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Recreation Policy d".7.111:. A RECREATION POLICY FOR THE CITY OF FAIRFAX FQREWORD In the fiscal year beginning July 1, 1964, the City of Fairfax operated seven summer playgrounds at a cost of $12, 156. 00, contributed $3, 681. 00 for the support of voluntary baseball programs and paid $1, 000. 00 to the Northern Virginia Regional Park Authority. $1, 742.00 was returned to the City in fees paid by children who participated in the summer playgrounds. The net expenditure for parks and recreation amounted to $15, 095. 00; between 85 and 90 per capita. In the fiscal year beginning July 1, 1965, the summer playground program was expanded by $1, 658.00 and grants in aid to voluntary programs were increased by $584.00. For the first time the City also budgeted a capital contribu- tion to the Northern Virginia Regional Park Authority, of $11, 989.00, in addition to its $1, 000.00 share of operating costs. The net amount to be spent for these purposes in 'fiscal year 1965-66, including capital outlay, is $29, 318. 00, slightly in excess of $1. 50 per capita. It should be noted in passing, that the Park, Cemetery and Forest Division of the Department of Public Works in fiscal year 1964-65 was wholly engaged in maintaining publ.i.c rights of way, the cemetery and other City-owned property, not including parks. Chapter 11, Section 11.1 (c) of the Charter, granted the City of Fairfax in 1962, provides "All recreational facilities and grounds located on property owned by the School Board shall be under the exclusive control and supervision of the School Board" . By a Resolution adopted by the City Council on February 6, 1963, the entire recreation function was lodged with the Superintendent of City Schools and the School Board. Although the City has operated no parks, that function is provided for in the Department of Public Works. Early in 1964, the City Council appointed a Citizens Committee to study the problems of recreation and parks and to make recommenda- tions to the City Council. The Committee did not function until, through the efforts of Mrs. Armistice Turtora, President of the City Civic Federation, a small committee was convened which, in turn, asked the help of Dr. Thompson of the Fairfax County Recreation Department. As a result of Dr. Thompson ' s suggestions, and pursuant to the author- ization of the City Council, Mr. Merrill. Whitman of the City School Board, and Mrs. Armistice Turtora joined a group tour of the Flint, Michigan, Recreation Program. As a result of what they saw in Flint, Mr. Whitman and Mrs. Turtora recommended to the City School Board that the recreation budget for 1965-66 be expanded to include a full-time recreation director to operate in the school buildings. It was suggested that since the only City-owned school was the John C. Wood School, the director should be stationed there, and a pilot recreation program should be put in effect there. The idea was shortly at large that children of the Wood School would be afforded advantages denied others. Following presentation of the School Board' s request for a $15, 000. 00 appropriation to permit the employment of a full-time recrea- tion director, Councilman Lamb presented a resolution which would have removed the recreation function from the School Board and placed it under the City Manager. The motion was tabled until a joint meeting of the School Board and the City Council on May 3, 1965. As a result of the meeting, the School Board and the Council scheduled a series of public hearings at which the views of persons and organizations interested in the field of recreation were solicited. Public hearings were held on May 11, May 25 and June 8, 1965. The report which follows is an attempt to state the results of the public hearings and to formulate a plan for the future. -2- !r . •• I A SUMMARY OF RECREATIONAL AND PARK RESOURCES AVAILABLE TO RESIDENTS OF THE CITY A. Land. The City presently owns, or will shortly own, the following parcels of land which might be considered suitable for park and recreational activities: 1. Mosby Woods Park 6.0 acres 2. Pickett Road Park 16.0 acres 3. City Hall tract, unused, approximately 2.0 acres 4. John C. Wood School Site 14.0 acres 5. Fairfax Elementary School 6.0 acres 6. Burrows Avenue .5 acres 7. Warwick Avenue and Scott Drive 1.0 acres 8. Chestnut Street .4 acres 9. Fern Street and Oakwood Drive _ 1.0 acres 10. Tedrich Boulevard 1.0 acres 11. Heritage Iane 2.6 acres 12. Woodland Drive, Poplar Street 1.5 acres 13. Unused portion of cemetery 5.0 acres TOTAL 57.0 acres The City owns a parcel of approximately 47 acres, located at the intersection of Roberts Road and Braddock Road, outside the City. The City Council, on June 15, 1965, voted to sell the parcel and to' use the proceeds to purchase other land within the City. The parcel is under contract for sale ,at $210, 000 net cash, contingent upon its being rezoned by the County to the R-17 classification. The time limit for zoning is 6 months. B. Northern Virginia Regional Park Authority. The City is a member of the Northern Virginia Regional Park Authority, which owns two substantial parcels of open space: 1. Bull Run Park and adjoining land, consisting of approximately 1,493 acres. 2. Pohick Bay Park, consisting of approximately 356 acres (not yet open to public) . The Regional Park Authority has concerned itself with acquiring land to be developed into large park sites in future years. The Bull Run Park is available for picnicking and camping and has been used extensively -3- 410 .1110 by City scout troops. The City representatives on the Authority are Mr. Leonard Mobley and Dr. C. Barrie Cook. C. Voluntary Agencies Already Operating in the Recreation Field. (a) Little League in the City and vicinity, 54 teams, involving approximately 925 boys. (b) Babe Ruth League, involving 14 teams and 220 boys. (c) Boys Club of Fairfax, involving approximately 400 boys. (d) Fairfax County Y.M.C.A. , located approximately two miles from the City. (e) Fairfax County Y.W.C.A. . (f) Fairfax Girls ' Club, serving 200 girls. (g) Boy Scouts of America: Troops - No. Sponsor Membership 1145 Eleven Oaks 7 1115 Belle Willard 20 1113 Westmore PTA 23 1112 Sidney Lanier PTA 80 997 Christ Evangelical 14 977 . Elks Lodge 5 973 Ffx. Elementary PTA 40 889 Ffx. Presbyterian 28 887 Truro Episcopal 62 882 Layton Hall PTA 8 655 Bruen Chapel 38 187 Ffx. Methodist 45 370 Packs -- No. Sponsor Membership 1145 Eleven Oaks 11 1115 Belle Willard 15 1114 Mosby Woods PTA 25 1113 Westmore PTA 68 1112. Jermantown PTA 53 973 Ffx. Elementary PTA 36 889 Ffx. Presbyterian 21 887 Truro Episcopal 46 882 Layton Hall PTA 74 655 Bruen Chapel 42 187 Ffx. Methodist 50 441 4010 *Id Posts -- No. Sponsor Membership, 1112 Jermantown PTA 6 889 Ffx. Presbyterian 15 887 Truro Episcopal 11 695 St. Matthews 15 655 Bruen Chapel 11 187 Ffx. Methodist 13 71 Total Membership 882 Approx. County Membership -115 TOTAL CITY MEMBERSHIP 727 (h) Girl Scouts (i) Campfire Girls (j ) Churches. (Young people' s groups and Sunday schools) : 1. St. Leo ' s Roman Catholic Church 2 . Truro Episcopal Church 3. Fairfax Methodist Church 4. Fairfax Baptist Church 5. Fairfax Lutheran Church 6. Fairfax Presbyterian Church 7 . Assembly of God 8. Christian Science 9. Unity Society (k) Non-profit membership corporations,: 1. Fairfax Swimming Pool 2. Country Club Hills Swimming Pool 3. Army-Navy Country Club (1) Fairfax Players, Fairfax Jubilaires C. Commercial Recreational Establishments: 1. Fairfax Bowling Alley 2. Fairfax Circle Bowling Alley 3. Miniature Golf Course 4. Fairfax Theatre 5. Loews Theatre, under construction 6. Starlit Fairways D. Fairfax County Recreation Department Program,. The Fairfax Country Recreation Department conducts many classes in the public schools. The program is self-supported by the fees paid by participants and is available to citizens of Fairfax at no cost to the City. -5- • Q E. The Fairfax County Public Library. The City contributes to the support of the public library which offers film programs, discussion groups and similar activities. II A DEFINITION OF THE WORD "RECREATION" The word "recreation" means a variety of things to different persons. In common parlance, it relates to refreshment, diversion or play. The professionals have generally defined the term as "activities engaged for that compulsion which brings satisfaction to the individual. " As satisfactory a definition as any is that George D. Butler, Introduction to Community Recreation, New York, McGraw Hill (1959) p. 10: "Recreation is any form of experience or activity in which an individual engages from choice because of the personal enjoy- ment and satisfaction which it brings directly to him. " Of course, recreation can be an entirely individual matter, or it may be sponsored by the community. In recent years, there has been much community acceptance of the idea that there are valid community purposes to be served by a .community directed recreation program. The goal of such a program is to enrich the lives of community citizens through participa- tion in wholesome, creative, leisure-time activities. Children need healthful, social play in order to obtain their full development. They require wholesome, recreational opportunities which will occupy their time and deter them from engaging in questionable activities which might lead to delinquency. However, people who play together for a common good achieve a community of interest which is good for any community. III ADMINISTRATION OF PARKS AND RECREATION AREAS The occasion for the public hearings was Councilman Lamb' s resolution that the function of recreation be removed from the School Board and placed under the City Manager. The subject of the proper -6- machinery for administering a park and recreation program was there- fore much in the minds of the Council and School Board during the public hearings, and was the subject of public comment. At the present time, the parks and recreation functions are separate. The 1962 Charter and a February 6, 1963 resolution of City Council gave the recreation function to the School Board. Parks, although there have been none in actuality, have been placed under the Department of Public Works to be administered jointly with cemeteries, rights of way, and the maintenance of other public grounds. Councilman Thomas suggested that if the function of recreation is removed from the control of the School Board, the City should appoint a separate Recreation Board to administer the budget. It has also been suggested that parks and recreation should be administered under a single head. Across the nation, there are several patterns for the organization of recreational activities: 1. Two separate organizations, A. Recreation Department B. Park Department 2. A combined recreation and park department 3. A separate park department with recreation responsibility in the public schools 4. Recreation and park under the supervision of an authority. . There are arguments pro and con concerning each of the types of administrative set-ups in existence. Arguments in favor of a separate recreation department independent from park are these: 1. Separation gives greater recognition to a generally overlooked area of service. 2. In a separate department, there is no danger that recreation would lose its identity. -7- t � (1100 lad 3. With a separate department, there is less likelihood that the recreation budget would be slighted. 4. With a separate budget, qualified recreation personnel can be employed and there is no danger that they would be put to work at other tasks which would slight the recreation program. Arguments in favor of combining the recreation and park administration under one head are as follows: 1. Such a combination makes possible a more comprehensive program of activities and services. There is no danger of duplication or overlapping. 2. With parks and recreation under a single head, recreational areas in school grounds are more likely to be beautified and made attractive to the general public. 3. Under a combined administration, the park areas, which in a separate administration are frequently restricted in use to protect flowers, shrubs and grass, are thrown open to a greater utilization by the public. 4. A combined administration permits greater unity in plan and greater specialization of function. 5. Combining park and recreation in a single department leads to a better understanding of the full scope of recreation. Arguments against combining the departments of recreation and park are: 1. That the head of the department may give greater emphasis to one phase or the other. 2. Construction and maintenance function are largely engineering services and can be best directed by a specialist. Arguments in favor of having the public schools handle. the function of recreation are as follows: -8- f 1. Since a large part of community recreation is educational, it is logical that the program be administered under school auspices. 2. Since school properties are in use less than half of the time by the school and since the greatest demand for recreational space is at a time when schools are not in use for school purposes, economy demands that school properties be used in recreation programs. If recreational activities are under the same direction as the public schools, conflicts will be avoided. 3. Schools are staffed by teachers professionally trained to dandle children and young persons in recreational activities. 4. Much of the after hours of educational activity, and particu- larly that which is afforded adults, is recreational. 5. The general public would be likely to have more confidence in a recreation system operated by the public schools. Arguments against the administration of recreation by the schools are as follows: 1. Public schools are concerned primarily with education and are likely to look upon recreation as a secondary task of less importance to the community. 2. Since schools in growing metropolitan areas have a continuing demand for budgetary dollars and capital outlay dollars, the tendency to cut back recreational programs at the expense of schools would be always present. 3. Recreation encompasses many activities such as part on ball fields, swimming pools, and similar activities which are ordinarily not connected with the school funds. 4. Public school administrators are likely to have little interest in recreational activity for pre-school children and adults. -9- i 411110 41I10 """ +" Surrounding jurisdictions handle the problem in a variety of ways. Montgomery and Prince Georges Counties support a Park and Planning Authority which administers both parks and recreation. Arlington County has a park and Recreation Department, responsible to the County Manager. Alexandria has a Park and Recreation Department, responsible to the City Manager, assisted by an Advisory Board. Fairfax County has a semi-autonomous Park Authority in charge of its parks, and a separate Recreation Department. Falls Church has a Recreation Depart- ment under the City Manager. Its parks are maintained by the Public Works Department. Rockville has a separate Recreation Department responsible to the Manager. Its parks are maintained by the Public Works Department assisted by an advisory committee for each park. College Park has a Recreation Board and a Recreation Coordinator. Its parks are maintained by the Department of Public Works. Takoma Park has a Recrea- tion Department. Its parks are maintained by the Department of Public Works. The District of Columbia is dependent upon the National Park Service for its parks. It has a semi-autonomous Recreation Department. In none of the surrounding jurisdictions is the recreation function lodged in the School Board. . IV USE OF SMALL TRACTS AS NEIGHBORHOOD PARK SITES The City had one experience with the development of a small playground. A parcel of City-owned ground, lying between Woodland Drive and Poplar Street, was developed by the Westmore Civic Association as a playground for small children. A small "Western Village" was constructed at considerable expense to the Association. 'After several years the playground was discontinued because it had become a late-night hangout for teen-agers who wrecked the playground equipment, drove gut the small children, and made themselves a general nuisance to the neigh- borhood. The Police Department was unable to control the situation. -10- 4 the In 1964, City was requested by citizens of Scott Drive to develop a one acre well site, located there, as a playground for small children. In 1965, the City was requested by the Westmore Citizens Association to develop the Fern Street well site as a play area, including tennis courts. The City School Board recommended that two playgrounds be equipped in the 1965 fiscal year. Although the City Council expressed reluctance, funds were included in the budget for two playgrounds for small children, but these funds were never appropriated. Subsequently, the Sc'aool Board recommended that these funds be expended at the John C. Wood and Fairfax Elementary Schools. However, this matter was tabled pending final consideration of City park and recreation policies. Whether or not the well sites located within the City will be useful for playgrounds or whether they could be developed for tennis courts or small parks, is yet to be determined. Single-family dwellings are in close proximity to all of the lots. It remains to be seen whether such small sites can be used by the public without undue annoyance to near neighbors. V THE NEEDS EXPRESSED The points of view expressed at the public hearings frequently were in conflict. A persistent view was that no organized recreational activities are needed; that the City should limit itself to supplying spaces where children and adults can organize their own activities. Several persons expressed the kindred view that recreation is a family business, not City business, and that there are already sufficient commercial and public recreational facilities in the metropolitan area. The volunteer workers in the several large organizations providing recreational opportunities to boys, generally agreed that the City could make the greatest contribution to their programs by furnishing land on which playing fields could be built and maintained by the City. Some would have the City go further and furnish officials. Generally, however, they agreed that it is unnecessary for the City to employ a City Recreati4 q Director to coordinate their activities. A delegation of high school students, the Fairfax Players, and several persons interested in music, expressed the view that in add- ition to land, a building is needed. As some of the teen-agers put it, it would be a place to go; a place to gather after school; a place where dances could be held under proper supervision; a place where people not on athletic teams could play basket ball. The thespians and musicians would like a community recreation center to include a room usable as a small theatre and music hall. Members of the community concerned about the cost of recreation, pointed out that because of the cost of land, school sites should double as recreation sites. The thought was expressed that school sites should be available after hours, and that teachers employed part- time could protect school property from vandalism and keep the peace. VI POINTS OF AGREEMENT Many of the persons invited to speak before the City Council and School Board in the joint hearings, disagreed about the role of the City in recreation. However, certain points of agreement did appear. It is submitted that there was general agreement on these points:" A. The City should acquire more land., The City has approxi- mately 37 .0 acres of land in eleven widely scattered parcels, usable at least temporarily for recreation. In addition, the School Board owns approximately twenty acres of school property which can be used for recreation purposes when not in use for school purposes, Further, under the County-City Contract, the City may use County-owned schools for recreation when not in use for schools. The City has no land suitable for the construction of a large recreation complex including football and baseball fields, tennis -12- courts, and similar recreational grounds. It has no land which is suitable for development as a Central City Park. B. The City should have a Recreation Director. This person need not be an additional employee of the City, but could be the Superintendent of Schools or some one working under the City Manager. Initially, the job of recreation director would be to maintain a central register of recreational opportunities in the City, public and private, and to coordinate the scheduling of events in public school buildings. Under the City-County Contract of 1965, the City has the privi- lege of using school property belonging to the County, located within the City when not in use for school purposes. A recreation director acquainted with all of the groups operating within the City could serve as a' clearing house for the use of the buildings and for the scheduling of events. C. The City should insure that citizens will continue to be afforded the opportunity of participating in the activities of the Fairfax County Recreation Department. No desire was expressed by any member of the public to compete with the Fairfax County Recreation Department. D. The City should continue to participate in the Northern Virginia Regional Park Authority. For a relatively nominal amount; the City has full use of the large natural areas assembled by the Park Authority on Bull Run and Pohick Bay. The City could not attempt to duplicate camping areas and nature trails already available through membership in the Authority. E. The City is not ready to assume a large tax burden to support a greatly expanded recreation program. F. At some future time it would be desirable to have a City of Fairfax Community Center. -13- 4.0 410 SUMMARY AND RECOMMENDATIONS A. It is recommended that the City proceed with dispatch to acquire three parcels of ground: The Scott tract for a central recreation ground, and the Morris and Hutman tract for a City Park. If funds permit, the City should also buy a recreation site on the south side of the City; either part of the fire house tract or the Brownstein tract. The City Council has already approved application for Federal funds available from the Housing and Home Finance Agency on a matching fund basis. $270, 000 has been appropriated for land purchase, in addition to the estimated $210, 000 to be realized from - the sale of the Braddock Road site. Appraisals indicate that three parcels can be purchased from available funds. B. It is recommended that the Superintendent of Schools be designated Recreational Director for the ensuing year at no increase in budget. As Recreation Director he should report to the City Manager. His duties would consist .of coordinating and scheduling the use of public school buildings by community groups, and maintaining a current inventory of recreational groups operating in the City. C. It is recommended that the maintenance of parks continues to be the responsibility of the Department of Public Works so that the same personnel and equipment will maintain the cemetery, the rights of way and other publicly-owned property. D. It is recommended that the City continue membership in the Northern Virginia Regional Park Authority. The City should not attempt to compete with the Authority in the provision of open spaces for camping and hiking. The City should contribute to the capital budget of the Authority so that it can continue its land acquisition program. E. It is recommended that the City seek assurances that its citizens may continue to share in the' program of the Fairfax County Recreation Department on a fee basis. The City should be careful not -14- to interfere in any way with the use of County-owned school buildings by the Recreation Department. F. The City should continue to assist voluntary recreation programs such as the Little League and the Boys Club. However, the City' s participation should be changed as soon as possible to eliminate direct cash subsidies. Instead, the City should provide and maintain playing fields and, through a Recreation Director, assist in scheduling events. G. The recreation budget should be prepared by the Recreation Director under the supervision of the City Manager. H. The City should experiment with the use of small neighbor- hood tracts, such as the Scott Drive site. I. As soon as the City has acquired the Scott tract and the new school site to be located near Jermantown Road, plans should be prepared for the development of both sites as recreation grounds Plans should be completed before the end of the 1965-66 fiscal year so that work can be started in the 1966-67 fiscal year. The City should begin development of the Scott and Jermantown tracts as recreation areas, including baseball and football fields. The labor involved should be performed mostly in the summer by high school and college boys. J. The City should also cause a plan to be prepared for the development of the Morris and Hutman tract as a City Park. The National Park Service would provide assistance. Development of the parcel as a park should be granted a lesser priority than the recrea- tion sites. K. High priority should be given to the immediate initiation of studies leading to the establishment of a permanent community center. L. The City should fit into a capital outlay budget the follow- ing projects -- the priorities to be assigned at the time the budget is adopted. Ten years might be a realistic time-table for all of the projects. (1) Construction of football and baseball fields and outdoor ice skating rink on the Scott tract. • i (2) Clearing of school sites to be purchased adjacent to Sidney Lanier School for the construction of athletic fields. (3) Construction of four tennis courts on the Scott tract. (4) Development of a City Park on the Morris and Hutman tract, including public parking areas, walkways, picnic shelters, outdoor fire places and possibly, an outdoor amphitheatre and lake. (5) Construction of a gymnasium on the Scott tract to serve Layton Hall and the John C. Wood School, and to serve as first segment of a community center for the City. (6) Construction of a community center on the Scott tract, including auditorium and theatre. M. The City should rely primarily upon school sites for neighborhood playgrounds and, through its recreation director, should provide playground supervision. -16-