Parks & Recreation July 2021 by Creative By Design

J U LY 2021 N R PA .O RG

PARK AND RECREATION MONTH THE POWER OF AN IMAGE

A FATHER AND SON SHARE THEIR PARK STORY A Path to Diversity, Equity and Inclusion Why Tennis Is Attracting New Players

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Menominee Park Oshkosh, WI

Playgrounds That Move Us

Destination Play Oshkosh, WI is full of life with festivals, lakes and parks throughout the city. It’s a destination full of play opportunities and Menominee Park is a destination within a destination. As one of the 2020 Playgrounds That Moves Us, this park has it all - a zoo, a beach, sports fields and this incredible new play environment designed by the Oshkosh Parks Department and Lee Recreation. Let’s make play the destination and the journey. The Time is Now to Join Our Movement.

Learn more at bciburke.com/menominee

2020

contentsjuly 2021

Craig Pattenaude, marketing and communicatiions specialist for Cosumnes Community Services District, photographs local residents and families in the district’s parks to show what the parks mean to community members.

FEATURES

36 Telling ‘Our Park and Recreation Story’ Cort Jones

This Park and Recreation Month, we are amplifying stories that share the vast impacts that parks and recreation has on people — including this story from our cover contest winner, Cosumnes Community Services District.

Parks & Recreation

42 Diversity, Equity and Inclusion: A Personal Journey Autumn Saxton-Ross

Saxton-Ross shares her personal experiences with the outdoors to showcase how parks have been used to exclude and otherize, and how we can harness the full power of parks to create welcoming, inclusive spaces.

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46 Tennis Holds Court in a Pandemic

Arthur Kapetanakis and Victoria Chiesa

Learn how interest in tennis grew and participation in the sport increased as tennis proved to be one of the few safe activities during the coronavirus (COVID-19) pandemic.

PHOTO COURTESY OF CRAIG PATTENAUDE, COSUMNES COMMUNITY SERVICES DISTRICT

volume 56 | number 7 | parksandrecreation.org

WE COME BACK TO PLAY. Remember the moments that got your heart racing? Your imagination swirling? Your body moving? Our best moments—the moments that define our childhoods—begin in play. That’s why we always come back to it.

Watch our newest video and find inspiration for your play spaces at playlsi.com/shapedbyplay

columns

contents july

Perspectives Our Park and Recreation Story Kristine Stratton

departments

10 Editor’s Letter Park and Recreation Month Resonates With People Vitisia Paynich

12 We Are Parks and Recreation Outdoor Programming for Any Department 12 Member Benefit: Join the NRPA Young Professional Network! 16

20 Finance for the Field Coproduction: Partnering With Nonprofit Organizations to Deliver Services John L. Crompton, Ph.D.

18 Research NRPA Releases 2021 NRPA Park and Recreation Salary Survey Report Melissa May

22 Advocacy Common Cents: The Economic Argument for Parks and Recreation Dan McCarthy

19 Park Pulse Communities Value Park and Recreation Infrastructure

24 Health and Wellness

50 Operations

The Importance of Inclusion and Access in Youth Sports Teresa Morrissey and Maureen Neumann

How Parks and Recreation Safely Brought Back Aquatics Programming Jennifer Kansanback

26 Equity Paws and Recreation: Creating Inclusion With Service Dogs Hannah Cooper

51 Park Essentials 55 Advertiser Index

28 Conservation Bernalillo County Benefits From NRPA Programs Kali Bronson

56 Park Bench Environmentalist Pitches Bison Bridge Idea for Interstate 80 Crossing Jennifer DeWitt

30 Law Review Park Homeless Encampment Closure During COVID-19 Pandemic James C. Kozlowski, J.D., Ph.D.

Cover image: Photo courtesy of Craig Pattenaude, Cosumnes Community Services District

Parks & Recreation is printed using soy ink on at least 10 percent post-consumer recycled paper and is mailed in a wrap — only when required — that is plant based and certified compostable. If you are interested in helping us go even greener, email us at prmagazine@nrpa.org and ask to opt out of receiving the print magazine. Parks & Recreation is always available to read in an ezine format at ezine.nrpa.org.

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PHOTO COURTESY OF NEW HORIZONS SERVICE DOGS, INC.

Service dogs help enhance the abilities of their handlers and provide equitable access to a service being provided to a community.

Page 26

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P E R S P E C T I V E S A M E S S A G E F R O M N R P A’ S L E A D E R S

Our Park and Recreation Story As the favorite perennial issue of the magazine, this July we celebrate Park and Recreation Month — the most glorious time of year for parks and recreation! This year’s theme, “Our Park and Recreation Story,” is sure to bring out countless wonderful stories. From walking and hiking our public trails to playing sports to gathering for summer camps and summer picnics to going on trips to community gardens and farmers markets, we are all filled with the abundance that parks and recreation offer. And, we are creating new park and recreation stories every day. Recently, I’ve had the pleasure of hearing park and recreation stories everywhere I turned. For example, there was the person who delivered siding to my house. Once he saw my parks and recreation logo, he immediately began asking questions about NRPA and sharing how much parks and recreation have meant to him and his family. And, there was the bank loan officer who assisted me with my mortgage refinancing. After I had explained to him what NRPA does, he replied, “that’s the coolest thing I’ve heard....” He then launched into describing all the fantastic parks and outdoor recreation opportunities his community in Ohio offers. Our park and recreation stories are embedded in why professionals joined this field and stuck with it. Recently, I had the honor of meeting Gorham Recreation Department Director Cindy Hazelton in Gorham, Maine, and her team. In her 30 years of doing this work, she’s been motivated by the opportunity to serve the community, to help kids and adults alike stay healthy, and to find creative ways to solve problems and engage people in her community. One fun example she shared was an immersive summer camp that she developed to help kids learn about emergency services — 911 Summer Camp (tinyurl.com/33629anf). Another renowned leader in this field who is always a joy to talk with is the incomparable storyteller Jodie Adams. She has been a passionate advocate for cap-

Parks & Recreation

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turing stories from across the field of park and recreation professionals and is in conversation with NRPA about an oral history project to do just that. One of her signature lines that captures the spirit of the park and recreation profession is “Go for it!” Going for it — creating great spaces, programs and communities — is the foundation of the stories we hold dear. In keeping with the story theme, we have a special treat for this year’s Park and Recreation Month — a crowdsourced, community poem created by the renowned poet, educator and author Kwame Alexander. Our project launch conversation revealed that he, too, has a park and recreation story. His story was rooted in “the rec,” where he would go after school to meet up with his friends and play. He described it as a place where he was understood, accepted and free to be himself. It seems to me that his story is so often our shared story. My park and recreation story started with “programs at the playground.” I had the chance to play, craft and learn new things, all while feeling safe and free to be myself. That opportunity to play, explore, express oneself, and feel safe, free, seen and supported is something — valuable beyond measure. Our local governments, and by extension our park and recreation departments, are required to put a price on that, of course. And yet, as we immerse ourselves in all that summer in parks and recreation has to offer, I hope that we recognize that these memories we are creating are truly priceless. Telling “Our Park and Recreation Story” (nrpa.org/July) helps us show our advocates and elected officials that these priceless stories — the ones that shape our lives and enrich our communities — are stories that deserve investment. The longterm payoff is immeasurable. Borrowing from last year’s Park and Recreation Month theme, let me remind you that at parks and recreation, we are strong, we are confident, we are selfless, we are passionate, we are driven, we are essential, and THIS IS OUR STORY.

KRISTINE STR AT TON President and CEO

2377 Belmont Ridge Rd. | Ashburn, VA 20148 2 703.858.0784 | nrpa.org

NRPA’S MISSION: To advance parks, recreation and environmental conservation efforts that enhance the quality of life for all people. EXECUTIVE COMMITTEE Chair of the Board of Directors Michael P. Kelly

Chicago Park District Chicago, Illinois

Gurnee Park District Gurnee, Illinois

Past Chair Jack Kardys J. Kardys Strategies Miami, Florida

Treasurer Xavier D. Urrutia Alamo Colleges District San Antonio, Texas

Secretary Nonet T. Sykes

Susie Kuruvilla

Joanna Lombard University of Miami School of Architecture; Miller School of Medicine Department of Public Health Sciences Miami, Florida

Carolyn McKnight-Fredd, CPRP Eagle Methods Management Consulting Dallas, Texas

Joshua Medeiros, Ed.D., CPRP, AFO

Atlanta Beltline, Inc. Atlanta, Georgia

City of Bristol Parks & Recreation Bristol, Connecticut

At Large Carolyn McKnight-Fredd, CPRP

Nonet T. Sykes

Eagle Methods Management Consulting Dallas, Texas

At Large Mike Abbaté, FASLA, LEED AP Abbaté Designs Portland, Oregon

President and CEO Kristine Stratton, Ex Officio

Atlanta Beltline, Inc. Atlanta, Georgia

Xavier D. Urrutia Alamo Colleges District San Antonio, Texas

Lakita Watson, CPRP Richland County Recreation Commission Columbia, South Carolina

National Recreation and Park Association Ashburn, Virginia

Greg A. Weitzel, M.S., CPRP

BOARD OF DIRECTORS Michael Abbaté, FASLA, LEED AP

Philip Wu, M.D.

Abbaté Designs Portland, Oregon

Kathy Abbott Boston Harbor Now Boston, Massachusetts

Jesús Aguirre, CPRE Seattle Parks and Recreation Seattle, Washington

Jose Felix Diaz Ballard Partners Miami, Florida

City of Las Vegas Parks and Recreation Las Vegas, Nevada

LIFE TRUSTEES Beverly D. Chrisman Lexington, South Carolina

Anne S. Close Fort Mill, South Carolina

James H. Evans New York, New York

Rosemary Hall Evans Sugar Hill, New Hampshire

Dover, Kohl & Partners Town Planning South Miami, Florida

Earl T. Groves Gastonia, North Carolina

Angelou Ezeilo

Charles E. Hartsoe, Ph.D.

Richard Gulley San Diego Parks and Recreation San Diego, California

Monica Hobbs Vinluan

Richmond, Virginia

Harry G. Haskell, Jr.

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Chadds Ford, Pennsylvania

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Mendham, New Jersey

Robert Wood Johnson Foundation Ashburn, Virginia

Perry J. Segura

Jack Kardys

R. Dean Tice

J. Kardys Strategies Miami, Florida

Round Hill, Virginia

Eugene A. Young, CPRP

Michael P. Kelly

Baton Rouge, Louisiana

IT'S IN THE BAG!

(Retired) Kaiser Permanente Northwest Region Portland, Oregon

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Greening Youth Foundation Atlanta, Georgia

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Parks & Recreation

EDITOR’S LET TER

Park and Recreation Month Resonates With People This month’s Park and Recreation Month issue had me reflecting on my own personal connection to the field. I remember vividly as an 8-year-old, feeling excited as I put on my shiny new tap shoes and walked across the floor on the first day of dance class at my local recreation center. I also recall my first dance instructor, Mrs. Romagnino, who not only embodied grace and talent, but also truly inspired all the little girls in her class to keep practicing and never stop believing in ourselves. Even as an adult, I never forgot her or the impact she had on my life. For that, I am truly grateful to have been a Park and Rec Kid! In the cover story, “Telling ‘Our Park and Recreation Story,’” on page 36, Cort Jones, NRPA’s manager of strategic communications, not only highlights the winner of the 2021 Park and Recreation Month cover contest, Cosumnes Community Services District (CSD) in Elk Grove, California, but also shares a very personal story of two frequent visitors to the district’s Camden Park — David Phommavong and his son, Khuan, who has moderate-to-severe autism spectrum disorder. “It’s almost paradise,” says David Phommavong. “I talk about us taking a walk in Camden Park as a sort of ‘Garden of Eden.’ My son is able to interact with the environment in a threedimensional world, away from the screen. He’s able to walk around the park without feeling like he’s being chased by a tiger.” Craig Pattenaude, marketing and communications specialist for Cosumnes CSD, got to know the Phommavongs while working on a photography project about park visitors; his photo of Khuan enjoying the calming, natural environment earned the district this month’s cover. I also would like to thank our sponsors, Merrell and ACTIVE Network, for making this year’s Park and Recreation Month possible. NRPA Vice President of Education and Chief Equity Officer Autumn Saxton-Ross shares her own story about diversity, equity and inclusion (DEI) relative to the outdoors in the feature article, “Diversity, Equity and Inclusion: A Personal Journey,” on page 42. Her own experiences and insights offer context to NRPA’s newly released DEI resources and framework for action. Lastly, in the feature story, “Tennis Holds Court in a Pandemic,” on page 46, authors Arthur Kapetanakis and Victoria Chiesa provide an in-depth look at the uptick in new players that this sport experienced during the height of the coronavirus (COVID-19) outbreak. “Even though we continue to face challenges, it’s evident that many people recognize tennis as the ideal socialdistancing sport, which puts it in a great position to continue to grow and allow people to stay active and social in a healthy and safe manner,” says Michael Dowse, chief executive officer and executive director of the United States Tennis Association. As you celebrate Park and Recreation Month with your communities, please remember that without your dedication to your constituents, we wouldn’t have these wonderful park and recreation stories from the field. Your work resonates with people and creates lifelong memories.

VITISIA “VI” PAYNICH Executive Editor Print and Online Content 10 Parks & Recreation

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PRESIDENT AND CEO Kristine Stratton VICE PRESIDENT OF COMMUNICATIONS AND CHIEF MARKETING OFFICER Gina Mullins-Cohen gcohen@nrpa.org EXECUTIVE EDITOR AND DIRECTOR OF PRINT AND ONLINE CONTENT Vitisia Paynich vpaynich@nrpa.org ASSOCIATE EDITOR Lindsay Hogeboom lhogeboom@nrpa.org MANAGER OF ONLINE CONTENT Jennifer Fulcher-Nguyen jnguyen@nrpa.org PUBLICATION DESIGN Kim Mabon/Creative By Design CreativeByDesign.net SENIOR CORPORATE DEVELOPMENT OFFICER Michelle Dellner 949.248.1057 mdellner@nrpa.org DEVELOPMENT COORDINATOR Meghan Fredriksen 703.858.2190 mfredriksen@nrpa.org PHOTOGRAPHY Dreamstime.com or NRPA (unless otherwise noted) MAGAZINE ADVISORY BOARD MEMBERS Anthony-Paul Diaz, Chair Michael Abbaté, FASLA Neelay Bhatt Ryan Eaker Beau Fieldsend Kathleen Gibi Paul Gilbert, CPRP Tim Herd, CPRE Brian Johnson, CPSI Denise Johnson-Caldwell Roslyn Johnson, CPRP Michele Lemons Sam Mendelsohn Maria Nardi Lisa Paradis, CPRP Paula Sliefert Shonnda Smith, CPRP, AFO Ronnetta Spalding Anne-Marie Spencer Stephen Springs

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WE ARE PARKS AND RECREATION Outdoor Programming for Any Department By Jared Barkley, CPRP

s a result of the coronavirus (COVID-19) stay-at-home orders many parts of the country experienced last year, people of all ages and backgrounds found themselves longing to be outdoors and socializing with others. After all, one could argue that it is what we were created to do. As agencies begin to reopen and look at phasing in program opportunities, you may find yourself looking to “strike while the iron is hot,” as community members are looking for outdoor opportunities.

PHOTO COURTESY OF JARED BARKLEY

Outdoor programs in your community not only benefit participants’ health and wellness, but also benefit the health of the community through sharing a common experience with neighbors from other backgrounds. Moreover, outdoor programs also can benefit the health of the land. We live in an age where

Parks & Recreation

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individuals are likely to know more about the Amazon rainforest from being taught about it in school than their local national forest or state park. As Richard Louv puts it in his book, Last Child in the Woods, “...People are unlikely to value what they cannot name.” The land benefits from people learning more

about the resources surrounding the places they live and how to conserve and care for them. What would it take to start an outdoor program that balances experience with education within your agency that might also be cash-strapped and facing budget challenges? First, you will need to identify a staff member who is enthusiastic about the great outdoors. It is a wonderful asset to your community if your local agency employs someone with a background in biology or environmental science, but this is not a necessity. The re-

People participate in a Fly Fishing 101 class at Lamar Park in Oxford, Mississippi.

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W E A R E P A R K S A N D R E C R E AT I O N

ality is that few people have that background and presently work at

PHOTO COURTESY OF ROBERT JORDAN

PHOTO COURTESY OF JOHN DAVIS

An individual from the University of Mississippi Army ROTC (Reserve Officers’ Training Corps) leads an intro to land navigation course at the university's South Campus trails.

Parks & Recreation

Anytown, USA, Park and Recreation Department. If you are wondering how someone with no formal biology education, who possesses only a layman’s knowledge of the outdoors, can develop meaningful outdoor

programs for their community, partnerships are the answer. Consider the geographic location of your agency — what national or state park is located nearby? Do you have a U.S. Fish and Wildlife Service Refuge, U.S. Army Corps of Engineers, or national forest property nearby? At most of these agencies, you can find someone on staff who has an intimate knowledge of the land and the flora and fauna. These individuals are passionate about what they do (just as you and I are) and are more than likely happy to partner on a hike or workshop that opens up the nearby natural world to your community members. Now, take an even closer look at the resources in your community. You may find nonprofit organizations or knowledgeable locals that could lead to valuable partnership opportunities. For example, for my agency — the Oxford (Mississippi) Park Commission — in addition to our relationship with the local agencies, we have been able to partner with our local Audubon Center for birding hikes, a local fishing club for a fly fishing and fly tying class, and a local native plant specialist to lead identification and environmental education hikes on public lands. Another important partnership we have is with the local university where we partner to use gear rental from their outdoor department. We have even partnered with the Army ROTC (Reserve Officers’ Training Corps) for a popular land navigation course that took place on local trails. If you do not have a nearby university, Children participate in a bird banding program at Strawberry Plains Audubon Center in Holly Springs, Mississippi.

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Sensory meets science.

Miracle Museum ®

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Explore the Museum today! Scan the QR code to watch the Miracle Museum video, then visit our website for more details, including specifications. Miracle-Recreation.com/Museum

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Member Benefit: Join the NRPA Young Professional Network! By Brittany Jones

PHOTO COURTESY OF MEGHAN BARKLEY

U.S. Army Corps of Engineers Ranger Shea Staten leads a pollinator and native plant hike at Sardis Lake in Mississippi.

perhaps there is a nearby camp that may offer gear rental in the offseason or even a National Guard unit to offer land navigation or other workshops. Another benefit to partnering is it takes the pressure off of the programmer to try to fit every learning opportunity into one program. In addition, it provides a variety of program opportunities to returning participants. Nature can be found in any landscape, in any corner of the country. Likewise, our communities are full of people who are passionate to share their knowledge and love of nature with the greater community. Jared Barkley, CPRP, is Program Director for Oxford (Mississippi) Park Commission (jared@ oxfordparkcommission.com). 16

Parks & Recreation

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f the coronavirus (COVID-19) pandemic has taught us anything, it’s that we all have the ability to adapt and change course. But as park and recreation professionals, we already have mastered that skill! From rained out events to budgetary restrictions, learning to adapt is almost a prerequisite to the job. However, we know those skills didn’t come overnight, and for a young professional, it can be a string of tough lessons to learn without support and guidance. That’s where the NRPA Young Professional Network (YPN) really shines. A national support group of young professionals from small towns to large urban cities, the YPN is open to park and recreation students and young professionals ages 35 and younger. This is not your mom and dad’s networking group. These are early adopters who are ready to coach you through the steps of running an esports league, explain what Clubhouse is and how you can use it, provide real-world advice on certifications to assist you in your career development, and more. The YPN hosts a monthly virtual conference call to discuss topics, like social media marketing, summer camps, diversity training or how to transition from being a student to a professional. In addition to these group learning opportunities, the YPN keeps its members informed of opportunities offered in the field, including webinars and grant opportunities offered by NRPA. The best part of the YPN is the collective passion that each of its members bring to what they do. The inaugural 30 Under 30 is a recent initiative created by the YPN and Parks & Recreation magazine to celebrate 30 top young professionals who are making their mark in their respective communities. These young professionals know it’s important to work hard and reward your hard work with a little fun. The group hosts monthly social nights for its members that include trivia nights and esports tournaments. During a year when we all seem to be further apart, the YPN has been able to keep its members feeling connected and supported. Find out how you can get involved and learn more about upcoming conference calls, volunteer opportunities and resources by visiting connect.nrpa.org/YPN. Brittany Jones is the Communications and Equity Manager for Safe Routes Partnership and Co-Chair of NRPA’s Young Professional Network.

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RESEARCH NRPA Releases 2021 NRPA Park and Recreation Salary Survey Report By Melissa May

assionate and dedicated park and recreation professionals transform our cities, towns and counties into vibrant, healthy communities. The U.S. Bureau of Labor Statistics estimates that there were more than 163,000 full-time employees of local park and recreation agencies throughout the United States in 2019, with several hundred thousand more part-time and seasonal workers. It is these skilled teams that program events, maintain facilities and ensure that every member of the community can access and enjoy all that their local park and recreation agencies have to offer. While the coronavirus (COVID-19) pandemic has had a significant effect on the labor market, many agencies continue to face a competitive market for skilled employees. Comprehensive compensation data informs park and recreation agency leaders on how to attract the best staff. Such data also can give park and recreation professionals insights about salary and benefits offered by potential employers. That is where the 2021 NRPA Park and Recreation Salary Survey comes in. This year’s report features compensation data of 10 commonly found positions at park and recreation agencies and details general information about benefits and salary policies. The 2021 NRPA Park and Recreation Salary Survey report features detailed base salary and bonus data for 10 typical park and recreation agency positions. Of course, no two park and recreation agencies are exactly alike, and neither are the compensation packages they offer their teams. This report presents compensation data by agency size, type

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and certain demographic characteristics of incumbents in the positions (e.g., education, certifications and years in the profession). The analysis also examines factors that determine pay raises and bonuses (if offered) and highlights other benefits that comprise the full compensation package for park and recreation professionals. Compensation is more than just base salaries. Benefits can greatly increase the full financial value of an employee’s remuneration. Employee benefits — including paid vacation and sick leave, maternity/paternity leave, health and dental insurance, and retirement plans — can put thousands of additional dollars into workers’ pockets and improve their standard of living. Part-time and seasonal workers are essential contributors to park and recreation agencies’ ability to deliver services and amenities to their communities. In many cases, these positions are the first job for young adults entering the workforce. This report examines minimum wage policies, including the percentage of agencies that

pay federal minimum wage, match a locality’s and/or state’s minimum wage that is higher than federal, and pay higher than their locality’s and/or state’s minimum wage. The success of park and recreation agencies would not be possible without the dedication of the tireless professionals who serve these agencies. The ability to make a real difference in their communities is what draws many park and recreation professionals to this work. At the same time, competitive compensation packages — including base salaries and benefits — are critical in attracting and retaining the best employees. Armed with information, such as the compensation data and sample job descriptions presented in the 2021 NRPA Park and Recreation Salary Survey report, park and recreation agencies can recruit and retain highly qualified professionals to ensure that those agencies best serve their communities. In early summer, the executive summary of the 2021 NRPA Park and Recreation Salary Survey will be available on the NRPA website (nrpa. org/SalarySurvey). The full report, comprehensive salary data, sample job descriptions, sample organization charts and an online discussion group will be available through NRPA Connect (connect.nrpa.org). Melissa May is NRPA’s Senior Research Manager (mmay@nrpa.org).

NRPA PARK PULSE

Communities Value Park and Recreation Infrastructure

Nearly all (92%) U.S. adults say it is important for their local government to invest in community infrastructure, including:

Community centers Recreation centers

Senior centers Parks

Seven in 10 people agree this community infrastructure is extremely or very important.

Each month, through a poll of 1,000 U.S. residents focused on park and recreation issues, NRPA Park Pulse helps tell the park and recreation story. Questions span from the serious to the more lighthearted. The survey was conducted by Wakefield Research (www.wakefieldresearch.com).

Visit nrpa.org/ParkPulse for more information.

FINANCE FOR THE FIELD Coproduction: Partnering With Nonprofit Organizations to Deliver Services By John L. Crompton, Ph.D.

he central principle of coproduction is that individuals or community groups participate jointly with a public agency in the production of park and recreation services from which they or their families are the direct beneficiaries. Typically, a nonprofit community group and an agency sign a formal agreement to pool their complementary resources to deliver the desired service.

Coproduction offers a vehicle for minimizing the impact of budget cuts on service delivery.

Most frequently, the arrangement takes the form of an agency providing a facility, equipment or a financial subsidy, while the group’s resources are mobilized to produce the programmatic element. Typical coproducing organizations include athletic clubs (e.g., Little League, soccer, softball), performing and cultural arts groups, senior citizen clubs, and neighborhood associations. The negative impact of the pandemic on sales and property taxes, which constitute the major revenue sources for most local governments, inevitably means many park and recreation agencies are facing major reductions in their budgets that are likely to extend throughout the next few years.

The Benefits of Coproduction Coproduction offers a vehicle for 20 Parks & Recreation

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minimizing the impact of budget cuts on service delivery by developing strategies for transitioning the programming element of these services to the groups that benefit from them. In my own city, Little League, a number of adult and youth soccer clubs, swim teams, and youth sport traveling teams organize their programs, while the city provides and schedules facilities for them. In the arts field, the city provides a small amount of annual financial assistance, but the arts groups take responsibility for constructing their facilities and their programming. However, there are other services in which the programming remains the city’s responsibility (e.g., youth and adult softball, youth basketball, youth football, youth volleyball, adult kickball, and adult tennis). The annual net cost to the city of directly delivering these programs equates to the cost of employing about five police officers. If the city’s general fund requires trade-offs between these programs or reducing the number of police officers, it seems unlikely these programs will survive. Removing these subsidies from the general fund by transitioning responsibility for programming to community groups, as they do in the other programs, provides a financial pathway for them to survive and thrive.

While cost reductions may be the stimulus for more intentionally embracing coproduction partnerships, there are five other associated benefits that resonate with a park and recreation agency’s mission: rebuilding an ethos; building empathy for government and the agency’s mission; enhanced responsiveness; use of citizens’ talents; and enhanced opportunities to socialize. It is often suggested that selfreliance is an American ethos — part of our country’s heritage, cultural tradition and personality. President Ronald Reagan alluded to this, saying, “We have let government take away many things we once considered were really ours to do voluntarily out of the goodness of our hearts and a sense of community pride and neighborliness.” From this perspective, it might be argued that the ‘municipalization’ of programs represents a threat to the country’s character, and coproduction restores voluntary action to its rightful place in the American ethos. Coproduction has the potential to counter the distrust, apathy and indifference that pervades contemporary civic life. The engagement of participant groups may cement personal relationships with staff; give the group members a heightened appreciation for the quality of the services offered and the effort invested by employees; lead to a greater awareness of the content, costs and limited capacity of an agency’s service; increase group members’ selfconfidence in becoming involved with

government; and heighten awareness of a participating member’s own and their group’s potential political potency in supporting the park and recreation agency.

The Importance of Social Interaction Even when intentions are good, the inertia of the status quo combined with the expediency of administrative convenience may result in inflexibility and a lack of responsiveness. Sometimes, professionals assume they know the needs of their clienteles without soliciting regular detailed feedback from target groups. Coproduction forces regular direct communication and may enhance responsiveness to a user group’s changing needs and preferences.

Every community has enthusiasts whose specialized experience and skills in specific recreation activities exceeds those available among an agency’s personnel. Typically, organizations regularly turn over their leadership. This enables leaders to avoid the burnout that sometimes afflicts agency staff who have longterm responsibility for a particular program. The group’s ownership of the service and the authority that empowers its leaders to direct the service for this relatively short period encourage the injection of high energy, new ideas and creativity. Enduring friendships are made through engaging jointly in projects with others in a person’s leisure, work, spiritual or civic milieus. Coproduction requires

individuals to work with others to plan, organize, fundraise, lead and deliver a service. This requires intense social interaction. When an agency directly delivers a service, individuals may derive some social benefit from using it. However, they are deprived of the opportunity to experience the deeper, intense relationships that may evolve from the interaction that coproduction necessitates. From this perspective, a policy of direct-service delivery, rather than coproduction, may be counterproductive. John L. Crompton, Ph.D., is a University Distinguished Professor, Regents Professor and Presidential Professor for Teaching Excellence in the Department of Recreation, Park and Tourism Sciences at Texas A&M University and an elected Councilmember for the City of College Station (jcrompton@tamu.edu).

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Parks & Recreation

ADVOCACY

As federal funding filters down to states and localities, local leaders will face difficult decisions about where and how to invest resources.

Common Cents: The Economic Argument for Parks and Recreation By Dan McCarthy

he past year has been challenging for many people in our communities, and park and recreation professionals have been on the frontlines providing essential services throughout the coronavirus (COVID-19) pandemic. As the pandemic begins to retreat into the rear-view mirror, elected officials have shifted their attention from immediate, emergency relief to more long-term investments into the security, resiliency and strength of communities.

Thanks to the efforts of park and recreation agencies throughout the United States, local park and recreation agencies generated $166 billion in economic activity and supported more than 1.1 million jobs in 2017...

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As federal funding filters down to states and localities, local leaders will face difficult decisions about where and how to invest resources. Organizations that helped meet the challenges of the last year — and those who will be vital to our collective recovery — should be prioritized to receive such funding. However, during challenging economic times, elected officials have traditionally looked to divert funding to orga-

nizations that can create quality jobs and jumpstart the local economy. While elected officials may not immediately think of park and recreation agencies as such entities, we beg to differ, and we have the data to prove it. Thanks to the efforts of park and recreation agencies throughout the United States, local park and recreation agencies generated $166 billion in economic activity and supported more than 1.1 million jobs in 2017, according to research conducted by NRPA and the Center for Regional Analysis at George Mason University (nrpa.org/EconomicImpact). This economic data highlights how investing in parks and recreation as a catalyst for recovery boosts eco-

nomic growth for local communities, making it an optimal return on investment for states and local municipalities. While nationwide-level data illustrates the collective impact we have as a profession, elected officials rightfully care about how their communities are affected. For that, we developed interactive charts that detail economic activity, employment figures and labor income generated by park and recreation agencies in each state. For example, Georgia generated nearly $5.5 billion in economic activity, supported more than 37,000 jobs, and more than $1.5 billion in salaries, wages and benefits in 2017 through the direct, indirect and induced

effects of operations and capital spending by local park and recreation agencies. Using this information can bolster your advocacy efforts for more resources, funding, support or anything your agency needs to fulfill its mission and continue to be an economic driver for your community. Recognize the strength of parks and recreation to bring people and communities together and invite people into your advocacy movement. Share this data and your agency’s story with local community groups to build systemwide support for your programs. When you start framing your budgetary asks with this kind of data, policymakers and elected of-

It’s clear that investments made in local and regional parks not only raise the standard of living in communities, but also spark activity that ripples throughout the economy. ficials at all levels of government should take notice. It’s clear that investments made in local and regional parks not only raise the standard of living in communities, but also spark activity that ripples throughout the economy. It’s just “common cents.” Dan McCarthy is NRPA’s Advocacy Manager (dmccarthy@nrpa.org).

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Parks & Recreation

HEALTH & WELLNESS

Research demonstrates that children engaged in youth sports are less likely to experience obesity and report lower levels of depression.

The Importance of Inclusion and Access in Youth Sports By Teresa Morrissey and Maureen Neumann

rganized and unorganized sports are a critical starting point in a young person’s lifelong journey toward an active and healthy lifestyle. Youth who engage in sports not only grow up more physically active, but also gain mental and social health benefits that follow them into adulthood. Research demonstrates that children engaged in youth sports are less likely to experience obesity, report lower levels of depression and perform better academically. According to the Aspen Institute’s Project Play (tinyurl.com/9tmsc9mc), participation in sports provides youth with increased opportunities to cultivate personal development and socioemotional skills, such as self-esteem, goal setting, positive communication and leadership. Despite the benefits of youth sports, these outcomes are not guaranteed for all kids. Many youth — particularly girls, LGBTQ+, Black, Indigenous, youth of color, youth living in low-income communities, and youth with disabilities — face additional barriers in accessing quality sports opportunities.

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Park and recreation professionals have the unique opportunity to be champions for inclusion in their communities, ensuring all kids can participate in meaningful sports opportunities that support their healthy development. According to an NRPA survey (nrpa.org/ YouthSportsReport), 86 percent of

park and recreation professionals believe it is their responsibility to contribute to a fair and just future by identifying and addressing inequities in access to youth sports. During the return to play following the coronavirus (COVID-19) pandemic (tinyurl.com/5fthkevk), which further exacerbated inequities in access to physical activity, we encourage the field of parks and recreation to center equity and inclusion as we welcome youth back into sports. NRPA spoke with colleagues from Special Olympics to uncover strategies promoting the inclusion of youth with disabilities in sports. As park and recreation agencies look to provide sports opportunities during and after COVID-19, they should follow guidance from the Centers for Disease Control and Prevention (CDC) (tinyurl. com/hcjtutn4) outlining safety measures to prevent the spread of COVID-19.

Promoting Inclusion in Youth Sports Embodying inclusion demands that no one is excluded or required to face additional rules or scrutiny to fairly and fully participate. Inclusive behaviors in youth sports provide opportunities and options to kids of all backgrounds, ages and abilities. Children who have a disability are 4.5 times less active and have obesity rates that are 38 percent higher than other youth, but often the biggest barrier for these youth is simply a lack of awareness about how to engage children with various abilities in physical activity. Recognizing that young people with disabilities do not often get a chance to play on their school’s sports teams, Special Olympics champions the Unified Sports program (tinyurl.com/24rz3j9d) to connect people with and without intellectual disabilities (ID) on the same team. This scalable social sports model brings together teams of similarly aged kids to practice and experience games that are challenging but fun in nature. Park and recreation professionals can be champions of unified sports models by offering opportunities for people of all backgrounds, ages and abilities to participate together. Through local Special Olympics programs (tiny url.com/43ub9v8u), park and recreation professionals can receive education and training on the various inclusive sports programs they can offer in their community.

als with an ID, the average loneliness prevalence was 44.74 percent (tinyurl.com/3hz7cah4). Now more than ever, it is essential that young people have the foundations of meaningful relationships, social connections and lasting support, so that they feel equipped to handle difficult times. These foundations not only support them during social isolation, but also prepare them for the discomfort that may come with reintegration into normal life. By creating meaningful and inclusive friendships, young people are taking steps to ensure social isolation — and the mental and physical health risks associated with them — is less prevalent. This means that children with and without IDs who feel supported may have longer, healthier and higher quality lives. For more information about inclusive health within parks and recreation, visit nrpa.org/ParksForInclusion. Teresa Morrissey (she/her) is a Program Manager of Park Access at NRPA (tmorrissey@nrpa.org). Maureen Neumann (she/her) is a Program Manager of Health and Wellness at NRPA (mneumann@nrpa.org).

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The Impact of Youth Sports on Athletes Sports help athletes deal with the highs and lows of life, helping kids learn about losing, winning and channeling emotions. Sports also foster a sense of belonging outside of school and the nuclear family. Research suggests that organized social activities, such as sports, can help facilitate social involvement of people with ID in the community (tinyurl.com/7vmz9npb). Because Unified Sports provides people with and without ID the opportunity to play on the same sports team, they create a space for friendships, physical activity and fun that might not have existed otherwise. “After we came back from our first [Unified Sports event], I saw kids interacting in the hallways, either just saying hi or giving a high five. And normally, these kids wouldn’t even talk to each other,” says a Special Olympics coach in Florida.

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EQUITY

Service dogs help enhance the abilities of their handlers and provide equitable access to a service being provided to a community.

Paws and Recreation: Creating Inclusion With Service Dogs By Hannah Cooper

s generations age, the use of service dogs is on the rise. As more and more visitors frequent our parks and facilities, so will service dogs. It is estimated that there are more than 500,000 service dogs in use currently in the United States, and that number is expected to rise. The Americans with Disabilities Act (ADA) and individual state statutes will determine the extent in which different types of service dogs have access to your facilities. As an industry, service dogs are often seen at senior/active adult centers, community centers, athletic/sports complexes and even playgrounds. These dogs help enhance the abilities of their handlers and provide equitable access to a service being provided to the community. Examples of different types of service dogs are seeing-eye dogs, diabetes alert dogs and mobility assistance dogs.

A service dog has full access and rights to all facilities, whereas an [emotional support animal] ESA has no public access, and a therapy/ facility dog only has access to the facility at which it is “working.” 26 Parks & Recreation

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Understand the Types of Working Dogs Service dogs are “task trained” dogs (of any breed) that enhance the ability of a person to participate in everyday opportunities. These are different than emotional support animals (ESA) or therapy /facility dogs. A service dog has full access and rights to all facilities, whereas an ESA has no public access, and a therapy/facility dog only has access to the facility at which it is “working.” For example, a service dog must be allowed on the pool deck with its handler, but the dog is not allowed to swim in the pool.

Know the Laws There are no “certifications” or

legal paperwork for service dogs. As service providers, the only questions one may ask their patrons visiting are: “Is that a service dog?” and “What service does it provide for you?” Employees may not ask for any medical paperwork or proof of a skill or task. A service dog is not required to have any type of vest nor identifying marks to be considered a working dog. The dog must be leashed or tethered to the handler at all times, unless it obstructs the handler. Handlers are liable for all damages if an accident occurs. The only way a facility can ask for a service dog to be removed is if the animal is not housebroken, or it is considered to be a direct threat to the health and safety of others. Allergies and fears of animals are not valid reasons to ask for a service dog to leave.

True service dogs are not a distraction. They are well-groomed and wellbehaved, and the general public is, oftentimes, unaware they are even there.

statutes. Understand your facility, county and city codes of ordinances, making sure that you are not violating the ability for someone to enjoy recreation just as everyone else. Train your employees to be comfortable answering questions from other patrons about dogs at a facility. True service dogs are not a distraction. They are wellgroomed, well-behaved and the general public is, oftentimes, unaware they are even there. The point of a service dog is to make life more equitable for the handler and for them to be able to enjoy everyday activities and services just like everyone else. They

want to enjoy the incredible programing, facilities and events that you are providing as a park and recreation professional! New Horizons Service Dogs, Inc., is a 501C(3) in Orange City, Florida, that provides task-trained service dogs to members of the community in need. Hannah Cooper is a Service Dog Trainer with New Horizons Service Dogs, Inc.

Open Conversations Service dog organizations provide new routes to community relationships and programming. Organizations that train service dogs are constantly looking for different types of “exposures” to make sure their dogs are ready for their future handlers. A senior center serves as a great place to host these trainings. For example, bringing a dog to a knitting club not only benefits the dog’s training, but also can brighten the day of your participants who may not be capable of caring for animals anymore.

Remember the Reason The first step to ensuring an inclusive environment for individuals who require service animals is to become familiar with the ADA guidelines, as well as your state

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Parks & Recreation

In 2018, Bernalillo County, New Mexico, was awarded an NRPA Great Urban Parks Campaign grant.

Bernalillo County Benefits From NRPA Programs Grant-funded project connects New Mexico community to a wildlife refuge By Kali Bronson

n 2018, Bernalillo County, New Mexico, which includes Albuquerque, was awarded one of 10 NRPA Great Urban Parks Campaign (GUPC) grants. The grant-funded project, Second Street Landscaping Project (Second Street Trail), enabled vegetation and green stormwater infrastructure (GSI) to be installed along this pre-existing trail. The trail is located in the Mountain View community, which is an environmentally overburdened and economically distressed neighborhood with mixed-use zoning. The mixed zoning within this community results in residents living adjacent to industrial areas, such as bulk-fuel terminals; Environmental Protection Agency-regulated sites; Atchison, Topeka and Santa Fe Railway Superfund site; auto recyclers; former agricultural facilities; current and former dairies; as well as the Southside Water Rec-

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lamation Plant. The Rio Grande, bordering this community to the west, is a major river flowing through the city, and is impaired for Escherichia coli (E. coli), with an established total maximum daily load for E. coli. The geographic setting of the south valley amplifies heat and results in thermal inversion, trapping air pollutants into low-lying areas.

Studies indicate that cities in arid climates are more vulnerable to heat island effects due to lack of permeable surfaces and limitations in water.

A Link to Nature The Mountain View neighborhood is a predominantly Hispanic and Spanish-speaking community, and the poorest census tract in Bernalillo County, according to a 2016 American Community Survey (tinyurl. com/ydhbvs7v). Joy Junction, a family homeless shelter located in the neighborhood that houses 300 men, women and children experiencing homelessness, is located south of the Albuquerque Southside Water Reclamation Plant.

PHOTO COURTESY OF KALI BRONSON

CONSERVATION

The Second Street Trail was installed to connect the Mountain View community, as well as the larger Albuquerque community, to the U.S. Fish and Wildlife Service Valle de Oro Urban Wildlife Refuge. Located seven miles south of downtown Albuquerque, the Valle de Oro refuge is the first urban wildlife refuge in the southwest. Many community partners, including Bernalillo County, recognized the value of having a wildlife refuge in our urban area and advocated, partnered, funded and supported its establishment. To connect the Mountain View community to the Valle de Oro refuge, the Second Street Trail, located between Second Street and the Atchison, Topeka and Santa Fe Railway, was installed — but the trail was exposed and lacked any kind of cover or vegetation. Tree canopy in the project area is less than 2 percent. This made consistent use of the trail, especially in the warm summer months, unappealing to residents. With support from NRPA in the form of the GUPC grant, Bernalillo County installed vegetation and other amenities, which provide green spaces and green stormwater infrastructure landscaping along the trail to mitigate existing air quality impacts, heat island effects, and contaminant and sediment transport into the Rio Grande — improving water quality and wildlife habitat. Although this neighborhood is adjacent to one of the largest green spaces in Albuquerque, the bosque (the riparian forest along the Rio Grande), just a few hundred feet from the river has heavy industrial uses mixed with res

idential areas and minimal tree canopy. This project connects the community to the Valle de Oro refuge and the bosque by making the trail more accessible by providing shade from native vegetation, as well as helping mitigate inequity in parks, trails and green spaces available to this underserved community. The Mountain View community came together in its request for improvements for the neighborhood due to lack of sidewalks, trails and crossings, limiting safe access to schools and park facilities. Walking for pedestrians and children is hazardous along Second Street. Thanks to this project, a vegetative barrier has been created between the trail and Second Street, improving pedestrian safety for all trail users. Economic and environmental justice issues disproportionately impact the Mountain View neighborhood. This project promotes green job opportunities through our partnership with the Rocky Mountain Youth Corps. Youth conservation crews will build and improve the Second Street corridor with vegetation and landscape maintenance, as well as conduct community education and outreach.

Overcoming the Challenges Green stormwater infrastructure (GSI)/low impact development (LID) facilities require specific maintenance practices with which many maintenance staff and practitioners may not be familiar. This, among other reasons, such as perceived increased costs, have been identified as impediments in the use of GSI in our communities.

This may be due to lack of training in the use of GSI/LID by project engineers and developers. This project has allowed the county to install a GSI facility and use it as an example of how and where to use and maintain GSI. Maintaining GSI features is essential to ensure its continued intended function, so features remain attractive and are viewed positively by the public. NRPA has promoted and supported the National Green Infrastructure Certification Program (NGICP) (previously through the Water Environment Federation, but now housed under EnviroCert International) to enhance the knowledge of GSI for park professionals. This program can be used for workforce development, to train staff and contractors, and to provide professional development opportunities. Although 2020 had its challenges, I was fortunate to apply for and receive a scholarship for the NGICP training program. This program improved my growing knowledge and understanding of GSI installation, functionality and maintenance. We needed this capacity within Bernalillo County as we push to include more GSI in public and private projects. As we incorporate more GSI features into our own projects, I am using this knowledge to ensure proper selection and installation, and to inform planning for GSI maintenance capacity as we work toward creating a more sustainable future in our watershed.

Kali Bronson is Stormwater Program Compliance Manager for Bernalillo County Natural Resource Services.

P A R K S A N D R E C R E AT I O N . O R G | J U LY 2 0 2 1 |

Parks & Recreation

L AW R EV I EW

Throughout 2020 and into 2021, federal courts have considered a number of challenges to public health emergency orders, including the closure of homeless encampments in public parks.

Park Homeless Encampment Closure During COVID-19 Pandemic By James C. Kozlowski, J.D., Ph.D.

he coronavirus (COVID-19) pandemic has exacerbated the public health challenges associated with homeless encampments in public parks. Throughout 2020 and continuing into 2021, federal courts have considered a number of challenges to public health emergency orders imposing restrictions and shutdown orders to control the pandemic, in particular the closure of homeless encampments in public parks. In the case of Santa Cruz Homeless v. Bernal, 2021 U.S. Dist. LEXIS 13839 (Dist. N.D. Calif. 1/20/2021), several organizations and individuals experiencing homelessness petitioned the federal district court to enjoin the implementation of an executive order by the City of Santa Cruz, California, to close homeless encampments in San Lorenzo Park and the Benchlands during “a time when the COVID-19 pandemic is surging and the City’s

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homeless shelters are full.” According to the plaintiffs, these park closures “would leave the homeless persons camping in those locales more vulnerable to COVID-19 than if they were allowed to remain in the encampments.”

Facts of the Case On December 3, 2020, the California Department of Public Health issued a Regional Stay at Home Order, stating “all individuals liv-

ing in the Region shall stay at home or at their place of residence” when intensive care unit capacity falls below 15 percent. On December 16, 2020, the Health Services Agency of the County of Santa Cruz issued a press release stating that the regional stay-at-home order would commence on December 17, 2020. Santa Cruz County had seen “the largest number of new COVID cases to be recorded in Santa Cruz since the pandemic began” and “the absolute number of positive tests has also increased significantly by about 25 [percent] since before Christmas.” The individual plaintiffs in this lawsuit, Avalos, Hegel, Ingersoll and Tolley, (Plantiffs) had been

residing in the San Lorenzo Park and the Benchlands encampment (Encampment) in Santa Cruz for several months. The Encampment had grown to close to 200 individuals over the past six months. Residents of the Encampment are fed and provided with survival services and items at that locale. As a result, the Plaintiffs argued they would face separation from these vital services if the City is allowed to carry out the Executive Order. The City had allowed San Lorenzo Park to be used for encampments during the past nine months of the COVID-19 pandemic. In April 2020, the City and County of Santa Cruz (City) attempted to implement a “socially distant” encampment layout “in deference to the CDC [Centers for Disease Control and Prevention] Guidance on encampments,” and the City provided trash services and hygiene resources to the Encampment. In July 2020, the City and County worked together to establish a managed camp at the Benchlands. The City had continued to provide trash service and hygiene resources to the Encampment residents. In addition to its efforts at the Encampment, the City had partnered with the County to add shelter capacity in the City at Veterans’ Hall, the Golflands, the Pavilion and several motels. Despite these efforts, shelters for people experiencing homelessness in the City and County of Santa Cruz were full. On or around December 17, 2020, the City issued an Executive Order that authorized and ordered the temporary closure of San Lorenzo Park and the Benchlands. The order stated that these closures would “be ac

complished in phases, with the goal of temporarily closing the entire park by January 6, 2021.” Further, “the closure period will end on January 31, 2021, unless an extension of the closure is authorized.” The Executive Order noted that “[i]n recent weeks, the conditions at San Lorenzo Park have deteriorated to the extent that we feel that a temporary park closure is the City’s best and only realistic option.” Conditions noted in the Executive Order included vandalism, fire safety, criminal activity, tree damage, trash and a lack of physical distancing or wearing of masks. The Executive Order further stated that the City had a “duty to preserve the park grounds and facilities and to prevent exorbitant rehabilitation expenses from becoming necessary at San Lorenzo Park,” having paid more than $140,000 to clean and start the rehabilitation process of public park areas “during this time of significant budgetary constraints.” On December 21, 2020, the City executed the first phase of the Executive Order, vacating the areas around the playground in San Lorenzo Park. While the second phase was scheduled to occur on December 28, 2020, the City paused its efforts after large and vocal community protests.

Preliminary Injunction Requirements As cited by the federal district court, the following legal standard would determine whether the requested preliminary injunction was warranted in this particular case: To obtain a preliminary injunction, the moving party [in this case, the homeless Plaintiffs] must estab-

lish that: (1) it is likely to succeed on the merits; (2) it is likely to suffer irreparable harm in the absence of preliminary relief; (3) the balance of equities tips in its favor; and (4) an injunction is in the public interest. The court further acknowledged a preliminary injunction is “an extraordinary remedy that may only be awarded upon a clear showing that the plaintiff is entitled to such relief.”

Likelihood of Success on the Merits In their complaint, the Plaintiffs alleged that the authorized closure of San Lorenzo Park and the Benchlands at the height of the COVID-19 pandemic had placed homeless individuals in a position of danger in violation of the 14th Amendment to the United States Constitution, 42 U.S.C. § 1983, which prohibits the government from depriving individuals of their liberty and property without due process of law. According to the Plaintiffs, the City had deprived the Plaintiffs of their rights by placing “unhoused persons at greater risk of COVID-19 infection, injury and death” by “clearing the Encampment and failing to provide alternate safe housing.” The federal district court noted: “There is no fundamental right to housing.” That being said, the court recognized “liability under substantive due process [i.e., protection of fundamental rights from government interference] where a state or local official acts to place a person in a situation of known danger with deliberate indifference to their personal or physical safety.” Within the context of substantive due process liability, the court defined “deliberate indifference”

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Parks & Recreation

L AW R EV I EW

as “a stringent standard of fault, requiring proof that a municipal actor disregarded a known or obvious consequence of his action.” In considering the existence of deliberate indifference, the court would, therefore, “examine whether the city left the person in a situation that was more dangerous than the one in which they found him.” Accordingly, for purposes of issuing a preliminary injunction, the federal district court would determine “whether Plaintiffs are likely to succeed in demonstrating that the City’s closure of the Encampment at this point in time will put the homeless persons living there at greater risk of contracting COVID-19.”

The Encampments provided services and survival items for individuals experiencing homelessness, including actual or make-shift shelter. CDC Guidelines As noted by the federal district court, CDC had issued “Interim Guidance on Unsheltered Homelessness and Coronavirus Disease 2019 (COVID-19) for Homeless Service Providers and Local Officials.” These CDC Guidelines are provided as follows: If individual housing options are not available, allow people who are living unsheltered or in encampments to remain where they are. Clearing encampments can cause people to disperse throughout the community and break connections with service providers. This increases the potential for infectious disease spread. Since “the CDC Guidelines are not 32 Parks & Recreation

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binding and do not set constitutional standards,” the City had argued the court should not consider them in its preliminary injunction analysis. The federal district court, however, found the CDC Guidelines were “clear and specific,” namely, “if there is no alternative housing available, leave the encampments to remain where they are because clearing encampments may increase the potential for infectious disease spread.” Moreover, the court noted cities and states, including the City of Santa Cruz, “routinely look to the CDC for guidance during this novel pandemic,” in particular, “considering the CDC Guidelines in evaluating the relative COVID-19 risk.”

Regional Stay at Home Order Further, the court found the CDC Guidelines were “consistent with the California Department of Public Health’s most recent Regional Stay at Home Order, also adopted by the County of Santa Cruz.” The Regional Stay at Home Order stated: “all individuals living in the Region shall stay at home or at their place of residence.” In this particular instance, the court further noted that the City of Santa Cruz “offers no alternative authority to that of the CDC in managing the homeless population in this pandemic.” As described by the federal district court, the Encampments provided services and survival items for individuals experiencing homelessness, including actual or make-shift shelter. In addition to shelter, the court found the population of people experiencing homelessness had access to services and hygiene facilities at the Encampment, including showers, portable toilets, handwashing sta-

tions and sharps disposal containers. The court, however, noted “the first phase of Encampment closure led to people losing their tents and tarps,” which had provided shelter. Most notably, as characterized by the court, “one of the vital services is nurses from Homeless Persons Health Project coming to the park every couple of days to check in with campers and offer medical assistance as needed.” The Plaintiffs also presented evidence that “the homeless persons receive donations at the Encampment, such as clothing, food, masks, and medical supplies.”

No Alternative Housing Options In this particular instance, the Plaintiffs and the City had agreed that “there are no alternative shelters or individual housing options available for the people residing in the Encampment”: Despite efforts by the City and County to accommodate the homeless persons during the COVID-19 pandemic, including expanding shelter capacity at multiple locations, the longer-term shelters are generally full. Further, the County has a prioritized referral pool from which vacant shelter beds are quickly filled, and the individuals encamped at San Lorenzo Park do not have priority within that system. Under these circumstances, the federal district court indicated the CDC Guidelines and the Regional Stay at Home Order were “instructive in evaluating the risk and danger” in determining whether a preliminary injunction was warranted. In the opinion of the court, “the Plaintiffs are likely to succeed in demonstrating that the City’s dispersal of the homeless persons

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during the current dire situation of the COVID-19 pandemic puts them at greater risk for COVID-19 than if they remain in the Encampment.” In reaching this conclusion, the court found “the CDC Guidelines are clear and direct stating...where there is no alternative housing available, leave the encampments to remain where they are to prevent the potential for infectious disease spread.” In addition, the court noted the CDC Guidelines discussed sanitation, hygiene materials and handwashing facilities, which were services currently available to persons at the Encampment.

After previous dispersals of homeless encampments in the COVID-19 era, Santa Cruz claimed “the County did not observe an increase in positive COVID-19 cases among the dispersed populations.” Previous Encampment Dispersals After previous dispersals of homeless encampments in the COVID-19 era, Santa Cruz claimed “the County did not observe an increase in positive COVID-19 cases among the dispersed populations.” In particular, the City of Santa Cruz pointed to wildfires in August 2020, which had prompted a large-scale evacuation without any significant COVID-19 increase. Further, the City cited an “overall absence of an increase in COVID cases in the August-October time frame.” The court, however, noted this earlier large-scale evacuation only involved 50 individuals experi34 Parks & Recreation

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encing homelessness from an encampment, in a total evacuation that exceeded 35,000 persons. Further, this evacuation was “not tied to any additional dispersals of homeless encampments.” Moreover, the court found the City’s declaration was “silent as to any COVID increase among the 50 homeless persons” in the earlier evacuation. As a result, the federal district court concluded the City’s evidence did not support the argument that “dispersal of the Encampment homeless population will not lead to an increase in the risk of COVID-19 infection.” The City had also argued the risk of infection was “mitigated by wearing face masks, avoiding crowds and social distancing,” whether inside or outside the Encampment. The City, however, had presented “evidence of homeless persons in the Encampment gathering in crowds and not wearing face masks.” The federal district court acknowledged the City’s point as to the wearing of face masks and physical distancing was “well taken.” That being said, the court noted there were “dueling declarations and photographs submitted by both sides” as to “how carefully these practices are followed in the Encampment.” The City had further argued that “the large Encampment itself presents a heightened risk of COVID-19 transmission.” The federal district court rejected this argument: While COVID-19 transmission is a legitimate risk to any cohabitation setting, here it is outweighed by the risk of dispersing the homeless persons against the CDC Guidelines and the Regional Stay at Home Order, particularly

when there are no safe, alternate housing options available. Accordingly, based upon the CDC Guidelines and the Regional Stay at Home Order during “what could be the height of the COVID-19 pandemic,” the federal district court concluded “the homeless persons would be placed in a more vulnerable situation and in greater danger without access to shelter or services, particularly medical services, showers, and handwashing stations, that they have been receiving at this central location.” As a result, for purposes of granting the Plaintiffs’ motion for a preliminary injunction, the federal district court determined: “Plaintiffs have shown a likelihood of success on the merits of their due process claim if the City cleans and clears the Encampment.”

Irreparable Harm As cited by the court, “an alleged constitutional infringement will often alone constitute irreparable harm” to warrant issuance of a preliminary injunction. In this particular instance, the court found: “Plaintiffs have shown the likelihood of being placed in a position of danger in violation of their substantive due process rights during the COVID-19 pandemic.” The court, therefore, concluded, “Plaintiffs have demonstrated that irreparable harm will result in the absence of a preliminary injunction at this time.”

Balance of Equities For purposes of granting a preliminary injunction, the federal district court also was required to consider a “balancing of the equities in the evidence before the Court.” In this particular instance, numerous com-

munity members had expressed their concerns about the Encampment. Moreover, the City contended there were “major public safety concerns, including drug use and major crimes and safety incidents, including two deaths, one attempted murder, and two cases of assault with a deadly weapon.” The City also raised serious safety concerns regarding “fire hazards, which pose a threat to the health and safety of the encamped individuals, as well as the general public.” Further, the City referenced “public nuisances, including human and animal waste, needles, vandalism, theft of City and County property, and damage to the City’s trees, plantings, and grass.” The City also had cited “additional incidents of violence, retaliation, and vandalism at San Lorenzo Park,” but the court found it was not clear “whether these incidents are properly attributed to the homeless persons living in the park.” As characterized by the Plaintiffs, many of the City’s emergency health claims were “a product of the City’s own negligence,” which could have been “remedied without forcing the homeless persons out during the COVID-19 pandemic.” While the City had presented “compelling evidence of numerous concerns regarding the Encampment,” the federal district court found the “degree and severity of these issues” was subject to debate and competing declarations by the parties in this case. In general, the court acknowledged: “the City currently faces multiple crises arising from the pandemic.” With regard to the Encampment, the court recognized “the significant efforts and burden the City has taken on during the pandemic, including coordinating

with the County to add shelter capacity at multiple sites and allowing encampments at San Lorenzo Park for the last nine months.” After balancing the equities in this particular case, the federal district court held: “the City’s interest in cleaning and clearing the Encampment in San Lorenzo Park and the Benchlands at this moment in time is outweighed by Plaintiffs’ interest in their constitutional rights during what the Court can only hope is the peak of the COVID-19 pandemic.”

Public Interest In addition, the federal district court acknowledged “the legitimate public interest of protecting the public health and safety, as well as the need to protect and preserve San Lorenzo Park and the Benchlands.” The court, however, also recognized the public interest in “maintaining the protections afforded by the Constitution to those most in need of such protection.” Moreover, in the opinion of the court, “this preliminary injunction, tightly tied to the current phase of the COVID crisis, will benefit public health at large”: Ensuring that the homeless persons have access to shelter and vital services during the COVID-19 pandemic is imperative to help stop the spread of COVID-19 amongst the population impacted by this injunction. Further, it will also help reduce the likelihood that COVID-19 will spread throughout the greater Santa Cruz community, as suggested by the CDC Guidelines. As a result, the federal district court determined “the public interest also weighs in favor of a

preliminary injunction.” In so doing, the court acknowledged “the significant hardship on the City to allow the Encampment to remain.” However, “with the COVID-19 pandemic still raging,” the court held “the balance of hardships tips in favor of the Plaintiffs.”

Conclusion Having applied the required factors for issuing a preliminary injunction, the federal district court concluded: “Plaintiffs have met their burden to show that a preliminary injunction should issue to enjoin the City from clearing San Lorenzo Park and the Benchlands during the current phase of the COVID crisis.” Accordingly, the federal district court granted the Plaintiffs’ motion for a preliminary injunction. In so doing, the court noted “the keystone of the preliminary injunction is the current dire state of the COVID-19 pandemic.” As a result, the court indicated “re-evaluation of the injunction will be necessary” as “vaccines roll out and the pandemic eases, dispersal of homeless persons from the encampments may no longer put them at greater risk for COVID-19.” Because it was “possible, indeed highly desirable, that the pandemic eases more quickly than this case proceeds to trial for injunctive relief,” the court further directed “the Parties to keep a watchful eye on the situation and to submit periodic status reports to the Court.” For more information, see YouTube videos at tinyurl.com/vr7678b5 and tinyurl.com/464pjav4. James C. Kozlowski, J.D., Ph.D., is an Attorney and Associate Professor in the School of Sport, Recreation and Tourism Management at George Mason University (jkozlows@gmu. edu). Webpage with link to law review articles archive (1982 to present): mason.gmu.edu/~jkozlows

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Parks & Recreation

Telling ‘Our Park and Recreation

STORY’ A closer look at the inspiration behind July’s Park and Recreation Month cover photo

By Cort Jones

ne could argue that storytelling is like painting a picture with words. Stories have the power to break down barriers and inspire people. They give us an opportunity to learn something from a different perspective, understand each other in new ways, strengthen relationships and build community. Stories also build trust and can strengthen a case for a worthy cause. Park and recreation professionals have myriad stories from the communities they serve and a cause worth strengthening at every chance they get. This July, for Park and Recreation Month, we are amplifying these stories that share the

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PHOTOS COURTESY OF CRAIG PATTENAUDE, COSUMNES COMMUNITY SERVICES DISTRICT

Craig Pattenaude, marketing and communicatiions specialist for Cosumnes Community Services District (CSD), photographs local residents and families in the district’s parks to show what the parks mean to community members.

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vast impacts that parks and recreation has on people in communities across the country. Parks are at the center of so many experiences and memories — moments that park and recreation professionals help make happen. Our local parks are often our first experiences in nature, our introduction to a favorite hobby or physical activity. They are places to gather with friends and family, spaces to celebrate life’s special mo-

ments, spots of respite and healing, sites that connect us with essential community services, and so much more. Local parks have been essential throughout the coronavirus (COVID-19) pandemic, with many people finding a new appreciation for the essential spaces park and recreation professionals manage and vital programs they provide. And, for some, their local parks are quite literally one of the only places they can go to find peace and tranquility.

Telling a Community’s Story When Craig Pattenaude began his role as marketing and communications specialist for Cosumnes Community Services District (CSD) in Elk Grove, California, one of his first projects was to browse the department’s activity guide, which featured many of the programs offered in the community. Anywhere he noticed a stock photo (e.g., a generic photo from an online database) used for promoting a certain program or park, he would schedule a time to visit that program or park to take photographs that would more accurately represent the community in Elk Grove. Pattenaude is part of the communications team at Cosumnes CSD, which oversees all of the branding and communications for the local parks and recreation, as well as the fire department. He primarily works on planning and developing content for the district, but his colleagues soon found out about his stellar photography skills, which would prove to be critical in sharing the stories of the diverse community they serve. “It really started small,” says Jenna Brinkman, public affairs manager at Cosumnes CSD. “Once we realized the caliber [of photographs] that Craig could produce, we kind of upped the game a little bit and have been giving him some additional challenges.” One of those challenges was introducing Pattenaude to Elk Grove families, so he could take photographs of them visiting the local parks and other areas managed by the district. One of their deDavid Phommavong and his son, Khuan, are members of the Elk Grove community and enjoy visiting Camden Park.

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Khuan, who has moderate-to-severe autism spectrum disorder, finds respite at Camden Park, which is free of artificial noise that challenges his sensory system.

partment’s goals was to show how members of the community use Cosumnes CSD’s parks. “It helps [to] really show what’s going on and what our parks really look like,” says Brinkman. “Bringing in new residents here to our community, bringing in new businesses and visitors — that has a lot to do with the services that we provide. And, just showing the actual people in the parks every day and having that genuine and sincere feeling, I think, benefits everyone.” Among the people Pattenaude connected with during this project were David Phommavong and his son, Khuan, who are members of the Elk Grove community. They decided to meet at Camden Park, one of the local parks the Phommavong family frequently visits, to walk the trails and have a photo session. “What I [thought] of when we went out to photograph David’s family and another family in our community was, we really found the extraordinary in everyday life,” says Pattenaude. “It was an incredible feeling. After walking away from that photo session, there were just so many moments of deep connection. It just made me feel so in tune and present with our community. At that point, it was more than just a ‘community member,’ it’s David and his family. It’s more than just a face, it’s the story behind the people’s lives.”

Finding Bearing in Life When the Phommavong family visits Camden Park, it’s about finding a reset and focusing on the lit

tle things that make life a little bit more enjoyable and more meaningful. But, it’s also a bit more complex than that. Khuan, who is 7 years old, was diagnosed with moderate-to-severe autism spectrum disorder (ASD) when he was 2 years old. ASD causes delays in his language and communication, fine motor skills, gross motor skills, and affects his ability to connect and engage with kids his own age. “He doesn’t find enjoyment in pure play, and it took us a long time to do therapy,” says Phommavong. “He receives about 20 hours of applied behavior analysis therapy, speech therapy, occupational therapy to focus on fine motor skills and gross motor skills, as well as feeding therapy. He’s also presenting attention deficit hyperactivity disorder (ADHD) and has sensory processing disorder.” Sensory processing disorder is a condition that affects how

Sensory processing disorder is a condition that affects how the brain processes sensory information, such as sight, sound, taste, smell and touch. the brain processes sensory information, such as sight, sound, taste, smell and touch. This makes it very difficult for Khuan to be around people, enjoy a meal, and many of the other everyday routines many people may take for granted. Visiting Camden Park gets him away from artificial noise, such as honking car horns, loud music or traffic, which could challenge his sensory system and trigger him into fight-or-flight mode. This means trips to the local hardware store, birthday celebrations at a restaurant with family, and other outings that could have

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Part of the reason the Phommavong family moved to Elk Grove, California, is for the services Cosumnes CSD staff provide and the spaces they manage.

any extraneous noises are extremely painful for Khuan. Before he was able to articulate these feelings, Khaun would seek out the nearest exit with his hands over his ears because the sounds caused him so much pain. “He’s constantly being attacked by the natural world that you and I enjoy. But to him, it hurts him,” says Phommavong. “So as a father, when I see my son in pain, I do everything I can to make sure we avoid these environmental factors. But that also lends itself to possibly growing up living his life in isolation. I don’t want him to grow up to be an adult who lives his life with two eyeballs behind the blinds at home.” 40 Parks & Recreation

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Phommavong fears that isolation could lead to depression, which is particularly high among individuals with autism. According to the National Institutes of Health (NIH), individuals with ASD are four times more likely to experience depression in their lifetime. So, while most of Khuan’s natural world may be painful for him and may cause a need to selfisolate, there is one healing place he doesn’t feel hurt by his surroundings — Camden Park. “It’s almost paradise,” says Phommavong. “I talk about us taking a walk in Camden Park as a sort of ‘Garden of Eden.’ My son is able to interact with the environment in a three-dimensional world, away from the screen. He’s able to walk around the park without feeling like he’s being chased by a tiger.”

The sensory overload Khuan often experiences can be compared to the feeling of being chased by a tiger because he goes into survival mode when his sensory processing is being attacked. It’s difficult to enjoy much of anything when focusing on mere survival — it’s more about avoiding the threat and getting away safely. Phommavong doesn’t see the behaviors that indicate these feelings in Khuan when they are at the park. In fact, when they’re walking around Camden Park, Khuan is more talkative, asking questions, and his curiosity is elevated. “When we’re at the park, he’s not in a state of sensory avoidance and is able to immerse himself in nature,” says Phommavong. “He’s pointing to the turtles, he’s picking up cattails, he’s running over to see the wildflowers and trying

to figure out the names of them. I had to download an app on my phone because every time he sees a flower or a bush or a berry, he wants to know the name of it. So now, I’ll take a picture of whatever it is, and we read about it… talk about it, and he has a smile on his face. [He] then runs off to check out something else. Whenever a sensory mechanism is not triggered and he’s able to find enjoyment, that’s the sweet spot.” Phommavong is thankful for the staff at Cosumnes CSD, and part of the reason his family moved to Elk Grove is because of the services they provide and spaces they manage that enrich the lives of people in the community — especially the lives of his family members. In fact, he says his family would likely look for a different city to live in if it weren’t for the parks in Elk Grove being so accessible. “When we talk about finding a bearing in life, I think about these parks and being away from our busy lives, being away from the stress and all the other challenges, so we can decompress and just be in that moment. Just to enjoy it. Just to be able to sit down and refocus on the things that matter most — your kids, your family and nature. And the fact that my son isn’t bolting and running away from danger is, in itself, such a rewarding thing to see.”

For the Community, by the Community The staff at Cosumnes CSD that Phommavong and his family are so thankful for are not just park and recreation professionals who work for the district, they’re also members of the community. They have their own memories and reasons why they love the parks in their

community. For Cosumnes CSD’s Brinkman, her favorite memory is of a pickup soccer game on Sundays. The game was made up of community members, neighbors and friends from the ages of 7 to 70. There were no referees and they didn’t keep score — it was just an opportunity to bring people together who may not normally have the chance to connect. “It was just a stress reliever from working a hard week…,” says Brinkman. “You would get to see friends and connect with people. Babies were born, people got married, we lost loved ones and all this other stuff that you go through. And we went through those things with that little group — and we were only brought together because of that park and that pickup soccer game.” Pattenaude grew up visiting Cosumnes CSD parks with his grandmother, and now enjoys spending time in the same parks he grew up in with his own children. “It’s just so fun to be able to take your family there, and now working at CSD, it’s like it’s come full circle. Now I get to promote these parks to the community. I get to share the experience of parks with other people — it’s just amazing,” says Pattenaude. For Brinkman and Pattenaude, working at the district also comes with the benefit of building relationships with people in the community like David and Khuan Phommavong. “This is why we do what we do,” says Brinkman. “These parks are the Cosumnes CSD parks, but really they’re not — they’re the community’s parks and we’re just the stewards of them. So, it’s just amazing to see them in action and [it] gives you a really strong sense of pride.”

As for Khuan, he’ll have a lasting memory in the form of a valley oak tree he planted at an event in one of Cosumnes CSD’s parks. His father’s favorite memory of that event was seeing him play with the earthworms when they were digging to plant the tree. “Usually, because of his sensory processing disorder, he

These experiences allow him to just be a kid — curious, excited and eager to play. They allow him the comfort of not feeling like he’s being chased by a tiger. doesn’t like to touch anything icky or slimy, but this one particular instance didn’t bother him. I was thinking to myself, ‘that’s what I used to do as a child!’ It was great to see. He came home and his fingers were all covered with dirt and we planted two trees.” For Phommavong, it’s all about quality of life for his son. The experiences in Cosumnes CSD’s parks allow Khuan to be free of some of the pain that comes with ASD and sensory processing disorder. These experiences allow him to just be a kid — curious, excited and eager to play. They allow him the comfort of not feeling like he’s being chased by a tiger. Because after all, how often do we get to enjoy life when we’re being chased by a tiger? To hear more from Phommavong, Brinkman and Pattenaude, tune in to the July bonus episode of Open Space Radio at nrpa.org/ July2021BonusEpisode. To learn more about Park and Recreation Month and read/hear more stories about the impact of parks and recreation on our communities, visit nrpa.org/July. Cort Jones is NRPA’s Manager of Strategic Communications (cjones@nrpa.org).

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EQUITY AND INCLUSION A Personal Journey 42 Parks & Recreation

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Why NRPA released a host of diversity, equity and inclusion resources By Autumn Saxton-Ross

o commemorate Park and Recreation Month in July, NRPA has encouraged agencies across the country to share their park and recreation stories. My own connection to the outdoors started in my backyard. I grew up in a duplex, with my paternal grandmother on one side, and my mom, dad, younger brother and I on the other (and a cousin my same age next door). Summers were spent with my cousins exploring our block and then graduating to time spent in Swope Park, located a little more than a mile away. I thought of Swope Park as our community’s Olmstead park. Acquired in 1896, this 1,805acre green space remains the crown jewel of the Kansas City (Missouri) Parks system. As the city’s largest park, and one of the largest municipal parks in the United States, Swope Park features hiking trails, grassy meadows and soccer fields, golf courses and community gardens, the Starlight Theatre, the Kansas City Zoo and the Lakeside Nature Center (now expanded to house Missouri’s largest native species rehabilitation center), where I held my first owl pellet. It was one of my favorite parks growing up and still is today. Over the years, I have used this place, and my relationship with it, to ground conversations on the Black experience and green spaces. Through my research, I discovered that the Swope Park pool (the one I learned to swim in) and its integration in the 1950s served as the practice litigation for the soon-to-follow Brown v. Board of Education case. During that time, Thurgood Marshall traveled to Kansas City as the lead National Association for the Advancement of Colored People (NAACP) lawyer.

Swope Park During the Jim Crow Era in Kansas City, Watermelon Hill — officially known as Shelter No. 5 — was the only spot in Swope Park that Black residents could visit. It was built to accommodate 400 to 500 people, but on weekends and holidays, the place could be overcrowded with up to 1,000 smiling faces, many people coming from all over the city by streetcar. My maternal grandmother also has a personal connection to this park. Watermelon Hill was the only part of the park she would take me to until the late 1980s. I had experienced those other places in the park through my parents. Nearly 30 years after the end of legal segregation, Watermelon Hill remained the only part of the park that my grandmother frequented. For me, it’s not just about addressing access, but consid-

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Parks & Recreation

DEI

During the Jim Crow Era in Kansas City, Missouri, Watermelon Hill was the only spot in Swope Park that Black residents could visit.

ering the lived experience and connection of those who care for you, your community and what their experience has imprinted on them.

Harpers Ferry National Historic Park This past April for my children’s spring break, I took a day off and we spent it exploring Harpers Ferry National Historic Park in West Virginia, another one of my favorite outdoor places. Located a little more than an hour from Washington, D.C., Harpers Ferry is nestled where the Potomac and Shenandoah Rivers meet. It’s full of natural and manmade wonder — the C&O Canal Towpath Trail and old rail bridges — all of the things you look for in a day trip to escape city living. Another reason why I love this

The Niagara Movement’s inaugural meeting took place in Harpers Ferry, which is also the site of abolitionist John Brown’s raid in 1859. 44 Parks & Recreation

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place is the park’s lesser-known history. In the early 1900s, William Edward Burghardt “W.E.B.” Du Bois, a historian, sociologist and civil rights activist, organized a meeting in Harpers Ferry that was the start of the Niagara Movement. The Niagara Movement was a Black civil rights organization named for the mighty current of change they wanted to create in opposition to racial segregation and support voting rights for Black men and women in 1905. The organization eventually changed its name to the NAACP. The movement’s inaugural meeting took place in Harpers Ferry at Storer College, one of the first historically Black colleges/universities in the country. Harpers Ferry also was selected as the meeting site because it was the place of abolitionist John Brown’s raid in 1859. Sometimes referred to as the “first shot of the Civil War,” the building that housed Brown during the raid was a place that free and enslaved folks in the late 1800s referred to as a beacon of freedom to

come. This area also is surrounded by Civil War history and battlegrounds. It’s a place full of national, state and local parks, and countless places for outdoor recreation.

Yosemite National Park In 2016, I visited my first expansive western national park. I had just been hired as the mid-Atlantic director for NatureBridge, a nonprofit organization, and it was my third year as an Outdoor Afro leader. For many of my colleagues — all very outdoorsy — this was our first trip to Yosemite National Park in California. The park and staff greeted us with open arms, making sure we had what we needed to explore the park. And then comments from other park patrons appeared on social media, such as “Lots of black people.....” and “Outdoor Afro? Sounds about as racist as Outdoor Aryan. Can we keep racism out of our national parks and encourage everyone to enjoy the outdoors together instead of being so divisive?” I share these experiences to show the full power of parks and recreation — how they can be used for good and bad. They can be inclusive and welcoming places we can

see ourselves in, as well as places that have been and can still be used to otherize and exclude. Reading the comments on social media, it’s easy to think, “Oh, I am so sorry that happened. Racism hurts [insert community of color here].” But I would like to offer something else for you to consider. Recently, an article by Natalie Burke, CEO of CommonHealth Action, came across my LinkedIn. It’s an opinion piece in the Daily News, titled “Want to be an anti-racist white ally? Here are six steps to follow,” (tinyurl. com/38smpzf7). I encourage you to read the article, but what really stuck with me is that as she discusses our history of race and racism, she highlights an important point we forget to talk about. It’s easy to think about racism and be sad for those who we see as being the victim — in this instance, Black folks — but what we rarely talk about are the other victims — white folks. We don’t speak or reflect on the harm that racism has done across the spectrum. Just think for a minute how harmful a system is when it normalizes typical “nice” people — those with families; those who volunteer in their communities; those who go to church; those who do all the things we believe that “good” people should do — who express themselves like this. It’s a system that fosters people to react this way to obvious expressions of nothing but joy, an emotion that so happens to be expressed by a group of Black people — in which most are experiencing this national park for the first time.

NRPA Focuses on Diversity, Equity and Inclusion As these experiences have shown,

Parks, such as Yosemite National Park, can be inclusive and welcoming places, as well as places used to otherize and exclude.

we can provide access, but that doesn’t guarantee that the space is now welcoming. To harness the full power of our parks for good, to be inclusive and welcoming, we must intentionally learn, and then work against, the ways in which they have been and can still be used to exclude. Perhaps Fred Rogers of Mr. Rogers’ Neighborhood expressed it best: “There’s a world of difference between insisting on someone’s doing something and establishing an atmosphere in which that person can grow into wanting to do it.” This is what NRPA’s diversity, equity and inclusion (DEI) work is about — creating a new atmosphere. Our work will provide opportunities or create a space ripe for continuous learning and change. And I acknowledge that this space may not be for everyone, but this space will support those willing to explore and examine how this system has impacted and harmed us all, and, most importantly,

how as people we can disrupt, change and, maybe, cocreate new systems. And while we explicitly lead with race while centering equity, the selfawareness, skills and competencies we look to build in the park and recreation profession will be applicable across all experiences, groups and identities. This spring, NRPA released a host of DEI resources and a framework for action (nrpa. org/Equity). Our Equity Action Plan connects our DEI work to our mission, vision, organizational values and strategic plan. NRPA’s DEI framework, Elevating Health Equity Through Parks and Recreation: A Framework for Action, details our focus on both systems and people. Our Park Access Story Map, Equity in Parks and Recreation: A Historical Perspective, explores how throughout the history of this land, parks have been used for both inclusion and exclusion. NRPA’s Diversity, Equity and Inclusion in Parks and Recreation Report (nrpa.org/DEIReport) takes inventory of the DEI activities, if any, agencies have established, the professional development opportunities provided to staff, and the challenges organizations face in their efforts to promote DEI practices. These resources document our commitment to DEI and provide a road map for preparing the profession for the future — a beautiful one with quality parks and recreation embedded in every community for everyone. Autumn Saxton-Ross, Ph.D., is NRPA’s Vice President of Education and Chief Equity Officer (asaxtonross@nrpa.org).

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TENNIS Holds Court in a Pandemic

A recent study reveals the sport attracted 3 million new players in 2020

46 Parks & Recreation

| J U LY 2 0 2 1 | P A R K S A N D R E C R E AT I O N . O R G

During 2020, tennis participation in the United States increased by 22 percent.

By Arthur Kapetanakis and Victoria Chiesa

hile the U.S. Open is a perennial showcase for the world’s best tennis players, the 2020 event also had put the world’s best physical distancing sport in the spotlight. As one of the first major sporting events held following nationwide coronavirus (COVID-19) stay-at-home orders, the 2020 U.S. Open showcased — on the world’s largest tennis stage — that the sport could indeed be played safely.

P A R K S A N D R E C R E AT I O N . O R G | J U LY 2 0 2 1 |

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TENNIS

“When we proved to the world that we could have over 13,000 [COVID-19] tests and 99.97 percent of them were negative… I think we demonstrated that if you do it properly, tennis is absolutely a safe sport to play,” says Michael Dowse, chief executive officer and executive director of the United States Tennis Association (USTA).

Tennis by the Numbers At the recreation level, activity throughout the past year suggests that people have taken to the sport during the pandemic, and the numbers confirm it. Annual data shows significant growth in racquet sales and tennis participation across the United States. Tennis participation in the country increased by 22 percent in 2020, with 21.64 million people hitting the courts, according to data from the Physical Activity Council’s (PAC) Participation Report (tinyurl.com/hrxb6ar4) produced by Sports Marketing Surveys. The survey and report monitor more than 120 different sports and activities participated in by U.S. residents (see charts below and on page 49).

Of the more than 21 million Americans who say they played tennis last year, 6.78 million were either new or returning players. “We are thrilled that so many new and existing players came back to the sport — especially in what was such a challenging year for so many people,” says Dowse. “These new participation numbers are a testament to the hard work, passion and commitment of a united industry that worked together to ensure that tennis not only survived, but also thrived. “Even though we continue to face challenges, it’s evident that many people recognize tennis as the ideal social-distancing sport, which puts it in a great position to continue to grow and allow people to stay active and social in a healthy and safe manner.” Tennis’ positive health impacts are well-documented. The report, Health of Tennis Industry 2020 (adobe.ly/2SF6Y2x) published in the July 2020 edition of the Journal of Medicine and Science in Tennis, shows that those who play the sport have better general, physical, social and mental health than the general population. “We are excited to see these pos-

itive trends and such significant growth in our sport,” says Craig Morris, USTA chief executive, community tennis. “We are energized to continue putting forward key industry partnerships and quality programming to ensure new and existing players of all ages and abilities have the best experience playing the sport for a lifetime.”

The Sport’s Impact on Recreation Self-contained facilities have been among those that are reaping the benefits of the boom. The courts were resurfaced in 2019 with the help of a $20,000 USTA facility assistance grant and have been the cornerstone of a vibrant community. Since reopening in July 2020, the park has seen its courts full from morning to dusk, booked on a firstcome, first-served basis. “The community was so ready to get the courts up and running again,” says Mohammad El-Haj Ahmad, president of the Fort Greene Tennis Association (FGTA), which has a 10-person board of volunteers that guides decision making, funding and scheduling for the tennis center.

Largest Increases (in millions)

Sport

48 Parks & Recreation

2017

2018

2019

2020

1-year change

Change in participants

Skateboarding

6.38M

6.50M

6.61M

8.87M

34.2%

2.26M

Pop Tennis/Paddle Tennis/Platform Tennis

1.07M

1.06M

1.38M

1.82M

31.2%

0.43M

Surfing

2.68M

2.87M

2.96M

3.80M

28.2%

0.84M

Camping

26.26M

27.42M

28.18M

36.08M

28.0%

7.90M

Tennis

17.68M

17.84M

17.68M

21.64M

22.4%

3.96M

3.13M

3.30M

3.46M

4.20M

21.3%

0.74M

Pickleball Hiking (Day)

44.90M

47.86M

49.70M

57.81M

16.3%

8.11M

Camping (RV)

16.16M

15.98M

15.43M

17.82M

15.5%

2.40M

Kayaking (Recreational)

10.53M

11.02M

11.38M

13.00M

14.2%

1.62M

Table Tennis

16.04M

15.59M

14.91M

16.85M

13.1%

1.95M

Bicycling (Road/Paved Surface)

38.87M

39.04M

39.39M

44.47M

12.9%

5.08M

| J U LY 2 0 2 1 | P A R K S A N D R E C R E AT I O N . O R G

Sport Weight/Resistance Machines

2018

2019

2020

1-year change

Change in participants

36.29M

36.37M

36.18M

30.65M

-15.3%

-5.53M

Elliptical Motion/Cross-Trainer

32.28M

33.24M

33.06M

27.92M

-15.5%

-5.14M

Stationary Cycling (Recumbent/ Upright)

36.04M

36.67M

37.08M

31.29M

-15.6%

-5.80M

Volleyball (Court)

6.32M

6.49M

5.41M

-16.6%

-1.08M

Gymnastics

4.81M

4.77M

4.70M

3.85M

-18.1%

-0.85M

Softball (Fast-Pitch)

2.31M

2.30M

2.24M

1.81M

-19.2%

-0.43M

6.69M

6.84M

7.03M

5.29M

-24.6%

-1.73M

14.95M

15.03M

15.36M

11.26M

-26.7%

-4.10M

Boot Camp Style Training

6.65M

6.69M

6.83M

4.97M

-27.3%

-1.86M

Cross-Training Style Workouts

13.62M

13.34M

13.54M

9.18M

-32.2%

-4.36M

9.41M

9.43M

9.93M

6.05M

-39.0%

-3.88M

Cardio Kickboxing Stair-Climbing Machine

Stationary Cycling (Group)

Pre-pandemic, a line of 20 to 30 people would be a good turnout for a sunny weekend day, he explains. Now, they see upwards of 50 on a regular basis, and as many as 70 on busy days. “It was incredible to see how it went from nothing to full in just a few hours.” The Querbes Tennis Center in Shreveport, Louisiana, celebrated a grand reopening in late February 2020 after major renovations, aided by USTA grants. After just two weeks of play, the center shut down due to COVID-19. But any concerns about revenue loss were quickly diminished once it opened again in May 2020. This single, 11-court tennis club saw roughly 250 new players by year’s end, including some 150 kids. In both July and August, more than 2,000 players took to the courts in Louisiana’s northwest corner. “It has really been a perfect storm,” Chris Dudley, tennis director at Querbes Tennis Center, says of the combination of the brandnew facility and tennis’ boom as a physical-distancing sport.

Making Tennis Equitable A year ago, the USTA announced

2017

the creation of Tennis Industry United (TIU) (tennisindustryunited. com), which was charged with assessing overall industry needs and making recommendations for how to best assist industry sectors in need of help. The organization also committed to financially assist in sustaining programs, facilities and education for professionals. “TIU was originally formed to help combat and get us through [COVID-19],” says Dowse. “Now it has pivoted toward advocating for tennis as a collective group and driving diversity and inclusion in our sport. When we all work together on the exact same initiatives, it’s so much more powerful than when we go out and try to do it on our own. We are now seeing the outcome of putting those measures into place, with tennis surging.” To further capitalize on the momentum surrounding participation, the USTA collaborated with leading manufacturers and mass retailers to include a “Net Generation” hangtag on more than 400,000 youth racquets sold by various mass sporting goods and tennis equipment retailers. These hangtags include a QR code sharing

Largest Decreases (in millions)

information about Net Generation, the official youth tennis brand of USTA; local play opportunities; and access to the free youth USTA membership; all aimed at making it easier for kids to get into the game. The USTA’s first strategic priority is to attract, engage and retain a new generation of diverse tennis participants. With tennis’ inherent physical distancing helping attract newcomers to the sport, the engagement and retention of these new players become paramount. To that end, the USTA — through TIU — is working with the United States Professional Tennis Association and the Professional Tennis Registry to increase membership and get more qualified coaches and teaching pros to serve this new client base. “Ultimately, that’s how people get engaged with the sport,” says Dowse. “As beginners come in, if they have a positive experience with their first coach, the data bears out that they’ll stay with the sport much longer.” Arthur Kapetanakis is an Assistant Managing Editor at the USTA (arthur.kapetanakis@usta.com). Victoria Chiesa is a Content Producer and Editor at the USTA (victoria.chiesa@ usta.com).

P A R K S A N D R E C R E AT I O N . O R G | J U LY 2 0 2 1 |

Parks & Recreation

OPERATIONS How Parks and Recreation Safely Brought Back Aquatics Programming By Jennifer Kansanback

ark and recreation departments across the United States were given a tough assignment in spring 2020: encourage your community to stay healthy by getting exercise outdoors, but also ask them to take as many precautions as possible against spreading coronavirus (COVID-19). The mixed message was not an easy sell amid shifting public agency budget forecasts and public health mandates. Understandably, some cities opted to suspend recreation activities and close facilities indefinitely until the dust settled. It was during this same time period that the City of American Canyon in California’s Napa County asked itself: If we can make it safe for our community to still get exercise outdoors at our facilities, do we have to close them down? This intellectual curiosity in the face of adversity resulted in the city finding a way to safely reopen its Phillip West Aquatic Center and, eventually, gain national recognition for its innovative efforts.

Key Operational Changes Before reopening the center, the department created extensive operational guidelines with four major changes: 1. In-depth sanitation procedures

2. Reduced maximum capacity 3. An updated physical layout, including new signage and graphics, to allow for physical distancing and one-way pedestrian traffic flow 4. A requirement that aquatics instructors only work from ondeck rather than in the water After local officials approved the guidelines, the aquatics management team quickly brought back furloughed lifeguards and trained them on the new sanitation procedures, such as thorough disinfection between class sessions.

Three-Phase Reopening To ensure compliance with the

operational changes and that the facility would have enough fully trained staff, the park and recreation department opted to reopen the center in three phases: • Phase 1 — mid-June 2020: The center brought back programs in which participants could easily practice physical distancing: lap swimming and water aerobics. • Phase 2 — late June 2020: The center began allowing swim team pool rentals and limited open swim. • Phase 3 — early July 2020: The center increased capacity to the maximum allowed (25 percent) and reinstated programs for all swimming levels. Instructors and lifeguards received child development training to teach parents how to work with their children in the pool. Various roleplaying scenarios helped prepare staff for the new way of instructing classes. The majority of lessons offered throughout the summer reached capacity and were wellreceived by community members.

Special Lifeguard Training PHOTOS COURTESY OF CITY OF AMERICAN CANYON AQUATICS SUPERVISOR JOEDY MICHAEL

The team responsible for the reopening plan created one of the first COVID-19-compliant lifeguard training programs in the country, which now serves as a nationwide model. The department followed the American Red Cross

50 Parks & Recreation

American Canyon residents participate in physically distanced exercise activities at the Phillip West Aquatic Center. | J U LY 2 0 2 1 | P A R K S A N D R E C R E AT I O N . O R G

COVID-19 Guidance for distance learning and expanded its online teaching platform. During inperson training, lifeguards received personal protective equipment and manikins to practice with. When physical distancing was not possible, lifeguards brought people from their own households to complete the rescue skills and final scenarios. The city has since learned that park and recreation departments across the country have used the same training to reopen their aquatics centers. The center has continuously served all ages, abilities and swimming levels throughout the pan-

COVID-19 updates, signage and physical distancing reminder stickers are displayed at the entry to American Canyon’s Phillip West Aquatic Center.

demic. Although the center has had to operate at a reduced capacity, a broader range of swimmers than usual have been participating in programs and activities. As an additional bonus, the swimming programs pay for themselves through user fees, saving city money. In November 2020, Aquatics International magazine named the center “2020 Best of Aquatics,” recognizing the department for its extensive reopening plan and innovative re-

sponse to COVID-19. Today, American Canyon’s Phillip West Aquatic Center remains open with firm safety protocols in place. Jennifer Kansanback is Communications Manager for City of American Canyon (jkansanback@cityofamericancanyon.org).

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(ISSN 0031-2215) is published monthly by the National Recreation and Park Association, 22377 Belmont Ridge Rd., Ashburn, VA 20148, a service organization supported by membership dues and voluntary contributions. Copyright ©2021 by the National Recreation and Park Association. Reproduction in whole or in part without permission is prohibited. Opinions expressed in signed articles are those of the writers and not necessarily those of NRPA. Issued to members at the annual subscription price of $30, included in dues. Subscription: $46 a year in the U.S.; $56 elsewhere. Single copy price: $7. Library rate: $58 a year in the U.S.; $68 elsewhere. Periodical postage paid at Ashburn, Virginia, and at additional mailing offices. Editorial and advertising offices at 22377 Belmont Ridge Rd., Ashburn, VA 20148. 703.858.0784. Postmaster, send address changes to Parks & Recreation, 22377 Belmont Ridge Rd., Ashburn, VA 20148.

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The Bison Bridge concept would enable wildlife to roam freely across Interstate 80 and above the Mississippi River.

PHOTO COURTESY OF STREAMLINE ARCHITECTS

Environmentalist Pitches Bison Bridge for Interstate 80 Crossing As one of the nation’s river cleanup champions, Chad Pregracke now is floating a new idea — turning the Interstate 80 (I-80) Mississippi River into a Bison Bridge where wildlife can roam freely and visitors can enjoy panoramic views. Pregracke, president and founder of Living Lands and Waters (LLW), is pitching the idea of repurposing the bridge’s span into separate wildlife and pedestrian crossings. The concept — a couple years in the making — is being promoted as transportation leaders study plans for replacing the 55-year-old infrastructure. The interstate bridge, now named Fred Schwengel Memorial Bridge, connects the states of Illinois and Iowa. For Pregracke, who first earned national acclaim for his one-man Mississippi River cleanups, the Bison Bridge represents a means of putting his hometown Quad Cities “on the map” with a one-of-a-kind tourism attraction. “It will be an iconic stop on Interstate 80 to the 42,000 people who cross it each day,” says Pregracke, whose environmental leadership earned him a CNN Hero award in 2013. Under the plan, the bridge’s westbound lanes would be retrofitted into a crossing for wildlife, including a small herd of American bison that the foundation plans to steward. The eastbound lanes would be converted into a pedestrian viewing area and park complete with a visitor’s center and recreational path. By maintaining two spans, visitors to the park could be safely distanced from the wildlife. “This would be the longest wildlife bridge in the world,” says Pregracke, who sees the idea as “a game changer” and a potential economic development driver for the Quad Cities region. The long-term goal would be for Bison Bridge to eventually become part of the National Parks system. It is the latest project for Pregracke and LLW, which, since 1998, has removed almost 11 million pounds of debris from the nation’s waterways. With the added help of some 118,000 volunteers in communities across the country, the LLW team has helped clean up 24 rivers in 21 states. Bison Bridge is a plan that Pregracke and a talented group of advocates have been quietly presenting for more than two years to key decision-makers. The Bison Bridge Foundation comprises a cross-section of organizations and leaders from multiple states representing the nonprofit, transportation, tourism, economic development, wildlife management and conservation sectors. In March, Pregracke and the foundation unveiled the concept during a live, virtual event aired from the Quad Cities. As part of the reveal, the foundation launched a signature campaign to garner more support. As of May, the group has collected nearly 30,000 signatures — well on its way toward reaching its goal of 50,000 signatures. Pregracke plans to present the signatures to the Illinois Department of Transportation, which has the responsibility for the study, design and construction of a new replacement bridge with support from the Federal Highways Administration and the Iowa Department of Transportation. The existing I-80 bridge was completed in 1966 and is between LeClaire, Iowa, and Rapids City, Illinois. As possible alternatives — including a new alignment — emerge for a new bridge, the foundation hopes to make its case for transforming the old span into Bison Bridge. — Jennifer DeWitt, Freelance Writer

56 Parks & Recreation

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PARKS & RECREATION JULY 2021 ◆ PARK AND RECREATION MONTH ◆ THE POWER OF AN IMAGE ◆ A PATH TO DEI

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Diversity, Equity and Inclusion: A Personal Journey