Reve Is

Rene'

Woodward

Robert

Gloria

Rinaman

James

.18~ .

Julia

Dick

Paul

Mary

Chadwick

John

Patrinely L. Patterson

Trinita

Sulzbacher S.wain Tamplin

Larry Weas Thomas E. Weaver

Ted Pappas Gene Parks

Johnson

William L. Johnson Silas E. Jones

Hans

Mari

Linda

David Marcus

Jack Nooney Maria O'Hearn

Inman Jackson

Sulzbacher

William

Kitty Albert

Jesse

Jr.

Louis C. Myers Rod M. Nicol

Michael S. O'Leary Prime F. Osborn.

Jackson

I. H.

Minter

Edmond J. Moran, Max K. Morris E. Ronal Mudd

H. Stallings A. Stern

Eddie Mae Steward John J. Sulik

John P. Minahan Don Miner Charlotte

Snyder

Johnnie Robert

Milne

J. Earl Huntley Rodney L. Hurst

Lilliam

Jr.

F. Mikulas

James

IIi11,

Helen Hoekenga Wendell P. Holmes

Diane

Freeman, Jr. O. Freeman Friedman, S. Furr

Helms

Marl lyn Jacobs Judy Jacobson

Beaulah M. Flournoy Robert Flowers Joe Forshee Tillie

Hartwell Haskell

Hattie

D. Farrell G. Fenn

Emmett

Harris

Henry Hicks

Betty

Farr

Ronnie

Rosanne Preston

James David

Fant

Drema

Ha rre 11

Tom Healy Charles G.

Doyle DuBose J. DuBow

Albert

Vivian Richard

Julie Buckingham John Bunker

Johnnie Samuel William

III.

Dorman

Paul C. Ruby R. Lawrence

William

Bobbie-Sue Miller Gene Mi ller

Harrell

Wi 11 iam Thomas

Betsy Dunlap Connie Edgar Ken Ellermann

Brill T.

Dawkins

Hamm

Harmon

David

Clinton

Wayne

R. Hadwin Hair

Davis

DiGiusto,

Alice Mattox

Bruce Manning Richard C. Martin

John Stafford, Jr. William Stainback

Grubbs

Robert

Frederick

Schultz

Isabelle

Joseph

Kevin

Black H. Black Boone

Fred

Tim Mann

Leonard Spearman Mary Spuhter

Davis

C. Lyon, Jr. Norman Maida

Meltonia

Grimes

Schellenberg

Harry Schnabel Suzanne Schnabel

Nancy

Louis

Greenstein

Robert

Lyles

Garry Merritt Wil liam Merwin

Daniel

Bower

Howard Anne

George Longworth Jean Ludlow

James T. McGibony Anne G. McIntosh

Bruce

Cec ilia Ezekiel

Green Greene

Rowan

Dickinson

Roy G. Arnett

Grant

Herbert Sang Frank Satchel

Dale

Madelyn Levin Earl Lewis

Dake

Edward

John

Grant

Rhoda Rosenberg Anne Ross

J. Leighty M. Lester

Wilford George

Roberts Robinson

Walter

Marian

Alice

Lynwood Andrew

Jr.

Jane McCullagh Martha McGee

James

Vera

Marvin

Bonnie M. Pat Hannan

Gold

Graess

Melinda Jessie

Lee,

Mary Loftin Grimes Richard G. Groff

Borland

Clanzel

Gloster

Davis

Forrest

Jack

Royce

Godbold

II. Bolte

Geiger

Beth Rio

Laird

Dahl

James

Janis

Ormond

Arthur

Tyrie D. C.

Elwood

Black

Margaret Murray Susan

Joseph Cullen Earl T .Cu lUns

Luann

William

Lois

Crawford

Garlington Gefter

Herbert

Crews Crittenden

Robert

Sallie Judith

Jake

Richard Nancie

Jacquelyn Bates C. Ro~ald Belton Erica Bennett

Lauray

James

Corrick Cosby

Gerald L. E.

Sharon paniel

Sue Giddings James Gilmore

Cooke

Gaillard

Marvin.Ganson

Carolyn Gentry Margaret Gibbs Harold Gibson

Cook

William

Batchelder

Cole Cone

Cook

George

Bald

W. Ray Martha Judy

Daniel

Genie

Eleanor Ashby Joe Ba lley Ann Baker Ronald

Castle

William

Anderson Ansbacher

Barbara

Daniel

Oec il

Alligood

Harry Sybil

John

Carter

Carver

Corine

Alexander

Robert

Joan

James P. Citrano Yank Coble

Gary Adler Jo Alexander John

William Jr.

Richard

Rinaman

Claude

Yates

R. P. T. Young Barbara Zimmerman