07/09/2025

Planning for Parks and Recreation

From a social standpoint, parks facilitate healthy lifestyles and provide civic spaces where people can come together. Parks also drive economic performance and opportunity. A well-designed, programmed, and maintained system of municipal parks is an essential component of any city’s strategy for attracting and retaining a strong workforce as well as spurring local investment.¹ Parks promote environmental sustainability through clean air, controlled flooding, and ecological diversity. Indeed, planning for parks, open spaces, greenways, and trails represents critical elements of a community’s "green infrastructure" and should be regarded as elements of a larger, interconnected public realm that also includes streets, museums, libraries, stormwater systems, utility corridors, and other civic infrastructure.²

Communities can better plan for their future by developing a system-wide, comprehensive park, recreation, and open space master plan. A parks and recreation master plan –

• establishes community aspirations and a long-range vision for parks, recreational facilities, and open spaces
• recommends patterns of development and open space preservation to support a community’s recreational needs
• provides a snapshot of a current park's network of assets (recreational facilities, open space, natural resources, staff resources, etc.)
• offers a forum where residents can express their recreational needs and interests 
• lays out strategies a community can implement to protect, manage, maintain, and expand open spaces, natural resources, and recreational facilities
• aligns needed parks and recreational enhancements with a city’s community investment program (CIP).

When developing a master plan for a community’s parks and recreational facilities, one size does not fit all. With no nationally accepted standards for parks and recreation planning, each community must determine its own standards, level-of-service metrics, and long-range vision for its parks and recreation system based on community-driven issues, values, needs, priorities, and available resources.³ According to the National Recreation and Parks Association (NRPA), a standard for parks and recreation cannot be universal, because “there is not a single set of standards for parks and recreation that could possibly encompass the uniqueness found in every community across the country. Communities vary greatly by size, needs and desires; so too should their park and recreation agencies’ offerings.”⁴ To ensure that a parks and recreation master plan truly reflects a community’s needs, and residents’ level of satisfaction with existing parks, facilities, recreational programs and services, park planners and landscape architects should conduct a variety of specific assessments to inform how a parks system should function, the amenities it should contain, and how facilities should be operated and maintained, including the following:

Demand. Parks are meant to serve people, so it is critical to fully understand residents’ recreational interests and desires. A demand-based assessment reflects the culmination of an array of public engagement activities typically employed throughout the planning process, including focus group listening sessions, neighborhood outreach meetings, community open houses, pop-up events, online community and express surveys, and joint workshops with community leaders.

Standards. A community-specific standards-based assessment evaluates appropriate levels of service and the geographic distribution of parks, facilities, and recreational programs; classifies parks into functional categories based on size, recreational offerings, and types of facilities, including regional parks, community parks, neighborhood parks, linear parks, pocket parks, and special use parks (i.e., sports complexes and civic parks); and evaluates the proximity of parks to the communities and neighborhoods they serve, to more fully understand where there may be geographic gaps in the provision of parks and open spaces.

Mary’s Creek Trail was developed within a drainage and electric transmission easement and represents a partnership between the City of Pearland, Texas and Brazoria County Drainage District No. 4. Source: Baxter & Woodman, Inc.

Resources. A community's parks can be enhanced by utilizing recreational and open space features within its existing built areas. Additional third-party resources that may contribute to park accessibility and connectivity include utility transmission corridors and rights-of-way, and drainage features such as stormwater detention basins and channels. Additional resources may include a local school’s athletic fields, which may be available to the public for use after school hours through executing an interlocal agreement with the school district.

Conditions. The quality, appearance, and maintenance of the park system contributes to the image of the community and perception of its livability. Assessment of the condition of recreation facilities, buildings, equipment, forest canopy and landscape enhancements, and other parkland improvements is an integral component of analyzing a park system’s overall performance. Park condition assessments can lead to the development of a valuable GIS-based asset management program, streamlining facility evaluation, defining maintenance/replacement cycles, and integrating the data into the Parks Department’s CIP.

Operations. A Parks Department’s operational expenditures, staffing (administrative and maintenance), and generated revenues are evaluated and compared to the parks system as a whole (acreage) and the recreational programs offered to examine appropriate cost recovery thresholds. An operations-based assessment may include additional administrative elements, including the degree to which a parks department embraces sustainability and resilience, and whether the department should pursue accreditation through the Commission for Accreditation of Park and Recreation Agencies (CAPRA). The NRPA’s Park Metrics can be a useful resource to evaluate the operations of parks departments in comparable communities, in conjunction with relevant benchmark communities that share a comparable cost of living index.

Health. The range of health outcomes related to chronic diseases, pollution, solar exposure, and unhealthy behaviors are analyzed within the community to inform the design and physical features and attributes of parks, trails, and open spaces, and to promote healthier lifestyles.

The Vale-Asche Foundation Playground in Houston’s Memorial Park features integrated shade, poured-in-place fall surfacing, and a variety of ramps and transfer stations to provide an environment for users of all ages and abilities. Source: Baxter & Woodman, Inc.

Inclusivity. Parks should be fully accessible to people of all ages and abilities. Beyond Americans with Disabilities Act (ADA) compliance pertaining to access and circulation, an inclusivity-based assessment evaluates the provision/availability of adaptive equipment and inclusive playgrounds specifically designed to serve those with special needs, including seating and rest areas (shaded areas and shade structures for those who may be sensitive to sunlight); universal restroom facilities and adult changing stations; sensory considerations (tactile, sound, smell); facilities to promote interactive, non-verbal communications; and public art displays.

Designed by the SWA Group, and frequented by over 12,000 Houstonians daily, the 169-acre, 2.3 mile Buffalo Bayou Park includes 10 miles of walking/biking trails, a two-acre dog park, 30,000 sq ft skate park, nature play area, and an amphitheater. Source: Baxter & Woodman, Inc.

Resilience. A resilience-based assessment analyzes how parks can be constructed and maintained to be resilient to chronic environmental stressors, such as designing parks and sports fields to temporarily retain stormwater to reduce the risk of flooding in neighboring residential areas (sponge parks) and locating park facilities and furnishings outside of areas prone to flooding.

As recommended within the City of Pearland’s Park, Recreation, Open Space and Trails Master Plan, trailheads along the City’s recreational trails provide hikers and bikers a shady place to rest for a moment and enjoy a drink of water. Source: Baxter & Woodman, Inc.

Pedestrian Level of Service (PLOS). PLOS can be categorized according to comfort, safety, ease of mobility, and convenience, and evaluates the usability of active transportation facilities like sidewalks, shared-use paths, off-street trails, on-street bike lanes and cycle tracks. If one or more of these categories are overlooked during design or use, the facility may not achieve its full intended impact or effectiveness. Over time, underused trails may fail to reach their potential as pedestrians seek alternative routes.

Sports and Athletics. A sports and athletics-based assessment examines the availability and quality of fields suitable for practice, games, and tournaments, along with supporting infrastructure such as lighting, scoreboards, bleachers, concessions, restrooms, and off-street parking. The goal is to evaluate whether current facilities adequately balance the needs of both Parks Department-sponsored league play and club (Select) play. Additionally, athletic fields and amenities are assessed within a broader regional context to identify the presence of other tournament-quality venues. This supports increased participation in, and promotion of, sports tourism, which can help drive economic development and related benefits.

Indoor Recreation and Aquatics. This assessment evaluates recreational facilities (e.g., gymnasiums, natatoriums, and recreation centers) to understand the types of indoor recreational and aquatics programs offered, levels of participation, and the extent of cost recovery through program revenues.

Natural Resources. Parks Department-managed natural areas are assessed in terms of ecosystem services, floral and faunal species composition, health and diversity, types of invasive species, connectivity of natural areas (patches) to environmental corridors, and other criteria formulated in collaboration with the Parks District or Department. Natural resource assessment criteria and scoring methodologies are developed to identify and prioritize areas within existing parks that can be programmed, managed, and maintained in a quasi-natural state using native plant communities to create biologically diverse forested and natural environments where visitors can immerse themselves in nature and reap the associated health and wellness benefits – an idea that serves as the philosophical basis for the practice of shinrin yoku (a Japanese term which translated, means “forest bathing).

Developing a master plan for a community's parks and recreational facilities requires a tailored approach that reflects the unique needs, values, and resources of the community. The wide range and diversity of assessments conducted highlight the complexity and critical importance of carefully planning a community’s parks system so that it is well-equipped to serve its residents effectively. By focusing on community-driven planning, park planners and landscape architects can create spaces that are not only functional and aesthetically pleasing but also accessible to all members of the community. This approach fosters a sense of ownership and pride among residents, as they see their input directly influencing the development of their local parks. Ultimately, a thoughtfully developed master plan helps parks and recreational facilities serve as valuable assets that enrich the lives of all residents.

Authors: Aaron Tuley, AICP, ENV SP, CNU-A

References: 

1. EarthShare, 2022. The Importance of Urban Parks in the U.S. and Around the World. https://www.earthshare.org/importance-of-urban-parks-in-the-u-s-and-around-the-world/ 
2. Barth, D., 2020. A New Approach to Parks and Recreation System Planning. Parks and Recreation, November 2020. NRPA. https://www.nrpa.org/parks-recreation-magazine/2020/november/a-new-approach-to-parks-and-recreation-system-planning/ 
3. Barth, D. 2020. Parks and Recreation System Planning: A New Approach to Creating Sustainable, Resilient Communities. Island Press, Washington, DC. Library of Congress Control Number: 2019955368 
4. May, M., October 31, 2019. NRPA Park Metrics Replaces NRPA Areas and Facilities Standards. NRPA Parks and Recreation Magazine. https://www.nrpa.org/parks-recreation-magazine/2019/november/nrpa-park-metrics-replaces-outdated-nrpa-areas-and-facilities-standards/ 
5. NRPA, 2022. The Economic Impact of Local Parks: An Examination of the Local Impacts of Operations and Capital Spending by Local Park and Recreation Agencies on the U.S. Economy. National Recreation and Park Association. https://www.nrpa.org/contentassets/f568e0ca499743a08148e3593c860fc5/2022economicimpactreport.pdf 

Baxter & Woodman brings the vision and expertise communities need to create vibrant, thriving parks and recreation spaces. Our assessments go beyond planning—they ensure every park is a place where people connect, nature flourishes, and communities thrive. For more information, contact Aaron Tuley, AICP, ENV SP, CNU-A.

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