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HomeMy WebLinkAboutLR Proposed Recreation Parks System Plan for the City of San Rafael - January 1974CITY OF SAN RAFAEL PARKS AND RECREATION DEPARTMENT SAN RAFAEL, CALIFORNIA A PROPOSED RECREATION PARKS SYSTEM PLAN FOR THE CITY OF SAN RAFAEL Prepared By Andrew J. Snyder, Jr. Director of Parks and Recreation January, 1974 r'CITY OF 11SAN RAFAEL.-A'! 1400 FIFTH AVE, SAN RAFAEL, CALIF 949O2/PHONE: C415]456-1112 MAYOR C. PAUL BETTINI COUNCILMEN FRED JENSEN JOHN A. MISKIMEN LAWRENCE E. MULRYAN JACK G. NIXON CITY MANAGER WILLIAM J. BIELSER January 21, 197+ Honorable Mayor and City Council San Rafael, California Members of the Council: PARKS AND RECREATION DEPARTMENT Presentation of a Proposed Recreation Parks System Plan for the City of San Rafael In accordance with your instructions, I am submitting a proposed Recreation Park System Plan for the City of San Rafael which was prepared as a special assignment. have attempted to make this study as comprehensive as possible in order to provide a positive and meaningful foundation for the development of a long range plan for recreation park areas and facilities. While the plan, as proposed, is an ambitious one, it is only the first step in an attempt to establish a long range plan and, as such, it is recognized that the proposals are subject to modification. The study provides a basis for adoption of a policy concerning future parks and recreation developments in the San Rafael area, and includes material organized to permit any modifications and changes. The report contains analysis of parks and recreation requirements for the San Rafael Planning Area by the year 1990• Although I realize that those concerned are not bound by any findings of this report, I recommend that the parks and recreation plan, to be effective, should be officially adopted after suitable time has been spent in review. During the course of this study, I obtained data and assistance from many inter- ested individuals and groups in the community. Special recognition is due Dr. Robert McBride, Professor of Recreation Education at California State Uni- versity, San Francisco, and a number of his field work students who conducted inventories and compiled data for this report. Members of our own City staff also provided assistance as required. would like to thank the City Council for the opportunity they have given me to do this research and prepare this study. I appreciate their confidence in giving me this assignment, and sincerely hope the study will be of ultimate benefit to the City of San Rafael. Respectfully submitted, V9D,4J R. of Parks and Recreation AJS/rb TABLE OF CONTENTS CHAPTER I. PURPOSE AND IMPORTANCE OF THE STUDY PAGE Purpose of the Study . . . . . . . . . . . . . . . . . 1 Importance of Planning Recreation Park Areas and Facilities . . . . . . . . . . . . . . . . . . . 2 Parks and Recreation Services in San Rafael 3 Goals and Functions of the Parks and Recreation Department . . . . . . . . . . . . . . . 5 Organization of the Parks and Recreation Department 7 San Rafael, Background and Characteristics . . . . . . 9 San Rafael Planning Area . . . . . . . . . . . . . . . 13 II. RECREATION PARK LONG RANGE PLANNING Objectives of Long Range Planning . . . . 15 Principles for Planning Recreation Parks . . . . . . . 17 Recreation Park Development Standards . . . . . . - . 20 Space Standards for Recreation Parks . . . . . . . . . 25 Ili. JOINT PLANNING OF RECREATION/SCHOOL PARKS Recreation, Its Aims and Objectives . . . . . . . . . 38 Physical Education, Its Aims and Objectives. . . . . . 39 Role of the School in Recreation . . . . . . . . . . . 40 Park/School Concept in Planning Areas and Facilities 41 Need for Cooperative Planning. . . . . . . . . . . - 43 IV. RECREATION PARK RESOURCES AND METHODS OF ACQUISITION AND FINANCING Inventories of Existing Areas and Facilities . . . . . 44 Comparison of Existing Recreation Parks and Standards . . . . . . . . . . . . 57 CHAPTER PAGE Methods of Preserving Recreation Parks and Open Space Lands . . . . . . . . . . . . . . . . . . 60 Governmental Regulations and Programs . . . . . . . . 63 Methods of Financing Recreation Parks and Open Space . . . . . . . . . . . . . . . . . . . . . . 65 V. THE ACTION PROGRAM General Proposals . . . . . . . . . . . . . . . . . . 70 Specific Proposals . . . . . . . . . . • . • • . • . . 77 Other Related Proposals . . . . . . . . . . . . . . . 88 Conclusion . . . . . . . . . . . . . . . . . . . . . . 91 BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . . . . . . . 93/94 LIST OF TABLES & CHARTS LIST OF MAPS MAP I SAN RAFAEL PLANNING AREA . . . . . . . . . . . . . . 14 MAP II EXISTING PUBLIC RECREATION PARK SITES. 47 MAP III EXISTING PUBLIC SCHOOL SITES . . . . . . . . . . . . 50 MAP IV RECREATION PARKS MASTER PLAN . . . . . . . . . . . . 92 PAGE TABLE I PARKS & RECREATION DEPARTMENT ORGANIZATION CHART 8 TABLE II ORGANIZATIONAL CHART, CITY OF SAN RAFAEL . . . . . . 11 TABLE III SAN RAFAEL'S BUDGET DOLLAR 1973/74 . . . . . . . . . 12 TABLE IV CLASSIFICATION OF RECREATION PARKS BY POPULATION RATIO . . . . . . . . . . . . . . . . . . . . . . . 26 TABLE V NEIGHBORHOOD RECREATION PARK STANDARDS . . . . . . . 27 TABLE VI COMMUNITY RECREATION PARK STANDARDS. . . . . . . . . 28 TABLE VII CITY-WIDE RECREATION PARK FACILITIES STANDARDS . . . 29/30 TABLE VIII SPECIAL USE RECREATION FACILITY STANDARDS. . . . . . 31 TABLE IX RECREATIONAL STANDARDS FOR OPEN SPACE AREAS AND FACILITIES . . . . . . . . . . . . . . . . . . . . 33/37 TABLE X EXISTING PUBLIC RECREATION PARK AREAS AND FACILITIES . . . . . . . . . . . . . . . . . . . . 45 TABLE XI EXISTING PUBLIC SCHOOL AREAS AND FACILITIES. 48 TABLE XII RELATED AREAS AND FACILITIES NOT OPERATED BY GOVERNMENT AGENCIES . . . . . . . . . . . . . . . . 51/53 TABLE XIII MAJOR REGIONAL PARK AREAS AND FACILITIES IN MAR I N COUNTY . . . . . . . . . . . . . . . . . . 54/56 LIST OF MAPS MAP I SAN RAFAEL PLANNING AREA . . . . . . . . . . . . . . 14 MAP II EXISTING PUBLIC RECREATION PARK SITES. 47 MAP III EXISTING PUBLIC SCHOOL SITES . . . . . . . . . . . . 50 MAP IV RECREATION PARKS MASTER PLAN . . . . . . . . . . . . 92 CHAPTER I PURPOSE AND IMPORTANCE OF THE STUDY I. PURPOSE AND SCOPE OF THE STUDY The purpose of this study is to establish basic guidelines which can be utilized by the City Council, Parks and Recreation Commission, Parks and Recreation Department staff, planning officials, and others who are interested in and concerned with the orderly and intelligent planning and development of a comprehensive system of public parks and recreation areas and facilities which will effectively serve the increasing leisure - time interests and needs of the residents of the City of San Rafael. The scope of this study shall include the following: a. Determination of local trends and needs for recreation park areas, facilities and services within the San Rafael Planning Area. b. Inventory and evaluation of existing recreation park areas and facilities and their relationship to acceptable standards. C. Inventory and evaluation of related public, private and commercial agencies and establishments which provide recreation and/or park services within the planning area. d. Establishment of objectives, principles and standards to guide the long-range development of a City-wide recreation park system as an element of the City of San Rafael General Plan. e. Determination of the number, size, location and facilities of pro- posed recreation park areas. f. Preparation of written proposals which will guide the implementation of the proposed recreation parks system long range plan. II. IMPORTANCE OF PLANNING RECREATION PARK AREAS & FACILITIES The provision of suitable recreation park areas properly located, developed, equipped and maintained are essential to a successful San Rafael Recreation Park Program. Just as schools are necessary for public education, and hospitals are needed to maintain public health, recreation park areas and facilities are required to house a variety of public recreation/park services. Since public recreation aims at meeting a wide range of interests, it is natural that a recreation park system includes areas and facilities of diversified character. These must be well planned and designed, adequately equipped and staffed. Areas and facilities are tools with- out which municipal recreation can not efficiently succeed.I San Rafael, like many urban areas, faces a serious problem because of the lack of an adequate and well-balanced system of recreation park properties. Land, considered as a most valuable resource, is now increasingly scarce, costly and in great demand. Land and water areas of satisfactory size, properly distributed and developed through- out the City of San Rafael, are indispensable to a well balanced muni- cipal recreation park system. 1Harold Meyer and Charles Brightbill. Recreation Administration, A Guide To Its Practices. (Englewood Cliffs, New Jersey: Prentice - Hall, Inc., 1956) p 254. 2 PARKS & RECREATION SERVICES IN SAN RAFAEL The provision of recreation and parks services to serve the leisure - time interests and desires of the people of San Rafael has become acknowledged as one of the fundamental services of the San Rafael municipal government. These services, financed primarily by taxation and user fees, are established to provide for the happiness, protection, and general welfare of all people regardless of age, sex, race, creed or economic status. In the City of San Rafael, the Department of Parks and Recreation is charged with the responsibility for the planning, organization, develop- ment and maintenance of all City parks and open space areas, and the operation of all recreation programs and activities at parks, schools, playgrounds, recreation centers, swimming pools, and other facilities under its jurisdiction. The San Rafael Parks and Recreation Department, through the development of sound principles of recreation and park planning and administration, seeks to provide the citizens of San Rafael with recreation experiences which are socially satisfying, physically healthy, mentally stimulating, and culturally creative. The City Council, Parks and Recreation Commission and Department staff believe that equal opportunity should be available to all citizens to discover and enjoy the skills and benefits of sports, athletics, games, aquatics, art, dance, drama, music, social recreation, public festivals, outdoor recreation, and many other facets of our Great American Culture. The Parks and Recreation Department recognizes its obligation to serve children, youth and adults, regardless of age, being par- ticularly aware of the potential influence of recreation on character development and good citizenship. The Parks and Recreation Department also recognizes its obligation to acquire, control and safeguard those recreation and park areas, facil- ities and services which should be publicly owned, controlled and oper- ated. The Parks and Recreation Department recognizes the necessity for cooper- ating with, serving and assisting those community organizations and agencies, business concerns, schools, and other public agencies which are providing further segments of leisure -time recreation within the City. The Parks and Recreation Department, therefore, is greatly aware of its obligations as an important and vital unit of local government and endeavors to help in establishing community cohesiveness and harmony through the operation of an efficient and dynamic agency. IV. GOALS & FUNCTIONS OF THE PARKS & RECREATION DEPARTMENT The Parks and Recreation Department has the following goals which it strives to achieve: a. Provision of the best possible recreation and park areas and facilities distributed throughout the City to serve the leisure - time interests of all citizens. b. The development and operation of programs and activities which provide the greatest possible participation in leisure -time activities for the greatest number of people. C. The maintenance of all public recreation and park areas and facilities in the safest and best condition possible. d. Cooperation with any and all organizations and agencies which have as their goal the provision of activities or services for the leisure of all children, teenagers, and adults. The major functions of the Parks and Recreation Department are as follows: a. To execute responsibilities and duties according to the powers delegated to the agency by the governmental jurisdiction. b. To preserve, acquire, develop and manage recreation and park land and water areas. C. To plan, organize and conduct activity programs which bring desired and satisfactory experiences to people. d. To employ competent personnel who, through aptitude, preparation and experience, are qualified to accomplish the purpose of the agency, and to utilize the assistance of volunteers. e. To procure, expend wisely and account for public funds which will attain maximum services to the community. f. To make periodic estimates of the effectiveness of the services of the agency in relation to the needs of the people and the com- munity. g. To study the whole problem of recreation as it effects the welfare of the people, and to interpret to the governing body and the com- munity the role of the public recreation and park agency. h. To encourage, establish and maintain understanding and cooperation with public agencies, private organizations and the community at large, utilizing all media of communication. i U. ORGANIZATION OF THE PARKS & RECREATION DEPARTMENT The San Rafael Parks and Recreation Department is divided into three major divisions. (Table I, Parks and Recreation Department Organizational Chart, Page 8) Administrative Division It is the responsibility of this division to provide for the complete administration, control and management of the Parks and Recreation Department, including planning, organization, development, direction and coordination of all department services and staff functions. The division gives major emphasis to overall direction to all divisions which make up the Parks and Recreation Department. Parks Division This division is charged with the responsibility of maintaining all City -owned parks, open space and recreation areas and facilities dis- tributed throughout the City of San Rafael. Although the division is also responsible for the development of various capital improvement projects, its main purpose is to insure the clean and orderly appearance of grounds, structures and facilities, and to protect the health, safety and convenience of all people using them. Recreation Division The recreation division is charged with the responsibility of conducting a diversified program of public recreation activities and events for persons of all ages. This program, conducted at both City and school - owned indoor and outdoor areas and facilities, is active throughout the year. It includes a wide range of games, sports and athletics, swimming and aquatics, dance, drama, arts and crafts, music,hobbies, social activi- ties, nature and outdoor recreation, playground programs, instructional programs, special events, and various other recreational services. 7 H N W H 0 2 a H E7 I 4 r I I 14J WI I I NI I ICUI I I 1 ! I �+A, I4I Iro 1 I -WI '.� I 1i i i t� F_• I I j 1 a k14JI ail �nl 1Ipl to I to O • I 1 U{ I �Q`II I R, I I I I N I I I ro I I � U) I f.l I Em I I I 1 �]Ff I I al I rql .yl I Rfl U I I N E [ U •NI I 'bl I WI I FylI IUI rol I �' I i I lw°I I I to V ail 1E I L7 ! I N I �Ut I I.�I }rol --q1 121 ISI to L 1_x I I I L ! 1 Kc- 2 - r --I 4- I �I ' 41 1 I --T N ' OI 1 I •-- �- i l 1 0 1 N I 'N ro it U1 sn til O ro I �I I } In �kI I U l 1 I•KC r ml 1 I aryl I �I ryl IVI I I v 1 WW 10 04 f ul; v I E4I I N W Q) a I U� (� l� I•�+I NI I WI IroI Ira i0! IQI I I I hl I I• h} I WI ��" , l I •N Q Q+' 1 NI } 1 I Lb I I E� W Nl xl L� Lr, I I I h1 I HI I I_ I IUI 12' L ' I 11 rI I LrI LEI � "j I J I+ E7 I 14J WI I I NI I ICUI I I 1 ! I I4I I�i I -WI '.� I I I, I O i Q I I V I I �I a4 IUI Iro I � U) I � �' w' v �,1 H ' I I� I a l �I ' Q4 l rol U •NI I 'bl E 4j �! a lw°I I I to ail 1E I I Iql I I.�I }rol --q1 121 ISI to 1_x I I I L ! 1 Kc- - r --I 4- I �I I I N l 1 0 1 N ro it U1 sn til O ro } In �kI to W I I i L 1 1 u ! -'M E7 VI. SAN RAFAEL, BACKGROUND AND CHARACTERISTICS Location The City of San Rafael is located on U.S. Highway 101, seventeen miles north of San Francisco in the east central portion of Marin County, and is the County seat. History Don Timoteo Murphy, "the father of San Rafael", received three land grants from the Mexican government, including all of what is now the City of San Rafael. His hacienda, the first house in San Rafael, later served for many years Ias Marin County's courthouse. Because of available water transport- ation, a settlement sprang up after California was brought into the Union. The development of San Francisco and the Northwestern Pacific Railroad in 1884 spawned the growth of the community and, by the 1920's, San Rafael was a pleasant small town of many elegant homes. The opening of the Golden Gate Bridge in 1937 began San Rafael's modern period of dynamic growth. The township of San Rafael was founded in 1850, incorporated in 1874, and then in 1913 it became a Charter City. Mission San Rafael Arcangel, the 20th of the 21 California Missions, was founded in 1817. The site, located near the San Rafael downtown business section, was chosen for its healthful climate because the Mission was intended to be a health rehabilitation center. In 1949, a replica of the Mission was built on the original site of the Mission. Climate San Rafael has a moderate Mediterranean -like climate with an average minimum temperature of 470 to a maximum 69.2°. The average rainfall is�6. inches per year, concentrated primarily during the winter and spring months. Population The population of the City of San Rafael at the present time is approxi- mately 44, 673. Population forecasts for the City of San Rafael Planning Area, according to the "1973 Marin County -wide Plan", estimate that the growth in population by 1980 will be about 70,900, and by 1990 it will increase to approximately 80,700 persons. POPULATION PAST & PROJECTED San Rafael Planning Area Las Gallinas Valley San Rafael Basin Population Totals 1970 1980 1990 25,800 33,200 39,700 31,600 37,700 41,000 57,400 70,900 80,700 (Marin County -wide Plan, 1973 - Prepared by Marin Co. Planning Dept.) The City, at the present time, encompasses an area of 20.87 square miles, including 14.97 square miles of land and 5.90 square miles of water. The average income per household is over $16,000 per year. According to the 1970 census, San Rafael had the highest annual income in the State of California. City Government The City has Mayor -Council, City Manager form of government. (Table II, City Organizational Chart, page 11). City Tax Rate and Assessed Valuation The City tax rate for the fiscal year 1973/74 is $1.02 per $100 assessed valuation. The total assessed valuation is $183,709,749. (Table III, San Rafael's Budget Dollar - Revenue and Expenditures, 1973/74, page 12). 10 W J m J W LL- V) LN LL 0 } H U LU x H LL O F- ¢ x U Z O H N Z c.7 O LU oc O F- u U W J W E L N O > I N � cc i L r0 O I m I r N I r0 m a i O¢ m Y O � I W J I U I ^� } U 'O N rn LL- • J LE U z w ! U Z ! } E I H U >- L U1 L •E } E LU •- O J U O ' F- F- ' ¢ 1 — I I U ! 1 c c ! -0 O O !� N C •— +•+ 111 !i mLn ! L •E � i to N O W OC U I N i LU i oC F- ! } I �~ � I v � c I O 01•— c u1 C•— rc0 E O d U N U C rp c LL I� L u U- • L N ro Ln L , N LC c.7 1 L O 3 u CL N U O CL rn .0 c c rp CL rn c C I 01.0 U N n • un � c ! Co — I c O C: •— rp 4-' Ln N � L L U rn N CL 11 Where it Comes From Other Investment Earnings Revenue from Other Agencies AND Where it Goes SAN RAFAEL'S BUDGET DOLLAR General Government, 5.7G Capital 16.2 Improvements 14.31 TABLE III Property Taxes Sales Taxes t 1 i Licenses & Permits, etc. '� Gas Tax Police 15.51 Fire 16.4 12.4 �— Public Works City Hall & _ � 11.21 � Non -Departmental 5.5 ��Library 12 T Parks & Recreation -- Retirement & Bond Redemptions COMPARATIVE STATISTICS YEAR TAX RATE ASSESSED VALUATION POPULATION 1969/70 .86 125,762,315 36,500 1970/71 .903 138,669,147 38,977 1971/72 .90 153,660,614 38,977 1972/73 .92 165,884,749 39,600 1973/74 1.020 183,709,749 44,673 12 VII. SAN RAFAEL PLANNING AREA The limits of the San Rafael Planning Area have been set to include the City of San Rafael and adjacent lands closely related and of direct concern to the City. The San Rafael Planning Area includes the entire drainage basin of Gallinas Creek and all of the land draining into the San Rafael Creek. The northern, western and southern boundaries of the Planning Area follow ridgelines marking the limits of these drainage areas. On the east, the Planning Area extends to the deep water in San Francisco Bay.2 (Map I, San Rafael Planning Area, page 14). 2San Rafael General Plan, 1966, pg. 4 S A N RAFAEL PLANNING AREA MAP PREPARED BY PLANNING DEPARTMENT CITY OF SAN RAFAEL NO VA TO A'3ORCF7 01 �D G 6 J SL EEPY- FrqLLow\-�� IL S --- PLANNING AREA BOUNDARY ri 4 MILES 0 r "L. 2 0 3 4 5 6 7 8 9 10 FEET (THOUSANDS) iER -R A IF A -F -L ILI sAN' ANSELMO, Z_ -4L- ;' 0 ROSS -4p I-V 4 ' KENTFIELD, 4G R EE IV k, NN4 .4 S A N RAFAEL PLANNING ,D N SAN 0 U E N� A R F A \-S S �,%% ;k V;,v \, 'a ;,-' VL POINT SAN PEDRO MAP 1 14 CHAPTER II RECREATION PARK LONG RANGE PLANNING I. OBJECTIVES OF LONG RANGE PLANNING Effective integration of recreation areas in a city plan for the acquisition and development of recreation park space must be based upon accepted objectives, principles and standards. Essential elements in effective planning for a system of public recreation park areas are: a. Definite objectives to be achieved by the system. b. Basic principles that are essential to achieve them. C. Specific standards for implementing these principles. A well balanced recreation park system is achieved when it is designed to meet the following criteria: a. Provide areas and facilities that make possible a great variety of recreation activities and opportunities for all, regardless of age, color, race, creed, or economic status. b. Include areas that are equally distributed, that differ widely in size, location, natural features and potential development, and that consequently serve different recreation uses. C. Provide a playground as near as possible to the center of every residential neighborhood, preferably at or adjoining the elementary school, for use day by day and during brief periods of leisure. d. Provide other areas that require more space at a greater distance from the homes of people and develop them for recreation activities that require longer periods of use. e. Take into account existing outlying recreation areas and facilities that serve the people of the locality and where advisable include additional extra urban areas primarily for weekend and holiday use. 15 f. Study and appraise existing local recreation resources and needs with the full cooperation of citizens, schools, planning authorities, and other interested agencies.2 Planning is the means to attain maximum returns in terms of the recreational objectives for the benefit of all the people in the community. Adequate recreation planning helps assure consistency of the standards of operation. Further, it should facilitate orderly growth and development of services provided within the municipal recreation agency. Long range planning protects the public interest by encouraging people to plan for future needs. The public recreation agency, in carrying out its planning functions, must determine the vested legal authority for formulation, adoption and execution of plans which assure successful completion of the planning process. Secondly, involvement of total community resources must be obtained, such as those possessed by schools, local agencies, commercial recreation interests, and others, and integrate this planning process with other plans affecting the community recreation program or facilities. Most importantly, the plans must be flexible, dynamic, and adaptable to change, recognizing that planning is a continuous process.3 2Municipal Recreation Administration (Fourth Edition, Chicago: The International City Managers Assoc., 1960) p 62-63 3State of California Recreation Commission. Public RAecreation and Parks in California. Principles and Current Practices (Publication 56-4. Sacramento: State of California Recreation Commission, 1957), p 26• I II. PRINCIPLES FOR PLANNING RECREATION PARKS With the planning objectives understood and agreed, the community more specifically needs guiding principles to determine the general approach to the selection and location of various types of recreation and park facilities; to establish the relationship of one site to another in the total complex of recreation areas; and to establish the relationship of the entire recreation system to other physical elements of the city or urban plan. Not to be confused with principles are the standards that serve as measures of the quality of particular recreation areas. A principle governs the general location of the area, whereas the standard concerns the details - what size it should be, what facilities should it include, and how large an area it should serve. Principles and standards together constitute the basic tools required for planning a public recreation system. The California Committee on Planning for Recreation, Parks, Areas and Facilities, which was composed of outstanding leaders in recreation, education, planning and related fields, submitted 14 basic principles dealing with the broader aspects of physical planning for recreation park areas and facilities. They are regarded as accepted guiding prin- ciples for recreation and park planning. 1. A recreation park system should provide opportunities for all the people. 2. Planning for recreation parks and facilities should be based initially upon comprehensive and thorough evaluation of existing trends; thereafter, periodic review, re-evaluation, and revision of long range plans should follow. 3. Facilities and services provided by private agencies and commercial 17 recreation enterprises to meet leisure needs should be carefully evaluated by the public agency before plans for new areas are prepared so that there is proper relationship and duplication is avoided. 4. Planning for recreation parks and facilities should be undertaken with full cooperation of the citizens so that the recreation system may reflect their thinking concerning the needs and interests of all groups. 5. Recreation parks and facilities for a city should be planned as related parts of a unified, well-balanced system to serve the entire area. 6. The recreation plan, showing both existing and proposed areas and facilities, should be integrated with all other sections of the master plan of the locality. 7. Planning for areas and facilities should encompass areas beyond a city or other areas related to it. 8. Each recreation center or park should be centrally located within the area it is planned to serve, and should be provided with safe and convenient access for all residents of the area. 9. Within a particular recreation park the location, size and design of activity areas and facilities should be regarded as flexible, so as to be adaptable to changes in the population served and in ,the program offered to meet changing needs. 10. Beauty and functional efficiency should compliment each other and should be equally important goals. 11. Land for recreation areas and facilities should be acquired or reserved well in advance of the development of an area. ." 12. Space standards should be met and the land acquired even if the limited financial resources of a recreation agency oblige it to delay complete development. 13. Selection or acceptance of sites should be based on their suitability for intended purposes as indicated in the over-all plan for the recreation system. 14. Recreation parks should be lands dedicated and held inviolate in perpetuity, protected by law against diversion to non -recreation purposes and against invasion by inappropriate uses. Generally speaking, a plan precedes almost anything that is constructed. The character of that plan varies from a mere idea to complete set of blueprints and carefully prepared specifications. Projected plans based upon foreseeable future needs can be preliminary only and must be reviewed prior to execution. This is essential in order that plans may be related to actual current conditions. Planning is essential and is the responsi- bility of the public through its officials.4 41bid., p 27. 19 III. RECREATION PARK DEVELOPMENT STANDARDS Experience in the field of municipal recreation has provided recreation park planners with information relating to the amount and type of rec- reational land and facilities required to meet the needs of the people they intend to serve. The following is a general description of the types of recreation parks, facilities, and related areas which can be used as a guide in the selection and acquisition of recreational lands within the San Rafael Planning Area: a. Neighborhood Recreation Park A neighborhood is an area generally served by an elementary school. A neighborhood recreation park may be either a combination elementary school and park or a separate recreation park development. An example of the kinds of facilities provided is as follows: Outdoor Facilities - Play lot for pre-school; play areas for elementary school children; multi -use sports field; paved areas for court games; family picnic and barbecue areas; park areas for free play; quiet areas; restrooms; off-street parking, etc. Indoor Facilities - A neighborhood recreation center building or school building available for community recreational use. b. Community Recreation Park A community is an area consisting of two or more neighborhoods which are served by one or more secondary schools. A community recreation park may be either a combination secondary school and park or a separate recreation park development. Example of facilities provided includes: 20 Outdoor Facilities - Sports fields with night lighting; play areas for pre-school and elementary school children; paved areas for a variety of court games; park area for free play; individual and group picnic and barbecue areas; areas for special events; restrooms; natural area; quiet area; regulation swimming pool; and off-street parking, etc. Indoor Facilities - Either a community recreation center building or school building available for community recreational use. c. City-wide Recreation Park Serves the entire population of the city. A city-wide park provides the following kinds of facilities: Outdoor Facilities - Large open space and natural areas; family and group picnic and barbecue areas; play areas for pre-school and elem- entary school children; day camping areas; lighted sports fields; paved areas for court games; outdoor theater; children's zoo; hiking trails; golf course; jogging path; bicycling paths; swimming pool; miniature golf; bowling greens; nature study area; water oriented activity areas; concession facilities; restrooms; parking areas, etc. Indoor Facilities - Museums, nature centers, auditoriums, theater, clubhouse, etc. Note: Large, city-wide parks can also serve regional leisure -time interests. d. Regional Recreation Parks A region is defined as a large geographic area which serves the residents of one or more municipalities, and as a result of size, location, characteristics or mutual interest, make it desirable that their acquisition development and operation be undertaken by one or more governmental agencies. A regional park provides both 21 active and passive outdoor recreational facilities listed as follows: Outdoor Facilities - Scenic drives; picnic and barbecue facilities; nature walks; hiking trails; vista areas; equestrian trails; day and overnight camping; swimming; fishing; boating, and other water - oriented activities; bicycle paths, wildlife sanctuaries; farmyard zoo; golf course; rifle and archery ranges; animal exhibits; nature preserves; historic site structures; concessions; restrooms; parking areas, etc. Indoor Facilities - Clubhouse at golf course; nature center; equestrian stabling; structures or lodge -type buildings by camping areas. The site should also provide a water feature for scenic as well as recreational use. Although a number of cities in California have developed regional recreation parks as a part of their park system, this is primarily the function of the County, State and Federal governments. e. Open Space Preserves Open space is defined by State law as "Any parcel or area of land or water which is essentially unimproved and devoted to an open space use, for the protection of food and fiber, for the enjoy- ment of scenic beauty, for recreation, and for the use of natural resources, and which is designated on a local, regional or State plan as any of the following: 1. Open Space for Preservation of Natural Resources - Including, but not limited to, areas required for the preservation of plant and animal life, including habitat for fish and wildlife species; areas required for ecologic and other scientific study purposes; rivers, streams, bays and estuaries; coastal beaches, lakeshores, banks of rivers and streams, and watershed lands. 22 Open Space for the Managed Production of Resources - Including, but not limited to, forest lands, rangeland, agricultural lands and areas of economic importance for the production of food or fiber; areas required for re -charge of ground water basins; bays, estuaries, marshes, rivers and streams which are important for the management of'commercial fisheries; and areas containing mineral deposits. 2. Open Space for Outdoor Recreation - Including, but not limited to, areas of outstanding scenic, historic and cultural value; areas particularly suited for recreation park purposes; including access to beaches, lakeshores, rivers and streams; and areas which serve as links between major recreation and open space reservations, including utility easements, banks of rivers and streams, trails and scenic highway corridors. 3. Open Space for Public Health and Safety - Including, but not limited to, areas which require special management or regulations because of hazardous or special conditions such as earthquake fault zones, unstable soil areas, flood plains, watersheds, areas presenting high fire risks, areas required for the protection of water quality, water reservoirs and areas required for the protection and enhance- ment of air quality.5 f. Parkways The parkway is essentially an elongated park with a road extending its entire length. It is often located on a ridge, in a valley or along a lake or ocean frontage. A parkway may serve to connect large units in a park system or to provide a pleasant means of travel through 5State of California Government Code, Section 65560 23 the city and outlying region. Ft is basically a recreation facility, not a transportation facility. Its principal attribute should be scenic beauty. The NRPA recommends the minimum width for a parkway as 200 feet. The park area may be used for bicycling, hiking, horseback riding or picnicing. g. Specialized Recreation Park Areas Many kinds of recreation areas and facilities are highly specialized in nature, and thus may be developed separately on special tracts of land, or they may be integrated into parks and other recreational areas. Standards have been developed for some of these specialized facilities, but for others no particular site size can be specified. A detailed list of these areas will be shown in the following portion of this chapter. 24 IV, SPACE STANDARDS FOR RECREATION PARKS The standards most accepted by recreation and park planning authorities throughout the United States are those of the National Park and Recreation Association. In addition, the California Committee has developed a useful "Guide for Planning Recreation Parks in California", as a basis for deter- mining local recreation space standards. Standards developed and used in this study are based upon the NRPA standards, the recreation park planning guide developed by the California Committee, and study and analysis of park standards of other cities throughout the country. Present standards recommended by the NRPA call for 5 acres of local recreation park land for each 1,000 population, and 5 acres of major recreation parks and open space preserves for each 1,000 of the population. This provides an overall standard of 10 acres of land for each 1,000 persons. The recreation park standards used in this study are shown in detail on the following tables: Table 1V Classification of Recreation Parks by Population Ratio - Page26 Table V Neighborhood Recreation Parks Standards - Page 27 Table VI Community Recreation Parks Standards - Page 28 Table VII City-wide Recreation Park Facilities Standards - Page 29 Table VIII Special Use Areas and Facilities Standards - Page 31 Table IX Recreational Standards for Open Space Areas and Facilities - Pages _23_3/3 7 The space standards presented in this report should be regarded as guide- lines only, to be modified according to local conditions and resources in.the San Rafael Planning Area. 25 LT N c N '> N to r p t0 CL E Y Q J C � d x 4J Q O O 3 a in Q Q O O LL LT Cl W L t 2 3 C Y o:: L L U O •- J Q O O 4-1 N IA > N t)•- } F- C7 N Lb tD Q N - W t t W N •- o L N U a U O O) •- •_ p t6 u 3 }' L co w an OC Z Z •-k`i M 7 Q W 1 I O U M N c E N I L x O _ o O �. 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Archery Range 1 per 1,500 2. Baseball Diamonds 1 per 6,000 Regulation 90' 3. Basketball Courts 1 per 500 4. Boating Facility 1 per 2,500 5. Community Centers 1 per 25,000 6. Golf Courses (18 hole) 1 per 25,000 7. Handball Courts 1 per 10,000 8. Historical Museum 1 per City 9. Natural Science 1 per City 15. Swimming Pools, 25 Yd. 1 per 10,000 Based upon 15 sq. ft. of water for 3% of population. 16. Swimming Pools, 50 Mtr. 1 per 20,000 17. (Interpretive Center) Best in units of 4 10. Neighborhood Centers 1 per 10,000 11. Outdoor Theaters 1 per 20,000 FACILITY (Non-commercial) FACILITY 1. Administration Office 12. $hooting Ranges 1 per 50,000 Complex including high 4,000 Sq. Ft. 3• power, small bore, trap sanitary fac. 5,000 Sq. Ft. 10,000 Sq. Ft. 4. & skeet, field archery, 300 Sq. Ft. 300 Sq. Ft. etc. 13. Soccer Fields 1 per 1,500 14. Softball Diamonds 1 per 3,000 (and/or Youth Diamonds) 15. Swimming Pools, 25 Yd. 1 per 10,000 Based upon 15 sq. ft. of water for 3% of population. 16. Swimming Pools, 50 Mtr. 1 per 20,000 17. Tennis Courts 1 per 2,000 Best in units of 4 COMMUNITY RECREATION CENTER SPACE STANDARDS Space in Sq.Ft. SEPARATE FACILITY ADJOINING SCHOOLS FACILITY 1. Administration Office 300 Sq. Ft. 300 Sq. Ft. 2. Arts & Crafts Rooms 4,000 Sq. Ft. 3• Hallways, storage, display, sanitary fac. 5,000 Sq. Ft. 10,000 Sq. Ft. 4. Kitchen 300 Sq. Ft. 300 Sq. Ft. 31 FACILITY 5. Meeting Rooms 6. Multi-purpose Rooms 7. Social Halls 8. Teen Lounge TABLE UIII (Cont'd) COMMUNITY CENTER SPACE STANDARDS ADJOINING SCHOOLS .4 4,000 Sq. Ft. 2,000 Sq. Pt. SEPARATE FACILITY 4,000 Sq. Ft. 3,000 Sq. Ft. 4,000 Sq, Ft. 2,000 Sq. Ft. 11,600 Sq. Ft. 27,600 Sq. Ft. Approaches and Design 5,000 Sq. Ft. 10,000 Sq. Ft. Patio and Fireplace 2,000 Sq. Ft. 2,000 Sq. Ft. TOTALS 18,000 Sq. Ft.*` 39,600 Sq. Ft.** *Approximately 11,000 square feet of school space for joint use of school and Recreation Department; breakdown of suggested space for each item same as Column 2. -; Add area indicated under Senior Citizens' Center if building space for older people is designed as a part of the Community Center building. 32 TABLE IX RECREATIONAL STANDARDS FOR OPEN SPACE AREAS & FACILITIES DEVELOPMENT Scenic Parkways, Drives, Trailways With vista points, overlooks, roadside rests; within a park or linking several parks.. Picnic Grounds Turfed areas, sometimes with trees; casual, impromptu use. Individual picnic unit - Wide walkways; auto parking away from tables; water and sanitary facilities. Group picnic unit. Clusters of 3 to 10 tables per group; stoves in ratio to num- ber of tables; barbecue, arti- ficial fuel stoves and shelters sometimes desirable; wide walk- ways for access and delivery; water and sanitary facilities; auto parking away from tables. SPACE REQUIREMENT Extent and development according to terrain and features of site or sites. 10 units per acre; 8 -foot tables; access to stove (2 or 3 tables per stove). 10 -foot tables; stoves in ratio to number of tables in group; four 3 -table clusters per acre; one 10 -table cluster per lZ to 2 acres. Individual beach picnic unit. Cooking or campfire rings; sani- 100 square feet of beach per person; tary and water facilities includ- restrooms every 2,000 lineal feet ing change facility; lifeguard of beach. stations. Large group picnic site for business and industrial groups of 500 to 5,000 persons, tables, stoves, barbecues; sanitary and water facilities; dance area, multi-purpose playfields and turf, campfire circle in bowl or amphi- theater; swim facilities sometimes desirable; wide walkways for access and delivery of supplies; parking away from tables. Hiking Trails For hikes of one day or less. Well-defined trail system; auto parking at any access point. Minimum 50 acres, 10 -foot tables. Well-defined and maintained tread, up to 10 feet in width, grades not to exceed 5 o average, with a maxi- mum of 15 %; minimum parking for 33 DEVELOPMENT Hiking Trails (Cont'd) For extended trips; well-defined trail system; overnight trail camp area. Bicycle Path For rides of one day or longer. System of paths, separated from automotive traffic, trail mark- ers; pathside rests with water, sanitary facilities; overnight camp area. Bridle Trail & Equestrian Center Rides of one day or less; riding ring, trail system, parking for vehicles, and stock trailers with loading ramp or platform; holding stalls, hitching racks, water. Marina Motor and sail boating, water skiing, berthing and launching facilities; auto and boat trailer parking; marine supplier, boatel and restaurant concessions; act- ivities building. Small Lakes Fly casting; fishing model boat basin, sailing, rowing, canoeing; migratory bird -feeding sanctuary; parking for autos and boat trail- ers; water and sanitary facilities; boat launching, storage and rental facilities. SPACE REQUIREMENT 25 autos at any access point; 100 auto parking at short scenic, well-known trails. Well-defined trail with average grades of 5% and none to exceed 15%; overnight trail camp areas of 3 to 5 acres at intervals of five hours' hiking time; minimum parking for 10 autos at any access point. Minimum width 10 feet; protected crossings; surfacing suitable for maintenance vehicles; overnight camp areas of 3 to 5 acres at intervals of six hours' bicycling time. Well -graded trail with inter- connecting leader trails and numerous access points; grade should average 5%, may be minimum parking for 10 to 80 vehicles and stock trailers depending on amount of use. Land and water area of equal acreage desirable; marginal --100 berths; desirable minimum --200 berths; 1 acre water for 30 craft; car and boat trailer parking --75 per acre. A chain of small natural or man- made ponds or lakes; minimum 5 water -surface acre ponds; minimum 20 water -surface acre lakes; adjacent park area. 34 DEVELOPMENT Natural Area Preserve SPACE REQUIREMENT Access by walkways, foot trails 50 to 1,000 acres. and paths (no vehicular traffic); interpretive center; self -guided nature trails; parking, water and sanitary facilities. Migratory Bird Sanctuary Trails, observation shelters, bird Acreage as available, on seasonal feeding areas, interpretive center; wetlands and flyways. parking on access roads. Wildflower Sanctuary Flamboyant seasonal displays of wildflowers; trails, interpretive shelter, picnicking; parking on access roads. Streamside Trail Preservation of streams and banks from source to outlet; walking trail alongside. Marine Gardens (Underwater) Self -guided nature trails for skin divers and marine explorers. Gardens Available acreage having native flora; 100 to 500 acres. Minimum width stream and trail 100 feet; may call for inter - county development. Sand bars; natural reefs or artificial reefs and shelters of concrete or quarry rocks. For public interest and display. 50 to several hundred acres. Containing unusual or specialized plant collections, trees and shrubs; walkways, foot paths, display shel- ters; activity building; parking. Zoological Garden Living animal collections and related housing, display areas, enclosures, exhibits and service buildings; interpretive center, pavilions, amphitheater for animal shows; picnic grounds, restaurants and related con- cessions; pedestrian walks, observation driveways; water and sanitary facilities; auto and bus parking. Desirable minimum 75 acres; practical maximum 200 acres. 35 DEVELOPMENT Specialized Animal Exhibits, Aquariums, Aviaries, Farmyard Zoos Cultural Arts Center Exposition and display pavilion, music shell, outdoor theater and bowl; dance surface;. picnic turf; water and sanitary facilities; parking. Archery Center SPACE REQUIREMENT Usually located in park acreage. 20 to 75 acres as part of a larger park acreage, theater seating capacity of 2,000 to 7,500; working space for several hundred performers; dance area for 1,000 dancers and 500 spectators. For range and field archer; club- 75 acres including buffer space house or activity building; indi- for safety and 35 acres for 1,4 vidual and group picnic units; stations of field archery; level, water and sanitary facilities; unobstructed space 150 yards long parking. per range. Marksmanship Range For pistol, rifle, trap, skeet; 50 to 100 acres according to clubhouse or activity building; terrain and distance required individual and group picnic units; to protect adjoining areas from water and sanitary facilities; noise. parking. Recreation Automotive Area Pits and hill climb for motor- cycles, one-quarter and one -half - mile track for autos and stock - cars; drag strip; midget auto track; field of model airplanes; 6-8 acre paved area for sports car events; individual and group picnic units; water and sanitary facilities; parking. Day Camp for Groups For organized groups on advance reservation; sanitary, water and basic cookout and eating facil- ities for 50 persons for short periods of time; hiking and nature trails; interpretive center; camp- fire circle; truck, trailer and auto parking. 50 acre minimum, located far away from habitation because of noise factor. Minimum 50 acres for basic facil- ities and associated activities .including parking space for 25 autos or 2 buses. 36 DEVELOPMENT Overnight Camp for Groups For organized groups on advance reservation; clustered campout sites for bedding or tents; san- itary, water, food storage and cookout facilities for 50 persons, nature trails and interpretive center; hiking and pack animal trails; campfire circle; truck, bus, trailer and auto parking. Adult and Family Campground Family camp units; water and sanitary facilities; opportuni- ties for boating, fishing, swim- ming, nature exploration, hiking, campfire. En Route Campground For families and out -of -county travelers --a user -pay facility; sanitary and water facilities; auto, camper and trailer sites. For hikers, bicycle riders, horse- back riders. SPACE REQUIREMENT Minimum 50 acres or maximum 1 acre per camper for basic facilities (cooking, eating, sleeping, parking) and asso- ciated activities; two-way access into and out of camp in case of fire. Minimum 50 acres; two-way access into and out of grounds in case of fire; 4 units per acre; each unit has parking space for car and trailer, tent site, table, cupboard, stove. 6 units per acre; each unit has parking space for car and trailer; table, cupboard, stove. (Refer to developments for hiking, riding, bicycling) 37 CHAPTER III JOINT PLANNING OF RECREATION/SCHOOL PARKS During recent years, the development of an increasing cooperative attitude on the part of public school and municipal authorities in the planning, acquisition, construction and maintenance of areas and facilities designed for public school and recreation park use has become a desirable and necessary trend. In order to fully consider the need for joint planning of areas and facilities, it is necessary to understand the direct relationship which exists between the fields of public recreation and physical education. I. RECREATION, ITS AIMS AND OBJECTIVES The primary function of recreation is the enrichment of living by enabling individuals to find outlets for self-expression and, thereby, to develop their inherent potential and desired satisfactions. Through recreation programs, people are helped to develop a wide range of interests and skills which enable them to make constructive use of leisure and which contribute to the physical and mental health, safety, good citizenship, confidence, and character development. Recreation is essentially a kind of experience rather than a set of specific activities. The wide range of recreational activities includes games and sports, music, dance, arts and crafts, drama, social activities, nature and outing activities, hobbies and service projects. The comprehensive recreation program affords people of all ages, backgrounds and interests the opportunity to engage in the variety of activities with the help of trained leaders which assure maximum benefits and enjoyment. 38 PHYSICAL EDUCATION, ITS AIMS AND OBJECTIVES The aim of physical education is to help people of all ages live healthy, satisfying, and energetic lives. Four specific purposes are: To develop and maintain maximum physical efficiency; to develop useful knowledge and physical skills; to act in socially useful ways; to enjoy wholesome physical recreation. A sound school physical education program includes required daily teaching of diversified activities for all pupils, a wide variety of intramural activities available to all, and, at the senior high school level, a broad program of interscholastic athletics for those students with superior athletic ability.6 Although recreation and physical education are closely allied, they are complimentary, not identical. Recreation and physical education have often been associated in the popular mind because many physical recreation activities are identical with those used in school -oriented physical education programs. The purposes of physical education are physical fitness and development of attitudes and skills to maintain fitness. The purpose of recreation is enjoyment, though physical fitness may be a by-product of wise choices in physical activities. Such physical activities comprise only one aspect of recreation. A well-rounded program of recreational activities includes many kinds of experiences, and recreation should no more be identified with physical education than with education in the arts and sciences. 4American Association for Health, Physical Education, and Recreation. Planning Areas and Facilities for Health, Physical Education and Recreation. Washington, D.C. pp.2-3. Reynold Carlson. Recreation in American Life. (Belmont, California: Wadsworth Publishing Company, Inc., 19 63), Pp. 13-14. 39 III. ROLE OF THE SCHOOL IN RECREATION In 1962, at the Second National Conference on School Recreation, the role of the schools in recreation was emphasized by adoption of the following ten policies: 1. Education for leisure is a major responsibility of every school. 2. Every school, from kindergarten through college, has an obligation to provide its students with opportunities for participation in wholesome creative activities. 3. Every school has a responsibility to make its facilities and resources available for recreation when needed. 4. The school has the responsibility to cooperate with community agencies which conduct programs of recreation or which are inter- ested in the conduct of such programs. 5. Since school facilities represent one of the greatest investments of public funds in the community, it is simply sound business practice to make the greatest possible use of facilities. 6. Recreation and education are not identical. While complimentary and supplementary, each has its own common distinctive features. 7. Recreation in a democratic nation begins with public permission and exists by public approval. Therefore, the nature, scope, and quality of a recreation program depend primarily upon the degree to which the public understands and believes in it. 8. Recreation leadership seeks to expand the interests of people. 9. The program of recreation should consist of many varied activities related to the needs, interests, and abilities of all the people. 10. The functional role of public school in cooperative municipal -school recreation should be to: a. Educate for the worthy use of leisure time. b. Achieve maximum articulation between instruction and recreation. c. Coordinate and mobilize total community resources for recreation. d. Develop cooperative planning of recreation facilities.8 $American Association for Health, Physical Education it Recreation, "Twentieth Century Recreation", A Report on the Second National Conference on School Recreation, (Washington, D.C., 1962 pp. 30 - 40 IV. PARK/SCHOOL CONCEPT IN PLANNING OF AREAS AND FACILITIES The prevailing concepts and objectives of park/school areas and facilities are closely related and sufficiently common to justify the joint planning and development of a coordinated system of areas and facilities to be jointly used. The park/school is described as a neighborhood or community -type park facility which has been designed for public recreation as well as health and physical education programs. It combines the neighborhood park area and an elementary school site, or a community park with a secondary school site. Some school areas and facilities such as multi-purpose rooms, gymnasiums, ball diamonds, etc., can serve to meet a portion of the park facility requirements, while certain park areas and facilities such as play- grounds, swimming pools, recreation center buildings, outdoor theaters, tennis courts, etc., are able to serve and support the educational program. In these instances, it is possible to reduce the amount of park acreage required for a suitable park facility. Through joint development of a neighborhood park at an elementary school site, the required acreage could be reduced by 6 acres when utilizing an average 10 acre elementary school site. Likewise, the community park required acreage could also be reduced by 17 acres by utilizing an average 20 to 30 acre Junior High or Senior High School site. 41 Since public school requirements for areas and facilities must be met with or without a related park, it is reasonable to assume that schools should perform a dual function- by encouraging community use of these areas and facilities during non -school hours. The primary reason for the joint development of park/school areas and facilities is the financial savings to the community relating to capital investments and costs for maintenance and operation. To protect the interests of both school and municipal authorities, and to assure the most effective application of the park/school plan, a formal agreement should be drawn up and signed by both agencies specifying their respective responsibility for purchase, development, operation and use of recreation park/school areas and facilities. 42 V. NEED FOR COOPERATIVE PLANNING Due to the fact that recreation and education support and compliment each other, and in light of the rapidly increasing population, lack of available land, and the ever-increasing costs for construction and development of education and recreation areas and facilities, i•t is imperative for the school and recreation agencies in the City of San Rafael to combine their efforts toward joint planning, acquisition and development of these critically needed areas and facilities. This can be accomplished by following the basic principles and objectives for school and recreation planning as shown in this study. 43 CHAPTER IV RECREATION PARK RESOURCES AND METHODS OF ACQUISITION & FINANCING I. INVENTORIES OF EXISTING AREAS & FACILITIES In order to determine present and future recreation park needs in the San Rafael Planning Area, an inventory of existing recreation parks and other related resources was undertaken. The data obtained through per- sonal interviews, and field inspection of actual sites, are shown on the following listed inventory tables and corresponding maps. TABLE X Public Recreation Parks Areas and Facilities, pages (Map 2, page 47) TABLE XI Public School Areas and Facilities, pages (Map 3, Page 50) TABLE XII Related Facilities Not Operated by Governmental Agencies, pages 51/53 _ TABLE XIII Regional Recreation Parks - Marin County, pages 54/56 Note: Each facility shown on the maps has a number which corresponds With the tables listed above. 44 — sallll;Ded palyel-I x x 5ul4ea8/buiysld x swoo.i l s ald x x eajy ►field aaaj x x x land .u►peM wlmS x aa33o5/llegjooj x lleg4alseg x lleg43o5/!legaseg x 9snoggnl3/Ja4u93•3ab X wniao4lpn X s 4anoo sluual. x sa!4Illaed asu-31d x x x 45 Z U x C1 x x x x x X x x x x x x x N x X x x N T x x x C 45 Z U C1 }J N }4 -JN. 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Ln N > Q C N i 3 N c > N J m Z N T f0 ^ Ln C a L- •• \ -p U T N N ^ O U 3 ++ O oC o N FQ- Z N Ln N O L w Q 1 N T w v ai O y ^ •+� � O L p[ L � L o m 3 N O N oC m +� 4-) C N N N N U O L L +� O L" L U W \ N W N- •C U - •u 4- -0 to N N N C N 7 Or F- N C L c0 L N m C fu C7 Q F- m F- C m u N N a 4J - .L m (0 U m U UN O O J •- L W' +' N> - - •> +W C 4.1 C N - C N Q m 07 L Z U E N i N Li O U Ln O � O Z cr- cr- Y Q o a aN Y le a Q ~ N F- O J o_ oC o Y Y Q x 0� a Y Q Y — J O w Q N Y 0� w Y Lu z F- O U: Q at: Q n_ U Q Y Q o- o (D cc: X W — C7 O Q Y F- or- Z O a a O W Q W Q Q� Q U} oC a or Q W W O m a a' W o_ Q a Q Q I Q a U C7 N W O W 3 W J Z F- w a 2 J a` U— Q F- J F- 3 Z a' Q Z O n Z W J O J } Q W lL o. 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I!oej Oiu:)id x x x x x x snje.Feddd Aeld x x x x 1 N - } •C L - fll L N Z U Z L C C g W fn O O 41 a-' c Co Q Q +� O E c =3 c :3_ 4Jv _ _ 4 -JE ._ 4� O — O O O U U U U f:7 U U U U= U 2 U U CL w G C7 W :::- Lr% r _ cn Cv w r Q Q Q Q Q Q fn U _W F- F- W J LL O O U O f]C D 0 D Q W J LTJ O O G fL O 0 O in LL -Ln C9 w Q L L W N W ZQ O U Q Q V) Qr r M N O N 7 N M O , � wV) O N M 61 Lf\ • 0'\00 M Lf\ Cn tb Q W W i N N en LA M fV w Y — U E O r d N OC c/) t!1 x f]C ^ Vy N O O N 3 J Q ^ a� fp CC F- W F- O L Q W= N N L - =~ N % EXISTING PUBLIC RECREATION PARK SITES MAP NAME OF MAP NO. FACILITY LOC, 1. ADRIAN-ROSAL PARK H-5 2. ALBERT PARK G-9 3. BOYD PARK G-8 4, BRET HARTE PARK H-10 5. CANAL PARK K-10 6, CIVIC CENTER PARK G-6 E FAIRGROUNDS a: FREITAS PARK F-6 8. GERSTLE PARK G-9 9. MARINWOOD PARK F-4 10. McNEAR BEACH PARK N-7 11. MUNSON PARK F-5 12. OLEANDER PARK F-5 13. PICKLEWEED PARK K-9 14. PUEBLO PARK J-5 15. SANTA MARGARITA D-5 VALLEY PARK 16. SCHOEN PARK K-9 17. SUN VALLEY PARK F-8 18. TERRA LINDA PARK E-5 19. VICTOR JONES PARK L-7 20. VENDOLA PARK J-5 21. ARBOR PARK F-6 22. BEACH PARK H-9 23. HILL VIEW PARK F-5 MAP PREPARED BY PLANNING DEPARTMENT CITY OF SAN RAFAEL �� ' \ NAYILTOM AIRFORCE eAsr UPPER • - It LUCAS t' VALLCI ` '• l•\ OPEN SPACF`'� +- M4RIN WOOD •r I ~�•_` ~ II OPEN SPACE r"• -S / T LV'CAA '•._� ! �i A -;MC INNES / ! 1 VA1_y% � �` PARK � Ir SPACE - i •1��.:` ,a f/r' iw I ,`+ a � • � t - ` tom` -�4 ' � �•t • � "`�e' P � y_� w� _ - \ - B A R B I E R ' •'` '' lD� s t - P \l• :. �•. f - \ �•' r; �� MEMORIAL�.����� PARK ey - .� . fir• `; � . 1 C • 'r; - �' 4 _ N.- '0 r --- PLANNING AREA BOUNDARY 4' �• O 4- �■ A iy V N ► r' i 5's (� ', o � . t , � f ■ .psi' � � � • F.Ei, .,P..A. ,� - ��� _ M EX I S T I NG •PU BLIC RECREATION PARK SITES aI ,a 61 m MAP 2 47 uopea.iaaa pas inaadnS x x x x X x x x x x wn I seuwA!) 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U 0 •tn U1 N c T •- .D ¢ 4- CL C) c m c In m Jn - •L a a ¢ > •- cDfu w m 0 •> fn L Z = z O Lr% Ln C) Ln Lf1 O O00 N N _ N i2 VIA O M 1� Z U'A X W O J 2 ¢ 2 C7 W O J 2 W f.7 — H — — 2 J 0 N W D W Q J <.7 >- X: H LL 0 2 f' w Q ¢ W J Z F- O O N 2 ' J W M: IK u1 U O W a ¢ Cf ¢ ¢ H ¢ ¢ U W W O J 3 0 Q> Z— U Q Z Z F- Z ,_ Z O Z Of w J J H N Z O W S J W ¢ ¢ ¢ Q 2 W Q W —I U O fl N N N N N N F- 3 c.7 N I.� 00 01 O 00 49 MAP PREPARED BY PLANNING DEPARTMENT CITY OF SAN RAFAEL EXISTING PUBLIC SCHOOL SITES MAP 3 50 EXISTING PUBLIC SCHOOL SITES MAP NAME OF MAP NO. SCHOOL LOC. 1. BAHIA VISTA K-10 2 BERNARD HOFFMAN F-5 3, COLEMAN H-8 4. DIXIE D-4 5. DON TIMOTEO F-6 6. GALLINAS H-6 7, GLENWOOD L-8 8. JAMES B. DAVIDSON H-9 9. JOHN MacPHAIL J-5 1:. LAUREL DELL Int. M-10 11. LAUREL DELL Prim. H-10 12. LUCAS VALLEY E-4 13. MARY E. SILVEIRA F-3 14. MILLER CREEK F-4 JR. HIGH 15. NOVA ALBION F-7 16. OAK VIEW F-5 17. OLIVER HARTZELL F-6 18. PEACOCK GAP M-7 19. SAN PEDRO K-9 20. SAN RAFAEL HIGH H-9 21. SANTA MARGARITA E-5 22. SANTA VENETIA H-6 23. SHORT G-9 24. SUN VALLEY F-8 25. TERRA LINDA HIGH F-6 26. VALLECITO F-6 27. WEST END G-9 28. 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L u p[ .— N u — •c N L y.. L > c 0 0 7 u �¢ N u •a L) 2 CA c to .meg 4 C O i •u E 41 u L C L Z •u •a v o Enu u•— — •— d H d L LL t Z z f z W N Q' W ¢ to H W N O O O O O L J u M — W Q Lr% N U N �— Li- N C] Z N ¢ W CL z o — f- f Q v W oC T LU L W L O J 4- 3 L- +O-' Q L m 7 N 7 Z — L -0 > O J 41 Z Li N � H C7 LU cc L O L N 5 O N Ln d L {/L N N N u L � — 7 r y 0 �C N L 4-J L Z 7 N f0 4J .- d N Z to -�[ �l1 yam. LL- J Y O L L u m W Lp L c a L •— O O L- 4 - W 7 4J p = N N H 04 N N N N 56 H. COMPARISON OF EXISTING RECREATION PARKS AND STANDARDS As shown in the recreation park inventory, there are presently 28 public recreation park sites within the San Rafael Planning Area, containing a total of about 2,144 acres of land. By comparing the recommended park standards of 10 acres per 1,000 pop- ulation to the 1970 population figures of 57,400 people in the Planning Area, it is found that as of 1970 an additional 3,596 acres of land was needed. In addition, when relating this standard to the projected population of 70,900 in 1980, the land required should be approximately 7,090 acres. By 1990, with a population of 80,700 the public recreation park lands needed within the Planning Area should total about 8,070 acres. Upon closer anaylsis of the 28 existing park sites, it was found that Only 10 sites presently meet or exceed the minimum 5 -acre standard recommended for a suitable neighborhood park facility. Of the remaining 18 sites, 13 are under the 5 -acre minimum, while 5 are large parcels of land for future regional parks and/or open space development. A summary of present and future acreage required for public recreation parks in the San Rafael Planning Area is shown as follows: No. of Existing Classification Sites Areas Local Rec/Parks 23 (Standard: 5 Acres/ 1,000 Pop.) Large City/County 5 Regional Parks and/or Open Space Areas (Standard: 5 Acres/1,000 Pop.) TOTALS 28 (Sites) 280 1,864 Acres Req- uired in 1970 2,590 1,006 2,144 Ac. 3,596 Ac. Add'1 Acres Required By 1980 675 675 1,350 Ac Add'1 Acres Required By 1990 490 490 980 Ac. 57 As a result of the above analysis, it appears that the greatest deficiencies or park needs in the San Rafael Planning Area are local recreation parks such as neighborhood community and city-wide park areas. An inventory of existing public school sites reveals that at the present time there are 28 sites containing a total of 331.84 acres of land. Although the majority of these sites have been designed primarily for school use, they are an important factor in this study, since they are publicly -owned lands and as such do provide an excellent resource for future public park development. In an attempt to determine the kinds of non-governmental recreational areas and/or facilities available to the residents in the Planning Area, an inventory was also taken of various commercial and/or private estab- lishments which provide recreational opportunities for area residents. The results indicated that the majority of facilities were highly successful in their efforts. The most popular of these were the various tennis and aquatic clubs, bowling allies, yachting clubs and facilities, and the two local golf courses. It was also found that little or no major development or expansion of these facilities was contemplated in the future. The only exception was the development of some private tennis/swim club facilities. A review and analysis of existing regional park areas and facilities located both within the Planning Area and within 15 to 30 miles driving distance pointed out the fact that the residents of San Rafael and Marin County are indeed fortunate in having at their "doorstep" a variety of Federal, State and County recreation park areas and facilitif's of which they can avail themselves. An inventory of these areas showed that 58 there are 24 different established recreation park areas, with a total of 152,112 acres of public land, 59 METHODS OF PRESERVING RECREATION PARK & OPEN SPACE LANDS There are a number of different approaches that can be employed in pre- serving lands for recreation parks and open space purposes. A study of the various methods utilized by a number of cities and counties in California is outlined as follows: 1. Acquisition in Fee Direct Purchase Local jurisdictions may purchase lands for recreation park and open space purposes. However, these available funds are limited. Eminent Domain This provides a means whereby the jurisdiction may purchase lands from unwilling owners, but this requires immediate payment and costs tend to be higher: Purchase - Saleback Land is purchased by a public agency and.then resold with certain covenants or restricted rights. Life Estate Permits the owner to sell property to the government if he desires, and then retain possession of the property during his lifetime. This type of acquisition is particularly useful because it holds the property until a future date, when money will be available for recreation park or open space development. Lease -Leaseback Land is acquired by the jurisdiction and leased to a private company, to construct recreational improvements which then, in turn, leases it back to the municipality. . e II. Acquisition in Less Than Fee Development Rights To retain an area in an undeveloped use, such as agriculture or watershed, a jurisdiction may acquire the rights from the property owner to develop the property in particular ways. Scenic Easements In areas where it is desirable to protect a view from encroachment by building, or to preserve a landscape, scenic easements may be acquired. The owner retains use, insofar as use is compatible with the limitations of the easement. Access Easements Property owner grants right of access to the public for specific purposes at a specific time. License Permission is granted by license from the utility for recreation park or open space purposes on the utility right-of-way and/or properties. Uses of these properties are planned so as not to interfere with utility operations. III: Incentive Programs Williamson Act Provides a property tax benefit for agriculture where owner agrees to keep the land in agriculture for a period of time. Density Benefits Increases in density could be granted in trade for recreation park or open space dedications. 61 Open Space Preserves A tax advantage can be given to owners who contract with the jurisdiction to keep their land as open space. Land Donation and Private Action Private organizations may accept land donations and hold the land as permanent open space. Private Development Private developers can design permanent open space into their projects on a voluntary basis. IV. Regulations of Land Use by Local Government Local Ordinances Subdivision and zoning ordinances enacted by local government can assist in establishing and preserving open space which does not involve public ownership. Zoning Zoning to protect certain open space and conservation values is extensively used to control future developments which are con- sidered appropriate. Conservation Zoning Zones to protect natural resources and to set standards for their utilization should be added to the zoning code. 62 IV. OTHER GOVERNMENTAL REGULATIONS & PROGRAMS Federal: Legacy of Parks Program Provides grants to local agencies on a matching basis for recreation parks and open space preservation. Funds, however, are limited. Outdoor Recreation (Land, Water Conservation Fund) Provides matching grants for planning, acquisition and development of recreation park and open space lands. Funds are received through the State. Bureau of Land Management Provides land control activities. National Monument Provides control of use and preservation of natural conditions. Federal Land Use Controls Program currently under discussion. Would be used to control uses on open space lands of National significance. State: AB 920 and 921 Proposes 100 million dollars for open space acquisition, 50 million of which is for local jurisdictions. State Bond Act of 1974 Proposes 250 million dollars for State beach, park, recreational and historical facilities acquisition, 90 million of which is to be pro- vided in grants to local government. 63 Department of Fish and Game, and State Wildlife Conservation Board operate waterfowl and wildlife management areas and fish hatcheries supported by monies from State Fish and Game Preservation Funds and Federal grants for similar purposes. The above suggested methods of preserving recreation parks and open space lands should be considered as a -representative compilation only; other means should continue to be explored by the City. 64 V. METHODS OF FINANCING RECREATION PARKS AND OPEN SPACE A study of financing recreation parks and open -space reveals three basic methods which are used by public agencies for their public improvements. These methods include: Pay as you go, using current reserves; pay as you use, by borrowing on the basis of future rev- enue, and utilization of savings or accumulated reserve funds. The following is a brief explanation of these funding methods: I. Pay as You Go Method This method requires the financing of Capital Improvement projects from current income. The practical application of this method requires long range planning of proposed projects so that a uniform amount of expenditure is made each year. The advantages of this type of financing are the savings in interest charges of borrowing which substantially increases the cost of the project. The biggest disadvantage of this method.is the direct cost to the taxpayer during the period of the project expenditure. General Fund Appropriations Provides an adequate and regular source of funds, which is essential to the establishment and continued operation of a municipal recreation park system. An effective way of providing basic financial support is through a special general fund tax for recreation park Capital Improvement projects, in addition to the general practice of providing annual operating costs for recreation park services. The effects of such a method helps to spread the costs of all recreation park services more equitably among all residents of the City, since general fund 65 revenues are derived from various sources and not exclusively from property owners. Fees and Charges Fees and charges for recreation park services provide one source of finance. This practice can be used to supplement the tax budget and contribute funds which can be utilized to expand services. Entrance fees for swimming pools, charges for special instructional programs, and greens fees for golf courses, are some examples of charges which can be levied. In many instances, golf course greens fees have been found to not only defray actual operating costs, but also the costs of initial development. Some disadvantages of this method are that many of the people who need recreation park services would not be able to afford to par- ticipate if charges were made. In addition, commercial standards could become the controlling element with over -emphasis being placed upon revenue-producing income and less emphasis toward seeking maxi- mum participation of the people for whom the recreation park services are intended. The part which fees and charges play in the overall recreation park revenue structure should depend upon an adopted policy of their use, the extent of recreation park development, the rate schedule of fees and charges, and the actual attendance at those facilities which charge for their use. Concessionaire Agreements Revenue from concessionaire -operated recreation park enterprises and conveniences may afford a substantial return to the municipality. The sale of prepared food and soft drinks, amusement rides, etc., are examples of concessionaire -operated enterprises for recreation parks. Such concessions are usually leased to operators on a per- centage of gross receipts. If a decision is made to grant a concession, it is advisable to adopt policies which would govern the operation. These conditions should be incorporated in a formal contract agreement involving the governmental authorities and the concessionaire. II. Pay As You Use Method Borrowing upon future income is a practice used by local govern- meat through the issuance of bonds which provide for the repayment with interest over a period of years. These bonds usually are of three broad types, depending upon their retirement, namely general obligation, special assessment, and revenue. The advantages of bond financing are that the money is available immediately and the cost is spread out over a period of years, to be paid by future residents who will also receive the benefits. The disadvantages of bonds are the difficulty of getting approval of the voters and the fact that the cost of a project is increased considerably through interest charges, sinking fund costs, printing and advertising, bond election costs, etc. General Obligation Bonds The general obligation bond is backed by full faith and credit of the local government, which means all sources of local revenue may be used for servicing the debt. For this reason, it is usually the most secure type of bond from the point of the investor, and ordin- arily can be sold at a lower interest rate than special assessment or revenue bonds. 67 Special Assessment Bonds These bonds are so named because of the fact that payments to mature the issue are made from monies derived from special assess- ments upon certain identifiable real estate. As an example, the establishment of a park imparts a special benefit to real estate in some zone of influence. This benefit is measurable in the actual rise of real estate values. Special assessments are levied against the benefited real estate in the form of taxes which are over and above ad valorem tax on real estate. Special assessment bonds backed up by the full taxing power of the issuing governmental agency are as sound as any other bonds of the agency. Revenue Bonds The use of revenue bonds is limited to -financing of Capital Improve- ments which are intended to be revenue producing. Auditoriums,.golf courses and other similar facilities have been financed, as self-supporting facilities; by the use of revenue bonds. When undertaking the financing of Capital Improvements for recreation parks by the use of revenue bonds, the project must be viewed as a reasonable financial risk or it will be difficult to sell the bonds. In addition, if a project possesses a degree of doubt as to being self-sustaining, the governmental agency may be required to pledge other public funds to make up any anticipated loss. A combination of revenue funds supplemented by an established tax levy helps to make the sale of the revenue bonds more attractive. III. Other Sources of Funds The possibility of gifts of lands, buildings, trust funds, endow- ments and other similar bequests from private citizens and service organizations should not be overlooked as a means of financing recreation park services. Although these gifts cannot be anticipated, they do occur period- ically and should be considered and carefully analyzed when they are offered. If the City were to make it known that such gifts would be accepted, provided they were in accord with.the recreation parks master plan, it may encourage individuals and organizations to provide donations of properties or monies. It should be kept in mind, however, that such donations should only be accepted if they can benefit the public. The cost of providing recreation park services requires money for per- sonnel, supplies, equipment, facilities, land, water and the like. Since these services are expensive to acquire and maintain, all appro- priate means should be undertaken to find the most suitable methods of financing the proposed recreation parks sys"tem for the City of San Rafael. T CHAPTER V AN ACTION PROGRAM To provide an organized system of recreation park areas and facilities which would preserve the City's rapidly vanishing recreational resources, correct existing recreation park deficiencies, and meet the recreation park area and facility requirements by the year 1990, it is recommended that all City officials, staff members and citizens concerned, undertake an action program suggested in this chapter. Although it is recognized that some of the following steps have already been taken by the City of San Rafael, the total recommended program is presented here in order to cover all aspects of the proposed action program. I. GENERAL PROPOSALS 1. San Rafael General Plan Adopt the Recreation Park Master Plan as a basic element of the San Rafael General Plan. The long range recreation park plan should be integrated with all other elements of'the General Plan. Since the General Plan at this point in time has not been finalized, adjustments and revisions to the recreation park plan may need to be considered prior to its adoption. 2. Planning Principles and Policies Adopt the fourteen basic recreation park planning principles stated in Chapter II (pages 3 - 5) as a part of the City's general planning policy. 3. Classification of Recreation Parks Areas Adopt the recommended classification of recreation park areas on the basis of service levels, including neighborhood, community, 70 City-wide, open space and regional recreation parks proposed in this study. These service levels are based upon distance factors, activities associated with different age groups and national, state and local recreational experiences. 4. General Recreation Park Acreage Standard Adopt the recommended standard of 5 acres of local recreation park land for each 1,000 population, and -5 acres of major recreation park and open space lands for each 1,000 of the population. This will provide an overall standard of 10 acres of recreation park land for each 1,000 persons residing in the San Rafael Planning Area. 5. Space Standards for Recreation Parks Adopt the recommended minimum space standards as a basic guide for future recreation park acquisition and development shown as follows: a. Neighborhood Recreation Parks - Should be a minimum of 5 acres in size and located within21 mile radius of the population it is to serve. b. Community Recreation Parks - Should be a minimum of 20 acres in size and located within a 12 mile radius of the population it is to serve. c. City-wide Parks and Open Space - Should be a minimum of 100 acres in size, or a minimum of 5 acres for each 1,000 persons, and be located a maximum of z hour driving time for all residents of the City. The above space standards recommended should be considered as basic elements of the proposed recreation parks system. Any modifications or adjustments of the recommended standards as a result of existing conditions or available resources should be reviewed accordingly. 71 The design of individual recreation park sites should be as flex- ible as possible to reflect changing patterns of recreational needs of the residents in a given service area. 6. Public Recreation Park -School Adopt a course of action whereby public school and municipal author- ities are directly involved in the planning, acquisition, construction and maintenance of public recreation park/school areas and facilities. Joint cooperation and coordination between these agencies is a key element in the development of the proposed recreation parks system: Any space provided for school purposes would then be available for community recreation purposes and, conversely, public recreation parks space provided adjacent to a school site would be fully available for school use. For this reason, all property owned by the school districts (San Rafael and Dixie) and developed for school and recreation use could be considered as a part of the recommended standard of 5 acres per 1,000 population. 7. Relationships With Other Agencies and Organizations Adopt a course of action whereby other governmental agencies can be involved in the recreation parks planning process. Every effort should be made to solicit the assistance and cooperation of the Marin County Planning and Parks and Recreation agencies in the planning, acquisition, development and maintenance of recreation park areas within the San Rafael Planning Area. Large City parks, open space preserves and County regional parks should be planned and developed with the full support and cooperation of both agencies. 72 In addition, other voluntary, private and commercial agencies involved in the provision of related types of recreational services should also be provided an opportunity to participate in the planning of the recreation parks system. 8. Enabling Legislation Establish a proper legal framework for the provision of recreation park areas, facilities and programs, including ordinances requiring dedication of adequate park lands in new subdivisions, cluster zoning, planned unit developments, and preservation of flood plains, tidelands, marshlands and other ecologically significant land and water areas. 9. Advance Planning Establish'a program of advance acquisition of land and water areas based upon the proposed Recreation Parks System Plan. A concentrated program of site acquisitions should be undertaken well in advance of projected population growth and related increase in land costs. 10. Citizen Involvement Adopt a program whereby citizens in the community, through neighbor- hood homeowners associations, citizens advisory councils, etc., can participate in the recreation park planning process. 11. Quality of Land Adopt a policy whereby land set aside by developers for recreation parks, open space or other conservation purposes is suitable for the purposes of which it is intended. Care should be exercised in accepting those lands which have been left over after residential, commercial and industrial developments have utilized prime lands for these developments. 73 12. Reserving Lands for Recreation Parks and Open Space Reserve recreation park and open space lands in advance of urban- ization and development in those areas of the City generally indi- cated in the Recreation Park Master Plan Study. 13. Preservation of Historical, Archeological and Cultural Resources Adopt a policy to preserve all sites of known historical, archeo- logical and cultural importance to'the City of San Rafael. A program should be undertaken in cooperation with local historical societies and organizations to identify and preserve those sites and structures which are compatible with recreation park uses. 14. Financing Recreation Parks Adopt a realistic recreation parks capital improvement and operations funding program which would include, but not be limited to, the following: a. Appropriate from current City revenue sufficient amounts of monies annually, to finance an orderly program of acquisition, development, maintenance and operation which is consistent with the total budgeting requirements of the City. b. Establish an accumulating recreation parks reserve fund to receive regular annual deposits derived from current revenue and other financial sources. The fund should be used primarily for acquisition and development of City recreation park sites and facilities. c. Undertake an active effort to pursue Grant -in -Aid and joint funding programs available through the various Federal, State and County agencies. 74 d. Establish a program which would encourage individuals, groups and organizations to donate to the City properties, monies and volunteer assistance for the acquisition and/or development of recreation parks areas and facilities. e. Explore all possible means of developing revenue-producing recreation park facilities and programs in order to relieve some of the burden of the taxpayers, insofar as may be con- sistent with the general welfare of the residents of the City. f. Employ the services of an economic consultant as required, to assist the City in determining the economic feasibility of the proposed long range recreation parks system plan. 15. Master Site Planning Prepare site plans and working drawings for individual sites pro- posed, delineating active and passive areas of activity, circulation patterns including drives and walks, general building locations, topographic conditions, vegetation and landscape patterns, parking areas and other such components, to be included in the overall site development. As with the system plan, the site master plans should be officially adopted and updated regularly. Since this study proposes general locations and general acreage requirements based upon the application of suggested standards and principles, it is recommended that a joint site study committee, consisting of City officials, public school authorities and citizen representatives, be formed to undertake a study of site selections and their development. 75 it is further recommended that a qualified recreation park planning consultant be retained to assist the City and School District staff with the preparation of master site plans. Financing of such services should be provided by both -the City and the School Districts when planning involves school sites. Special efforts should also be made to provide for easy access to and the use of all facilities by the elderly, ill, handicapped, the very young, and other less mobile individuals in the City. 16. Establishing Priorities Recreation parks sites and facilities should be planned and developed in accordance with a carefully designed system, giving first attention to the most critical needs in the City. Since it is most desirable to develop joint City -School sites, as proposed in this study, the priority needs of both agencies must be considered. it is therefore recommended that upon approval of recreation parks system plan and review by the joint study committee, a priority list be established. With the results of the study committee and a list of priority rated projects, the City and School officials should then be in a position to determine the scope of the job which needs to be done, the expense involved, and the most appropriate method of financing the recreation parks system plan. 17. Evaluation of Recreation Park Services A systematic evaluation of all recreation park services provided by the City of San Rafael should be conducted by the Parks and Recreation Department annually. 76 II. SPECIFIC PROPOSALS 1. Neighborhood Recreation Parks A neighborhood recreation park should be provided in every neighbor- hood within the San Rafael Planning Area. Wherever possible, these neighborhood parks should be developed in conjunction with existing and future elementary school sites. The provision of neighborhood recreation parks should be considered as the first basic element of the proposed recreation parks system plan. To meet the neighborhood recreation park requirements by the year 1990, as indicated in this study, it is recommended that the City adopt a plan for the systematic acquisition and/or development of eighteen additional neighborhood recreation park sites distributed throughout the planning area. The general service areas proposed for the eighteen additional sites are shown on the Recreation Park Plan Map IV on page 92. To determine specific site locations and establish a priority list for the expansion of existing areas, or for acquisition of new sites, it will be necessary, as previously mentioned, to involve the services of a site selection committee. 2. Community Recreation Parks A community recreation park should be provided in every community within the San Rafael Planning Area. Whenever possible, these com- munity parks should be planned in conjunction with Junior High or Senior High School sites. 77 The community recreation park should be considered as the second most important element of the Recreation Park System Plan: To meet the local recreation park requirements by 1990, it is recommended that the City initiate a plan to acquire and develop four community recreation park sites. The general areas suggested for the location of these sites are indicated on the Recreation Park Plan Map IV Page 92. Since the areas have a direct relationship to existing park and school sites, every effort should be made to utilize these existing sites as the nucleus for the community recreation park developments. As an example, if the existing Albert Park site could be expanded and linked with the Davidson Middle School site, the combined site could be developed as suitable community recreation and park. This type of arrangement would also be possible by linking the Lucas Valley open space, Marinwood Park, Miller Creek School, Marinwood open space, and Upper Lucas Valley open space properties. This method of approach should also be considered for the remaining two proposed community recreation park sites. 3. City-wide Parks and Open Space Areas City-wide park areas and facilities should be planned and developed in conjunction with the Open Space Acquisition Program. The provision of combined City-wide parks and open space areas should be considered as the third basic element of the long range Recreation Parks System Plan. The existing and future land and water areas should be planned for 78 both passive and active use by all residents of the City. Space within these areas should be provided for the preservation of natural resources, managed production of resources, public health and safety, and various outdoor recreational facilities which can- not be accommodated in the neighborhood or community recreation parks. Since the City has retained the services of Duncan and Jones (urban and environmental planning consultants) to prepare and develop the open space element of the General Plan, it appears that further comments should be reserved until a later date. In the interim, however, it is recommended that the recreational development standards for open space areas and facilities shown on Table IX, pages 33/37, be considered when determining the open space sites to be acquired. 4. Regional Recreation Parks and Recreational Facilities Regional recreation parks and recreational facilities planned and developed by other governmental entities within or in close prox- imity to the San Rafael Planning Area should be encouraged. Since the provision of regional recreation parks and facilities is considered as a basic function of the County, State and Federal governments, no proposals as to additional sites were included in the scope of this study. However, since these regional areas and facilities are readily available to serve recreational interests of all the residents of San Rafael, it is recommended that the City support and encourage these developments. In addition, all new developments proposed within the San Rafael 79 Planning Area should be integrated with other elements of the San Rafael Recreation Park System Plan. Examination of Table XIII, pages 54/56, shows the Reqional Recreation Park Resources available to the San Rafael residents. Play Lots Play lots for small children (6 - 7 years) should be provided in high density areas of the City. Play lots ranging in size from 2,500 square feet to one acre and . featuring play apparatus, benches and tables, paved area for wheeled toys, sand -play area, small spray or wading pool, and landscape treat- ment, should be provided as a substitute backyard only in high density apartment developments located in various sections of the City. They should be located within a block's walking distance from the center of the housing development and accessible to children without their crossing major streets or thoroughfares to reach the play lot. Play lots usually require parent supervisors and are expensive to maintain and administer and, as such, should be provided and main- tained by the apartment owners and/or tenants' organization. Vest Pocket or Mini -Parks Vest Pocket or mini -parks should be provided in neighborhoods where appropriate. Vest Pocket parks are usually large vacant lots which have been con- verted to recreation use. Such parks may become permanent features in the neighborhood, but should be supportive to adequate open space for all needed facilities. Vest Pocket parks may serve children only, or all age groups, depending upon the needs in the neighbor- hood. These parks may feature childrens' play apparatus, quiet game areas, multi-purpose game courts and landscaping, if sufficient space is available. Vest Pocket parks, like play lots, are expensive to maintain and administer and should be provided in highly -congested areas where neighborhood recreation parks are unavailable. Area Beautification A program should be developed to beautify major streets, Highway 101 and commercial areas within the planning area. The City of San Rafael should cooperate with civic. organizations, service clubs, improvement groups, businessmen, Chamber of Commerce, County and State agencies, and other interested individuals to pre- pare plans for beautification of the City. Included in these plans should be the development of a comprehensive street tree and parkway master plan program, development of park and landscaped areas along Francisco Boulevard, and beautification of major off and on ramps leading to and from the City along Highway 101. Although it is recognized that the City, Chamber of Commerce and California State Highway Department have already made some improve- ments relating to Highway 101, more should be done in this area. Parkways and Green Belt Areas A system of pedestrian parkways and/or green belt areas should be developed wherever possible, to link together the neighborhood community and City-wide recreation parks and open space areas within the planning area. These parkways and/or green belts are needed to provide additional natural and landscaped open space within the City. These connecting areas should be reserved for hiking and bicycling and, where appropriate, horseback riding. The location of these parkways or green belt areas will require further study. However, they should be coordinated with existing areas and future recreation park and open space to be acquired by the City. These parkways and green belts may be obtained by grant, purchase, lease or development rights. Where possible, they should be combined with drainage easements and other public rights-of-way when space is sufficient. Wherever possible, parkways and/or green belts should be a minimum of 100 feet wide, landscaped or in their natural state with trees and shrubs which require a minimum of maintenance. In neighborhood areas, where practical, care and maintenance should be provided by homeowners' associations or neighborhood improvement groups. Civic Parks and Plazas Civic parks and plazas and/or landscaped areas should be developed in conjunction with existing and future commercial and industrial developments within the City. The San Rafael commercial and industrial areas should be made more attractive and inviting by creating various small civic parks, plazas and landscaped areas throughout the concentrated areas of these developments. They should be designed to provide a more scenic appearance, as well as rest and relaxation areas for shoppers and business people. Wherever possible, space for special exhibits, displays, fashion shows, pre-school nurseries, outdoor restaurants 82 and other related developments should be considered at these civic parks and plazas. The San Rafael downtown business district, Montecito Shopping Center and the business and industrial developments along Francisco Boulevard are a few examples of areas where such improvements, should be considered. Provision of civic parks and plazas within the commercial and industrial areas can be accomplished through the creation of a special cooperative planning and development committee, consisting of representatives from the City, Chamber of Commerce, merchants' associations and other interested civic groups and organizations. Bikeway System A City-wide Bikeway System should be planned and developed in con- junction with the adopted Marin County Bicycle Plan. Bikeways are generally divided into three separate classifications indicated as follows: a. Bicycle Trail - is a pathway designated for use of bicycles which are separated from motor vehicular traffic. b. Bicycle Lane - is a lane in the street, normally the parking lane, designated for exclusive or semi -exclusive use of bicycles. Vehicle parking may or may not be allowed. Motorists are allowed, however, to gain access to driveway and parking facilities. Separation from vehicular traffic is normally designated by a painted stripe. c. Bicycle Route - is usually a shared right-of-way for bicycles specified by signs and markings. These shared routes should 83 only be developed on roadways with lower speeds and traffic volume, such as in residential areas. A prime consideration in the development of a Bikeway System is to provide safe, convenient and pleasurable cycling throughout the City. With this in mind, the following planning standards are recommended: a. Use of bicycle routes should be limited to local residential streets where low speeds and.traffic volume do not require traffic separation. b. Separated bicycle trails and lanes should be provided along designated collector streets, secondary, primary and major highways where there are large volumes of traffic which may create a traffic safety problem. c. Minimum width of bicycle trails and lanes should be five feet for one-way bicycle traffic, eight feet for two-way bicycle traffic, and ten feet to accommodate both pedestrians and bicycle traffic. d. Level areas for rest stops along bikeways should be provided if long grades of six percent or more are unavoidable. e. Bicycle racks should be provided by both the public and private entities at destination points along bikeways. f. A signing program along the bikeway should be provided, giving directions to major destination points. g. Signs alerting motorists to bicycle traffic should also be provided. The planning, development and maintenance of the proposed City-wide Bikeway System should be undertaken by the City Public Works Department, as a transportation function. 84 Community Recreation Centers Community Recreation Center buildings should be provided at each community recreation park site. The provision of indoor recreational facilities which are designed to serve all ages are essential for the development of a comprehensive year -around community recreation program. To meet the recreational facility requirements by 1990, the recreation parks system plan should include the provision of four community recreation center buildings. These buildings should be located at each of the community recreation park areas designated in this study. It is recognized that there is an existing recreation building at Marinwood Park which fulfills the requirements at the present time, but may need expansion at a future date, and that a new recreation center building is about to be constructed at Albert Park which will fulfill the requirements for that area. - Locations of the two remaining recreation center buildings proposed should be considered in conjunction with future developments at the McInnis County Park and Glenwood School sites. Although emphasis is placed upon location of the recreation center buildings at the community recreation park sites, other smaller size buildings may be planned and located where appropriate at the various neighborhood recreation park sites proposed in this study. Waterfront and Shoreline Areas Waterfront and shoreline areas should be acquired and developed for public use. go The City of San Rafael should make a concentrated effort to insure that all remaining undeveloped waterfront and shoreline lands along the Gallinas Creek, San Rafael Canal, and the San Rafael and San Pablo Bays are acquired and retained for public open space and recreational use. These lands are one of.San Rafael's major natural resources and, -as such, should be considered as an essential part of the Recreation Parks System Plan. Although additional study will need to be made of the entire water- front and shoreline areas to determine their overall significance to the plan, some proposals can be made at this time. An aquatic shoreline park should be developed in East San Rafael. This park should extend from the entrance of the San Rafael Canal along the entire shoreline south to State Highway 17. This pro- posed park should include provision of a combination neighborhood recreation park, plus additional water -oriented recreational facil- ities along the shoreline and the existing lagoon. When developing the Master Site Plan for this area, consideration should be given to incorporating the public utility lands and other existing public lands as a part of the waterfront park development. Because of the expense involved in the acquisition and/or develop- ment of these and other waterfront and shoreline areas, the City should seek financial assistance and support from the County, State and Federal governments in the planning, acquisition, development and maintenance of these waterfront and shoreline areas. Night Lighting of Areas and Facilities Night lighting of recreation park areas and facilities should be provided for their,expanded usage. 86 The provision of night lighting should be considered when upgrading or planning new recreational areas and facilities, so that residents may avail themselves of their use after work and during all evening hours. Although it is recognized at present that -an energy crisis exists, it also appears that as a result more residents will be restricting their recreational travel. This being the case, greater demands for more local areas and facilities are anticipated to meet their leisure -time interests and needs. Night lighting of these areas and facilities will also provide increased security and protection not.only for the areas and facilities themselves, but for the users as well. 87 III. OTHER RELATED PROPOSALS During the course of this study, many individuals and groups were asked to express their views relative to recreation park areas and facilities in the City which they felt should be upgraded or improved. A summary of some of their comments and suggestions appropriate to this study is briefly outlined as follows: I. Improvements to Existing School Facilities 1. San Rafael High School Site a. Add two additional tennis courts and install night lighting at all courts. b. Enclose existing handball courts. c. Turf and landscape northwest parking lot area and add additional multi -use play fields. d. Improve landscaping of entire site. 2. Terra Linda High School Site a. Install night lighting at tennis courts. b. Enclose existing handball courts. c. Expand existing gymnasium facilities. d. Turf and expand play field facilities. e. Redesign outdoor areas for greater recreational use. f. Landscape entire site as a park. 3. Davidson Middle School Site a. Combine Albert Park site with Davidson School site to provide a large community park school complex. b. Turf existing play field for multi -sports use. c. Construct four new tennis courts. d. Construct public swimming pool. W e. Construct complete track facility. f. Add lighted softball and youth baseball facility. g. Landscape entire site as park. 4. Vallecito Junior High/Don Timoteo School Sites a. Develop as neighborhood recreation park school complex. b. Install night lighting at existing softball/baseball fields. c. Construct two additional lighted tennis courts. d. Construct track facility. e. Construct recreation center building. f. Develop children's apparatus area and install play equipment for tiny tots and elementary school youth. g. Landscape entire school park site. 5. Santa Venetia Middle School Site a. Provide swimming pool facility. b. Construct four lighted tennis courts. c. Re -turf and develop lighted softball/baseball fields. d. Develop multi -use turf field for football, soccer, etc. e. Landscape entire area as a park. 6. Miller Creek Junior High School Site a. Incorporate Miller Creek facility with existing Marinwood Park. b. Refurbish play fields to include lighted softball/baseball facility. c. Landscape entire school site as a park. 7. Peacock Gap School Site (undeveloped) a. Develop as neighborhood recreation park school site. b. Construct two lighted tennis courts. c. Provide multi -use play field. d. Construct multi -use game court area. e. Landscape entire site as a park. M. 8. Glenwood Middle School Site (undeveloped) a. Develop site as a community recreation park school complex. b. Construct four lighted tennis courts. c. Provide public swim pool facility. d. Construct community recreation center building. e. Develop multi -use play fields. f. Construct multi -use game court area. g. Completely landscape entire school site. 9. Sun Valley School Site a. Refurbish existing turf play area. b. Construct two lighted tennis courts. c. Landscape site as a park. II. Improvements to Existing Recreation Park Sites 1. Albert Park Site a. Develop site in conjunction with Davidson Middle School as a community recreation park complex. b. Construct handball courts. c. Re -design children's play areas. d. Re -design and re -landscape area around community recreation center building site. 2. Victor Jones Park Site a. Construct hiking trails in undeveloped area. b. Install additional picnic tables, benches, etc., within undeveloped area. c. Link park site with Barbier Memorial Park. 3. Boyd Park a. Expand park facilities in undeveloped portions of the park. b. Develop hiking and nature trails. c. Construct additional picnic facilities. d. Re -design and improve existing fish pond. Although many of the above comments and suggestions have been repeated i.n the preceding portions of this -study, it is interesting to note that the comments and suggestions expressed do relate to the conclusions reached in this study. CONCLUSION It is hopeful that the information contained in this study will serve as a major instrument in guiding the orderly and intelligent planning and development of a comprehensive system of recreation park areas and facilities which will adequately meet the existing and future leisure -time interests and needs of all citizens, young and old alike, residing within the City of San Rafael Planning Area. 91 RECREATION PARKS MASTER PLAN EXISTING NEIGHBORHOOD RECREATION PARK AREAS PROPOSED NEIGHBORHOOD / RECREATION PARK AREAS PROPOSED COMMUNITY RECREATION PARK AREAS PROPOSED SHORELINE PARK AREAS EXISTING PUBLIC RECREATION PARK SITES EXISTING PUBLIC SCHOOL SITES MAP PREPARED BY PLANNING DEPARTMENT CITY OF SAN RAFAEL 2 - PLANNING AREA BOUNDARY /Pi Q KI LSE 0 � Z 3 i t fi tl 9 i0 FEET ITeaus on Osl NAYi L TO4 Aiq F09CE EA]E RECREATION PARKS MASTER PLAN S44, 9� 0 94 Y R pF p�L pN 5 (/Y 1 I I 1 1 MAP 4 92 BIBLIOGRAPHY A. BOOKS The Athletic Institute. Planning Areas & Facilities for Health, Physical Education and Recreation, Washington, Butler, George. School -City Cooperation in Planning of Recreation Areas and Faci� 1i New York: National Recreation Association, 1953• Carlson, Reynold. Recreation In American Life. Belmont, California: Wadsworth Publishing Company, Inc., 19 6-3 Gabrielsen, M. Alexander, and. Caswell M. Miles. Sports and Recreation Facilities for School and Community. Englewood Cliffs, New Jersey: Prentice -Hall, Inc., 195• Meyer, Harold, and Charles Brightbill. Recreation Administration A_ Guide to Its Practices. Englewood Cliffs, New Jersey: Prentice -Hall, Inc., 1956. Municipal Recreation Administration. (Fourth Edition) Chicago: The International City Managers' Association, 1960. B. PUBLICATIONS OF THE GOVERNMENT, LEARNED SOCIETIES, AND OTHER ORGANIZATIONS American Association for Health, Physical Education and Recreation. "Twentieth Century Recreation", A Report of the Second National Conference on School Recreation. Washington, D.C., 1962. American Society of Planning Officials. Standards for Outdoor Rec- reational Areas. Report No. 194, Chicago, Ill., 195. California Committee on Planning for Recreation, Park Areas and Facil- ities. Guide for Planning Recreation Parks in California: State of California Recreation Commission, 19 City of Berkeley Planning Commission. Berkeley Long Range Park and Recreation Plan, 1957• City of Stockton Planning Commission. Stockton Parks and Recreation Plan, 1972. Duncan & Jones -Ribera & Sue. Santa Cruz County Parks, Recreation and Open Space Program, Phase I, 1971. Marin County Planning Department. Parks and Recreation Plan 1990, 1965. Marin County Planning Department. The Marin County -wide Plan (Interim Document), 1973• 93 BIBLIOGRAPHY (Cont'd) National Recreation and Park Association. National Park Recreation and Open Space Standards. Washington, D.C., 1971. William Spangle S Associates -Dan Coleman Associates. A General Plan for the City of San Rafael, 1966. State of California Recreation Commission. Public Recreation and Parks in California, Principles and Current Practices. Sacramento, California: State of California Recreation Commission, 1957• 94