Juneau Parks and Recreation

Comprehensive Plan

July, 1996

Several issues emerged from efforts to gather and analyze information concerning Juneau's provision of recreational services. Key issues are discussed in this chapter. Recommendations that address a specific issue can be found in Chapter Eight, Recommendations.

With time, new community concerns may emerge that have not been considered here. It is important that this plan be revisited every few years to identify and evaluate emerging issues.

Key Issues

Juneau residents have identified several park and recreation issues including the need for:

• Recreational opportunities for youth
• Increased facility planning and development to support the growing community's recreational needs
• Coordinated trail development and management
• Need for natural areas
• Maintenance of existing facilities
• Plans for specific areas or populations
• Analysis of effects of tourism on recreational opportunities
• Management of motorized vs. non-motorized use conflicts

Recreational Opportunities for Youth

Although the 1995 Parks and Recreation Survey indicated that the Parks and Recreation Department (Department) offers youth programming of high quality, the type and amount of programming available are not enough to satisfy demand. Assessments made by the Blue Ribbon Committee on Youth, the Seven Circles Coalition, the Mayor's Task Force on Youth, the Community Schools Advisory Committee, the Douglas Island Advisory Board, the Renninger Foundation Board of Directors and the Health and Social Services/McDowell Group addressed the need for more and varied youth recreational opportunities. In general, these groups recommend that the Department develop more programs and be able to expand existing programs to serve a greater number of Juneau's youth.

The Department's ability to respond is limited by facility and budget restrictions. Currently all available facilities are programmed for maximum use. Popular programs, such as youth basketball and soccer produce wait lists of hundreds. Registrations for these programs fill quickly and the program may reach capacity before the end of the registration period. Consideration of new program offerings requires allocation of less gym time to existing programs or the addition of new facilities.

Facility Planning and Development

Residents concerned about the lack of indoor recreation facilities for all age groups commented about the overcrowding of existing facilities. The 1995 Parks and Recreation Survey identified an indoor ice rink, a Mendenhall Valley swimming pool, and a multi-purpose gymnasium as the highest priority facilities for consideration. Fifty-six percent of those surveyed indicated that they would be willing to pay $40.00 or more annually in support of their top priority recreation project.

Specialized programs, such as indoor ice skating and aquatics, require costly facility development and maintenance. Providing these opportunities affordably for the population at large generally requires community financial support.

Juneau does not offer ice rink related activities such as hockey, curling and figure skating, that are normally very popular in northern climates. Outdoor ice is notoriously unpredictable in this climate and Juneau has no indoor facility. Several studies over the years have indicated that residents are interested in the development of an indoor ice rink. A private foundation is currently working toward development of a rink in combination with a youth center in the Mendenhall Valley. This organization has approached the City and Borough of Juneau (CBJ) for a land grant, but has not asked for other support at this time.

The location of facilities can limit participation in certain activities. The Augustus Brown Pool was constructed downtown when the CBJ's population was concentrated there. Mendenhall Valley residents do not have convenient access for aquatic fitness that downtown residents enjoy. Valley schools do not participate in aquatics education programs because of the travel time and expense involved.

Funding for facility projects is not as available as it once was. New mechanisms are needed to finance facilities and support ongoing maintenance and management.

Residents considered it important to acquire and reserve land necessary to meet future recreation demands. Large tracts of undeveloped CBJ land should be examined and appropriate areas set aside to accommodate future growth. Proper planning for the provision of adequate recreation services in New Growth areas is essential.

Overnight camping impacts have recently become a concern. It is a problem that effects residents and visitors. Many Juneau visitors arrive in recreational vehicles and find that suitable overnight facilities in the CBJ are in short supply. It is highly probable that a campground catering mostly to recreational vehicles would be full to capacity throughout the tour season.

Illegal tent camping on CBJ lands by both transient and workers and the local homeless population has become an increasing problem in recent years. The tight housing market has driven rent costs beyond the means of many lower income residents. In response to recent problems, the CBJ passed an ordinance that limits camping on CBJ land to a maximum of three nights/four days after which relocation of a minimum of ½ mile is required. This does not address the housing needs of this population.

Construction of camping facilities is a high priority for Juneau residents. Eighty-nine percent of those polled in the Juneau Tourism Community Opinion Survey responded that the CBJ should support the construction of campgrounds. Seventy-six percent supported construction of RV parks.

Trail Development and Management

Hiking was identified as the most popular recreational activity for Juneau residents in the 1995 Parks and Recreation Survey. Fifty-three percent of the residents responded that hiking was one of their five favorite recreational activities. Fishing and reading were second and third in popularity with response rates of 33% and 30%, respectively. Six of the ten favorite recreation activities may utilize trails, totally or in part. When asked what outdoor recreation facilities were needed in Juneau, residents most often responded with the need for additional walking/hiking trails and bicycle trails.

Residents of Juneau appear to want a comprehensive, interconnecting system of trails. They want a variety of trails with varying levels of difficulty. Trails are provided in Juneau by three public agencies: the U.S. Forest Service, Alaska State Parks, and the CBJ. The public does not make a distinction between management boundaries, and sees all the trails in Juneau as one system. The trail system would ideally be managed by a single agency as recommended in the 1993 tri-agency Juneau Trails Plan.

Conflicts exist among different user groups utilizing Juneau area trails. Traditional cross country activities such as mountain biking and snowmobiling are forced to use trails at lower elevations in Southeast to avoid thick vegetation and access more open areas. This creates competing and non-compatible uses on many trails.

The increased use of trails by residents and the growing use of trails for commercial tourism purposes has heightened awareness of trail management in recent years. The 1995 Juneau Trails Study listed 43 trails with a projected annual use of 282,219 visits. These numbers were extrapolated from intercept surveys distributed throughout the summer.

Trails that residents have used for years, and in most cases were built by volunteers, are now receiving commercially guided use and more intensive visitation than ever before. Many in the community would like some assurance that there will be commercial free zones maintained and that not all components of the trail system will become highly developed.

The Alaska Division of Parks and Outdoor Recreation currently manages the Mt. Roberts trail. A tremendous increase in use of this trail is expected with the completion of the Mt. Roberts tram. The trail is currently in very poor condition. Mount Roberts Development Corporation has agreed to contribute to the maintenance of this trail in cooperation with Alaska State Parks. Alaska State Parks, with minimal staffing in Juneau, has suggested a management agreement that would transfer management authority to the CBJ. Discussions of this type will be ongoing as we seek the most efficient means to maintain the trail system.

Creation of a consistent funding source for the maintenance of trails is important. A variety of funding opportunities have been proposed. Options include use of receipts from commercial use, establishment of a visitor head tax, instituting a voluntary patch purchase program, and funding the program from the CBJ's general operating accounts. There are proponents and opponents of each method. This issue requires additional study.

As a dependable source of funding is identified, the Department is ready to undertake management of these resources. The 1995 CBJ Trail Management Plan includes an extensive and accurate inventory of each of the trails, their soil types, and maintenance guidelines. The 1993 tri-agency Juneau Trails Plan has a list of priority actions compiled for development of the entire Juneau trail system. The use of these documents plus the expertise of staff will contribute to the creation of a trail system that Juneau residents can be proud of.

Need for Natural Areas

There is a need for a clearly defined "Juneau Parks System" that designates areas for active recreation as well as passive and dispersed recreation.

To maintain Juneau's unique outdoor recreation opportunities, there is a need to preserve wildlife habitat, natural park areas as well as to acquire adequate lands for active recreation opportunities. Accurate mapping of these proposed areas and designation on land use maps will help to alleviate confusion that may surround what are considered "park lands".

Once a park system has been delineated, a system of categorizing the areas according to the types of services and experiences that will be provided there is necessary. For future planning, it will be important to provide for the different types of uses. In order to provide a variety of park types, and meet the various needs of Juneau residents and visitors, it will be important to balance the different types of uses. An in-depth discussion of a proposed park management scheme can be found in Chapter Six, Development Standards.

Maintenance of Existing Park and Recreation Facilities

In a climate where deterioration occurs quickly, it is a challenge to keep up with maintenance of aging facilities. Residents believe an adequately funded preventative maintenance program and replacement schedule are necessary to maintain the quality of existing facilities.

Playgrounds are the focal point of neighborhood parks. Parks staff is developing a plan to place all CBJ playgrounds on a rotational replacement schedule. Funding for this schedule will be crucial as several CBJ playgrounds are near the end of their useful life.

Sports field maintenance is difficult because of the short playing season, the wet conditions, and large demand for field time. Currently, it is almost impossible to resurface a sports field because of the pressure for field time from organized user groups. Ideally, there would be enough fields so that one or two could be temporarily closed for resurfacing during the summer. At current use levels, four additional multiple-use fields, and one dedicated soccer field would be needed to implement a long term resurfacing plan. Long-term maintenance will become crucial in the future as many of Juneau's sports fields are over ten years old.

Planning

Parks and Recreation Advisory Committee members have encouraged the Department to: a) identify and develop management plans for specific geographic areas; b) facilitate multi-agency study of larger tracts of land; c) study particular populations to determine their special needs; and d) review programming to provide more diversity.

Several areas are suggested for special area management plans due to increased numbers of users, conflicts between user groups, competition between private and commercial interests for use of public lands and potential development of areas important for unique natural values. Areas identified as needing special attention include: Tee Harbor to Echo Cove, North and West Douglas Island from Fish Creek to Point Hilda, Auke Lake to the Mendenhall River, Montana Creek, Dimond Park, and the CBJ waterfront.

Planning for programming should address demographic and societal changes within the community. Populations that the Department may need to target in future years include senior citizens and retirees that have chosen to stay in Juneau, "Masters" age participants that want to remain active and participate in athletics with competitors of their own age groups, low income populations and at risk children. As the community expands, the Department will need to look

at offering programs at more locations. Providing recreational opportunities that are affordable for a range of budgets is also important to consider in planning future recreation programs and services.

Effects of Tourism on Recreation Opportunities

The CBJ is studying the impacts of tourism on the community at this time. The McDowell Group and Sheinberg and Associates have been retained to conduct a community opinion survey, an economic impact survey, an infrastructure assessment for the Tourism Working Group. In a review of local government revenues and expenditures, Parks and Recreation is as the CBJ's most visitor-affected department. The Department is involved with the visitor industry on a variety of levels but the management of park areas and trails garnered the most public concern and comment.

The effect of tourism on local use and enjoyment of park areas and trails was brought up in each of the neighborhood meetings. It was also mentioned frequently as an ending comment during the 1995 Parks and Recreation Survey. The community was found to be evenly divided on whether there were areas in the CBJ where commercial tourism activity should be restricted or limited by the Juneau Tourism Community Opinion Survey conducted in December, 1995. Seventy-five percentage of those who suggested limiting areas to tourism mentioned areas such as hiking trails, Outer Point, "out the road," government lands, on the water, wetlands, and the glacier. Eighty-two percent supported regulating tourism businesses operating on public land. Managing the intensity of commercial recreation activities, or identifying areas within the City and Borough where commercial tourism activities will not be permitted, to provide some areas that serve as an "escaped/release valve" for residents, is identified as a goal in the Public Hearing Draft in the CBJ Tourism Working Group's June, 1996, "Tourism: Goals and Action Steps" document.

Motorized vs. Non-motorized Use Conflicts

The issue of motorized vs. non-motorized use in recreational areas is commonly encountered nationwide, and Juneau is no exception. Conflicts occur between snowmobilers and cross-country skiers, between motorized watercraft and human powered craft. The presence of non-motorized use generally does not affect the experience of the motorized recreationist negatively, although non-motorized use may provide a hindrance to travel. It is typically the non-motorized types of users that do not feel that the uses are compatible.

In Juneau, the rugged terrain and limited land base appropriate for this activity exacerbates the problem. As a result there are limited opportunities available for motorized recreational use. Those who support motorized use would like the CBJ to identify more areas appropriate for that type of use. Non-motorized users suggest that some of the existing available places be limited, such as the Dan Moller trail for snowmobilers. There has also been conflict between motorized uses of Auke Lake and private property owners.