IV-1 October 1998
INTRODUCTION
Federal law requires that property acquired under the Hazard Mitigation
Grant Program (HMGP) must be forever dedicated and maintained as
open space. Consequently, the only structures your community may
build on that property are those that are compatible with open space
uses, such as:
q Structures opened on all sides (e.g., picnic shelters, kiosks, and
refreshment stands)
q Public restrooms
The Regional Director of the Federal Emergency Management Agency
(FEMA) must approve any other structure in writing before construction
begins. The Regional Director will only consider structures compatible
with open space uses. All structures, whether or not approval is required,
must be wet floodproofed.
CONTENTS OF THIS PHASE
Phase IV ó Open Space Management summarizes some of the ìbest
practicesî used around the country by communities like yours that have
implemented property acquisition projects and converted acquired
properties into open space as required by law. These ìbest practicesî
take into account multi-objective planning, the goal of which is to use
open space to fulfill as many of a communityís objectives as possible.
This phase comprises three chapters:
q Chapter 1 ó Open Space Use Questions & Answers. Chapter 1
contains a basic discussion of open space and its contribution to a
community.
q Chapter 2 ó Planning. Chapter 2 leads you through basic planning
activities. Planning how to use your newly acquired open space is
the first step toward open space management.
Open Space Management PHASE IV
IV-2 October 1998
q Chapter 3 ó Implementation & Long-term Management. Chapter 3
offers guidance on:
n Finding sources of funding and technical assistance to help you
realize your open space vision
n Implementing your open space plan
n Managing your open space for the long-term
q Part 1 of the Toolkit contains the following tools:
n Tool IV-1, Pros and Cons of Open Space Uses
n Tool IV-2, National Park Service Directory
n Tool IV-3, Workshop Checklist
n Tool IV-4, Conducting Workshop Checklist
n Tool IV-5, Workshop Facilitation Guide
n Tool IV-6, Possible Sources of Technical and Financial Assistance
q Part 2 of the Toolkit contains the following reproducible form:
n Form IV-1, Open Space Profile
PHASE IV Open Space Management
IV-3 October 1998
CHAPTER 1 ó OPEN SPACE USE
QUESTIONS & ANSWERS
HOW MAY WE USE OUR OPEN SPACE?
For the most part, you can use your newly acquired open space however
your community wants to use it, as long as you maintain it as open space.
Examples include:
q Wetland restoration
q Greenway
q Recreational area for athletic fields, hunting and fishing areas, trails,
etc.
q Campground (provided adequate warning and evacuation time exists)
q Community farm or garden
q Wildlife refuge
q Bird sanctuary
q Environmental and ecological education center
As you can see, your newly acquired open space can be used in many
ways. Usually, you can combine uses. For example, you can restore
property to wetlands and establish an educational center where people
can learn about the impact of wetlands on the environment and ecosystem.
You can establish a greenway with a trail that leads to an existing
park or historic site. You can develop a recreational area complete with
baseball and soccer fields and playgrounds. You can establish a campground
complete with fishing areas, hiking trails, and canoeing. The
possibilities are endless. Tool IV-1 identifies some basic open space
uses, and the pros and cons of each.
After clearing the land, all subsequent costs incurred related to its use, or
non-use, are the communityís responsibility. Those costs are not part of
project costs.
Tool IV-1
Open Space Management PHASE IV
IV-4 October 1998
WHAT IS PROHIBITED ON OPEN SPACE?
Generally, ìdevelopmentî of any type is prohibited if it:
q Alters the areaís natural appearance (e.g., removes natural vegetation)
q Impedes the areaís ability to convey flood flows (including building
fences that might trap debris)
q Reduces the areaís capacity to store floodwaters (e.g., paving)
q Increases downstream velocities
q Restricts access into and out of the area
In addition, commercial inventory storage (e.g., automobiles) and
cemeteries are prohibited.
HOW CAN OPEN SPACE BENEFIT MY
COMMUNITY?
n Open space can contribute to your communityís
economic well-being.
Property values tend to increase in areas adjacent to open space, which
increases the tax base. In addition, statistics show that people are spending
more money on recreational activities, which can lead to related jobs
Good Idea
Title can be transferred to an eligible nonprofit
organization whose stated mission is
conservation. A non-profit organization is
eligible if the Internal Revenue Service recognizes
it as a non-profit organization.
PHASE IV Open Space Management
IV-5 October 1998
and economic activity within your community. Tourism is a big business.
Open space can draw people, and their dollars, into your community
as well as provide rest, relaxation, and recreation for your own
citizens. Also, open space can help reduce public expenditures because
it usually requires few services and only low-level maintenance.
n Open space improves your communityís environment and
ecology.
Open space offers a place where plants and animals can thrive, including
threatened and endangered species. Its vegetation helps control
pollution and erosion. It improves the quality of your communityís air
and water.
n Open space improves your communityís quality of life.
By controlling pollution and providing recreational activities, open space
contributes to the health and fitness of your communityís citizens. By
being aesthetically pleasing, it contributes to their mental and emotional
well-being, all of which contribute to quality of life. A high quality of life
can contribute to your communityís economic well-being. Studies indicate
that quality of life is a top criterion for businesses looking for a place
to settle. Furthermore, a healthier population can reduce public and
private health care and insurance costs.
n Open space furthers your hazard mitigation goals and
objectives.
Open space increases your communityís floodwater storage capacity and
slows overland drainage. It also requires little or no search and rescue
efforts during the next disaster. Also, by mitigating flood damages, your
community might earn a higher Community Rating System (CRS) rating
and pay lower National Flood Insurance Program (NFIP) premiums.
Consequently, as a mitigation measure, creating open space benefits your
entire community, not just the owners who sold their properties.
TULSA, OK CASE STUDY BOX
Open Space Management PHASE IV
IV-6 October 1998
From Worst to Best: Tulsa, OK and the
Tangible Benefits of Open Space1
Tulsa, Oklahoma is located on the banks of the Arkansas River and is
home to many creeks and tributaries that flow into the Arkansas River
and nearby Verdigris River. It also is located in ìTornado Alleyî and is
regularly subject to high-intensity, often violent, storms with little warning.
Earliest flood records for Tulsa date back to the early 1900s and show
patterns of repetitive flooding and development of flood control measures.
Tulsa continued to grow nevertheless. However, it was stuck in a
cycle of response, recovery, and reconstruction. By the early 1980s,
Tulsa County had had nine federal disaster declarations in 15 years.
Then, in 1984, more than one foot of rain fell. As a result, 14 people
were killed and 288 were injured. Damages totaled more than $180
million. After watching its citizens endangered and struggling to rebuild
over and over again, Tulsaís leadership and residents decided they
had had enough and Tulsaís hazard mitigation projects began in earnest.
Tulsa assembled a Flood Hazard Mitigation Team and created a
unified program to acquire property and remove people from harmís
way, and enact flood control and storm water drainage measures.
Since the 1970s, Tulsa has cleared more than 900 buildings from its
floodplain, with the largest single acquisition (300 single-family homes
and 228 mobile-home pads) occurring after the 1984 flood. It has used
its acquired open space to create recreational opportunities, improve
fish and wildlife habitats, and enhance water quality, as well as help
control the inevitable floodwaters.
For example, Tulsa has created detention sites containing permanent
lakes that provide recreation, fish and wildlife habitat, aquifer recharge,
and wetland restoration; and serve as filtering mechanisms to improve
stormwater quality. A ìtrickle-trailî channel carries low-flow trickle,
yet serves as a hiking, jogging, and cycling path when not carrying
water. Tulsa also is working to preserve the last 17 acres of bottomland
hardwood in the Mingo Creek basin; reforest 5,280 new trees in and
around detention sites; and develop soccer, baseball, and football fields
and picnic shelters. Consequently, Tulsa residents enjoy a variety of
PHASE IV Open Space Management
IV-7 October 1998
recreational opportunities and, most important, a sense of security. But,
the benefits Tulsa reaps do not stop there.
Twice, the Association of State Floodplain Managers has awarded Tulsa
its top awards. FEMA has awarded Tulsa its Outstanding Public Service
Award for its ìsignificant contributions and distinguished leadershipî
in floodplain management. And, Tulsa has received the nationís highest
rating in NFIPís CRS, which means Tulsaís residents pay the lowest
insurance rates in the country.
Tulsa has transformed itself from a community known for its disasters
to a community known for its leadership in hazard mitigation and citizen-
based planning, and its high quality of life.
1 Adapted from From Harmís Way/Flood-hazard Mitigation in Tulsa, Oklahoma,
December 1993 & From Rooftop to River/Tulsaís Approach to Floodplain and
Stormwater Management, May 1994, both published under the auspices of the
City of Tulsa Public Works Department
Open Space Management PHASE IV
IV-8 October 1998
CHAPTER 2 ó PLANNING
GOOD IDEA BOX
IDENTIFY OPEN SPACE WORKGROUP
n Who should be in my workgroup?
In Phase I, we identified the characteristics of a good project team
leader and members. Those same characteristics apply to your open
space workgroup.
Your workgroup should be citizen-based, comprise a broad range of
expertise, and represent local interests. Specifically, assemble a
workgroup whose members represent local government, owners of
properties adjacent to the open space, local businesses and developers,
community service and civic organizations, local conservation and
environmental groups, etc.
n What does my workgroup do?
Your workgroup provides project leadership; it might be a planning
team, steering committee, etc. It also coordinates all planning activities
Good Idea
Before you do anything, contact a representative
from the Rivers, Trails, and Conservation
Assistance (RTCA) Program of the National
Park Service (NPS). Since the devastating Midwest
floods of 1993, RTCA has been an invaluable
partner of communities developing and
implementing open space plans. See Tool IV-2
for a list of the NPSís headquarters and regional
offices.
Tool IV-2
PHASE IV Open Space Management
IV-9 October 1998
and finalizes the Open Space Concept Plan. In addition, your
workgroup creates an open space profile by researching the following.
(Use Form IV-1 to capture your research.)
q The buyout area. Use information from your Hazard Mitigation
Project Strategy (Phase I) and Application (Phase II), and from site
visits to describe the buyout area. If your community has more than
one buyout area, describe each individually. Specifically, describe:
n Natural features. Include its location, size, topography, vegetation
(native and landscaped), soil, etc.
n Historic, archeological, and cultural features and their significance
to the community. Also, identify historic structures
relocated outside the area and their new location.
n Existing infrastructure. Identify services provided by the community
and infrastructure that might still be in place (e.g., sewer
and water lines, utilities, street lights, roads, sidewalks,
stormwater drains, etc.).
n Existing improvements. Identify neighborhood improvements
such as playgrounds, basketball and volleyball courts, etc.
q Areas adjacent to the buyout area. Describe the areas surrounding
the buyout area, and how they all interrelate. Answer questions such
as these: Are the surrounding areas primarily residential, business,
or recreational? How close are the nearest populations? Who comprises
the populations? (Answer this question in vague terms: elderly,
families with children, etc. Knowing who lives nearby might
affect possible uses.) How are the areas connected (e.g., roads,
sidewalks, woods, etc.)?
q Existing facilities and programs within the community. Identify and
describe the historic, recreational, cultural, etc. programs offered
within your community. Include State and Federal programs (such as
parks) as well. Identify their locations relative to the buyout area.
(For example, State Park is located one-mile northwest of the buyout
area, and is accessible to buyout area via Maple Avenue. Undeveloped
private property separates the park and buyout area).
Form IV-1
Open Space Management PHASE IV
IV-10 October 1998
q Facilities and programs under development within the community.
Identify and describe historic, recreational, cultural, etc. programs
being considered within your community or currently developed by
local, State, or Federal agencies or private organizations (such as
conservation or environment groups). Identify their proposed locations
relative to the buyout area.
q Local floodplain regulations and policies and land-use plans. These
regulations, policies, and plans identify local goals and objectives,
guidelines, restrictions, etc. Local regulations and policies also
reflect State regulations and policies. Your open space use must meet
local and State as well as Federal requirements.
n How does my workgroup use that information?
Your open space profile creates the framework for your open space
concept plan. You have a good picture of the buyout area as it is now,
as well as enough information to begin visualizing how it might be in
the future. From this point forward, your planning takes place within
the context of this framework.
n Obviously, my workgroup is ready to start planning.
What now?
Your workgroup does not conduct planning. Your community does. Your
newly acquired open space is public land. Therefore, the public should
have input into how to use it. Without the support of your community,
your open space plan and the long-term management of your open
space is likely to fail. The best way to gain the communityís support is
to get the community involved.
n Does my workgroupís job end here?
No, your workgroup still has plenty to do. It organizes and facilitates
your communityís involvement, and coordinates your communityís ideas
into a single open space concept plan.
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IV-11 October 1998
INVOLVE COMMUNITY
n Prepare for town meeting
Use a town meeting, or a series of town meetings, to get the community
involved in open space planning. The town meeting conducted
during this phase is really a workshop and, therefore, its preparation
and conduct is a little different than the other town meetings you have
held.
Purpose
The purpose of the town meeting is to solicit and document ideas from
the public on how to use the open space created by your property
acquisition project.
Materials
In addition to your plan framework, prepare a base map of the community
that highlights the buyout area(s), adjacent area(s), and existing and
proposed facilities and programs. State or local planning or RTCA staff
might be able to help you do this.
Use Tool IV-3, Workshop Checklist, and Tool IV-4, Conducting Workshop
Checklist, to help you prepare.
n Conduct town meeting
Unlike the previous town meetings, participants of a workshop have a
more active role than the facilitator(s) and speaker(s). Use Tool IV-5,
Facilitation Guide, to guide you through the conduct of the workshop.
More than one workshop might be necessary, in which case, modify
the guide for any subsequent meeting(s). Hold as many meetings as
necessary to refine ideas until those ideas reflect a community consensus.
(At a minimum, hold another meeting to present the concept plan.
See next section.)
AUDUBON, IA CASE STUDY
CHEROKEE, IA CASE STUDY
Tools IV-3 & IV-4
Tool IV-5
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IV-12 October 1998
How One Community Did It:
The City of Audubon, Iowa
The Audubon Floodplain Open Space Steering Committee finalized
Audubonís Open Space Concept Plan in November of 1995 with
help from RTCA, FEMA, the Iowa Emergency Management Division,
and, most important, community residents. The committee
sponsored three workshops to involve residents in the planning process.
State and FEMA Floodplain Management Program representatives
also attended the workshops.
Workshop 1: The first workshopís purpose was to identify potential
open space uses for the buyout area. The thirty-eight residents who
attended were divided into smaller groups of 12 to 14 people each.
Each group listed its ideas for using the space and sketched those
ideas onto base maps.
Workshop 2: The second workshop was held the next month. Its
purpose was to evaluate the ideas proposed during the first workshop
and consolidate them into one overall concept. The twenty
people who attended reached consensus on these uses: trails, habitat
and stream restoration, an environmental education area and
outdoor classroom, creek access areas, recreational facilities, and
community gardens. An NPS landscape architect worked with them
to draft a conceptual map.
The steering committee then evaluated the ideas to determine if they
were technically feasible and ensure they complied with deed restrictions
and floodplain regulations. Local natural resource agency
staff and biology, ecology, and soil science experts helped them
determine technical feasibility. Using the working groupís map and
the technical evaluations, the committee created Audubonís open
space concept map.
Workshop 3: The third workshop was held three months after the
second. This workshopís purpose was to update the residents and
discuss the concept map. The community endorsed the proposed
uses, with minor revisions, and selected a demonstration project.
The committee then presented the concept map to the city council,
which unanimously endorsed it.
PHASE IV Open Space Management
IV-13 October 1998
How Another Community Did It:
City of Cherokee, Iowa
In addition to its community workshops, the city of Cherokee involved
students from the school systemís Talented and Gifted (TAG) program.
Students in grades five through eight studied floodplain use and developed
models for using the open space created by the property acquisition
project. They presented their models at the first community workshop.
Their ideas were incorporated into Cherokeeís final Green Spaces
Plan (concept plan).
PREPARE OPEN SPACE CONCEPT PLAN
Your Open Space Concept Plan reflects the workshop participantsí
consensus of ideas. The concept plan develops those ideas in more
detail and is the blueprint for making those ideas realities.
n Creating your concept plan
q Summarize your open space profile. Since your open space profile
creates the framework for your Open Space Concept Plan, summarizing
it sets the stage for your communityís ideas.
q Summarize your communityís ideas. Describe the open space facilities
and programs that the citizens favor. Include citizensí ideas for:
n Placing facilities and programs within the buyout area
n Integrating those ideas with adjacent areas and facilities and
programs within the community
n Using existing infrastructure
n Providing amenities
Open Space Management PHASE IV
IV-14 October 1998
n Acessibility (e.g., vehicular and pedestrian traffic to, from, and
throughout the area; addressing special needs, such as those of
persons with disabilities and the elderly; etc.)
n Restoring vegetation
q Evaluate feasibility of implementing ideas. Ask local, State, or regional
experts (e.g., engineering, planning, recreation, fish and
wildlife, etc.) to determine if the ideas are technical feasible. If
experts determine the ideas are not feasible, ask them to suggest
ways for making the ideas feasible if possible.
q Evaluate ideas to ensure they are compatible with the deed restrictions
and easement restrictions. Contact your SHMO if you have any
questions.
q Modify ideas to include only those that are technically feasible. Also,
identify those that might be made technically feasible and explain
how.
q Evaluate public safety issues. Ask police and fire officials to identify
possible safety concerns and solutions to those concerns. Ask a
town or county attorney to identify liability issues and ways to
address those issues. Incorporate public safety expertsí opinions into
the plan.
q Evaluate positive and negative impacts to natural and cultural resources
and avoid any adverse impacts.
q Develop implementation plan. Determine the logical order for implementing
ideas and estimate the amount of time necessary for implementing
each (e.g., trail construction, six weeks). Identify specific,
individual implementation activities to fulfill ideas (e.g., trail construction
might involve clearing overgrowth through wooded areas and
grading). Address technical and public safety issues as necessary.
Estimate an implementation schedule. Ensure plan complies with
local, State and Federal regulations and policies.
q Draft budget. Estimate the cost of completing each implementation
activity within the estimated amount of time. For each activity, estimate
labor, material, supervision, management, and overhead costs.
Total the costs. Identify possible cost offsets, such as using donated
PHASE IV Open Space Management
IV-15 October 1998
services or unskilled volunteer labor. Identify equipment, material, or
supplies belonging to the community that might be available to offset
costs. Determine activities that can be performed as part of current
regional, county, or community employeesí responsibilities. Note any
assumptions that might affect the budget.
q Create concept map. Using your original base map, develop a concept
map. Show each open space facility and program within the
buyout area, as well as integration with each adjacent area (e.g., a
tree line along the boundary between them) and other community
facilities and programs (e.g., a greenway between the buyout area
and a State park). Also, show access to and from the open space,
parking, etc.
q Establish hours of operation. Determine times of year facilities and
programs will be open and restrictions (e.g., trails may be used for
biking in the summer months and cross-country skiing in the winter
months, baseball diamonds are open in the spring and summer
months, no pets allowed, etc.). Determine the times of day facilities
and programs will be open (e.g., dawn to dusk, 9 a.m. to 9 p.m.,
etc.).
q Determine signage. Identify necessary postings, such as:
n Hours of operations
n Educational and interpretative information (e.g., identifying
vegetation, historical significance, trails, etc.)
n Acknowledgments (e.g., contributions of money and service)
Also, consider the size, appearance, and placement of signs
n Presenting your concept plan
Hold a final town meeting to present the concept plan and budget to
the public. Explain the overall process you used, describing all previous
town meetings, and the development and evaluation of ideas. Display
and discuss the concept map. Solicit feedback. Carefully consider any
revisions suggested by attendees and, to the extent possible, revise the
plan.
Open Space Management PHASE IV
IV-16 October 1998
Finally, present the plan and budget to community decision-makers
(e.g., city or town council, board of supervisors, etc.). Be sure to
explain your process, stressing that the plan is citizen-based. Determine
how much money your community can provide towards implementing
the plan.
Once your plan is approved, put it into action.
PHASE IV Open Space Management
IV-17 October 1998
CHAPTER 3 ó IMPLEMENTATION
& LONG-TERM MANAGEMENT
Putting your plan into action probably requires a change in leadership,
from your open space workgroup to the entity that will have long-term
responsibility for the property. Usually, this is a local parks and recreation
department or similar entity. Putting your plan into action also requires
identifying and gathering sources of financial and technical assistance to
enable you to actually implement your plan.
OBTAIN FUNDING
Your community might not be able to fund your entire implementation
budget, in which case funds from private organizations and State and
Federal agencies might be available in the form of grants, loans, and
donations to make up for the shortfall. To determine possible sources of
funding, approach:
q Civic, service, conservation, recreation, and environmental organizations
and groups in your community and State
q Businesses within and near your community, especially those that
employ large percentages of the population
q State and Federal conservation and environmental agencies
q Groups, organizations, and agencies sponsoring similar facilities,
programs, and initiatives within your community (refer to your
profile), especially sponsors of those that can be integrated with your
open space
Consider also services and materials that can be donated, thus eliminating
the need for money to pay for them. Businesses, civic and professional
organizations, houses of worship, youth groups, etc. that cannot
provide funds might be able to donate equipment or materials, organize
volunteers, or provide refreshments for volunteer workers. (For example,
Open Space Management PHASE IV
IV-18 October 1998
hold a volunteer workday on a Saturday and ask major employers to
provide materials, a neighborhood church to prepare a picnic lunch, the
Womenís Club to prepare desserts, and the Elks to supply beverages.)
OBTAIN TECHNICAL ASSISTANCE
RESOURCES
Building a public restroom or picnic shelter, developing a trail or
baseball diamond, planting trees . . . all of the possible uses of your open
space probably require some degree of input from experts. That input
might simply be in the form of advice and guidance, or actual performance
of a task.
Some assistance might come from local, regional, State, and Federal
employees as part of their normal roles and responsibilities. Search for
assistance that is outside the realm of public service as you would for
funds. Consider assistance that can be donated or provided by one of
your volunteers (e.g., a company willing to donate construction services
or a scoutmaster who is a carpenter and can lead the effort to build
picnic shelters). In addition to the sources identified in the above
section, approach colleges and universities, vocational and trade
schools, and professional organizations for technical assistance.
Tool IV-6, Possible Sources of Financial and Technical Assistance,
identifies just a few private organizations and public agencies that might
be able to provide assistance. That list is by no means all-inclusive, but
it is a starting point.
IMPLEMENT YOUR OPEN SPACE PLAN
Refine your implementation schedule and budget to reflect any modifications
you have made to your implementation plan resulting from your
last town meeting or presentation before the decision-makers, and any
funding and technical assistance you have received, expect to receive,
or need to pursue. With your final plan in hand, you are ready to turn
your buyout area into a valuable community resource.
Tool IV-6
PHASE IV Open Space Management
IV-19 October 1998
Generally, implementation requires some degree of:
q Coordination among the various public agencies, private organizations,
businesses, volunteers, etc., and coordination with community
safety and permitting agencies
q Oversight of facility design and development and habitat restoration
q Fundraising and grant application development
q Outreach to recruit and maintain volunteers
q Communication to report progress to both the decision-makers and
public
q Community involvement to maintain enthusiasm and support, and
encourage volunteerism
MANAGE & MAINTAIN OPEN SPACE
PROPERTY
Long-term management of your open space property begins with a
management plan. In your management plan, address at least these
three major areas:
q Maintenance. Maintenance depends on the area. For example,
wetlands require little or no maintenance, picnic areas require
routine trash collection and mowing, restrooms require routine
cleaning and re-supply, trails require routine upkeep, and athletic
fields require preparation before each season and periodic maintenance
throughout the season. Maintenance also addresses such
issues as cleanup and debris removal after a flood. Include maintenance
schedules for each area. Consider seasonal differences (e.g.,
trash collection might be required less often during weekdays and
fall and winter months than during weekends and spring and summer
months).
q Budget. Because your open space is public property, its management
becomes part of your community budget. Oversight and maintenance
are the biggest budget items.
Open Space Management PHASE IV
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q Responsibility. Designate responsibility for each management and
maintenance activity. To minimize public expenditure, consider
private sponsorship of areas or fee collection. For example, encourage
businesses to ìadoptî trails or sections of trails for which they
assume maintenance responsibility, partner with scout troops to
periodically maintain and clean up designated areas to satisfy badge
requirements, charge teams fees to contribute to the upkeep of athletic
fields, etc.
After you have completed your management plan and received any
necessary approval for it, implement your management plan. Ensure
everyone who has responsibility for a management and maintenance
activity fully understands that responsibility, and the schedule and
budget associated with it.
Now, enjoy your open space and the benefits it provides!