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Coastal Zone 9,0 Information ORRRC STUDY REPORT 21 Center _.ME FUTURE OF OUTDOOR RECREATION IN METROPOLITAN REGIONS OF THE UNITED STATES Volume I The National View-Present Condition and Future Prospects of Outdoor Recreation for Residents of the Metropolitan Centers of Atlanta, St. Louis and Chicago A Report to the Outdoor Recreation Resources Review Commissio" p"mi 8,HMAN q@g;@ AVE," gra N@Ig".' H 'g S 6i" nil@ 'WAET UVI"HA@", @'F- N'1:1@ J" Pl@ 4 111@W MORE OUTDOOR RECREATION FOR AMERICA The Report of the Outdoor Recreation Resources Review Commission, to the President and the Congress This report surveys our country's outdoor recreation resources, measures present and likely demands upon them over the next 40 years, and recommends actions to insure their availability to all Americans of present and future generations. The first part of the 246-page volume reviews the place of outdoor recreation in American life, drawing largely on the finding of the Commission's expert studies. It describes the supply of recreation resources, the demand for recreation, the economics of recreation, and the prob- lems of relating all three to assure present and future generations of the outdoor recreation oppor- tunities they require. The second part contains recommendations for programs and policies, with chapters concerning the responsibilities of the Federal Government, the States, local gov- ernment, and private enterprise. There are chapters on special problems of management, fi- nancing, water, and research. The report is for sale by the Superintendent of Documents, U.S. Government Printing Office, Washington 25, D.C., for $2. 0 C) ORRRC STUDY REPORT 21 THE FUTURE OF OUTDOOR RECREATION IN METROPOLITAN REGIONS OF THE UNITED STATES Reports to the Outdoor Recreation Resources Review Commission by Commission Staff and Selected Universities and Planning Agencies Volume I The National View-Present Condition and Future Prospects of Outdoor Recreation for Residents of the Metropolitan Centers.of Atlanta, St. Louis and Chicago U S DEPARTMENT OF COMMERCE NOAA COASTAL SERVICES CENTER 2234 SOUTH HOBSON AVENUE Washington, D. C. 1962, CHARLESTON , SC 29405-2413 PrOPertY Of CSC Library QIS Library of Congress Catalog Card Number: 62-60043 ORRRC Study Report 21. For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington 25, D.C. Price $1.50 OUTDOOR RECREATION RESOURCES REVIEW COMMISSION The Outdoor Recreation Resources Review Commission was created by the Act of June 28, 1958 (Public Law 85-470 !, 72 Stat. 238). The task assigned to the Commission was to seek answers to the following basic questions: What are the recreation wants and needs of the American people now and what-will they be in the years 1976 and 2000? What, are the recreation resources of the Nation available to fill those needs? What policies and programs should be recommended to insure that the needs of the present and future are adequately and efficiently met? The Commission's report, Outdoor Recreation for America, which was presented to the President and to the Congress on January 31, 1962, contains the findings of the Commission and its recommendations for action required to meet the Nation's outdoor recreation needs in 1976 and 2000. In the course of its work, the Commission obtained many special reports from its.own staff, public agencies, universities, nonprofit research organizations, and individual authorities. It is publishing these reports because of their potential interest to officials at all levels of Government and to others who may wish to pursue the subject further. A descriptive list of the study reports appears at the end of this volume. In the development of the findings, conclusions, and recommendations presented to the President and to the Congress in January 1962, the Commission considered this report and other study reports, but its conclusions were based on the entire study and on its own judgment. Pub- lication of the study reports does not necessarily imply endorsement of them in Whole or in part. THE COMMISSION CHAIRMAN Laurance S. Rockefeller President, Rockefeller Brothers Fund, New York, New York UNITED STATES SENATE Clinton P. Anderson, New Mexico Henry C. Dworshak, Idaho Henry M. Jackson, Washington Jack Miller, Iowa HOUSE OF REPRESENTATIVES John P. Saylor, Pennsylvania Gracie Pfost, Idaho Ralph J. Rivers, Alaska John H. Kyl, Iowa PRESIDENTIAL 'COMMISSIONERS Samuel T. Dana Dean Emeritus, School of Natural Resources The University of Michigan, Ann Arbor, Michigan Mrs. Marian S. Dryfoos Associate Director of Special Activities@ The New York Times New York, New York Bernard L. Orell Vice President, Weyerhaeuser Company Tacoma, Washington Joseph W. Penfold Conservation Director, Izaak Walton League of America Washington, D.C. M. Frederik Smith Vice President, Prudential Insurance Company of America Newark, New Jersey Chester S. Wilson Former Minnesota State Commissioner of Conservation Stillwater, Minnesota Special Assistant to the Chairman Carl 0. Gustafson Senators Frank A. Barrett of Wyoming and Arthur V. Watkins of Utah served on the Commission from its inception until January 1959. Senator Richard L. Neuberger of Oregon served on the Commission from its inception until his death in March 1960. Senator Thomas Martin of Iowa served from February 1959 until January 196 1. Representative John J. Rhodes of Arizona served from the inception of the Commission until February 1959. U R re ntative Harold R. Collier of Illinois served from February 1959 until March 1960. Representative Al Rmase of Oregon served from the inception of the Ccanmission until April 1961. Mrs. Katharine Jackson Lee, Director, American Forestry Association, Peterborough, New Hampshire, served on the Commission from its inception until her death in October 1961. iv THE STAFF IEKECUTIVE DIRECTOR Francis W. Sargent DEPUTY DIRECTOR FOR STUDIES Lawrence N. Stevens EDITORIAL ADMINISTRATIVE Henry L. Diamond, Editor Alva F. Rollins, General Counsel Stephen W. Bergen John R. Kennedy G. W. Cain Robert J. Phillips Theus J. MacQueen Mrs. Rose G. Phillips Advisem Louis V. Stevenson, Jr. Nancy Hanks Malcolm C. Moos Francis E. Rourke William H. Whyte Stuart I. Freeman (graphics) POLICY AND@@, INVENTORY FORECASTS PROGRAM AND EVALUATION AND ECONOMICS Arthur A. Davis, Chief Max M. Tharp, Chief Laurence L Hewes, Jr., Chief M. Constance Foley John E. Bryant Betty C. Churchill, W. Roy Hamilton, Jr. Hugh C. Davis Abbott L. Ferriss George R. Lamb Eugene S. Martin Seymour Fiekowsky D. Isabel Picken Jane Greverus Perry Francis X. Hammett Dennis A. Rapp Conrad J. Thoren Clyde W. Hart Ann Satterthwaite Peter J. Weil Elmer J. Moore Andrew J. W. Scheffey Warren C. Robinson Vito Tanzi Mrs. Lois E. H. Zazove SECRETARIAL AND CLERICAL Mrs. Roberta H. Bleam Mrs. Dorothy C. Hanna Mrs. Elizabeth P. Simpson Mrs. Maryann M. Clement Mrs. Catherine G. Hart Mrs. Sylvia S. Singleton M. Angela Farrell Ronald T. Jones, Lillie A. Synan Irene M. Ferguson Mrs. Lots L. LeMenager Mrs. Frances B. Tinsley Agnes A.Fitzgibbon Mrs. Sally S. Lewis Sandra E. Vadney John T. Fuston Janet E. Modery Sallie Wymard Mrs. Shirleyann Fuston Julia A. Schmidt Norman 1. Wengert served as Deputy Director for Studies from June 1959 to May 1960. v This study report of the Commission is published in three volumes: Volume I--The National View--Present Condition and Future Prospects of Outdoor Recreation for Residents of the Metropolitan Centers- -Atlanta, St. Louis, and Chicago. Volume H--Outdoor Recreation and the Megalopolis--A Study of Present and Future Needs of the People Living in the New York-New Jersey- Philadelphia Region. Volume III--The Impact of the Growth of the Los Angeles Metropolitan Region on the Demand for Outdoor Recreation Facilities in Southern California--1976 and 2000. Vi CONTENTS Volume I Page Outdoor Recreation Resources Review Commission ......... ............... ........ iii The Commission ......................................... ....... iv The Staff .............................................. v ............... Pref ace ............................................................ 2 PART I-THE NATIONAL VIEW .............................................. 5 Chapter 1 THE DIMENSIONS AND LOCATION OF THE OUTDOOR RECREATION PROBLEM OF LARGE METROPOLITAN CENTERS ........................... I ........ 6 Chapter 2 THE METROPOLITAN STRUCTURE AND OUTDOOR RECREATION .............. 9 The Central City ....................................................... 9 The Outer Ring ............................... ........................ 11 Conclusion ............................................................. 12 Chapter 3 CHARACTERISTICS OF OUTDOOR RECREATION BEHAVIOR OF METROPOLITAN RESIDENTS ..................................................... 13 Mobility ............................................................ 17 Vacations, Trips, and Outings ............... ** ............................... is Volume of recreation travel .............................................. 18 Travel distance ...................................................... 19 Time expenditures .................................................... 20 Financial outlay ...................................................... 20 Summary ............................................................. 21 Chapter 4 THE DISTRIBUTION AND LOCATION OF OUTDOOR RECREATION RESOURCES OF METROPOLITAN RESIDENTS ....................................... 22 The Metropolitan Influence ................................................. 22 Selection and Distribution of Recreation Resources ...................... ..... 23 New York-New Jersey- Philadelphia .............. 23 Atlanta .................................. ...... 24 St. Louis ................................................. ....... 25 Chicago ............................................................ 25 Los Angeles ........................................................ 27 Conclusion ........................................................... 28 Chapter 5 WATER RESOURCES AND OUTDOOR RECREATION FOR METROPOLITAN RESIDE14TS ................................................... 29 New York-New Jersey- Philadelphia ......................................... 29 Atlanta ................................................... *::**:*::* 30 St. Louis ................................................. .. . 31 Chicago ........................................................... 31 Los Angeles ........................................................ 33 Conclusion ........................................................... 35 Chapter 6 THE CHALLENGE OF THE FUTURE - OUTDOOR RECREATION AND THE ROLE OF GOVERNMENT .......................................... ..... 36 Metropolitan Growth and the Demand for Outdoor Recreation ......................... 36 The Planning and Policymaking for Outdoor Recreation ............................. 39 Paths to Solution of the Problems of Recreation Policy for Large Metropolitan Centers ........ 42 The Problem of Jurisdiction and Responsibility .................................. 43 Problems of the Future ................................................... 48 Bibliography .......................................................... 50 PART II- THE FUTURE OF OUTDOOR RECREATION IN THE ATLANTA STANDARD METROPOLITAN STATISTICAL AREA ................................... 53 Preface ....................................... I ...................... 54 vii Page Chapter 1 THE SET-TING .................................................. 56 Regional Growth ....................................................... 56 Population ........................................................... 56 Per Capita Income ..................................................... 57 Economic Indicators .................................................... 57 Urban Population ...................................................... 57 Composite Picture of the Southeast .............................. ............. 59 The State of Georgia .................................................. 59 The People. and the Land ............................................ ...... . 59 Coastal Plain ....................................................... 59 Piedmont Belt ..................................................... 59 The Mountains .............. : .. . : ...... :.. . ........... 1 59 The Valley Region ............ ... ...... .. ............ 59 The Cumberland Plateau ...................................... 59 Education ....... .................... 61 Migration ....... .. ... ..................... 61 Urbanization ................................................. ....... 62 Personal Income 62 63 The Economy of the Stat .... The Farm Sector ........ 63 64 The Nonfarm. Sector ....... .. ..... ... ...... Conclusion .................. ** ............. ................ ... 65 The Atlanta Standard Metropolitan Statistical Area ....... ..... o........... 0... 0 o 65 Recent Growth ....................................................... 0. 66 The People . o ............. 0............... 0 . . .......... 0 ..... 0 ...... 67 'Growth Patterns ................................... 0 ..... 0 ......... o ... 70 The Economy . . 0 ... 0..................... 0.................... .......... 73 Transportation ......0.......... 0 .... 0 ... 0 ... o. . 0 .0 ... 0 ............. 73 Industry .............................. 0 ..................... 0 0 ... 73 Sales and Distribution ........ 0 ....................... .... 0 ........ 0 . 73 The Government of the Area or ..... 0....... 0 ............ 0 ..... ............. 74 Chapter 2 RECREATION HABITS AND PREFERENCES OF RESIDENTS OF THE'ATLANTA SMSA . 76 Regional Comparison .. ................................................. 76 Race .............. ........ 0. . 77 Fishing . . 0 . . . : :* *. ........... 77 Hunting ................. 77 78 Nature,Walks . ........ Bicycling ........ ... 0.............. ............. 78 Sightseeing . . 0 . 0 .......... ....................... 0 . .: *. *. *. *o *. '. 0o 78 Walking for Pleasure ........ 0. ... 0.o.................. 0 .. 0 .......... 78 Camping ......... o ...................... 0 ......................... 79 Picnicking .......................... 0 ............ o ... 0 ............ 79 Driving for Pleasure ........... ............................... 79 Swimming ......... o........ ..... o ............. o ...... o ........ 0 79 Boating ................................ 0 .............. I .......... 79 Conclusions With Respect to Race ........................................... 80 Age as a Factor ................ ........ o ......... ....... 81 Income and Education .......... ....... 82 Occupation Status as a @acto*r* ......... 82 Leisure Time Activities .... ................................ ............ 83 Conclusions .............. ................. ........ ............. 84 Chapter 3 MAJOR RECREATION RESOURCES IN GEORGIA ....... ........ 86 State-Owned Recreation Facilities ............................ ...... I .......... 86 State Parks ....................... ........... . ....... ........ 86 Description of State Parks ..... 0 .................. 0 ................... 87 Fort Mountain State Park ....... 0.................................. 87 Amicalola Falls State Park ................... o ........................ 87 Vogel State Park ......... 00 0 .................. 88 Unicoi State Park ........................ o ..... o- - o .......... - 88 Red Top Mountain State Park. ...... e ......... .............. 89 Fort Yargo, State Park ................................... 89 Senoia State Park.... ................................. 89 viii Page State Parks-Continued Description of State Parks-continued Hard Labor Creek State Park .......................................... 89 Franklin D. Roosevelt State Park ....................................... 90 Indian Springs State Park ............................................ 90 Stone Mountain Confederate Memorial Park ................................ 90 More Distant State Parks .............................................. 91 Magnolia Springs State Park ........................................... 91 Veterans Memorial State Park .......................................... 91 Little Ocmulgee State Park ............................................ 91 Jefferson Davis Memorial State Park .................................... 92 Reidsville Park Area ............................................... 92 Kolomold Mounds State Park .......................................... 92 Chehaw State Park ................................................. 92 Laura S. Walker State Park ........................................... 92 Stephen C. Foster State Park .......................................... 92 Crooked River State Park ............................................ 93 Seminole County State Park ................... ... 93 Bainbridge Park Area ....................... ... 93 .... ... .... *' :: : : - :: * ... 93 Jekyll Island ............................... Cloudland Canyon State Park .................. .... 93 Black Rock Mountain State Park ................... ............ ....... 94 Victoria Bryant State Park ........................................... 94 Nancy Hart State Park ............................. .................. 94 Bobby Brown State Park 94 Alexander H. Stephens Memorial State Par ... .......... .................. 94 Elijah Clark Memorial Park ............................................ 95 Other Facilities ..................................................... 95 Colored State Parks .................................................. 95 George Washington Carver State Park .................................... 95 Yam Grande State Park ........ : ..: . :.... :..: .: :........ : ...... 0..... q& Keg Creek State Park ......... .. . .... . . ........ ............ 96 Fairchild State Park ...................................... 0......... 96 Lincoln State Park .................................................. 96 Other Colored Facilities * ...................................... 0 .... 96 Federal Facilities in Georgia ......................... 0 ...................... 96 National Forests ................................................. ... 96 Chattahoochee National Forest . ................................... :* ... 96 Oconee National Forests .......................... ** ......... I....... 97 Plans for Forests .............................. 0.................. 97 Corps of Engineers ................................................. 98 Allatoona Reservoir .................................................. 98 Lake Sidney Lanier .......................................... 98 Clark Hill ....................................................... 98 Lake Seminole .................................................... 99 Visitation Data on Corps Reservoirs ...................................... 99 Fishing ........................ o............................... 99 Boating ....................... .1 ................................. 99 Camping .................. .......... ............... ......... 99 Sightseeing ...................... ... 99 Swimming ...................... ... 99 Hunting ....................... .... 99 Other Federal Areas ................. ......... 101 Ocmulgee National Monument ......... ... 101 Chickamauga- Chattanooga National Military' @ark ... . ..................... 101 Kennesaw Mountain National Battlefield Park ... 0............................ . 101 Fort Pulaski National Monument ........................ 101 Okefenokee National Wildlife Refuge ............ o ........ .... 101 Andersonville National Cemetery ........ o................. ... 101 Other Areas .............. o.............. 102 Private Recreation Facilities ...................... ..... 102 Facilities Operated by Business Enterprises ................. ........ 102 Voluntary Associations ......... o ..................................... 102 Methodist Camps ................. o.................. ........ 0. 103 ix Page Private Recreation Facilities- Continued Voluntary Associations-continued Presbyterian Camps ................................................. 103 Baptist Camps .................................................... 103 Business Firms .................................................... 103 Farm Ponds ....................................................... 103 Large Impoundments ................................................. 104 Private Forest Land ................................................. 104 Hunting Preserves .................................................... 105 Conclusions on Facilities ................................................... 105 Administration of Recreation ....................................... 6 ...... 107 Fish and Game Commission ........ : :,,* * : : **, ,: * ,* ,, * *, ,* *............ 111 State Highway Board ............. .... .... ....................... 112 Local Agencies ........... I.......................................... 112 Federal Agencies .......... ;a@ ............................ .......... 113 Conclusions with Respect to Recr on Administration ............. ** : ,: ,....... 113 Financing Outdoor Recreation ................................... . ........ 113 Local Finance ....................................................... 113 County Finance .... 113 Municipal Finance in 6@o*r`gi:a 114 State Finance ....................................................... 115 Chapter 4 WHAT DOES THE FUTURE HOLD? .................................... 117 Legitimacy of Government Programs in Outdoor Recreation .......................... 117 Absence of Criteria and Data ............................................. 118 Where Do We Stand? ...................................................... 118 State Recreation Facilities and Their Use ................................... 118 Local Facilities .......... ......................................... 120 Federal Facilities ................................................... 120 Private Facilities ................................................... 120 Summation ........................................................ 121 The Economy of the Area .............................................. 121 The People .......................................................... 121 A Look at the Future Development of the State ................................... 124 Economic ................................................ ......... 124 Land Use Patterns .................................................. 125 Trends in Regional Culture ............................................. 127 Rising Demand for Recreation Facilities ....................................... 128 Future Needs of the Atlanta SMSA in the Areas of Outdoor Recreation ................... 131 Local Facilities .................................................... 131 Downtown Space ............. ...................................... 131 Regional Parks ................................................... 131 State Facilities ..................................................... 132 Federal Facilities ................................................... 133 Private Facilities ..................................................... 134 Need for Planning ............ I........................................... 135 Appendix A Tabular Data ....... 136-153 Appendix B Case Studies of Selected A@r@;; 154 iekyll Island ......................................................... 155 The Recreation Area ................................................... 155 Location ....... .............. 155 The Physical Area Q Vacilities ......................................... 155 Accommodations ..................................................... 155 Motels ........................................................... 155 Hotels ........................................................... 155 Cottages .......................................................... 155 Campgrounds ....................... * ** * ,* ** , *, ** * ,* ** ,* , ,* **, , *, * , 155 The Visitors ........................................................ 156 Conclusions ........................................................ 156 Ida Cason Callaway Gardens 156 156 Location ........... The Area Proper and Facilities .......................................... 157 The Clubhouse Area ................................................. 157 x Page Ida Cason Callaway Gardens- Continued Meadow Lark Flower Area .............................................. 157 Robin Lake Beach Area ............................................... 157 Facilities of the Beach ................................................ 158 Accommodations and Services ........................................... 158 The Visitors ....................................................... 159 Future Plans ...................................................... 159 Conclusion ......................................................... 159 Kennesaw Mountain National Battlefield Park ..................................... 159 Location ......................................................... 159 Recreation Activities ................................................. 160 The Visitors ........................................................ 160 Conclusion ......................................................... 160 Lake Spivey .......................................................... 161 Location ......................................................... 161 The Visitors ...................................................... 161 Recreation Facilities ................................................. 162 Future Plans ....................................................... 162 Conclusion ... i ..................................................... 162 PART III-THE FUTURE OF OUTDOOR RECREATION IN THE GREATER ST. LOUIS METROPOLITAN REGION .......................................... 163 Acknowledgments ...................................................... 164 Chapter 1 INTRODUCTION ................................................. 165 Chapter 2 ST. LOUIS AND ITS RECREATIONAL ENVIRONS ............................ 167 The Area of Study ...................................................... 169 Chapter 3 THE PRESENT STATE OF OUTDOOR RECREATION IN THE ST. LOUIS METROPOLITAN REGION ......................................... 170 Outdoor Recreation Resources ............................................. 170 The Use of Outdoor Recreation Resources ...................................... 173 Outdoor Recreation Activities .............................................. 174 Socioeconomic Characteristics of St. Louis Outdoor Recreationists ..................... 179 Summary ............................................................ 181 Chapter 4 TRENDS IN OUTDOOR RECREATION ................................... 183 Trends in Outdoor Recreation Resources ................................ ...... 183 Recreation Growth Areas ................................................. 186 Visitors ............................................................ 192 Summary .............................................................. 201 Chapter 5 FORECASTS FOR 1976 AND 2000 ..................................... 204 Summary ............................................................. 211 Chapter 6 RECOMMENDATIONS FOR PLANNING AND IMPLEMENTATIONS OF PLANNING ..... 212 Guidelines for Planning Future St. Louis Outdoor Recreation ......................... 212 Implementation of the Guidelines ............................................ 213 Appendix Maps showing the spatial distribution of population, outdoor recreation resources, St. Louis pressure on those resources, and potential recreation areas for the larger St. Louis region in 1960 ............................................ 214 PART IV-OUTDOOR RECREATION: NEEDS AND PREFERENCES OF THE PEOPLE OF THE CHICAGO AREA ................................................ 225 Chapter 1 INTRODUCTION ................. * ................................ 226 The Purposes of Outdoor Recreation ......................................... 226 The Nature of the Study .................................................. 227 The Physical Setting .................................................... 227 The Urban Setting ....................................................... 230 xi Page Chapter 2 HOW THE RECREATION NEEDS AND PREFERENCES ARE DETERMINED ......... 233 Elements of Demand * , * , * * ,... *---***** ..... ** .................... 233 Outdoor Recreation as Leisure Time Activity ................................... 234 Outdoor Recreation and Age and Sex .......................................... 236 Outdoor Recreation and Income ............................................. 237 Outdoor Recreation and Recreation Opportunities ................................. 237 Outdoor Recreation and Mobility ............................................ 238 Outdoor Recreation and Place of Residence ..................................... 239 Racial Considerations ................................................... 240 Characteristics of Weekday Recreation ........................................ 240 Day Outings on Weekends ......... ; .......................................... 244 Overnight Vacation Recreation Activities ...................................... 246 Summary and Conclusion ................................................. 247 Chapter 3 HOW THE RECREATION NEEDS AND PREFERENCES ARE SERVED ............. 249 Facilities in the Chicago Area .............................................. 249 Park Districts ....................................................... 249 Chicago Park District ................................................ 251 County Forest Preserves ............................................... 252 Cook County Forest Preserve District ..................................... . 253 State Park and Game Areas ............................................... 254 Private Sector ........................................................ 254 Facilities in the Chicago Region ............................................ 255 Public Sector ....................................................... 255 Private Sector ........................................................ 258 Summary and Conclusion ................................................ 261 CASE STUDIES SUPPLEMENTARY TO CHAPTERS TWO AND THREE .................... 262 Group Picnics ........................................................ 262 Fishing and Hunting ...................................................... 262 Boating ............................................................. 263 Swimming ........................................................... 264 Camping ...................................................... ....... 265 Day Camping ......................................................... 265 Overnight Camping ..................................................... 266 Family-Type Camping .................................................... 266 Walking and Hiking .......... :.:.: ....................................... 267 Horseback Riding .......... . . ....................................... 268 Winter Skiing ......................................................... 269 Chapter4 EMERGENT PRESSURES- WHAT NEEDS TO BE DONE ....................... 270 Population and Economic Change ............................................ 270 Chicago Area Demand Factors for Day and Overnight Facilities ....................... 271 Population Characteristics .............................................. 271 Other Factors Affecting Demand ........................................... 272 Adjusted Estimates of Future Demand ................................... .... 272 The Need for Additional Outdoor Recreation Facilities ............................. 272 Future Possibilities .................................................... 273 City of Chicago ...................................................... 273 Suburban Area ....................................................... 275 Chicago Region ...................................................... 276 Conclusion ........................................................... 278 The Advisory Council ..................................................... 280 ORRRC Study Reports. ...................................... .............. 283 xii Volume I TABLES Page A-I Percent of recreation activity of residents of large-scale metropolitan centers by region- 1960-1976-2000 ................................................... 7 A-2 Relationship between place of residence and frequency of engaging in specific outdoor activities ........................................................ 14 A-3 Actual number of outdoor recreation occasions (million) by persons 12 years of age and over in 17 selected recreation activities, summer of 1960, United States and standard metropolitan statistical areas of 1 million population and over, in rank order ........... 15 A-4 Number of outdoor recreation occasions by persons 12 years and over residing in large standard metropolitan statistical areas by types of activities-summer 1960 ............ 16 A-5 Vacation travel by adults 18 years and over by place of residence .................... 17 A-6 Relationship between place of residence and outdoor recreation away from home ..... ;... 17 A-7 Weekend travel by place of residence . . ..... 18 A-8 Number of vacations, outdoor recreation irip*S" *an*d* o*u*tin'gs' *by* 'pe*rson's* 1'2* y'e*a*rs* 'an'd *over, June 1960-May 1961 by place of residence .................................. 18 A-9 Percent of persons 12 years and over with 1 or more outdoor recreation outing and outing per person with 1 or more outing by season of the year, June 1960-May 19612 and place of residence ............. 19 A-10 Distance traveled per person 1i 'ye*a*r's*a*nd* *ov'e*r' o*n' v'a*ca*tio'n*s*, o'u'td*o*o*r'r*e*cr*e*at*io*n* t'r*ip*s*, 'an'd,*' outings, June 1960-May 1961, by place of residence ............................ 19 A-11 Average per person vacation and trip distance traveled and days away from home for the year June 1960-May 1961, by place of residence .............................. 20 A-12 Expenditures away from home per person 12 years of age and over on vacations, outdoor recreation trips, and outings, June 1960-May 1961, by place of residence ............. 20 A-13 Location of privately owned recreation areas adjacent to St. Louis .................... 26 A-14 Proportion of State population and State recreation acreage within 150 miles of Chicago .... 26 A-15 Heavily used State parks, forests, and recreation areas in Chicago regions (150 miles) ..... .27 A-16 Selected outdoor water recreation areas managed by Chicago Park District and by all reporting park districts in Chicago SMSA ................................... 32 A-17 Cook County Forest Preserve District by type of water oriented activity by number of district divisions and developed water acreage ............................... 32 A-18 State parks, forests, and recreation areas within 80 miles of Chicago with water facilities ... 33 A-19 Selected water recreation facilities and resources of southern California .............. 34 A-20 Actual and estimated population of large SMSA's by major census regions, 1960, 1976, and 2000, United States ............................................... 37 A-21 Actual and estimated number of occasions by persons 12 years and over residing in large standard metropolitan areas by selected recreation activities and major regions, 1960, 1976, and 2000 (millions) .............................................. 37 A-22 Comparison of rates of growth of large metropolitan population and of outdoor recreation demand, 1960, 1976, and 2000 - summer months .............. I ................. 38 A-23 Percent of total metropolitan population by major census region and percent of total outdoor summer month recreation demand of metropolitan residents by major census regions, 1960, 1976, and 2000 ............................ 38 A-24 Number of activity occasions by selected types of recreatio*n*a*ct*iv*i*ty* 'am'o*n*g* r'e'siden't`s*o`f large metropolitan regions: United States, 1960, 1976, and 2000 - summer months and rank order ........................................................ 39 B-1 Percentage of total U.S. population represented by Southeast ...................... 56 B-2 Percentage increase in population by census decade, 1870-1950 ..................... 56 B-3 Density of population: United States and Southeast by selected decades ................ 57 B-4 Net migration per 1,000: Southeast, 1870-1950 ................................. 58 B-5 Rate of increase in urban population, United States and Southeast .................... 58 B-6 Regional income per capita: United States and Southeast ......................... 58 B-7 Labor force distribution by industry, 1910-1950, United States and Southeast ............ 58 B-8 Southeast manufacturing labor force and value added by manufacturing as percentage of national average, 1910-19501., - - -- - *1 1 *1 ***''*** - * * * * ' :** *'*.... 58 B-9 Normal monthly temperature in Atlanta ........................... ......... 61 B-10 Population of Georgia and the United States, 1900-1960 .......................... 61 B-11 Population per square mile, United States and Georgia ........................... 62 B-12 Selective Service registrants examined, found acceptable, and disqualified, 1959 ......... 62 B-13 Motor vehicle registration in Georgia, 1920-1960 .............................. 63 B-14 Personal income, per capita:- United States and Georgia, 1929-1960 .................. 62, xiii Page B-15 Total labor force and agricultural labor force in Georgia, 1870-1950 ................. 64 B- 16 Farm population as percent of total population, United States and Georgia, 1920-1960 ...... 64 B-17 Employees in manufacturing in the United States and Georgia for selected years, 1880-1959. . 65 B-18 Population of Atlanta standard metropolitan statistical area, 1900-1960 .............. 67 B-19 Population growth, City of Atlanta, 1950-1960 ................................. 67 B-20 Source of Atlanta metropolitan resident families ......... * * ' ' * * ' * *' * * * * * * **'**67 B-21 Population of Atlanta standard metropolitan statistical area, by race: 1900-1960 ......... 70 B-22 Population of Atlanta standard metropolitan statistical area by counties, 1940-1960 ....... 70 B-23 Age distribution of population of Georgia and Atlanta standard metropolitan statistical area, 1960 ....................................... **''**'**** ***''73 B-24 Employment by industry group, Atlanta standard metropolitan statistical area, 1959 ....... 74 B-25 Value added by manufacturing, Atlanta standard metropolitan statistical area and Georgia, 1930-1960 ........................... :*.*---*** ..... ......... 74 B-26 Wholesale sales, Atlanta standard metropolitan statistical area and Georgia, 19 0-1960 .... 74 B-27 Retail sales, Atlanta metropolitan statistical area and Georgia, 1930-1960 ............. B-28 Rate of participation in outdoor recreation by activity and region ......... q .......... 74 B-29 Percentage of persons 55 years old and over, by race, Atlanta standard metropolitan 77 statistical area .............. -**----** ' *' *** * * * '** *''*'*'81 B-30 State highway budget allotments: 1955-1960 ................................... 84 B-31 Public visitation to Corps of Engineers impoundments, 1951-1960 ................... 100 B-32 Number of visitors to Georgia State parks 1951-1960 ........................... 118 B-33 Selected data for Atlanta SMSA, 1976 and 2000 ................................ 125 B-34 Georgia population of the State, urban and rural: 1790-1960 ....................... 137 B-35 Georgia population by color and sex for the State, urban and rural, 1930-1960 ........... 138 B-36 Percent distribution of Georgia population by color and sex for the State, urban and rural ... 138 B-37 Age, by color, for Georgia: 1930-1960 ..................................... 139 B-38 Georgia: years of school completed by persons 25 years old and over, by color and sex, 1940 and 1950 ............ @@ co , r, *f@r 6@0 * :a*, , * @ , * , * * * : : : : , * *.......... 139 B-39 Births, deaths, and infant deaths, 10 rgi 19 0-1959 . ............. 140 B-40 Labor force, 1950 and 1940, and gainful workers, 1930 and 1920, by color and sex, for the State of Georgia .................................................... 141 B-41 Industry group of employed persons, by sex, for the State of Georgia, 1940 and 1950 ....... 142 B-42 Income in 1949 of families And unrelated individuals, for the State of Georgia, urban and rural, 1950 .............................. .......... 143 B-43 Income in 1949 of persons, by color and sex, for the State-of -Georgia.-farm nonfarm .... 144 B-44 Vehicular registration for Georgia and the Atlanta metropolitan statistical area, 1960 ...... 145 B-45 Farm acreage for Georgia and Atlanta standard metropolitan statistical area, 1930-1954 .... 145 B-46 Population, by color, of Atlanta standard metropolitan statistical area, urban and rural, 1930-1960 ........................ 146 B-47 Age, by color, of Atlanta standard metropolitan statistical area, 1930-1960 ............. 146 B-48 Births, deaths, and infant deaths, by color, for Atlanta metropolitan statistical area, 1930-1959 ...................... I ........................ - I-**.147 B-49 Percent distribution of major occupational groups, by color and sex, for Atlanta standard metropolitan statistical area, 1940 and 1950 ................................. 147 B-50 Atlanta nonagricultural employment, annual averages, 1949-1958 .................. 148 B-51 Income in 1949 of families and unrelated individuals, by color, for Atlanta standard metropolitan statistical area, 1950 ....................................... 149 B-52 Age and sex, by color, of in-migrants and out-migrants for Georgia economic area of 149 Cobb, DeKalb, and Fulton counties, 1950 .................... B-53 Years of school completed by in-migrants and out-migrants for Georgia e@o*no@;i@ 'area' of Cobb, DeKalb, and Fulton counties, 1950 .................................. 150 B-54 Employment status, by color and sex, and major occupation group of employed males, by color, of in-migrants and out-migrants of Georgia economic area of Cobb, DeKalb, and Fulton counties, 1950 ..................... v ........................... 150 B-55 Population, by counties and senatorial districts, for Georgia, 1960 ................... 151 B-56 Budget allotments from treasury receipts for recreation purposes, State of Georgia, 1950-1961 .......................................................... 153 C-1 Establishment of 42 Illinois and Missouri State park sites in the St. Louis metropolitan region, by decades .................................................. 185 C-2 Establishment of acreage on 42 Illinois and Missouri State park sites in the St. Louis metropolitan region, by decades ......................................... 185 C-3 Farm acreage in woodland in the St. Louis metropolitan region for the years 1930, 1940, and 1954 ......................................................... 186 xiv Page C-4 Changes in attendance at national forests in the St. Louis region for the period f955-1960 ... 188. C-5 Changes in estimated annual attendance at State parks in the St. Louis region, by residents of the St. Louis SMSA for the period 1950-1959 ..... ................ 190 C-6 Outdoor recreation activities undertaken by visitors to @;Ssouri @;aie. parks in the St. Louis region in 1938, and samples of visitors to 5 Missouri State parks and 1 Illinois State park in 1960 ................................... ... 194 C-7 Outdoor recreation activities undertaken by visitors to Meramec State Park in 1938, com- pared with a sample of visitors in 1960 ................. I................ ... 196 C-8 Frequency of campers and picnickers at national forests (Rolla district) in the St. Louis region for the period 1955-1960 .......................... 198 C-9. Establishment of 45 group camps in the St. Louis region between 1920 ;nd'1*95*9* 199 C-10 Hunting and fishing license sales for the State of Missouri and Missouri units of the St. Louis SMSA in various years between 1938 and 1960 ........................... 200 C-11 Hunting and fishing license sales for the State of Illinois and Illinois units of the St. Louis SMSA in various years between 1940 and 1959 ................................ 200 D-1 National participation and desire for greater participation in 11 selected outdoor activities 234 D-2 Participation in selected outdoor activities, summer period, 1960: United 'States, all large metropolitan areas; large metropolitan areas in North Central region ................ 235 D-3 Preferences for selected outdoor activities, summer period of 1960: United States, all large metropolitan areas in North Central region ................................. 236 D-4 Percent of 1960 population by age groups: United States, the. Chicago area, and four large Midwest metropolitan areas combined ............. I ... I........... @: .......... 236 D-5 Effective buying income estimates, 1960 .................................. 237 D-6 Distribution of household income by income classes, 1960: large Midwest metropolitan areas and United States (Percent) ........................................ 237 D-7 Public recreation acreage per 1,000 persons: seven largest U.S. metropolitan areas ...... 238 D-8 Car ownership and density, Chicago and Detroit study areas ............. .......... 239 D-9 Annual household income distribution by income groups, 1960 (Chicago and suburban study area ) ...................................................... 239 D- 10 Average number of cars owned per household, 1957 and later (Chicago and suburban study area) ........................................................ 2140 @D-11 Average weekday internal person trips generated per acre of open space by distance rings,' Chicago and Detroit study areas ......................................... 241 D-12 Comparison of public open space and population distribution by distance rings, Chicago and Detroit study areas ...................... ............ 241 D- 13 Age composition of users of Wolf Road area compared to i@ai oi C*h*ic,a*go'ar@a population .... 245 D- 14 Household income of Wolf Road area users compared to that of Chicago area residents ..... 245 D- 15 Major activities engaged in by Wolf Road area users: percent of groups participating in each activity ...................... . 245 D- 16 Most enjoyable group activity of Wolf Road are; u'@e`r; I @;ajo`r*acii4tie@ 245 D- 17 Vacation means of transportation away from Chicago area, 1960 .................... 246 D-18 State visited on last trip for vacation-recreation purposes, by Chicago metropolitan area residents ............ 246 D- 19 Regional place of vacation by V1&'ag*o* s*t*ud*y' a*r*e`a*r`eside*n'ts* 247 D-20 Park districts in the Chicago area - acreage characteristics ....................... 251 D-21 Park districts in the Chicago area - selected outdoor facilities ..................... 252 D-22 County forest preserve districts in the Chicago area - Acreage and tracts .............. 252 D-23 Divisional characteristics of the Cook County Forest Preserve District ............... 253 D-24 Ratio of State population and State recreation acreage within the Chicago region .......... 256 D-25 State parks, forests, and recreation areas in the Chicago region, by distance rings and sectors . . * 257 D-26 State hunting a@a ii;h*in'g* a'r*ea; *in* i@e*6@i@ago* 'r@@@n*,'@y'di@t'an*c'e*rin*g's'a'n*d *se*c*to'r*s` 259 D-27 Topical inquiries of the Cook County Forest Preserve District, 1958 and 1959 ........... 263 D-28 Fishing and hunting license data .......................................... 263 D-29 Leading metropolitan markets for outboard motors ............. ; ............... 264 D-30 Public campgrounds in the Chicago region - 1960 data ........................... 267 D-31 Projected increases in population, income, leisure time, and mobility In the Chicago area, 1976 and 2000 ........... * * * * ' i * ... * * * ... * ' * ... * * * * i@ ' * * * * ' * * * ' * ' * @71 D-32 Age composition of Chicago area population - 1930, 1940, 1950, 1960, wi projections to 1976 and 2000 (percent) ............................................... 271 xv FIGURES Page B-1 Directions of growth, Atlanta metropolitan area, 1950-1960 ....................... 72 B-2 Physiographic diagram of Georgia ........................................ 60 B-3 Population distribution, 1960, Atlanta metropolitan area .......................... 126 B-4 City of Atlanta showing municipal boundary, 1950 and 1960 ........................ 68 B-5 Atlanta region metropolitan planning district showing municipal and county boundaries ..... 69 B-6 Atlanta metropolitan area population by counties, 1940 to 1960 ..................... 71 B-7 Atlanta SMSA and major outdoor recreation areas .............................. 108 B-8 Georgia major highway network .............................. 109 B-9 Georgia interstate highway system, approved and pending ............. 3-10 B-10 Decades of population increase, Georgia, 1920-1960 ................. ..... 122 B-11 Decades of population decrease, Georgia, 1920-1960 .................. .. ..... 123 C-1 Area of St. Louis metropolitan region where outdoor recreation resources receive at least 30 percent of their use by residents of St. Louis SMSA .......................... 175 C-2 Percent of attendance comprised by St. Louis metropolitan residents at 8 State parks and I Federal wildlife area ............................................... 176 C-3 State park attendance by St. Louisans, 1950-1959 ................. 0 ............ 205 C-4 St. Louisan attendance at State parks between 50 and 100 miles of central city for the period 1950-1959 ............................. * 207 C-5 Regression line fitted to estimated attendance by St. Louisans ai Sitoatie* p*a*rk*s' b'e*tw*e'e'n' 1*0*0*0'* and 150 miles from central city for the period 1950-1959 ........ * ' * * ' ' ** 0 * ...0.. 208 C-6 Regression lines fitted to estimated attendance by St. Louisans at all State parks within 150 miles of the central city for the period 1950-1959 .......... I ........ o o ...... 209 C-7 St. Louis ORRRC study area: Population by counties, 1960 ........... 0 ............. 215 C-8 St. Louis ORRRC study area: Federal recreation areas ...... 0 ................... 216 C-9 St. Louis ORRRC study area: State recreation areas ............................ 217 C-10 St. Louis ORRRC study area: Private noncommercial recreation areas ........... 0 .0 . 218 C-11 St. Louis ORRRC study area: Commercial recreation areas. . ............. ....... 219 C-12 St. Louis ORRRC study area: Industrial recreation areas ................ ....... 220 C-13 St. Louis ORRRC study area: Percent of farmland in woods ........... ........... 221 C-14 St. Louis ORRRC study area: Number of stocked farm ponds ...... o ... ........... 222 C- 15 St. Louis ORRRC study area: St. Louis pressure on recreation resources ............. 223 C-16 St. Louis ORRRC study area: Potential recreation areas .................... 0 .... 224 D-1 The Chicago region ........ .......................................... 228 D-2 The Chicago region: Generalized physiography and access highways ...... 0 .......... 229 D-3 Population: 1960 Chicago standard consolidated area .................. 0 ........ 231 D-4 Recreation trips to public open space, average workday, 1956 ... o ................ 0 . 242 D-5 Recreation trips to parks, forest reserves, and pools, average weekday, 1956 ........... 243 D-6 The Chicago region: Selected public recreation areas ........ .................. 250 xvi ORRRC STUDY REPORT 21 THE FUTURE OF OUTDOOR RECREATION IN METROPOLITAN REGIONS OF THE UNITED STATES REPORTS TO THE OUTDOOR RECREATION RESOURCES REVIEW COMMISSION BY THE COMMISSION STAFF AND SELECTED UNIVERSITIES AND PLANNING AGENCIES Volume I The National View-Present Condition and Future Prospects of Outdoor Recreation for Residents of the Metropolitan Centers of Atlanta, St. Louis and Chicago WASHINGTON D.C. 1962 Preface Large metropolitan centers are prodigious users of problems encountered in the metropolitan centers land and water resources. These centers, with all with some indication of the directions in which solu- their power and wealth, lay an imperious hand on tions might be found. A somewhat secondary but none- woodlands and watersheds drawing them out of earlier theless important consideration was the availability uses and transforming them into building lots, streets, of competent research agencies willing to undertake shopping centers, school yards, throughways, and air- such detailed studies in the designated metropolitan ports. This process of subjugation of resources to centers. Accordingly, the following criteria for the metropolitan use has not followed any planned sequence selection of five diverse metropolitan areas was or orderly procedure. Consequently, the resulting established: patterns of resource utilization are not likely always 1 . The metropolitan area should be located with- ,to provide efficient satisfaction of the needs for out- in a large physical region of distinctive char- door recreation generated in a metropolitan society. acter. These regions mightbe climatological, In general, the provision of outdoor recreation facil- topographical, or they might be river basins, ities and the development of adequate access to outdoor or some combination of these. recreation opportunity for the residents of densely 2. The region within,which the metropolitan cen- settled metropolitan areas have not been accorded ter to be studied was located should be one equal weight in the metropolitan resource utilization which manifested characteristic growth pat- contest. And, looking ahead as far as 1976 and 2000, terns of metropolitan centers-a relatively there seems to be little doubt that the provision of out- stable growth pattern in the central city, ac- door recreation opportunities will become a more dif- companied, by an extremely rapidgrowth in ficult and complex task as existing metropolitan the periphery. centers increase in size and as new population centers 3. The metropolitan area selected should be one of substantial size appear. At the same time the need in. which there was available a considerable for outdoor recreation will become increasingly im- body of., data concerning recreation resources portant for metropolitan residents. and planning as a result of general recognition Such considerations led the Outdoor RecreationRe- of a pressing need of the metropolitanpopula- sources Review Commission to undertake a study of tion for outdoor recreation. outdoor recreation against the background of the devel- 4. The metropolitan area selected should have opment of large, metropolitan agglomerations. The within it a planning organization, academic in- study was designed primarily to examine the present stitution, or other qualified research organiza- and future demand of metropolitan residents for out- tion which might be employed as a contractor door recreation and to consider also the means, for the study. present and future, by which these needs are or may With the aid of these criteria and recognition of be satisfied. budgetary and time limitation, five metropolitan areas The plan for this study was developed by the ORRRC were selected for study as' follows: staff after consultation: with several students,of re7 1., New York-New Jersey- Philadelphia.- T h is source problems as-related to the metropolitan e Icon- North Atlantic regional complex-af--metrop- .omy. Among these authorities were: Dr. Harvey olises is the heart of the much discussed Perloff of Resources for the Future, Inc., and Prof. megalopolis of the future which is expected Gilbert White of the University of Chicago. The study to extend from Portland, Maine, to Wash- plan entitled, "Study of the Recreation Needs, Habits, ington, D.C., and beyond. It contains from 15 .and Preferences of the People of Selected Metropol- to 20 million residents, a major fraction of the- itan Regions," was approved by the commission on total American metropolitan population. Ithas May 25, 1960, as Project No. 10. The overall title for been and is currently the object of considerable the published study was to be, I I The Futu@@of Outdoor research in resource development and land use Recreation in Metropolitan Regions of The United planning. As the oldest metropolitan area in States." It would consist of two parts: one, The the United States, it promised to provide in National View, and two, The Present Condition and detail the most extensive catalog of outdoor Future Prospects of Outdoor Reareationfor Residents recreation problems in a setting of the most of Five Metropolitan Centers. varied social, ethnic, economic, and political The ORRRC staff was assigned responsibility for structures to be,found in the United States. developing part 1: The National View. Part 2 re- 2. Atlanta, Ga.-Tbis metropolitan area in the quired the selection of five metropolitan areas for in- southeast provided an excellent opportunity to tensive case study. The ORRRC staff planned that such examine the play of social and economic forces studies should provide information and insight con- in the urbanization process of the South. Fur- .cerning the specific characteristi,cs of outdoor recrea- ther interest in Atlanta derived from the fact tion in a metropolitan context. And while these studiers of its location away from large natural bodies ,could not constitute a representative sample in any of water, yet within reasonable traveltime of rigorous sense, yet it was contemplated that, taken both land and water recreation opportunities. together, the findings of the five separate studies would A secondary consideration was the fact that .present to the public an array of outdoor recreation the U.S. Study Commission- Southeast River 2 Basins was headquartered in Atlanta, and dis- Atlanta, Ga. (The Atlanta Standard Metropolitan Sta- cussions with the staff of that commission tistical Area).-The University of Georgia, De- resulted in k4 arrangement for mutual and partment of Political Science, Athens, Ga. helpful interchange of information. St. Louis, Mo. (The St. Louis Standard Metropolitan 3. St. Louis, Mo.-This metropolitan area is Statistical Area).-Social Science Institute, Wash- located in the Midwest near the confluence of ington University, St. Louis, Mo. three large rivers-the Mississippi, the Mis- Chicago, 111. (Cook, Kane, Du Page, Will, Lake, and souri, and the Illinois. It is a physiographic McHenry Counties).-The Northeastern Illinois region in which a large number of urban cen- Metropolitan Area Planning Commission, ters are developing metropolitan character- Chicago, 111. istics. It is also a region where the provision Los Angeles, Calif. (Ventura, Los Angeles, Riverside, of recreation opportunities will probably entail Orange, San Bernardino, and San Diego Coun- more capital investment in artificial water ties).-The Real Estate Research Program, Grad- impoundment than in the reservation of natural uate School of Business Administration, Univer- recreation sites. Another consideration was sity of California, Los Angeles,,Calif. the fact that the Meramec Basin research project, headquartered at Washington Univer- These several agencies assigned principal respon- sity in St. Louis, would provide considerable sibility for each of'these studies to the following data which would be helpful in the prosecution individuals: of the ORRRC investigation of this metropolitan center. New-York-New Jersey- Philadelphia.- 4. Chicago, Ill.-Tbis metropolitan area is one Mr. Sumner Myers of the ranking population centers of the United Atlanta, Ga.-Prof. Frank Gibson States and will probably remain among the four St. Louis, Mo.-Prof. Gregory Stone largest population centers indefinitely. Its Chicago, III.-Mr. George Hartman location along the extreme southwestern shore Los Angeles, Calif.-Prof. Fred Case of Lake Michigan seemed particularly suitable Perhaps a word should be said about the means em- for purposes of the ORRRC study. Residents ployed to coordinate the work of these five separate of the Chicago region have relatively easy study groups. Coordination was provided initially by access to a considerable range of water and a detailed prospectus of the project which was cir- other recreation resources, and their search culated to each of the directors of the five study for these recreational opportunities quickly groups. In addition, the study directors traveled to carries them over State boundaries. Chicago Washington for a joint meeting with responsible mem- also is a region which has been subjected to a bers of the ORRRC staff on January 5, 1961. At this considerable number of economic and social meeting, the ORRRC prospectus for this project was studies carried on through university and explained in detail. Also the overall ORRRC study foundation personnel. In addition, the North- program was outlined and a procedure was developed eastern Illinois Metropolitan Planning Com- to make available to each of the five study groups the mission has undertaken a number of studies results of related studies as soon as they became which promised to provide resource data available. In addition to their joint group meeting, relevant to studies of recreation opportunities. several of the study directors made independent trips 5. The southern California complex of commu- to Washington to discuss specific study details. Sev- nities centering on Los Angeles.-Thismetro- eral trips to the metropolitan centers under study were politan region, although one of its boundaries made by responsible members of the ORRRC staff is the Pacific Ocean, is part of the and South- in 1960 and 1961. Aside from these visits, there was west. It has experienced an extremely rapid constant communication by correspondence and tele- population growth, and it is located in a region phone. where other metropolitan areas are growing As a result of fairly detailed planning, it was pos- at a rapid pace. The problems of this area sible for the ORRRC staff to pass on to each of the have been prominently considered in connec- five study directors a considerable volume of fresh tion with the report of the California Outdoor research material. Among these perhaps the most Recreation Plan Committee. The research important were: (1) the basic economic and demo- recently completed by this committee seemed graphic projections which form the central part of to provide assurance that competent re- ORRRC Study Report 23, "Projections to the Years searchers familiar with outdoor recreation 1976 and 2000: Economic Growth, Population, Labor Problems would be available as well as the Force and Leisure and Transportation"; (2) the pre- data developed in the California Outdoor Rec- liminary results of the two national surveys of out- reation Study. door recreation needs and preferences, ORRRC Study After these five centers had been selected, the Report 19, "The National Recreation Survey"; and :ORRRC staff proceeded to negotiate with responsible ORRRC Study Report 20, "Participation Iti Wtdoor ,research agencies in each of the five selected metro- Recreation: Factors Affecting Demand AmongAmer- politan centers that were willing to undertake the nec- ican Adults." essary work. The five study agencies which were The result of these efforts at coordination tended ,selected are as. follows: to give a common orientation to the five separate studies. . At the same time, it is apparent that New York- New Jersey- Philadelphia.- The. Institute of p.1 research methods and the study approaches differed Public Administration, -New York City. conside.rably. 3 Part I THE NATIONAL VIEW CHAPTER ONE THE DIMENSIONS AND LOCATION OF THE OUTDOOR RECREATION .PROBLEM OF LARGE METROPOLITAN CENTERS The volume of outdoor recreation activities of the opments of technology and social organization of the American people is increasing rapidly in response to country. This in-gathering of humanity is, in ecol- .increases in population, income, leisure, and mobility. ogical terms, a response to an environment favorable Equally important to these influences is the tendency to population agglomeration; it is easier for people to of this great volume of activity to become concentrated make a living and easier to provide for their needs in near metropolitan centers. the metropolitan form. For example, there can be no While urbanism has long been a characteristic of our effective mass market in a predominantly rural soci- national development, its emergence as a dominant ety, and without the possibilities of a mass market, cultural attribute dates back only to 1920, when for much of our present economy could not have developed. the first time urban residents exceeded half of the So metropolitanism is here to stay, and metropolitan total population. Today there are over 5,000 urban conditions become increasingly more favorable to fur- places in which reside nearly 70 percent of the Nation' s ther, metropolitan development. population. 1/ More important, perhaps, for its im@ The trend- towards size of metropolitan areas is pact on ouid-oor recreation, is the even more rapid already apparent. The great population complexes growth of large metropolitan regions. This growth is centering around New York, Chicago, and Los Angeles measured by the census in terms of standard metro- have already involved many nearby cities and towns. politan statistical areas defined as counties with cen- Indeed, much of the growth of these great centers in tral cities of 50,000 population or over plus contiguous the last decade resulted from annexation and from counties essentially metropolitan in character, so- coalescence of independent communities with a com- cially and economically integrated with central city mon center. or cities. 2/ The outward push of these centers forces the re- About 0 million persons resided in 212 standard location of some outdoor recreation areas, overcrowds metropolitan statistical areas in 1950. Between 1950 other recreation sites, and greatly impairs access to and 1960, the increase in metropolitan population ac- still others. Already difficult problems of intergov- counted for over 80 percent of the total national growth. ernmental relations, taxation, police protection, traffic When this increased metropolitanism is focused. on control, zoning regulation, and land acquisition become the demand for outdoor recreation, the effect is to acute and ever more complex.. establish general geographical locations of outdoor It was the recognition of the, key position of metro- recreation. Thus the location of residence and the politan growth in planning the future of outdoor recrea- location of the sites for outdoor recreation are closely tion in the Nation that led ORRRC to undertake studies related. of outdoor recreation in five large metropolitan areas A further expression of the trend toward urbanism whic -h.form the major portion of this study. 3/ is the development of very large population centers, - The number of metropolitan centers -in the United those with a million population and over. There are States with more than a million residents each has 24 of these large-scale population centers in the United increased from 15 in 1950. to 24 in 1960. Over 60 States today and they include about 34 percent of the million people now reside in large-scale metropolitan national population. These are places where central agglomerations; by the year 2000 more than half of problems of outdoor recreation planning and admin- the U.S. population-over 180 million people-mayre- istration have become most acute. Residents of these side in such mass residential areas. areas often find access to outdoor recreation is lacking or is impaired. Here too the recreation potentials in Search for outdoor recreation among metropolitan land and water are preempted to satisfy other needs residents creates central problems for recreation of the metropolis. Available recreation facilities are planners, developers, and administrators. The sheer frequently subject to vast overcrowding or are badly weight of numbers presses heavily on available rec- located with poor access. reation resources. In the summer of 1960, residents The causes of increasing urbanism and the growth of large (1 million and over) standard metropolitan of large metropolitan centers are rooted in the devel- -@/These metropolitan areas are: The New York-New Jersey- ,-!/U.S. Census of Population: 1960, Final Report PC(1)-1A, Philadelphia complex; the Atlanta, Georgia SMSA; St. Louis; "United States Summary, Number of Inhabitants," Bureau of the Chicago area consisting of the six counties of northeastern the Census, U.S. Department of Commerce, p. XIV-"Ur6on and Illinois; and the six southern California counties: Ventura, 2rural population under the current and previous definition." Los Angeles, Orange, Son Bernardino, Riverside, and San JU.S. Census of Population 1960, "Num6er of Inhabitants, Diego. Throughout the remainder of this discussion, reference United States Summary," U.S. Department of Commerce, Bureau to those studies will be by name of the principal city, viz: the of the Census, p. XXIV. In Now England the city and town re- New York Study, the Chicago Study, etc., although these are place counties as the basic unit of data compilation. not the actual titles of these studies. 6 statistical areas, our largest population centers, gen- the surrounding countryside and claims it as a serv- erated 1.6 billion days of recreation activity among ice area. The national point of view becomes urban, 17 different recreation activities or about 37 percent and urban need commands national attention. The of the national recreation activity total. With increas- open countryside becomes an adjunct and an amenity of ing numbers of people in such iareas and with anti,c- metropolitan life. ipated increases in leisure income and transportation, The typical American two generations ago was rural the corresponding estimates for 1976 and 2000 will be in outlook and tradition. Todayts grandchildren of 2.8 billion and 5.7 billion separate days of recreation, these earlier Americans are urban in outlook, and 40 and 46 percent, respectively, of the national total; rural traditions are a romantic memory. - provided, of course, that the facilities for these activ- Qualities of confinement and regulation inherent in 14 ities are accessible. urban life may require the' contrasting freedom re- 4- sulting from outdoor activity in the open country as an The geographical distribution of these vast popula- essential corrective. Rural surroundings provide a tion agglomerations specifies to a considerable extent temporary refuge from, but not an alternate to, urban the places in which recreation facilities must be avail- environment. And as urban well-being becomes a able, because - the search for outdoor recreation is dominant goal in a nation increa .:singly urbanized, a closely linked to place of residence. The average rec- claim on forests, lakes, streams, ocean front, moun- reation outing is not of long duration, and journeys to tainside, and valley as recreation resources gain recreation areas are relatively short. national endorsement. Thus a very large proportion of the total amount All the former ease and informality of access to of outdoor recreation of the future must be located outdoor recreation so long characteristic of rural within a short distance of two principal population axes, village and small town society are replaced by care- both in the northeast quadrantof the country: A north- fully formulated plans, either of private entrepreneurs south axis some 500 miles long running from Wash- or at the several levels of government. These seek ington, D.C. to Boston, Massachusetts, and an even specific goals of profit or of welfare through well- longer east-west axis extending roughly from Pitts- defined rather formalized recreation objectives, cast burgh along the Great Lakes to Chicago. About 70 in terms of large numbers of city people. percent of all large-scale metropolitan population live Looking again at the large metropolitan concentra- and will probably continue to live in this quadrant. tions, it is apparent that the streams, lakes, mountains, Here too, the density of population will be greatest and, accordingly, the pressures on resources most ex valleys, beaches, swamps, and woodland of the north- treme, both for recreation and for all other space- east Atlantic seaboard, the Piedmont, the Allegheny using activities. Uplands, the Great Lakes, the westward flowing por- tion of the Mississippi drainage, and the glacial lakes There may be Ias many as 35 million residents of of Wisconsin and Michigan must bear the brunt of these large centers on the Pacific coast with principal much of the metropolitan pressure for outoddr rec- concentrations at San Diego, Los Angeles, San reation. Here must be available the swimming and Francisco- Oakland, Portland, and Seattle. water-sport areas, the picnic and camp grounds, the hiking trails, the scenic spots, and the parking areas. I able A-1, Percent of recreation activity of All these must be available by reasonable routes of residents of large-scale metropolitan centers travel and most frequently within a radius of not much by region -1960-1976-2000 more than two or three hours drive from the home base-the metropolitan nucleus which sets in motion, 1960 1976 2000 through its inherent dynamics, the system of outdoor U.S . ................... 100 100 100 recreation. NE quadrant ............. 73 66 60 Similarly, the resources of the Pacific Coast will be .,%uth ................... 9 12 14 mobilized- the long Pacific Ocean front, the Pacific N 18 22 26 drainage basins, the coastal ranges stretches of Sierra West .................... and Cascade forest and upland, and even the arid desert. These are the predesignated recreation areas to which the people of the population complex extending By 2000, south Florida and Georgia may have several from Santa Barbara to San Diego, of the San Francisco metropolitan centers of 1 million and over. Other Bay region, of the lower Columbia and of the Puget concentrations now exist or may appear in east Texas, Sound regions have already laid implicit claim. The at St. Louis, at Kansas City, and in the Twin City area. Georgia-Florida -population concentrations will seek These centers will generate a, great volume of rec- the Gulf. and Atlantic beaches, the Coastal streams, the reation activity. But it is not only a question of num- forested Georgia upland, and the TVA lake region. The bers of people but also of attitudes towards outdoor Corps of Engineer reservoirs of the Arkansas-White- recreation. On the quantitative side is the large Red River basins, and the Gulf coast of Texas will volume of recreation activity generated by metropol- serve the metropolitan regions of the west-south itan agglomerations. But on the qualitative side too, central States, while the Mississippi and its tributaries there are equally important considerations. As the in Missouri and Kansas and the Ozarks will serve Nation becomes more and more committed to urban St. Louis and Kansas City. life, the old division between rural and urban, between If we distinguish between SMSA's of over a mil- country and city, and between city people and country lion population, and SMSA's in general (50,000 arid folks tends to disappear. The city reaches out into over), consideration of recreation location largely 7 unchanged insofar as the northeastern quadrant and far as pr-es-su-re- on' r*esources is involved, these lesser the Pacific coast are concerned. The smaller ShWVs centers simply increase the load. But the principal tend to cluster along the axis of larger centers.. Again dynamics of movement and change are centered in the 36 out of 51 cities of 250,000 or more population clue- larger concentrations. This is because the volume .ter. along these main axes or are adjacent to the and synchronization of mass movement due to superior groupings_of rger@xne @olitan centers in the west, numbers and greater wealth create dominant forces south central, and southeast seaboard Statei.-4TInso- to which smaller communities conform; -4'U.S. Census of Population: 1960, United States Summary Num- ber of Inhabitants, table 28, pp. 1-66. CHAPTER TWO THE METROPOLITAN STRUCTURE AND OUTDOOR RECREATION The principal condition which determines the avail- roughly, semicircular with the harbor as.its.center; ability of outdoor recreation for residents of large New York is, roughly, I-shaped, down the Hudson metropolitan centers is encompassed in the term from Westchester, across the length of Manhattan "access." Several aspects of metropolitan develop- and the boroughs of Brooklyn and Queens, turning ment may control or limit access to outdoor recrea- north and east across Long Island Sound; Atlanta, tion: uninhibited by physical barriers, expands along radial lines of its expressways, and Philadelphia extends Since the open countryside by definition cannot northward, westward" and southward from a front on lie within the heart of the megalopolis itself, it the Delaware River. is necessary that urbanites travel to it. The These configurations shape major traffic, patterns. recreation opportunities afforded by the country- Residential subdivisions promote or impede the de- side to residents of a given community in the velopment of recreation areas by determining the' megalopolis depend on the accessibility of the larger confines within which open space and water countryside to that community. Accessibility, in can be used for recreation. Also within these larger turn, depends on the extent and distribution of natural confines economic and institutional lines of built-up areas and the geometries and efficiency metropolitan development are laid down over time of the highway system. I/ and, in turn, provide further limitations onrecreation access. Thus each city impedes or facilitates access The relative residential densities of the metro- to outdoor recreation originally by location and con- politan area and its geographical location are impor- figuration, later by its own institutional decisions. tant factors in determining the pattern of outdoor recreation. A resident of Manhattan who wishes to But all metropolitan developments have similarity avail himself of recreation on the Long Island beaches as well as contrast. There is the old central city confronts a discouraging traffic problem. A resident composed of the downtown business, shopping, hotel, of the Chicago outer suburbs who goes to the Lake and apartment areas alongside older. residential areas Michigan beaches of the Chicago Park District en- which generally become slums as former residents counters a similar handicap as would a resident of move out toward the metropolitan edge where a con- Berkeley, Calif., who goes to the ocean beaches south tinuous ring of suburban communities is formed. of San Francisco. In contrast is Denver, Colo., where This metropolitan edge expands still, further and older the proximity of the Rocky Mountains places avariety suburbs, in turn, develop some of the blighted char- of recreation sites within a short distance of urban acter of the old inner city. residential areas. The suburban edge becomes more discontinuous Large American cities have expanded according,to as more recent subdivisions clump around new shop- no overall plan. Each has its own unique history of ping centers. The interstitial open space between the economic development and physical structure. Con- more recent developments gradually expands into the sequently, their configurations vary greatly, roughly open country beyond the metropolis. shaped by principal physiographic features but also influenced by dominant economic functions, past or THE CENTRAL CITY present. Port cities developed around the ocean, lake, or The residents of the central cities generally do not river front and then pushed inland. Some cities are have ready access to outdoor recreation. For example, strung in narrow bands along valleys of deeply in- Atlanta, in concert with most large cities, has a hard trenched rivers. Some, like Los Angeles, sprawl in core of low income housing in its downtown area:, the all directions across coastal plains to the foot of residents of which are almost without available out- steeply rising hills and mountains. Oakland, Berkeley, door resources.2/ and Alameda form one continuous chain of metro- One of the reasons for this deprivation is the ob- politan development north and south along the east literation of environmental open space for recreation side of San Francisco Bay with residential develop- areas as one encircling concentric band of urban ment marching up the eastern coastal upthrust. San development succeeds another. The Atlanta Study Francisco, on its seven hills, originally at the tip of says- "Past planning on the subject of park areas a peninsula, spreads southward further and further has too often taken the form of recommending park to dominate the entire peninsula. Chicago's urbanized locations then permitting the loss of thosi@ areas to area is a somewhat elongated semicircle or elipse demands for industrial locations." 3/ fronting on Lake. Michigan with the radial sectors extending from the semicircular mass. Boston is, -@'The Atlanta Study, ch. 3, sec. 4, "Conclusion on Facilities." 21bid., ch. 3. !/New York.Study, ch. 3, "Access to the Countryside." 9 In addition to the awkward location of the inner city in the city's total population, we estimate that -with respect to outdoor recreation sites, there is the about I million families belong in the group that fact that many inner city resident are-as are slums. must seek outdoor recreation either by mass The socioeconomic characteristics of the residents transportation or in the cars of friends. 9/ often place them at a disadvantage with respect to The same study points out: outdoor recreation: The difference in the socioeconomic character With few exceptions-notably ocean beaches- of these people in the city of Chicago as against the region's outdoor recreation areas are prac- that of those in the suburbs, in the relative ac- tically impossible to reach by scheduled common cessibility and the availability of outdoor recrea- carrier transportation. 10/ tion opportunities and facilities, are two of the The conclusion is then that there are in the neigh- most striking factors. A higher portion of the borhood of 1 million people in New York City who by people in the city have less mobility and below reason of location of residence and income must median incomes; the city has much higher net either patronize overcrowded beaches or depend on residential density with less per capita public or friends to secure access to nonurban recreation. quasi-public open space; a greater variety or Who are these disadvantaged people ? To a consider- urban type recreation opportunities exist in the able extent they are in-migrants to metropolitan city. Place of residence thus has a most impor- areas from rural areas. And also to a very large 4*nt influence on outdoor recreation practices extent they are members of minority groups-Puerto and interests. 4/ Ricans and Negroes in New York, Negroes and South- In Los Angeles it .is the senior citizens and racial ern whites in Chicago, Negroes and Mexicans on the minorities whose residence in the older portion of Pacific Coast.11/ the metropolitan area tends to establish a pattern of St. Louis, once a station on the underground, still leisure time activity.5/ functions as the stopping place and distribution center One may suspect that it is not the factor of age or of rural Negroes on the way up the Mississippi to of race alone but low economic status associated with Chicago and Detroit. Atlanta's Negro population is these characteristics which is expressed in the lower large, and the downtown residential areas are heavily mobility of the residents of metropolitan regions in and increasingly populated by Negroes.12/ These search of outdoor recreation. "Older persons tend people probably account largely for the hard core, to congregate in central city areas because of their low income housing areas which are almost without lesser mobility and to demand types of recreation any recreation facilities. There is a continual re- facilities which favor less active pursuits *116/ placement, as out-migrants from among the better One may Istrongly suspect that the, decreased mobility educated move north, by in-migrant from the rural .of these Los Angeles residents is very likely more areas.13/ And Los Angeles has long been a haven for associated wiW low car ownership and low income elderly people seeking to spend declining years in a than with a specif Iic "preference" for short trips and favorable climate. city parks as in the case oUthe New York Study. These residents of the inner city make up the balk 'However, the family.that cannot afford an automobile of the lowest income metropolitan residents. Typically tends to be barred from participation in abroad range they do not own cars and also they have the large of recreational opportunities." 7/ families of rural people. They probably possess only There seems to be only one conclusion: that the rudimentary recreational skills, yet the children and people on whom the, environment of the city with its adolescent members of these slum dwellers would close-packed living, its constant pressure of the con- probably benefit from outdoor recreation, both as an crete brick and asphalt environment, and its lack of environmental faefor in making life more pleasant pleasant surroundings which is most oppressive, have and also as a technique of acculturalization. For it less than average access to the out of doors. The takes a long time for the acculturalization process to New York Study states unequivocally, after a careful bring such groups into the main stream of modern analysis of outdoor recreation resources of the New American life and to provide them with the industrial York-New Jersey- Philadelphia metropolitan complex: skills leading to higher incomes and standards of life. In a very practical sense, access to outdoor recreation The open countryside is barely accessible to for the inner city residents is essential not only for the people who need it most for recreation, those his comfort and well-being but also for the advantages being in the highest density counties. of the re- occurring to society from his advancement. gion. 8/ There are, of course, large proportions of the For all the families surveyed (in New York residents of the older parts.of the large metropolitan City), 53 percent had no cars. Applying this centers who are not slum-dwellers. These people percentage to the approximately 2 million families -2/lbid., ch. 2, "Income." -!/The Chicago Study, ch. 2, "Summary and Conclusion." Lo/lbid., ch. 3, "Other Outdoor Recreation Areas," 1/The Los Angeles Study, ch. 5: "Larger Younger Families"; U/The Editors of Fortune-"The Exploding Metropolis." "The Import of the Southern California Culture on Outdoor Doubleday & Co., Inc., Garden City, New York, 1960, ch. 4, Recreation Demand"; "Basic Economic Considerations." Daniel Seligman, "The' Enduring Slums." .�/Ibid. 1-2/The Atlanta Study, ch. 2, "Leisure Time Activities." !/The New York Study, ch. 2, "Income." L3/The Atlanta Study, ch. 1, "Migration, The People;- ch. 2, !/ibid., ch. 3, "Access to the Countryside." "Conclusions with Respect to Race." 10 are not subject to all of the handicaps which confront mixed. Older portions tend toward more limited slum-dwellers. Indeed, many of them occupy positio Ins recreation access and low income residents. Newer in the top rung of the economic and social ladder and portions are closer to outdoor recreation in general, enjoy very large incomes. Such people live in the although in asome instances the expansion of the inner city from choice. Yet even this advantaged metropolitan edge intersects the growing edge of group shares in common with the slum-dweller the adjacent metropolitan centers and blots out inter- disadvantages of an awkward locational situationprin- mediate open space completely. cipally in the form of transportation difficulties, the In general, resid ents of more distant suburbs have nonexistence of common carrier transportation to higher incomes and more favorable access to outdoor recreation areas, and the demoralizing weekend traffic recreation. But this condition depends somewhat on congestion. competition, location, and highway development. In Even for these people occasional out-of-door outings some instances these can intervene effectively to during the weekday are out of the question. This is a impede access of suburban residents to outdoor rec- simple fact of the environment. Nevertheless, over- reation at certain locations. Westchester County, all participation in outdoor recreation activities of N.Y., has many advantages as a suburban residential inner city residents and their proportion of these ac- area of New York City, but it is distinctly handicapped tivities do not differ very greatly from those of res- with respect to access to weekday, day-use, and short idents of other portions of the metropolitan complex. overnight outdoor rec .reation- ou,ti.ng-s, or to any out- This m ight be interpreted to mean that among those door recreation involving a I- or 2-hour drive, be- residents of the inner city who do engage in outdoor cause of the overcongestion caused in part by New recreation, the felt needs and the responses to it are YorW-scity- traffic passing through. Someoftheworst quite similar to'those of residents of the suburbs or traffic jams in the New York metropolitan area occur ..of smaller communities. on the Westchester parkways. 15/ Even so there may be significant deprivation of The far greater numbers _61- Los Angeles County outdoor recreation among the children of the inner residences (approximately 40 percent of the dwelling city. Thus, if adult residents of slum areas are unable units of the 14 southernmost counties of California) to get access to outdoor recreation facilities, it is tend to swamp recreation areas in the adjacent counties quite likely that their children will also be denied of the six-county metropolitan region. 16/ Moreover access. Unless specific plans are made to provide the infiltration of ever-increasing Los X@geles County outdoor experiences for children in these closely population tends to change the suburban character of packed residential areas, it is probable that they will the outlying areas. As population density increases in come to maturity lacking all the benefits of the the outer portions of the area, more and more land American outdoor heritage. which might have been used for recreation disappears In New York City it is estimated that there are with the result that the former city resident who has 180,000 children who would be unable to pay for a moved to the suburbs soon finds himself again in a day camp because of poverty and upwards of half a thoroughly urban environment and forced to travel million additional New York City children could only farther and farther to find adequate recreation. 17/ attend camp if the cost were defrayed by substantial The outward rush of singl6-unit housing creates w@a__ve subsidies. 14/ One of the principal adverse factors after wave of real estate development and real estate to city living- by middle class people could be removed speculation. This places such high prices on any land and the inner city environment greatly improved for which otherwise might be suitable for redreation that children if more adequate access to the outdoors could its use for this purpose is foreclosed. 18/ Thus the be provided. suburban resident of the Los Angeles metropolitan area finds himself having to travel farther and farther THE OUTER RING to find suitable recreation, but when he arrives, particularly on weekends, he may find the site over- Surrounding the inner portions of the large metro- run with his neighbors from the central city. politan complex is the ring of older and newer sub- The mean level of income among suburban residents urban developments. As conditions toward the is probably higher than among those of the central metropolitan edge grow to resemble the density and city although the extremes of central city incomes other characteristics of the inner city, some people may be greater. One-ninth of the suburban residents move still further out as older commuting. towns of the Chicago area have incomes of less than $5,000 are absorbed into the major complex. as compared with one-third of the city residents. 191 The initially favorable access of these older suburbs These higher Income levels may enable the suburban to outdoor recreation declinbs as the city in its residents to have greater access to outdoor recreation. growth absorbs more and more of the surrounding Nevertheless, the suburban resident is still subjectto countryside. Indeed the older portions of this largely unplanned development in many instances exhibit symptoms of the same blight which has overtaken L5/New York Study, ch. 3; "Access to the Countryside." many of the residential portions of the central city. M/Los Angeles Study, table 2.3. Hence, in respect to access to outdoor recreation, L7/lbid., ch. 2, "Land U-so of the Lowlands"; ch. 3, "Recreation the outer portions of the metropolitan center are Areas"; ch. 5, "The Problems of Multiple Government . Jurisdictions." Ls/lbid., ch. 5; "Mobility." U/New York Study, ch. 4, Recommendation, 3: "Develop More 2/Chicago Study, ch. 2, "Outdoor Recreation and Place of Recreation for Children." Residence." many of the same controls of physiography, iraftic, latter area that the most rapid growth is occurring site-crowding, and physical availability which restrict among all American metropolitan areas. the inner city residents. This situation is not so dif- Theoretically suburban residents should have better ficult in Atlanta largely because the heavy concentra- access to close by outdoor recreation areas than do tion of the Negro population in downtown Atlanta central, city residents. However, there are exception! s. probably means that this, less mobile group is not a In both Los Angeles and New York large enough seg- competitor with suburban whites for available recrea- ments of the cities' population are sufficiently mobile ,tion sites beyond the metropolitan region. The res- as to dominate day-use and overnight recreation sites. tio --along freeways leading from the By the sheer weight of their numbers city dwellers idential conges n metropolitan area is not yet so - greEit as--that ex- crowd suburbanites out of parks and off the highways perienced elsewhere. 20/ that lead to them. ILow income city residents, particularly in the slum CONdUSION areas among recent in-migrants, minority groups, and elderly people, have little or no access to outdoor While metropolitan areas differ greatly in configura- recreation except in neighborhood parks and play- tion and physiographic locations, they all exhibit a grounds. These groups have far less than average similar structural arrangement as between the older car ownership and public transportation to many rec- central city and the suburban range. -It is in this reation areas is not available. Children of the central city in 'the high-density, low income neighborhoods and even many middle income neighborhoods need LO/The Atlanta Study, ch. 2, "Leisure Time Activities." but do not have access to camp facilities. 12 CHAPTER THREE CHARACTERISTICS OF OUTDOOR RECREATION BEHAVIOR OF METROPOLITAN RESIDENTS The history of cities contains many dark chapters, pate somewhat less in outdoor activities than do and it is small wonder that men are mistrustful of residents in the other three categories. This differ- cities and doubtful of the merits of urban life. The ence remains statistically- _iiiRfificant when other city seems to deny so much that men value in life- factors, such as income, age, and sex are held open fields, fresh air, freedom of movement, the joy constant. 2/ Suburban residents participate more of outdoor living, and the virtues of calm and con- than urban residents, although a considerable portion templation. Indeed, the reluctant and grudging con- of this difference is accounted for by income, educa- cessions to these values in the life of the city have tion, and occupation. until recently been achieved only at the cost of lifelong In terms of specific outdoor activ4ties, urban dedicated struggle of a few people. On the other hand residents engage more frequently in such activities the needless sacrifice of these values which the as sightseeing, driving, picnicking, and swimming in process of urbanism extracts is the more common preference to camping, fishing, and hunting, activities, experience. which involve more vigorous and perhaps more One of the difficulties immediately encountered is skilled activity. These are more popular with people the transitional quality of metropolitan life. Exami- in outlying areas. 3/ However, these differen6es in nation of the socioeconomic subgroups in the American rates of participation should not obscure the fact that metropolis reveals a great deal of movement. When residents of large urban centers are the numerically we consider the present size of our metropolitan dominant group in recreation areas. This is because population and its rapid growth, it becomes apparent the difference in participation is in most instances that only a minority of Americans have a traditional not very great and the participation rates for urban urban background that extends more than a generation centers when applied to large urban population will or two. Consequently, -we are not sure that the out- produce large numbers. door activity preferences of today's urban residents Much of this demand is for day-use and must be. are at all fixed as urban characteristics. They may satisfied close to the metropolitan residence. This be more representative of a previous nonurban back- is probably because people are unwilling or unable to ground or evidences of income, age, education, or of spend more than 2 hours in reaching the recreation _9iccupation than of an indigenous urba n culture. area which is somewhere within a maximum range People from rural backgrounds, from minority of 60 to 120 miles under weekend traffic conditions groups or off-shore islands 'are drawn into the slums from home to site. The miseries of traffic conges- of the central city. There is also a constant influx tion that confront the family seeking a I-day outing to the central city of young, single people who seek have a tendency to limit distance traveled. opportunity and excitement of big city life. With Thus, in order to serveethe greatest needof metro- marriage, children, and improved economic status, politan residents, the recreation area, park, or beach there comes the search for the space of the suburbs must be within 1 or 2 hours driving distance. The and the single family residence. Then finally, in the implication of this observation is that if day-use later years after the marriage of the last child, there recreation areas are not accessible within this is the problem of the "empty nest" and possible mi- time and distance limit, then day-use type recreation gration backto a central city apartment. An inter- activity is foreclosed to many metropolitan area esting compromise is noted in the case of the northeast residents. Or else-in the case of inadequate pro- region, particularly in the New York-New Jersey- vision within the permissible time-distance zones- Philadelphia complex with the widespread ownership available facilities will be inundated beyond limits of of second homes in the country or near the ocean enjoyment for many, and the use-pressure will cause front. deterioration of the recreation site itself. Studies conducted for ORRRC indicate that there is Much of the pleasure of outdoor recreation is re- a limited but statistically significant difference in lated to feelings of freedom of movement in a spacious participation in outdoor recreation activities among environment. Consequently the day-use recreation urban residents, suburban residents, residents of areas adjacent to suburbs, and residents of outlying areas of the metropolitan areas must truly be out-of- doors, that is, in the open country. But how much areas. I/ In general urban residents tend to partici- open countryside is available in a I- or 2-hour drive -1/ORRRC Study Report 20, Eva Mueller and Gerald Gurin with from a large metropolitan center? the assistance of Margaret Wood, "Participation in Outdoor Recreation." Commission Report 19, National Recreation 2/ORRRC Study Report 20, ch. 2, "Place of Residence and Survey conducted for the Commission by the Bureau of the Region." Census, National Recreation Survey. j/lbid., table 12. 13 Table A-2. Relationship between place of residence and frequency of engaging in specific outdoor actiyities by adults IS years of age and oyer [Frequency of Engaging in Activity Lost Year] Often A few times Frequency, Numberof Specific activity (percent) (1-4 times) Not at all n. a. j/ Total (percent) cases Outdoor swimming or going to it beach: Cities ......................... 23 21 54 2 100 799 Suburban areas ................. 36 22 41 1 100 733 Adjacent areas ................. 28 17 54 1 100 534 Outlying areas ................. 18 16 65 1 100 691 Boating and Canoeing: Cities ......................... 9 16 73 2 100 799 Suburban areas ................. 13 20 66 1 100 733 Adjacent areas ................. 15 12 72 1 100 534 Outlying areas ..... ... 11 15 '73 1 100 691 Fishing: Cities ........................ 13 16 69 2 100 799 Suburban areas .................. 19 19 61 1 100 733 Adjacent areas ................. 22 16 61 1 100 534 Outlying areas ................. 26 20 52 2 100 691 Hunting: Cities ......................... 5 5 88 2 100 799 Suburban areas ................ 7 6 86 1 100 733 Adjacent areas ................. 10 9 80 1 100 534 Outlying areas ................... 14 14 71 1 100 691 Skiing and other winter sports: Cities ...... .......... 2 -4 92 2 100 799 Suburban areas ... 1 4 92 1 100 733. Adjacent areas ................. 3 3 93 1 100 534 Outlying area's .................. 2 4 93 1 100 691 Hiking: Cities ................. ....... 6 12 80 2 100 799 Suburban areas .................. 8 12 77 3 100 733 Adjacent area si ................. 7 12 79 2 100 534 Outlying area s ............ I .... 8 9 81 2 Wo 691 Driving for sightseeing and relaxation: 4 Cities ......................... 6 23 29 2 100 799 Suburban areas .................. 49 24 3 100 733 Adjacent'areas .................. 50 24 25 1 100 534 Outlying areas .............. I .... 42 23 32 3 100 691: Nature and bird walks: Cities ....... 4 8 86 2 100 799 Suburban areas .................. .. 6 9 83 2 100 733 Adjacent areas .......... ...... 7 9 83 1 100 534 Outlying areas ................ 6 6 86 2 100 691 Picnics: Cities ...... -* ............. 29 36 34 100 790 Subur6an areas .................. 37 35' 26 2 100 733 Adjacent areas ................. 32 34 33 1 100 534 Outlying areas ................. 27 32 40 1 100 691 Campin-.: Cities ....................... 5 5 88 2 100 799 Suburban areas ................ 8 9 82 1 100 733 Adjacent areas ................. 5 8 86 1 100 534 P,Ut.lying areas .................. 8 12 78 2 100 691 Horseback riding: Cities ............. ............. 2 3 93 2 100 799 Suburban areas ......... b ....... 3 5 92 1 160 733 Adjacent areas ................. 3 2 94 1 100 534 Outlying areas ................. 1 4 1 4 1 91 1001 691 .-!/Not ovadable. Source: ORRRC -Study Report 20, table 13. 14. For those people who reside in the most densely the Riverside, and 61 percent of the SanBernardino settled portions of the vast New York-New Jersey- population traveled 30 or more miles for Philadelphia metropolitan complex, the open country recreation. 7/ is inaccessible to a considerable extent. 4/ Mercer The Isignificance of this statement is readily ap- County, N.J., with about 4,300 square miles of open countryside within a 1 hour's drive has the best parent in the overwhelming visitor-load on summer access in the region. But in contrast, Nassau County, weekends. The beaches are so. accessible that stays N.Y., has only 180 square miles, and the residents of of 2 or 3 hours are common, and on a weekend when New York County (Manhattan) have only. 730 square the temperature in Los Angeles reaches 95* or 100? miles of open country accessible within a 1-hour drive. with a heavy smog pall, the beaches are literally Within a 2-hour driXTe, the recreationists of Chester mobbed to the point where one must thread his way County, Pa., will have access to 14,400 square miles between closely packed blankets and umbrellas. At of open country, but Suffolk County, N.Y. residents, such a time it is not uncommon for more than a at the other extreme, will have to be satisfied with million people to visit southern California beaches in finding recreation on 730 square miles after a 2-hour a single day. drive. The specific activities in which residents of large metropolitan centers engaged in the summer of 1960 In the Chicago metropolitan area, there is further are shown in table 3 below. evidence of great need for day-use areas close to place of residence: Table A-3. Actual number of outdoor recreation Three generalizations, therefore, are possible occasions (million) by persons 12 years of age and from a study of available data. The first is that over in 17 selected recreation activities, summer of group picnicking is widespread in popularity, and 1960, United States and standard metropolitan statistical day outings of this type take place at the closest areas of 1 million population and over, in rank order suitable place. The second is that while no over- SMSA all difference exists between participation rates United between Chicago and the builtup suburban area, Activity States Ronk order 0 million Rank order the incidence of group picnicking is less iri the and over) lower inco mie neighborhoods of Chicago. Place of All 4,377 ...... 1,606 ...... residence does play a part- juxtaposition to Lake Michigan tends to orient activity toward lake front Driving for opportunities while somewhat less group-picnicking pleasure ..... 872 1 298 1 activity takes Place among the lower quartile income Swimming .... 672 2 260 3 groups in the city than among their counterparts in Walking for the suburbs. 5/ pleasure ..... 566 3 277 2 Playing out- The ComrnissionPs Atlanta Study makes several door garne references to the need for developing regional parks and sports ... 474 4 187 4 to serve the day-use needs of the Atlanta metropoli- Sightseeing ... 287 5 118 5 tan region. 6/ Although it is apparent also that many Picnicking ... 279 6 106 6 Atlanta res7idents' have ready access to open country, Fishing ...... 260 7 58 9 well within an hour's drive.of place of residence, Bicycling ..... 228 a 71 7 nevertheless, there is evidently a failure torecognize Attending out- the specific and separate character of day-use needs door games ... 172 9 59 8 of the Atlanta area. Several public areas of a day-use 3oating ...... 159 10 56 10 type are located beyond the limits of day-use travel Nature walks.. 98 11 37 11 for St. Louis residents but nearby day-use facilities Hunting il .... 95 12 14 13 are overrun and in short supply. With respect to the Camping ...... 60 .13 17 12 Horseback Los Angeles metropolitan area, designated as the six riding ....... 55 14 11 16 southernmost California counties: Water skiing 39 15 12 is Hiking ...... 34 16 14 14 The trips made by Los Angeles.and.San Diego Attending out- - residents for day recreation were typically much door concerts 271 171 111 17 shorter than those of other southern California residents, probably because of the nearness of -!/Fall of 1960. many excellent beaches. For example, 44 percent Source: National Recreation Survey, Commission Report of the Metropolitan Los Angeles and 74.5 percent No. 19. of the San Diego population traveled less than 20 miles for their recreation, whereas 55.9 percent of J/New York Study, ch. 3, "Access to the Countrysi .de." 7/Statement proviIded by DK Fred E. Case, Associate Professor, j/Chicago -Study. Cases supplementary to ch, 2 and 3, Graduate School of Business Administration Real Estate "Group Picnics." Research Program, University of California, Los Angeles in I/The Atlanta Study, ch. 3-sec. 4. unpublished material developed for the Los Angeles Study. 15 This table indicates the 17 outdoor recreation.activ- The 730. million activity occasions indicated for this ities most frequently engaged in for both the Nation as group, represent 45 percent of the total outdoor a whole and for residents of large metropolitan areas. recreation activity occasions of residents of large Table A-4 below indicates groups of activities in terms metropolitan areas. These "nonlocale" oriented of the- principal resources on which they depend. activities do not require a specific place or resource, nor special skills or equipment. There Is some Table A4. Number of outdoor re rcreation occasions b lack of clear distinction between 11sightseeing" and persons 12 years and over residing in large standaX I driving for pleasure" although this disappears when metropolitan statistical areas by types of both activities are grouped in the larger classification. activities-summer 1960 It might be maintained that sightseeing does have specific resource requirements and is not properly SMSA's "nonlocale" oriented. However, the requirement may I million and over be very different for different individuals so that no Activity type number of occasions one locale is in fact specified by the "sightseers" (million) considered as a group. In that sense the requirement is "nonlocale" oriented. All occasions ............... 1,606 Nonlocale oriented ...... 730 The importance of water as an outdoor recreation resource is reflected in the 386 million occasions Water oriented .............. 386 which required access to water. Moreover, swimming, Organization oriented ........ 257 Land area .................. 137 the third most popular outdoor recreation activity Trail oriented ................ 96 among metropolitan residents, accounted for 260 million occasions, 16 percent of the total. But water Nonlo'cale oriented activities Organization oriented: is an important environmental factor. People like to engage in outdoor activity near streams, lakes, or Pleasure walking Playing outdoor games ocean front. Also recreation outings frequently in- Pleasure driving Attending outdoor concerts volve several activities, one of which may involve Sightseeing Attending outdoor sports water oriented activity. For this reason the 260 Nature walks million summer swimming activity occasions might be added to the,total of nonlocale oriented summer Water oriented activities: Land area oriented: activities-the national total of nonlocale oriented Swimming Camping summer activities plus swimming is 2.5 billion and for Fishing Hunting metropolitan residents is about 1 billion, or 40 per- Boating Picnics bent of the national total. The portions which the Water skiing totals of the nonlocale oriented activities plus swim- mixig bear to national and metropolitan totals is 57 Trail oriented: and 62 percent, respectively., Thus this group of ac- tivities, is somewhat more popular among residents of Bicycling large metropolitan centers than for the total national Horseback riding population. In contrast, the 11 remaining activities Hiking (table A-3) total 616 million occasions for metropolitan The total number of separate days in the summer of residents which is about. 33 percent of the corre- 1960 on which these activities were engaged was sponding 1,882 million activities of the national 1,606 million, 37 percent of the national total of 4,377 population. million outdoor recreation occasions in the same Thus there is'reason to believe that residents of period. The six most popular activities among metro- large metropolitan centers engage in relatively passive politan residents which accounted for 100 million or recreation activities which require little skill or more occasions each are: equipment to a larger extent than the population as a Driving for pleasure whole. The rank ordering of activities (table A-3) seems to bear this out. In contrast to the total popula- Walking for pleasure tion 12 years of age and over, metropolitan residents Swimming Playing outdoor games or sports participated in walking more than in swimming; Sightseeing bicycling more than fishing; camping more than hunt- Picnicking ing; and hiking more than horseback riding. The qualities which these activities share in com- These six activities account for 1,246 million separate mon are rather limited skill and equipment require- occasions or 78 percent of the total. Aside from ments and the relative lack of physical exertion and, swimming and playing outdoor games or sports, the aside from the sightseeing component, rather modest skill requirements for this group of activities are quite landscape- and physiographic specifications. These low. Similarly, the equipment requirements are also are then activities which can be engaged in without a low, except for the playing games category. The great deal of fuss or bother and in which several or swimming classification probably included a consid- all family members can engage as a group. The erable amount of nonswimming activity, such as lying economic burden is limited to gas and oil, car de- on the beach and wading or playing in the water. preciation, and perhaps the cost of a meal or two for The largest number of activities in a single group are the family. The principal outlay is the time and effort those designated in table A-4 as I Inonlocale oriented. I I of driving the family car. The principal impediments 16 are traffic congestion and overcrowding of the recre- Table A-5. Vacation travel by adults 18 years and over ation site expressed either as lack of available park- by place of residence Ing space or lack of access to picnic grounds and Took Took Number tables, toilets, and drinking water. Place of vacation vacation No Total of residence trip-!" at home vacation (percent) cases MOBILITY (percent) (percent) (percent) (percent) The relative degree of mobility is an Important Cities ....... 42 15 43 100 799 characteristic of the outdoor recreation behavior of Suburban areas 50 14 36 100 733 people. In 1959, some 74 percent of American Adjacent areas 40 13 47 100 534 familids 'owned an automobile; some 50.3 million automobiles owned by families and individuals av- Outlying areas 40 81 521 100 1 691 eraged over 9,5OCmiles of travel .in 1959. EI/ - . -!/A vacation trip is defined as a trip of more than 3 day Is which There is apparently considerable difference in the the person interviewed regarded as a vacation. rate of car ownership by place of residence; about 55 Source: Adopted from "Participation in Outdoor Recreation,'. percent of households in large metropolitan centers ORRRC Study Report 20, table 37. reported car ownership as compared to 87 percent of households in suburban poTtions of metropolitan areas among which are also the bulk of the multicar owning are lacking, that the somewhat lower rate of car families. 9/ ownership mentioned above may be a significant effect Car ownership widens the area of choice of outdoor of lower incomes in the higher residential density recreation activities. Families with cars are able, section of the central city. granting favorable or uniform traffic conditions, to Vacation trips, since they involve relatively long select among available sites the particulzir recreation periods of time, include some fairly extensive travel. site which more nearly suits their taste. They are However, nearly two-thirds of such travel is confined also able to. repeat the experience quite frequently. to the State or region of residence. The remainin Thus the relative population magnitude of urban travel is interregional or to foreign countries. ll@ centers and the frequency of recreation trips are The trips varied in length from 100 to 500 miles (one important considerations in appraising the volume of way) with a 400-mile one-way median and the median recreation participation. time per vacation trip of 8 to 9 days. These trips were usually made in the family car and often included In a single 3-month summer period the frequency children as well as parents. with- which residerAs of large metropolitan -areas Outdoor recreation was a part of vacation travel engage in a single activity, such as swimming, can for 75 percent of adult vacation travelers and they result in a very in 'tensive use of swimming facilities. engaged on the average in 1.9 different recreational For the country as a whole In the summer of 1960, 52 activities while on such trips away from home. 12/ percent of the population 12 years of age and over re- siding in the urban portion of large metropolitan areas engaged in swimming. Each such person engaged in Table A-6. Relationship between place of residence and swimming 11.4 times in that period. To illustrate the outdoor recreatio 'n away from homej/ (includes only effect of this behavior let us assume that a central people who engaged in outdoor recreation) city of 1 million persons would have approximately 722 thousand residents 12 years of age and over. Thus Engaged Engaged the combined effect of population concentration and in outdoor in outdoor Number frequency of swimming is to generate over 4 million Place of activities activity Total, of visitors to the swimming sites largely concentrated residence while on only at (percent) cases within a I- or 2-hour automobile drive of the central a trip home city in the 3-month summer season. (percent) (percent) The American people value their ability to travel; Cities .......... 53 47 100 631 it receives most frequent mention as a desired leisure Suburban areas. . . 60 40 100 630 time activity. 0/ Adjacent areas ... 49 51 100 427 The difference of 8 percent between suburban and Outlying areas ... 47 53 700 532 city vacation percentage appears under multivariate analysis to result almost entirely from the higher j/lncfudes those who engaged in at least 2 activities or in any income of suburban residents. It is also possible, I activity more than 4 times on a weekend or vacation trip. although the hypothesis cannot be tested since data Also refers only to adults 18 years of age andover. ftRRRC Study Report 23; A. James Goldenthal, "The Future of Source: Adopted from Muellerand Gurin op. cit., table 49, Travel In the United States." Tables: Simplified Projection Relationship between Demographic Characteristics and Outdoor Model for Number of User-Operated Vehicles: 1976 and 2000; Recreation away from Home. Percent of Families Owning Automobiles; Auto Travel Volume: 1941-76. 2/Ibid., ch. 4, "Suburban and Regional Trends." U/Ibid., ch. 4. LO/Mueller and Gurin, op cit. L'/Ibid., p. 110. 17 Here again, the 7 percent dfference between city Iown backyards as recreation areas is not supported and suburban areas is not the result of residence as at all. such but is explained almost completely by income, education, and occupation. On the other, hand the The following table indicates the volume of partici- hypothesis that people in suburban areas prefer their pation. in weekend travel and vacation travel. Table A-7. Weekend travel by place of residence Took Took N.A. Number weekend vocation Took whether Total @of Place of residence tripi/ trip only neither took trip (percent) cases (percent) (percent) (percent) (percent) Cities ...................................... 20 31 45 4 100 799 Suburban areas ...................... ........ 23 36 39 2 100 733 Adjacent areas ............................... 17 29 49 5 100 534 Outlying areas ................................ 1 16 1 30 1 48 6 1 100 1 691 -!/Includes people 18 years of age and over who took weekend trips only and those who took both vacation and weekend trips. Source: Mueller and Gurin op. cit., table 38, Weekend Travel by Socioeconomic Characteristics. It is clear that both city and suburban residents the time and money expenditures by season of the year take more weekend trips than those residing farther for each class of travel. from the city. Not only do people want to travel in There were approximately 130 million persons 12 their leisure time but they are able in very large years of age and over in the United States at the time measure to attain this objective because of the in- the suriby was conducted (September 1960- June 1961). 'cidence of automobile ownership. These travels for Approximately @4 million of these persons resided in the most part do not exceed 500 miles though a the urban portion of standard metropolitan statistical sizeable porlion avel to a greater distance. How- areas containing 1 million or more persons. ever, a large part of this overnight, weekend, and vacation travel involves families with children and Volume of recreafion travel also involves engagement in outdoor recreation and visits to State and Federal parks. The following table shows the annual per capita distribution of recreation travel in the 12-month It seems clear that place of residence, as such, is period-June 1960-May 1961. not responsible for lower or higher rates of travel although suburban residents, because of higher in- Table A-8. Number of vacations, outdoor re . creation comes and correspondingly greater incidence of car ownership do travel more than individuals living in trips, and outings per person 12 years and over, June the city. However, the central cities generate a very 1960-May 1961 by place of residence large proportion of all such travel. This behavior seemed to point to a predominant desire for travel by Place of residence Vocations Trips Outings all classes of residents in the metropolitan area. Moreover, the - relatively short distances involved In SMSA: imply a search, not for points of rare natural beauty, Urban: but rather for open space, for a change of scene and Overl million ..... 0.66 0.80 6.5 the opportunity to engage in moderately active recre- Under I million .60 .94 6.0 ation. Thus the metropolitan agglomerations contain Rural .............. .65 1.13 6.5 a vast potential for movement principally by automo- Not in SMSA: bile. This simultaneous movement, at periodic inter- Urban .............. .64 .77 5.6 vals, of large numbers of people radiating out of the Rural farm .......... .39 .43 5.3 metropolises and, criss-crossing their travel trajec- Rural nonfarm ....... .571 .86 6.5 tories makes outdoor recreation travel an important aspect of American life. Source: National Recreation Survey, ORRRC Study Report 19, table 5.38. VACATIONS, TRIPS, AND OUTINGS Persons in large metropolitan centers take slightly Data from the National Recreation Survey makes more vacation trips than residents,of rural areas possible a comparison of the behavior of several near such large centers or of the smaller urban residential classifications during vacation, overnight centers. Althoughi as indicated above,.ffie residents recreation trips, and day outings. This information of large urban agglomerations face a number of concerns the numbers of persons 12 years of age and handicaps when they go on day-outings, still they ,over engaging in vacations, trips, and outings, the manage in the course of a year to have about the frequency of engagement, the distance traveled, and same. outings per capita as the residents of rural 18 areas who do not encounter the same obstacles. trips@'is not very different for all classes of residents However, large urban centers do not indicate as large by season. There were about 29 million vacation a per capita participation in overnight recreation trips, 35 million short overnight recreation trips trips as several other residential classes. Indeed, and 286 million day outings distributed among the 44 in this respect residents of large cities fall below million residents of large metropolitan centers 12 those in all other residential clasges exceptresidents years of age and over. However, there is an observ- of the smaller -urban.centers and of the rural farming able tendency for the activities to occur in larger areas. This might be explained by the possibilitythat 'numbers in the first three or highlyurbanized classes a substantial amount of recreation travel by persons of residents than in the last three classes indicated resident of areas outside large metropolitan centers in the table. However, the proportion in the popula- involves travel to these larger centers for some tion who did take such trips is remarkably high as forms of recreation not otherwise available whereas indicated in the following table which shows the per- the residents of these larger centers can enjoy such centage of persons taldng recreation outings. recreation without travel. It is clear from this table thaf the greatest pre6sure Seasonally, the larger portion of all recreation on those recreation sites within a few hours travel of travel occasions of all metropolitan dwellers 12 large cities will occur in the summer months when years of age and over is concentrated in the summer Some 26 million persons will make on the average and,, fall quarters,. but the pattern of distribution of 5.7 such trips. The fall. winter and spring quarters Table A-9. Percent of persons 12 years and over I or more outdoor recreation outings and outings per person with I or more outings by season of the year, June 1960-May 1961 and place of residence Percentage of persons w ith I or more outings.!/ Outings per per son with I or more outings Place of residence 1 11 111 IV 1 11 111 IV In SMA: Urban: Over I million .... * ..... 60 36 17 24 5.7 4.5 3.6 3.2 Under I million ......... 60 44 17 34 5.0 3.6 3.2 2.7 Rural .; ........ ; ........ 63 48 25 38- 4.5 4.4 2-9 2.1 Not in SMA:' Urban ............... k 42 13 33 5.1 3.8 2.8 2.8 Rural, form .............. 51. 42 13 28 3.5 4.6 6.5 2.7 Rural, nonfarm ........... 57 35 201 29 5.6 4.3 4.9- 2.8 2/1-June-August 1960; If-September-November 1960; III-December 1960-February 1961; W-March-May 196). Source: National Recreation Survey, ORRRC Study Report 19, table 5.40. will not be as popular either in terms of the numbers Table A-10. Distance traveled per person 12 Years of people or frequency. It is also possible that and over on vocations, outdoor recreation trips, and regional variations for winter and spring months outings, June 1960-May 1961, by place of residence would show relatively greater declines or increases than the national averages indicate. However,, even [Round trip miles per person] at these lower rates a very considerable volume of activity is indicated.. All There is greater participation in summer outings occa- Vacations Trips Outings by. residents of rural areas located close to metro- sions (miles) (miles) (miles) politan centers. Yet those metropolitan residents (miles) who take such outings tend to engage more oftenin in SMSA: this activity than residents in other classifications. Urban: Over 1 million 1,501 974 192 335 Travel disfance Under I mil- lion ......... 1,371 831 208 332 The distance which people travel is a significant Rural .......... 1,498 833 266 399 index of their desire for outdoor recreation. The Not in SMSk following table shows per capita in the population 12 Urban .......... 1,197 765 156 276 years of age and over in each residential class, the Rural form ...... 727 410 90 227 amount of recreation. travel in the year June 1960- Rural nonfarm ... 1,072 589 178 305 May 1961. Residents of large metropolitan centers travel Source: National Recreation Survey, ORRRC Study Report 19, somewhat longer distances per capita for vacations table 5.42. 19 than do residents in other classifications. On shorter to the largest interval-12 days, reported by residents trips and outings, however, the per capita travel of of small urban centers. There does not appear to rural neighbors of urban portions of large SMSA's be any consistent relation between residential class travel somewhat longer distances., Again this differ- and the number of days spent either on vacation or ence may represent travel to the larger center for on shorter trips. However, when time spent away outdoor recreation purposes by residents in the from home for all recreation travel is considered on smaller communities and rural areas plus the fact a per capita basis by residential classes it seems that the same driving time may mean less mileage that the more urbanized areas have higher scores per capita for urban than for rural travelers because than the less urbanized. of traff ic congestion. Also to be noticed is the greater overall per capita distance of all SMSA classes of Days per person per year I/ residents representing the more highly urbanized (June 1960-May 1961) residential locations as compared to non-SMSA resi- dents.- --The- larger portions of all this travel occur In SMSA-urban over 1 mil ......... 16.0 in the summer months. Fall travel mileage is, roughly, In SMSA-urban under I mil ........ 14.4 one-half of the summer mileage, and winter travel In SMSA-rural ................ 14.9 distances are smaller than in the other seasons. Not in SMSA-urban .............. 15.2 The following table shows the average'distances Not in SMSA-rural farm .......... 10.0 traveled and days spent by those persons 12 years Not in SMSA-rural non-farm ....... 14.6 of age and over who reported engaging in vacation 1/ and, trip travel. These figures reflect the average National Recreation Survey, ORRRC Study Report amount of travel and average amount of time spent 19, table 5.43. on vacations and shorter recreation trips by those And residents of larger urban.centers spend. more persons in the population who engage in these activi- days away from home for vacations and short trips ties. than any other residential class. Table A-11. Average per person vacation and trio Financial outlay distance traveled and days away from home for the year In these days of affluence and full employment, the ,June 1960-M.ay 1961, by place of residence leisure time dedicated to recreation may be a good Ide to the relative recreation appetite and the gpi Vacations Trips papacity to satisfy it. But generally, willingness to Place of residence spend hard cash is the real test of the relative de- Round Round tr sl Days tr Days mand for goods and services. The following table ip mile ip miles indicates the average expenditures per capita of residential classes in connection with recreation In SMSA: travel. Urban: Over I million 1,476 11.5 240 2.4 Table A-12. Expenditures away from home per person Under I mil- 12 years of age and over on vacations, outdoor recrea- lion ........ 1,385 10.0 221 2.6 tion trips and outings, June 1960-May 1961, by place Rural ......... 1,282 8.8 235 2.4 of residence Not in SMSA: Urban.. * ...... 1,195 12.0 203 2.5 Rural form ..... 1,051 9.5 209 2.3 All Rural. nonfarm 1,0301 10.41 2071 2.61 Place of residence 0.cca- Vacations Trips Outings. sions Source: Notional Recreation Survey; ORRRC Study Report 19; tables 5.45,, 5.46. 16 SMSA: Urban: Over I million $119.6 $88.4 $13.3 $17.9 In terms of distance traveled by persons who took Under I mil- trips and outings, the first three residential classes lion ......... 77.8 56.7 9.1 12.0 in the table above indicate longer distances for both Rural ......... 69.2 42.8 11.7 14.7 vacation and trips than the latter three less urbanized Not in SMSA: classes with residents of large metropolitan centers Urban ......... 61.5 44.3 7.3 9.9 traveling the greatest distance. Such persons took Rural form ..... 27.2 17.1 3.7 6.4 longer vacations than those in other residential Rural nonfarm., 1 45.81 25.6 8.11 12.1 classes except for non-SMSA urban residents but fell below several other residential classes in the Source: National Recreation Survey; ORRRC Study Report 19, amount of time spent on the average shorttrip. table 5.41. rune expenditures 'This array seems to reflect not only the willingness of residents of large metropolitan areas to pay for The vacationing residents of large metropolitan cen- recreation but probably also the superior economic ters spent 1:1.5 days on the average. vacation in the status of many of them. These people spend more 12-month period June 1960-May 1961 which is next in the aggregate for recreation travel and also .20 more in each category of recreation travel. Overall larger metropolitan centers are outranked by other residents of large metropolitan centers average residential classes such ranking classes also tend to 41.8 dollars per capita more than the per capita -fill in an urbanized residential "clasS. 'Thus when the average of the next highest residential classification various indices are expanded to the scale of the (residents of metropolitan centers under I million) residential population of large metropolitan centers, and 92.4 dollars more per capita than the lowest dominance of this class as a participant is clearly average per capita expenditures registered by resi- demonstrated particularly in the summer and fall dents of farming areas. The aggregate total expendi- quarters. The data then imply the magnitude of tures of this large SMSA residential classforrecrea- outdoor recreation participation among large urban tion ass6ciited travel is over 5 billion dollars residents and its potential pressure on resources. annually. Of this amount, over 750million dollars This would seem to. follow from the fact that large would be spent on the approximately 280 million total metropolitan centers contain more people, control day-outings engaged in by this residential class. more wealth, have more regular patterns of em- ployment and hence more regular leisure than do the smaller residential units. On the other hand, the SUMMARY differences between per capita averages by residential class in a number of these tabulations are not very Among residents of large metropolitan centers there great, probably not great enough to support conclusions is a marked propensity to engage in travel related to about recreation behavior based on residence class. outdoor recreation. In terms of time, distance. tr 'av- In fact, the only decisive differences seem to be those eled, travel expenditures, and frequency of such oc- based on higher incomes and possibly - somewhat casion the ranking of residents of large metropolitan better education and occupational status. Thus large areas is equal to or greater than similar behavior by SMSA's dominate the outdoor recreation scene because individuals in other residential classes. Moreover, of numerical and economic superiority and not because even. in those travel categories in which residents of of inherent differences attributable to residence. 21 CHAPTER FOUR -THE DISTRIBUTION AND LOCATION OF OUTDOOR RECREATION RESOURCES FOR METROPOLITAN RESIDENTS Outdoor recreation is provided to large metropolitan that superior numbers of metropolitan residents will centers in a variety 'of forms and under several tend to control the conditions of use of available different conditions. To some extent these forms and facilities whether designed primarily for their use or conditions are related to the development of the large not. Moreover, the very considerable mobility of population agglomerations. This is so because the individual recreationists enables them to move across impact on natural resources, including resources political jurisdictions, including State lines and to adaptable for outdoor recreation of these large exert dominant influence on the kind and character metropolises affect the quality and location of out- of recreation activities in regions which may be door recreation as well as its - availability. These attempting to serve quite a different population effects arise in part from the heavy demands im- concentration. posed by metropolitan centers on adjacent land and It is by now well established that the Yosemite water resources. But important effects may stem Valley portion of Yosemite National Park has been also from the particular conditions of metropolitan converted from its original purpose, the preservation living and the role of individual centers in a national of scenic grandeur, into a playground for residents metropolitan system. of the Los Angeles metropolitan region. Again, the State parks of Monterey County, Calif., are about THE METROPOLITAN INFLUENCE 270 miles from Los Angeles and about 125 miles from San Francisco. Yet in recent years the annual Both intermetropolitan coordination and metropoli- visitation to these parks by Los Angeles County tan specialization probably exert influences reflected residents was nearly 250 thousand and ranked third in the occupational concentration, in the social struc- in the volume of attendance at all State parks by ture, in residential preferences, and in recreational Los Angeles County residents as against sixth for all propensities and behavior. The dominant economic users. l/ These comparative figures might be inter- functions of Atlanta permit it to exi st in a substantial preted to mean that the dominant use of this area by agricultural region with a considerable amount of large numbers of Los Angeles County people had the surrounding open space. In contrast, the individual result of crowding out other California residents elements of the great New York7New Jersey-Phila- particularly those from the San Francisco Bay area. delphia agglomerations, dependent on a specific loca- Again overcrowding of Wisconsin resorts results from tion, have long since industrialized and urbanized the proximity of Chicago and Milwaukee, and numerous adjacent lands and water resources and put them to other communities. This condition burdens Wisconsin work in behalf of their particular metropolitan needs. taxpayers and adds to the cost of the maintenance If one accepts the concept of an urbanized nation of the physical resources of the recreation areas in in which major metropolitan centers, arranged in Wisconsin, to say nothing of the discomfort of resi- hierarchy of functions, are the foci of economic dents of smaller. Illinois and Wisconsin communities forces and in which these centers also perform re- seeking similar accommodations. lated and coordinated functions, then it follows that In addition to the overall domination of outdoor each metropolitan center is an entity which exerts recreation by national metropolitan systems, there influence over an adjacent natural resource region. is a characteristic metropolitan recreation dynamic. At the same time some of the influences which This derives from the daily, weekly, and seasonal emanate from each center arise out of the total ebb and flow of metropolitan life plus a widely metropolitan system of which it Is a part and in prevalent propensity to engage in outdoor recrea- which it functions. Thus the emergence of the tion. metropolitan center represents not only a series of More particularly, we are concerned here, not with localized developments but also the dynamics of a the long distance recreation traveler but with those total national arrangement. who seek recreation in large numbers at relatively For this reason, development of outdoor recrea- short distances from the metropolitan center, people tion for the residents of metropolitan regions has who seek a day-outing involving an average round wide implications. These recreation developments trip of not much more than 100 miles with maximum relate not only to a single population concentration trips up to 250 miles. This is the group which makes but to the entire nation. the preponderant impact on resources, whose needs To the extent that reasonably adequate recreation require a substantial investment in development and outlets are provided for the recreation needs of the facilities, and which more or less dictates the kind .residents of a metropolitan center, the residents oi other communities in the region or in adjacent regions may be able to find reasonable satisfaction. !/Los Angeles Study, table 2-3, Los Angeles County Residents But if the outlets are too limited, then it is likely Attendance at State Parks and Distance to Such Parks. 22 of resources to be mobilized as well as the kind and historical process of selection and development of amount of development. outdoor recreation sites reflects a range of decisions As we indicated previously (table A-8), residents based on somewhat ad hoc personal judgment without of metropolitan centers of over a million population systematic criteria or systematic inquiry into the average annually between 6 and 7 day-outings per needs or preferences of the metropolitan user. Some capita, largely in the summer and fall. The kinds of of the recreation sites were originally located and resources which are mobilized and developed for these developed for purposes no longer germane to the people are those which facilitate some half dozen present outdoor recreation needs of metropolitan or so simple activities requiring no particular skill residents. An example of this is the Cook County or- much equipment: walking, picnicking, swimming, Forest Preserve District formed in 1915 -which playing games, sightseeing and driving for pleasure. presently provides a mass outdoor recreation outlet The principal resource requirement for such activities for residents of the Chicago metropolitan area. Yet are land and water areas conveniently located with the original concept was not recreational use but respect to the population center. The physical specifi- natural preservation. This idea still persists to some cations of such recreation sites permit the inclusion extent in spite of 15 million annual visits to the of land with considerable slope and topographic reserve.3/ irregularity although some amount of fairly level land An eviin more exaggerated situation exists with is essential. Some tree cover for shade purposes is respect to the Adirondack State Park program in Indispensable for summer and fall use, particularly New York-an area where even today recreation in picnic areas in most parts of the country although development has been subordinated to concepts of artificial shade structures are sometimes utilized preservation and conservation with minimum use. in and areas. In addition to the specifications of One general conclusion, however, is possible: the recreation site itself, certain environmental con- recreation as a purpose has not enjoyed, in past ditions are important-principal among these is crea- times, a very high priority, either as an object of tion or preservation of the illusion of spaciousness. private or public investment. 4/ The recreationist seeks to engage in activities in Publicly provided outdoor recreation is sometimes an environment which contrasts with the confinements awkwardly located with respect to place of residence and regulation of movement enforced by the disciplines of users and consequently serves inefficiently. Also, of metropolitan existence. Thus qualities of openness there are indications, with marked exceptions, that and spaciousness are needed in the approaches and privately operated recreation facilities have often surroundings of the recreation as well as at the site been developed as a side line to more highly valued itself. pursuits and many such enterprises are small, under- In this connection attention is called to the tendency capitalized, and frequently understaffed. More fre- to impair the quality of the outdoor environment quently such establishments cater to a selective adjacent to large metropolitan centers by the poor rather than a mass trade. 5/ location of certain metropolitan artifacts which are It seems to be a paradox of outdoor recreation imposed on open space surrounding such agglomera- resources that the areas of greatest need are often tions. The study director of the NewYorkStudy says: the most poorly endowed with recreation opportuni- III, for one, am convinced ... that the open country- ties. The areas of greatest recreation opportunities side is not being gobbled up by urban development. on the other hand are often remote from population It is, however, becoming lost to outdoor recreation centers. 6/ because it is becoming thoroughly uglified by a The importance of the distribution of recreation scatteration of metropolitan artifacts like billboards, resources in the hinterland of great population cen gas stations, custard stands, and diners. These ters has been emphasized in several of the Commis- structures have been designed and erected not to sion's studies of outdoor recreation for five great serve rural needs, but to pander to the 'tastes' of American metropolitan areas. In some instances it is recreating urbanites with purchasing power. not the lack of available land and water resources "How important will pleasure driving and sight- in the metropolitan hinterland which lies at the center seeing be when the countryside is completely uglified ? of the problem of the recreation resources; rather it How much outdoor recreation will a summer house is the spatial distribution of the designated recreation provide if its picture window overlooks a gas station? areas over the region. How useful is a new park that must be reached through an alley of billboards T' 2/ New York-Now Jersey-Philadeiphia SELECTION AND DISTRIBUTION OF At first one would presume that the heavily popu- RECREATION RESOURCES lated northeast quadrant of the Nation where over one- quarter of the population resides and which contains The selection of recreation sites now used by metropolitan residents, and their development and -2/See Chicago Study, ch. 3: "County Forest Preserves ... .. Cook management have followed no consistent pattern County Forest Preserve District." except that of inconsistency. Indeed, the entire -!/Loss Angeles Study, ch. 2, first paragraph and "Continuing Crisis." -@/ORRRC Study Report 11, "Private Outdoor Recreation 2/Sumner Myers, letter to L. 1. Hewes, Jr., Chief, Forecasts and Facilities," Synopsis, V to X11. Economics Studies Group, Outdoor Recreation Resources J/New York Study, ch. 2, "Access to the Countryside," Los Review Commission, April 26, 1962. Angeles Study, ch. 2. 23 only 4 percent of the publicly designated recreation country are caused -by location and distribution of acreage of the 48 contiguous States would have an existing travel routes and by the traffic these engender. absolute scarcity of available recreation resources, Theine-gative impacto-f --this- -c onditionon the recreation but on closer examination this turns out not tobe pro@spectsafa_ve_r ylitge number of people in these true: areas is quite definite and specific at the present ... Thus within 120 miles of the New York- time. Philadelphia axis there are a total of 72,000 A recent survey of recreation areas, other than potential recreation sites, a surprisingly large ocean beaches, within 120 miles of the New York- number. Philadelphia axis indicated a capacity to serve 375,800 The supply of potential sites is in fact probably persons at any one time. 10/ Yet these facilities so large that a good number of them would un- were called upon in-1960-to serve 32.6 million doubtedly remain available in spite of the intensive visitors. On a summer weekend day these facilities demands of subdivision housing and industry..I/ have to handle 552 thousand people on the average and about 233,100 visitors are served on weekdays. ll/ Part of the explanation for this rests on the natural Since 92 percent of these people arr.iveby automobile, endowments of this particular region. However, it the location of these areas becomes a decisive factor. is probable that it is a condition which, on closer Residents of Long Island, New York City, and northern examination, may be found to exist in other regions. New Jersey, as well as people without automobiles But in the case of New York, an intensive analysis are at a considerable disadvantage in their ability has been more or less enforced because of difficult to use these areas both because of location and problems of providing outdoor recreation for the because of parking space capacity. The 15 thousand New York agglomeration. In this northeast quadrant parking spaces available within a 2-hour drive from the topographic relief is fairly low, water is abundant Philadelphia contrast with 473 thousand privately and widely distributed, and there are large areas of owned automobiles in that city. 12/ tree cover. Almost any open space anywhere in the It seems very likely that some part of the difficul- region is susceptible of adaptation for an outdoor ties of access and of ability of recreation areas to recreation site. serve public needs more efficiently in this large In the New York-New Jersey- Philadelphia metro- metropolitan region may be attributed to two causes: politan complex privately owned recreation resources (1) preoccupation with the attractive physical attri- provide a significant recreation outlet. The number butes of a particular site rather than a careful of summer or vacation homes is large and is grow- appraisal of access and location of the several publics ing. B/ Near one New Jersey lake there are approxi- to be served, (2) the failure to accord a sufficiently, mately 15,000 homes, and similar developments exist high value to outdoor recreation in land use and throughout the area. The Catskill area near New York development for other purposes particularly highway City and the Poconos provide impressive quantities and throughway construction and real estate sub- of outdoor recreation which have been privately de- division. veloped. Again private enterprise provides important Thus a considerable amount of existing imbalances service adjacent to public recreation areas in the in recreation opportunity in this metropolitan region form of restaurants, lodges, etc. Although the effect are maninade. These exist in the forms of highway of these private developments is. quite often confined location and highway traffic, encircling bands of urban to the higher income customers, yet, nevertheless, and industrial development, relative population dens- these amenities do enhance the recreation enjoyment ity, and finally in the relative degrees of efficiency of public areas. Indeed, in some instances the public in selection, location, development, and management of area could not really provide much recreation if such existing recreation areas. Some portion of this urban- adjacent private installations were not available. ized are 'a has adequate recreation outlets and other Over 18 million of the nearly 20 million acres of portions are not so fortunate. 13/ In general, recrea- nonurbanized land within 120 miles of the New York tion sites in this area must Ee- located within zones City- Philadelphia axis are privately owned. 9/ This is from 60 to 120 miles of the built-up portion of the a great resource for one of the major maropolitAn metropolitan center. Regardless of quality, sites lo- recreation activities, driving for pleasure. But the cated beyond this zone become almost irrelevant for opportunity to use this resource is unevenly distributed mass access except for long overnight trips and throughout the I- and 2-hour driving zones of the vacations. region. With some exceptions, residents of the more Atlanta densely populated areas of the great Atlantic mega- lopolis have the least access to open countryside. In terms of open space, Atlanta, Ga., is relatively In the near future some of these conditions may be favorably located. Here again the climatic, topo- alleviated by construction of highways now in the graphic, and other physiographic aspects of the Atlanta planning stage. But it is important also to note setting generally favor the location of outdoor recrea- that in some instances existing barriers to open tion facilities for the residents of the Atlanta SMSA U/New York Study, ch. 3, "Other Outdoor Recreation Areas." .Z/New York Study, ch. 3, "Estimated Supply of Potential L/Ibid. Recreation Sites." U/New York Study, ch. 3, "Outdoor Area Parking Capacity." 1/lbid, ch. 3, "Private Recreation Sites." U/Ibid. ch. 3, "Access to the Country Side; Supply of Publicly 2/Cf. New York Study, ch. 3, "The Outdoor Environment." Owned Outdoor Recreation Resources." 24 over a wide area of more or less unemcumbered graphic limitations in its recreation hinterland. This hinterland. There are few intervening residential makes the problem of recreation site distribution and zones. Highway locations and traffic conditions are location quite urgent. much more favorable to recreation seekers than in Here long, hot, and humid summers place a pre- many parts of the country, but, according to the mium on water for recreation. However, the geologi- commission's Atlanta Study: cal structure of the region tends to confine water Most of the parks are too small and contain too impoundments to the Ozark Highland regions south little in the way of overnight facilities to operate and west of the city where the nonporous rock struc- effectively as weekend recreation facilities." ture makes water impoundment feasible. Also-, the poor soils and rough, broken topography of this natural area make its less suitable for agriculture and hence Suffice it here to state that under present con- less valuable than either lands of the central lowlands of the Mississippi alluvial plain to the south, north, ditions the State park system is too frequently and east. Consequently, the pressure of St. Louis performing a role more legitimately within the residents for outdoor recreation tends to concentrate purview of city or county parks. To illustrate this southward and westward on the Ozark Highlands. further, two State parks are actually located inside At St. Louis the greatest pressure on recreational boundaries of municipalities, two are just outside resources is for day-use. For that reason the com- municipal boundaries, and one, Stone Mountain mission study of St. Louis was concentrated in zones Confederate Memorial, is within the Atlanta of 50, 100, and 150 miles from the city. 16/ The SMSA.11 14/ analysis showed that by far the greatest amount of public recreation space tended to be concentrated In This statement seems to imply that the decision to the most distant zones, 100-150 miles from the popu- locate these parks was not based on any clear idea lation center. This is particularly true of lands of how beat to distribute recreation areas to serve owned by the Federal Government and, while State metropolitan areas; also, the specific recreation facilities exhibit the same tendency, there are larger function of these parks appears to have been confused. amounts of these State facilities in the 50- and 100- This is borne out by the further statement; "outdoor mile zones. County and municipal facilities are recreation per se has not been completely accepted more evenly distributed. Of 36 stocked municipal by Georgians as a legitimate function of govern- reservoirs and 26 public fishing lakes, only 6 are ment .... 11 W In geneRal, however, Atlantans do have a very located within 50 miles of St. Louis. The inverse relationship between recreation site favorable situation with respect to outdoor recreation location and the area of greatest need is highlighted resources. There are 10 State parks and several by the intensive use of the Mississippi River pool major Federal recreation areas within a reasonable formed by the Alton Locks and Dam 35 miles north distance-70 miles from Atlanta. The basic difficulty of St. Louis. This facility had 2.7 million visits in seems to be lack of coordination in developing and 1960, more than any other facilities within 150 miles managing these areas and locations which do not of St. Louis. 17/ maximize their potentials. These deficiencies, how- - ever, do not now tend to deprive most white citizens With respect to privately owned or managed recrea- tion, a somewhat similar locational imbalance exists of adequate opportunities. . The same cannot be said as indicated in table A- 13 on following page@. for nonwhite residents although some provision is wbhe-these figures-ar-e-ba-sed on incomplete re- made for them. ports and, consequently are underestimates, theytend Aside from the problem of segregation, the out- to establish a high degree of imbalance in locational door recreation problems of Atlanta residents lie in distribution of those private recreation outlets enu- the easily foreseen potential for future difficulty rather merated in the St. Louis Study. The net effect of than in the present situation. It is apparent that this analysis then is to demonstrate that while no. Atlantans are subjecting available recreation re- shortage of recreation sites now exists In the St. Louis sources to heavier and heavier use and that residents area, the available space, because of location, does of smaller communities must anticipate more and not lend itself to day-use recreation, thepreponderant more competition for available recreation space from need of the St. Louis metropolitan residents. their Atlanta neighbors. The selection of recreation sites primarily because of their immediate esthetic appeal without clear comprehension of the purpose Chicago and public they are to serve, can only lead to trouble. In the six county area which comprises the Chicago The most Important consideration then, which appears SMSA (the Chicago metropolitan area), outdoor rec- now to have been overlooked, is the appropriate distri- reation sites are principallyprovidedbypark districts, bution and location of the outdoor recreattonfacilities county forest preserves, and State controlled and to serve the Atlanta metropolitan concentration. operated properties. 18/ The park districts in the St. Louis Chicago area have a UTtal of 13,797 acres, more t .ban St. Louis in contrast to the New York- Philadelphia U/The St. Louis Study, ch. 3, par. 1. complex and to Atlanta faces clearly defined physio- U/lbid. 1-8/0ata for this and subsequent discussion of the Chicago metro- L4/Th. Atlanta Study, ch. 3, "State Parks." politan area were obtained from the Chicago Study, ch. 3, L5/1bid. "Facilities in the Chicago Area." 25 Table A-13. Location of privately owned recreation areas adjacent to St. Louis-!, Distance from St. Louis Number 0 to 5D miles 5D to 100 miles 100 to 150 miles Type repo rted (percent) (percent) (percent) Hunting clubs ....................................... 51 18 20 63 Rifle and gun clubs (target) ............................ 129. 43 26 30 Conservation clubs (hunting and fishing) ................ 32D 29 24 48 Fee fishing lakes .................................. 128 44 34 22 Resorts ............................................... 485 10 12 78 Motel s ............... I............................... 518 23 29 48 Industrial tracts in disuse ............................ 23 30 39 30 Other large undeveloped tracts ........................ 24 8 17 75 Wooded form land (million acres) ... ................ 7.2 18 38 44 Stocked form ponds ................................ :: 1 81,5211 161 481 36 -@JAreos consist only of those for which information was available. Consequently, these figures are underestimates. Source: St. Louis Study, ch. 3, "The Present State of Outdoor Recreation in the St. Louis Metropolitan Region." half of which are in the Chicago Park District. These Table A-14. Proportion of State population and State districts, among other functions, administer the Lake recreation acreage within 150 miles of Chicago Michigan beaches, a major recreation outlet for Y State park Chicagoans. The Chicago Park District aionii- ad State hunt- over 12 million visitors in 1959. The other, major Population and simila .r State fore st ing and recreation resource of the Chicago area are the State (percent) acreage (percent) fishing 49i523 acres in the county forest preserve districts, (percent) acreage of which 46,208 acres are in the Cook County Forest (percent) Preserve District. This district currently has an annual visitation in the neighborhood of 15 million. Illinois 78 31 0 12 Among private haifflities within 6-1-ose driving dis- Wisconsin 59 24 7 32 tance of the Chicago metropolitan area. are at least Indiana 39 30 2 47 local day camps, 4 scout camps, 6 Y camps, Michigan lo 41 1 15 others, and 9 shooting areas with a total of about 1,600 acres. Public areas outside the immediate I/Not obtained. metropolitan area, but within 60 miles, of the city, include 15 parks distributed- 8 in Illinois, 7 in Indiana Source: Chicago Study, table 24, "Ratio of State Population and Michigan. and State Recreation Acreage within the Chicago Region," However, over three-fourths of.the Illinois public based on 1960 Census of Population and various. reportsl@ recreation land is located beyond a 150 mile radius from State Conservation Commissions. from Chicago,,where 62 percent of the Illinois popu- lation resides., A similar imbalance exists in the adja- Forest Preserve does meet adequately a criteria for cent States of Indiana, Michigan, and Wisconsin. 19/ maximum outdoor recreation service to a largepopu- This imbalance exists with respect to lands owTe-d lation.. The same co@clusion might be drawn as well by Federal agencies as well. with regard to the Chicago Park District facilities Aside from Lake Michigan, the physiographicsetting along Lake Michigan. These are good examples of of Chicago is undistinguished, the topography is gently adequate planning. It is unfortunate that this type undulating, summers are hot, winters cold. There of decision was not more carefully followed in con- are no extensive natural forests besides Cook County nection with the location of State-@owned facilities. Forest Preserve. Lake Michigan provides an oppor- The following table indicates, for a number of tunity for water recreation but also serves 'as a heavily 'used recreation areas within 150 miles of natural barrier to eastbound traffic. Aside from this Chicago,' the estimated amount of visitation, acrea .gel obstacle, the only other impediments to recreation and type of available recreation activity. seekers are adjacent urban developments to the north Attention is called to the fact that some of the and south. In general, there is little to inhibit the more distant areas from Chicago have more visita- development of extensive recreation development tions than do areas nearer at hand. However, in particularly of a day-use type. The present scarcity these instances, Warren Dunes, Starved Rock, White indicated in the table above arises from policy and Pine Vorest, and be;@ils_Lake ar-e- reachii-d-fr-6in Chica:90 management decisions rather than from physical by high-speed highways or tollways which apparently limitations. It is clear that within the limits of the serve to offset distance. It should be added, however, original concept the establishment of the Cook County that in the case of Devils Lake a considerable amount of the visitation may originate within the State of 2JChicago Study, ch. 3, "Public Sector." Wisconsin. On the other hand, the heavy use estimated 26 Table A-15. Heavily used State parks, forests, and recreof ion areas in Chicago regions (150 miles) Esti- Activities available Name mated 1960 State Acres Tent visitation Picnics Swimming camping Trails Boating Fishing Hunting .10-40 miles: Illinois Beach 556,224 Illinois .... 1,651 X X X X ........ X ........ 40-60 miles: , Indiana Dunes ....... 427,824 Indiana .... 2,182 X X X X X X ........ Kankakee River ...... 306,475 Illinois .... 2,121 X ....... X X X X ......... Chain b'Lakes ....... 143,109 .... do .... 738 X ....... X X X X ........ 60-80 miles: Warren Dunes ... :..4.. 568,219 Michigan 1,414 X X X X ........ ....... Illini ............... 247,ON Illinois.... 406 X ....... X X ........ X ........ Big Foot Beach ...... 209,159 Wisconsin.. 268 X X X X X X ........ 80-110 miles: Starved Rock ........ 845,' 000 Illinois .... 1,437 X ....... X X X X ......... White Pines Fore@st ... 514,614 do .... 385 X ....... X X ........ X ........ 110w`130 miles: Kettle Moraine (North Forest) ...... 472,500 Wisconsin. . 17,843 X X A X X X X Terry Andrae ........ . 217 167 .... do .... 186 X X X X ........ X ........ 130-150 miles: Devils Lake ................. 11,339,035 1 .... do .... M38 X X X X X X ........ Source: Chicago Study, ch. 3, table 25, based on data in official publications of the Departments of Conservation of Illinois, Wiscon- sin, Indiana, and Michigan, and information specifically requested. at Starved Rock and White Pine Forest is in spite of foreclose use of this area for day and weekend use the absence of swimming facilities. In these cases, for several months each year. To a lesser extent, it may be reasonable to conclude that easy access the very rugged dry mountain masses constitute to the available facility is more important than the something of a seasonal resource, but for, long periods absence of swimming facilities. of the year they too are unpleasant even for driving and, in @any event, contain very little. level ground. .Los Angeles They are largely undeveloped. The rugged moun- tainous country which makes up most of the local The physiographic setting of the Los Angeles ranges is essentially a landscape to'getAhrough. The metropolitan region, the six southern California rapid, extensive and aggressive exploitation of the Go.unties-Los Angeles, Orange, San-- Diego, San coastal area for residential subdivisions practically Bernardino, Riverside, and Ventura-is, paradoxi- removes this area as a resource for outdoor recrea- cally, quite circumscribed. Moving inland from the tion '. or even for attractive open space. One writer Pacific Ocean, there is a narrow ocean beachfront says o .f this area: "Flying from Los Angeles to San in some places and in others bluffs and cliffs rising Bernardino-an unnerving lesson in man's infinite steeply with little or no beach at all. The coastal capacity to mess up his environment-the traveler area some miles in extent is largely urbanized and can see a legion of bulldozers gnawing into the last: in some cases, as in Los Angeles County, completely remaining tract of green between the two cities, and urbanized. This urbanized coastal area is ringed by from San Bernardino another legion of bulldozers steeply rising hills and mountains which are almost gnawing westward.1120/_ The dilernma which thus waterless up to several thousand fee t elevation. At arises has definite anid--adverse effects on the location higher elevations in some places a p leasant mountain of outdoor recreation in those areas most accessible environment is encountered and eastward beyond these and most easily developed: is a great desert expanse. Thus from a recreational standpoint, the southern In their natural state these basins had much to California metropolitan complex is quite restricted. offer in recreation; but the most important benefits Aside from the long ocean front, the coastal area they offer is the aesthetic value of open space. affords little in the way of available recreation space Unfortunately, this commodity cannot compete with aside from urban parks, some of which, like Whittier the higher economic use for land and most of the Narrows, are quite extensive. The steep dry hills flat land of southern California has made the transi- and mountains offer little, if any, recreation outlet tion in very short time from the, orchards and and even at higher elevations parklike areas in the fields to residential and commercial centers. Ev -en mountain mass are quite localized. The surrounding desert seasonally affords a wide area of space and unusual types of desert recreation to those who have Lo/'Editors of Fortune, "The Exploding Metropolis," ch. 5, adjusted, as many have, to the unique desert environ- William H. Whyte,.Jr., "Urban Sprawl," Garden City, N. Y., ment. However, the extreme summer temperatures Doubleday and Co., Inc., 1958, P. 133. 27 with improved transportation, the open spaces- so Chicago is handicapped because State policy has not vital to outdoor Tecreation-are getting more and been oriented toward the metropolitan recreation more distant from the urban centers, requiring market, and Los Angeles suffers from physiographic even more time to get to them. 21/ limitations which tend to restrict recreation rather. One is not surprised, .in -view of this situation, to narrowly and from the enormous encroachment of discover that southern Californians seek recreation residential development on available open space. in considerable numbers as far away as the Colorado Large metropolitan concentrations in recenf times River, as much as 300 miles, from LoDs Angeles, or have become the dominant feature of American econ- that 8 of the 10 most heavily used California State omy and of the American society including the various parks are among the first 10 preferred by Angelenos. forms of activity subsumed Qd@r the term '.'outdoor Visitors from the six county southern California recreation." The countryside which ser ves as the region in the period July 15-September 1, 1956P setting of &se population agglomerations tends to accounted for a high percentage of all State park become a tributary area serving the imperious needs attendance: day use, 34 percent; camping, 49 percent; of the urban complex. Outdoor recreation is one of and traile-r camping, 60 percent. 22/ In terms of these needs. - The resources-land, water, topography, and cli- population, this is not startling since this region had mate-of the surrounding area are called upon to over half of the State population; but, in terms of serv@ a variety, of urban requirements. The priorities location and distance traveled, it reflects the serious of use to which these resources are dedicated by problem of the location and distribution of recreation the needs of metropolitan existence do not now outlets within reasonable distance of this large conform to any planned schedule. In general, how- metropolitan agglomeration. ever, the resource requirements of outdoor recrea- There are estimated to be nearly a million acres of land in the- State of California which could reason- tion have not been given a high priority. ably be developed for recreation, but less than 10 The present distribution of recreation resources percent of it is in the six southern counties. 23/ of five great American metropolitan complexes does not permit these resources to serve metropolitan CONCLUSION recreation needs with a high degree of efficiency. Some of this maladjustment may be inherent in the The conclusion which seems to emerge from this natural environment as in the case of southern analysis of recreation resources for large metro- California, Chicago, and the New York-New Jersey- politan regions is that location is a central problem Philadelphia area. Physiography determines the in providing adequate services. In the New York- main distribution of land forms and water, but, to a New Jersey- Philadelphia region traffic, suburban considerable degree, the difficulty of obtaining ac- encirclement, industrial development, and relative cess to outdoor recreation arises from causes located degrees of efficiency by recreation authorities create in society and in the relations between individuals man-made barriers. Atlanta has apparently not yet and their environment. These are expressed in poor become aware of the need to consider the problem site locations for outdoor recreation and are some- of the location requirements of the metropolitan times evidences of the low priority of outdoor recrea- residents in selecting recreation sites. St. Louis tion relative to priorities accorded other resource confronts a difficult physiographic problem which uses. R is also evident that little thought has in the dictates the direction of expansion. This is compli- past been given to the relation between recreation site cated by existing patterns of public land ownership. locations and the mass demand for recreation emanating from large population concentrations. Recreation site selection has tended in some instances L/Supplementary material provided by Dr. Fred E. Case with to be site- rather than use-oriented, with the result Los Anqeles Study -unpub I i shed. that many sites-in themselves quite beautiful and Z-2/Los Angeles Study, table 2-3, Los Angeles County Residents attractive-are too small or do not provide oppor- Attendance at State Parks and Distance to Such Parks; table tunities for the more popular recreation activities. 2-4, State Park Visitor Survey, July 15-September 1, 1956. Day-use sites near metropolitan centers *ithout L'/Los Angeles Study, ch. 2, "Geography and Outdoor adequate parking facilities for example are bound Recreation." to be used below potential capacity. 28 CHAPTER RVE WATER RESOURCES AND OUTDOOR RECREATION FOR METROPOLITAN RESIDENTS A great deal of the outdoor recreation activity of of New York City's 575 miles of waterfront are metropolitan residents is water-oriented. And if the fit for swimming. The portion of the Potomac recreationist does not use water directly as a medium River that flows through the Nation's Capital is for his activity, water enhances the pleasure which he unfit for swimming. 2/ obtains from the recreation environment. Weknowtoo that aside from the rather specialized forms of New York-Now Jersey-Philadelphia winter sports or desert-related activities, water in the form of oceanfront, streams, or lakes, is an almost In the New York- New Jersey- Philadelphia area, the indispensable attribute of the recreation environment. use of public beaches is tremendous. Yet the public We have seen in the preceding chapter the critical, resources represented by the beaches are only 1.3 importance of water in relation to recreation behavior percent of the total area for all forms of outdoor of metropolitan residents. For In addition to all the recreation. The 71 miles of State and Federally- water activities-swimming, boating, fishing, water owned recreation shoreline in Connecticut, Delaware, skiing, and underwater exploration-which actually use New Jersey, and New York contrast with 1,294 miles water, are other activities directly enhanced by the of ocean shoreline in this region suitable for recrea- presence of bodies of water. Such activities include tion. 3/ picnicking, walking and driving for pleasure, nature CCunty and municipal beaches in this area number walks, as well as practically all forms of waterfowl 224 and these receive almost 90 million visits a year. hunting. Thus It may not be a great exaggeration to Overall the beaches represent a small fraction of say the presence of appropriate water bodies exert the outdoor recreation area of this region but handle almost as much influence as access in determining the over one-third of all recreation visits. The im- adequacy of recreation resources of metropolitan balance between available beaches and an enormous residents. demand for beach recreation results in a high degree And here a paradox appears, for metropolitan of overuse and overcrowding of some beaches closer population agglomerations are dependent on adequate to New York while there is some underuse of more water for several purposes that are essential to distant beaches. 4/ existence. Thus recreation as a water-use near. In addition to problems of overuse of the beaches in metropolitan centers must compete with the use of. the New York area, there is the threat of loss of water for a number of other, and very important, beach areas to pollution. The Hudson River below purposes: water for domestic and culinary use; water Poughkeepsie has.been lost to -swirnming because of as a basic requirement of many manufact@ring proc- pollution. 5/ With the continuing increase in popula- esses as a coolant and dilutant; and WAter-borne tion, these losses become a serious threat. traffic an important element in the economic life of Another important question concerns the need to. many great cities preempting many miles of water- obtain some increased recognition of public rights on front. Metropolitan centers are prodigious sources @rivate beachlands. While a great deal of recreation of pollution not only from sewage and industrialwaste s undoubtedly provided on private beachlands, there but also because of sediments contributed by streams is also tremendous over-use on public beach areas in construction areas and in suburban developments. which are manifestly inadequate. At the same time Thus the metropolitan complex simultaneously ire- there exists a tremendous fresh water recreation stricts the available quantity while it impairs the reserve in.the many large water supply reservoirs quality of a resource which is basic to the recreation close to this metropolitan complex which are now purposes of metropolitan residents: unavailable for public recreation due to current sanitation policy. There is reason to believe that Since the turn of the century, the volume of existing policies which bar recreation use from these municipal and industrial waste put into our reservoirs should be reexamined. streams has increased over 550 percent. Our The great crowding of people to the famous close- in surface water is receiving twice as muchpollution New York City beaches, Coney Island, Jones Beach, from municipal systems as was considered allow- and Atlantic Beach is an example of the penalty which able in 1955. 1/ a demanding public imposes on correct judgment as The closing -6f bathing beaches has been widely to the location of recroatioin developments. Also this reported. Two beaches in the San Francisco Bay, experience points to the importance for metropolitan two beaches in the Milwaukee ... only 35 miles !/Ibid. I !/Luna B. Leopold and Hal lard B.-Kinnison, "Water for !/Now York Study, ch. 3, "Beaches." Recreation: Values and Opportunities," ORRRC Study Report -!/Ibid. 10., ch. 2. J/Ibid., ch. 4, "Utilizing the Hudson River." 29 residents of common carrier access to water recrea- clearing away of some deteriorated structures now in tion areas: these overcrowded beaches are all acces- private ownership. In addition to the deterioration sible to New York City residents by common carrier. of existing beaches and the pollution of the Hudson, a In the same vein the rather small use of existing continuing threat of encroaching pollution confronts fresh water beaches and the contrasting heavy use of several existing salt water beaches-Orchard in the salt water recreation areas in the New York-New Bronx and Coney Island in Brooklyn, as well as others Jersey- Philadelphia area may be explained by the along the New York-New Jersey waterfront. existence of accessible ocean beaches and the relative Although some progress has been made in solving scarcity of less accessible fresh water areas. the basic pollution problem, formidable political The development of the Delaware Basin water obstacles confront efforts to secure the necessary recreation potential is certainly an essential com- financing. The New York Study recognizes the diffi- ponent in planning to meet future water recreation culties in securing adequate depollution measures in needs of the area. Moreover, several of the existing areas adjacent to large metropolitan centers and New Jersey and New York State parks (e.g., Farney suggests as a. partial solution the construction of State Park in New Jersey, and Hook Mountain State enclosed beaches not too far from the shore into Park in New York) should be carefully studied to which purified water could b Ie fed. determine the water recreation potentials which These various proposals indicate that the problems could be realized by extending or enlarging existing of providing more beach recreation in the New York- impoundments or by the construction of enclosed New Jersey- Philadelphia metropolitan complex may pools. be partially solved. However, such solutions largely It is particularly important that this type of analysis depend on the intensive appli .ca.tion:,of, ingenuity and be undertaken in areas where the 1- and 2-hour driving capital available and, in some cases, previously zones from the major residential nuclei along the developed resources. In effect there are no new New York- Philadelphia axis overlap one another. resources on the oceanfront which can be called up; Another important possibility for redevelopment and consequently, the approach to the provision of more reappraisal is presented by the Pepacton and Ashokan adequate Iwater recreation resources now depends water supply reservoirs of New York City, which almost entirely on the techniques of planning and the might be declared surplus and integrated with the ingenuity of.developers in redeveloping or restoring, or 'possible recreational development of zoned portions redirecting the use of already developed resources. of the Catskill Forest Preserve. This potential should be explored in detail. Atlanta The New York Study emphasizes that further water recreation development should take into account the Atlanta is an inl Iandcity. It has no oceanfront. The needs of nonautomobile owning residents of the region. nearest seaside resort is Jekyll Island some 2 80 miles Sandy Hook in lower New York Bay, recently released distant, a vacation resort area of high quality. But by the Federal Government to the State of New Jersey, within day-use range of Atlanta are a number of fresh could serve such nonautomobile owning recreation water recreation resources. Principal among these seekers from New York City by ferry from Coney are several Corps of Engineers reservoirs with ex- Island and Manhattan; thus providing some relief at tensive opportunities for water recreation. These over crowded beaches presently serving this segment have been developed to some extent for water activity of the public. and there seems to be little evidence of crowding -or But the pressure for new water recreational outlets pollution. should be accompanied by program to rehabilitate The wisdom of operating a considerable number of beach areas which have deteriorated under heavy use quite small State parks with little or no water acreage pressure. There is too much beach slum, and possibly may be questioned. But at the same time there is ,some of this originates from management practices evidence that white residents of the Atlanta SMSA can of private owners'. A potential conflict is inherent obtain fairlyready access to fresh water for recrea- in the public quest for beach recreation, and the tion purposes, both public and private. This is not presently almost , untrammelled rights of private true of nonwhite residents of Atlanta whoare handi- owners of beach property in this region. A principle capped by lack of transpor tation. George Washington -of -public control of beach resources which would Carver State Park on the Corps of Engineers Allatoona. insist on'adequate maintenance and protection against Reservoir has approximately 10 acres of water for deterioration should be developed, although great care boating, fishing, water skiing, and swiniming. This is would have to be taken in the formulationand applica- the only Negro park within 100 miles of Atlanta. 6/ tion of such aprinciple in order to secure the coopera- This region seems well adapted,for the development tion of private interests. of water recreation. Near Atlanta there are several The Raritan Bay shoreline is suitably located to streams where impoundments are successful. How- serve poi@tiona of New Jersey and New York City. ever, Atlanta has only recently arrived as an SMSA But storm damage and beach* erosion and neglect of with over a million population, and its hinter .land is maintenance of beach structures have created a de- not subject to large-scale competing pressures as plorable condition. It is possible that cooperative yet. There is some evidence, however, of aAack of endeavor between the Corps of Engineers, the State focus on the problems generated in recreation areas of New Jersey, and local communities could improve by the heavy demand for water recreation. For and develop a system of beac ihes which would constitute example, no very clear distinctions seem to have an important recreation resource. Such a develop- ment,' I however,. will. req uire the rehabilitatio n or 1?Atlarito study, ch. 3, "George Washington Carver State Park." 30 been made between public and private recreation. of study, only 16 percent are located within the 50- Several of the public parks are operating by licensed mile zone. In this zone municipal, private, and com- private concerns. Moreover, it is the water recrea- mercial pools had a 1960 summer attendance of 660,500 tion byproduct of Corps of Engineer impoundments at a minimum. Moreover, as the distanciD from St. rather than the action of local or State authorities Louis increases, fishing as an activity tends to outrank which accounts for the great bulk of water resources swimming i n importance at the State parks; the two near Atlanta. activities taken together constitute major demands There seems to be a considerable element of on resources. Apparently St. Louisan will indulge coincidence and historical accident which has brought this propensity for water-related activity even when' about the present satisfactory situation for Atlanta. the opportunity is not good. For example, at Meramec On the other hand, several State parks have very State, Park, 55 miles from the city, swimming in the inadequate water resources or none at all. Thus the river ranks high as it does at Pere Marquette State distribution and availability of water resources in- the Park about 35 miles distance from the city, but the Atlanta region have not been a specific result of careful Illinois River at the latter park is a most undesirable study of the needs of the Atlanta population. The swimming. site, and the.. Meramec is regarded as Corps of Engineers reservoirs were not built for treacherous and dangerous. recreation as their primary purpose. It so happens Thus there is a clear and present defid4ency of that water recreation has become an important pur- water recreation resources for residents of St. Louis pose subsequent l to the development., Consequently where a long, hot, humid summer makes provision there is need'for more careful appraisal and analysis of adequate water areas an important requirement. of the water-oriented recreation needs of the Atlanta If present.trends are an indication, the contribution metropolitan area and particularly for the activities of private enterprise to swinimi and other water which can be enjoyed on a day-use. basis. sports, while important,-is nevertheless minor con- If we regard Atlanta as a young metropolitan center sisting largely of pools scattered throughout the in@contrast to-themore mature-Chicago and.Los region rather than the extensive beach andwater Angeles, 'areas, then the lack of a consistent water areas needed for mass accommodations as indicated recreation policy may be associated with an early by the tremendous use of.publicly owned AltonLake. stage of large-scale metropolitan development. This It seems inevitable that this challenge will-become carefr 'ee -policy should be discarded now in favor of a increasingly difficult to resolve as time goe .s on. more coherent body of policy in order to avoid the The solution is clear-more' efficient I .ocation and very clear problems which have emerged in the case provision of water recreation facilities designed for of the older metropolitan areas and which seem mass use. also to have resulted from a similar failure to realize that the time would come when choices can no longer be made. The present' shortage of water Chicago recreation for nonwhites implies the need to re- examine current recreation policy. The Chicago Standard Metropolitan Statistical Area, with 6.2 million residents, ranks third among the five', St. Louis 7 metropolitan regions-Atlanta, Chicago, Los Angeles, New York-New JersQy-Philadelphia, and St. Louis, Reports made to ORRRC of the water facilities selected for study for ORRRC. However, the city of available for St. Louisans indicate a severe shortage Chicago, with 3.5 million residents, ranks second to of such facilities particularly Within 50 miles of the the total New York-New Jersey-Philadelphia urban city, in spite of the fact that St. Louis is located near population. The Los Angeles SMSA is larger than the confluence of three large rivers, the Illinois, the Chicago, but more of its residents are outside the Mississippi, and the Missouri, and is also quite close central city limits in contrast to the more densely to t@e Meramec River. However, most of the, water settled Chicago central city. Thus in terms of meeting recreation available within 50 miles of St. Louis is at water-oriented recreation needs of a dense population, Corps of Engineers facilities on the Mississippi, Chicago has a larger problem than LoDs Angeles. northwest of, the city, particularly at Alton Lake. In the case of Chicago, the major water resource At a minimum 8 million recreation visits were made is the Lake Michigan waterfront of the SMSA itself by St. Louisans in 1960, and about 40 percent of these and adjacent lake shorelands. In overall magnitude, occurred within 50 mi ,les of the central city. The Chicago's shoreline location would be more like that great bulk of this percentage was concentrated at the of New York and Los Angeles than that of St. Louis two Corps of Engineer pool .s formed by the Alton and Atlanta. However, while there is evidence of a Locks substantial use of the Lake Michigan beaches, avail- Within 150 miles of St. Louis, there are at least able data does not reflect the same degree of intensive 300,000'acres in lakes and water impoundments but a- mass use as that reported for some of the beaches in considerable portion of this is in private farm ponds. the Los Angeles or New York area. One might suspect Of 36 municipal reservoirs stocked with fish and 26 that this could be due to the lack of a beach area de- fishing IRkes, only 6 are located within 50 mileg-6f velopment in depth extending back from the lake. One St. Louis. There are at least 19 municipal and 47 reason for this is that the lake waters themselves are private commercial pools within 50 miles of St. Louis. quite cool, and hence swimmin in the lake is not as Yet.' of some 81,000 stocked farm ponds in the region attractive as it is under more favorable circumstances, but there is contrasting evidence that beach activities 2/Material for this section is largely the St. Louis Study, ch. 2-3. are eagerly sought. 31 The Chicago Park District which is responsible for Table A-17. Cook County Forest Preserve District by the major Lake Alichigan beach recreation, with 14 type of water oriented activity by number of district miles of lake beach property, provides 32 beach areas divisions and developed water acreage for public use and 42 outdoor pools. In 1959 there were about 12.6 million beach visits and about 2 Activity Number of Developed million pool visits. These are within the Chicago divisions water areas City area. Peak weekend day use is reported at about 200 thousand visits at all of these beaches contrasting Fishing only .............. 3 115 with estimates running up to a million or more for Fishing and boating ....... 3 1220 southern California and New York beaches. 8/ Swimming only ............. 1 0 The National Recreation Survey data on'9wimming Fishing, boating for large SMSA's in the north-central division, in- and swimming ........... 1 5 dicates 5 days per person of swimming activity in Fishing and swimming 1 95 the population 12 years of age and over. At this rate the city of Chicago should have an estimated summer Source: The Chicago Study, ch. 3; table 23, Divisional swimming participation of over 12.8 million, and the Characteristics of the Cook County Forest Preserve District. corresponding participation for the Chicago SMSA Based on various Cook County Forest Preserve District Reports. would be between 20 and 25 million.-V The. poor location of most of the State's recre- ..Thus Chicago Park District beaches, the most ation areas relative to use by Chicago residents highly developed beach areas on the lakefront area has been mentioned above. Table A-18 indicates with 12.6 million visits, appears to be fairly well these areas within 80 miles of Chicago which have monopolized by city of Chicago residents, forcing water for swimming, boating, or fishing. Swim- the remaining 2.7 million residents of the SMSA to ming is available at only six of these sites while use other resources for their water-oriented ac- fishing is available at every site and boating at nine tivities. But as indicated by the following table, the sites. Additional publicly owned recreational re- water-oriented facilities of the remaining park dis- sources available to Chicago residents. within a tricts, are not impressive. radius of 150 miles are 39 State fishing and hunting Table A-16. Selected outdoor water recreation.areas areas and 12 fishing areas with visits ranging from managed by Chicago Park District and by all reporting .209 thousand at the Chain O'Lakes conservation area park districts in Chicago SASA with 3,476 acres to 900 visits at Deansville, Wis., Inland which owns 41 acres and leases 2,630 acres. 10/ Park district Swimming Beaches Marinas lake and The various figures of annual visitation i@_public pools lagoon water oriented recreation areas are not very sig- nificant when considered in the light of the general. propensity of urban residents. Chicago ...... 42@ 32 7 14 As we have seen above, the recorded swimming Total ........ 68 46 9 17 activity of the Chicago Park District (12.6 million . ...... ----- visitors) was far under the theoretical participation Source: The Chicago Study, table 21, Park Districts in the indicated by the National Recreation Survey for the Chicago Areo-Selected Outdoor Facilities. Chicago SMSA (26-25 million occasions). Even when allowance is made for possible swimming activity at Note: The amount of acreage is understated for the SMSA the Cook County Forest Preserve and all other public outside Chicago because of failure to respond to request for resources within 50 miles of Chicago, possible totals information by 17 districts. fall far short of the swimming participation Chica- The other major resource in the .Chicago SMSA is goans should exhibit. the Cook County Forest Preserve which has 1,435 This difference could be accounted for by activity at developed water areas in the nine divisions of the several other places, such as private and public indoor district. The following table indicates the type of pools, private outdoor pools, public water areas further water development by divisions: than 80 miles from Chicago, and in privately-owned The largest developed water acreage is 770 acres open water areas such as lakes and impoundments in the Palos division of the forest preserve district. and streams. Of course it might be argued that the While this forest preserve is a fine public recreation actual swimming rate for Chicago is lower than the resource for the six- county Chicago SMSA, it certainly average rate for residents of SMSA's of 1 million does not represent a resource for water activities and over in the north-central region. This might be comparable to those possessed by other large SMSAI s true, but this rate could not be very much lower, under study particularly since the swimming areas are considering the dominant population kanking of Chicago listed as swimming pools rather than beaches, and in the region without lowering the north-central aver- much of the swimming activity in general is beach age swimming rate for residents of portions of SMSA Is play rather than actual swimming. of one million population and over, and, while the rate is indeed low, it is not drastically lower than @/The Chicago Study, ch. 3, "Chicago Park District" and the national average (5.95 days per person). ,/.'Summary and Conclusion." What is perhaps a more plausible explanation is Based on Chicago city population 3,550,000 and Chicago SMSA that the private resorts on the lakes of Lake County, population 6,220,913-U.S. Census of Population 1960; United States Summary, Number of Inhabitants, table 35, pp. 1-113. 2/Chicago Study, ch. 3; table 26, State Hunting and Fishing Population 12 years and over estimated at 72 percent of total. Areas in the Chicago Region by Distance Rings and Sectors. 32 Table A-18. State parks, forests, and recreation areas There are a number of other handicaps in respect within 80 miles of Chicago with water facilities to water facilities which confront Chicagoans, par- ticularly inadequate opportunities for boating which Acres 1960 extend almost across the board from inadequate Name owned Swimming Boating Fishing estimated stream and lake areas to shortages in storage, visits launching, and mooring facilities. There are also 10-40 Miles: serious conflicts between fishermen and swimmers. Swimmers, in addition to chilly Lake Michigan waters, Illinois Beach 1,651 X .... X 556,224 encounter pollution and safety problems in natural. Wolf Lake 580 .... X X .... bodies of water. Wolf Lake All in all, recreation water users of the Chicago (Ind.) 1,414 X .... X .... area are not very well served at the present time, 40-60 Miles: and since water is the key. to much of the recreation Chain O'Lakes 738 X X 143,109 potential of any region, it seems that Chicago metro- McHenry Dom 94 X X 88,534, politan residents are not in a'paiticularly favorable Channahon situation in spit6,of the proximity of Lake Michigan. Parkway... 20 .... .... X 77,691 The driving force, originating@ in the manifold desire Gebhord Woods 30 .... X 107,000 of Chicagoans for water-oriented recreation, pushes Illinois and farther and farther into the Chicago hinterland and Michigan draws more and more of the available water re- Parkway 450 X X .... sources into the zone of the Chicago metropolitan Kankakee influence. At the same time, it is likely that the River Dam 6 .... .... X .... quality of the water recreation experience may dete- Kankakee riorate particularly for disadvantaged groups. A River 2,121 .... X X 306,475 widening of the metropolitan influence at the periphery Kankakee will accompany a deterioration of the quality at the River (Ind.) 1,794 .... X X 9,112 core, but the impact of this will be felt by different Indiana Dunes 2,182 X X X 42@1,824 residential groups in the metropolitan area. The scope of the water recreation search has already widened, 60-80 Miles: so that the Chicago influence now overlai)s and com- Big Foot petes with other Lake Michigan communities and with Beach (Wis.) 268 X X X 209,159 the Milwaukee and Madison. as well as the smaller Fox River 64 .... X .... Wisconsin communities. Illini 406 .... X 247,000 Bass Lake . Los Angeles Beach (Ind.) 20 X .... X 42,603 Tippecanoe The six southern California counties which makeup River (Ind.) 2,744 .... .... X 25,756 the metropolitan Los Angeles complex rank second in Warren Dunes population size to New York among the five metropoli- (Mich.) 1,414, X .... 268,219 tan regions selected for the ORRRC metropolitan Total .... 115,9961 61 ... 91 17 2,802,706 studies. This population tends to reside in single familyhouses. Consequently residential densf tyof the Source: Chicago Study, ch. 3, table 25, State Parks, Forests Los Angeles central city does not approach either and Recreation Areas in the Chicago Region by Distance Rings that of New York or Chicago. and Sectors. Based on official publications of the Departments It is a region which contrasts markedly with the of Conservation of Illinois, Wisconsin, Indiana, and Michigan, other four because of its arid climate and consequent and information provided in specific request. lack of rivers and natural Wand lakes. The fresh water supply of this. region is a matter of great eco- nomic significance because water must be collected Ill., adjacent areas in Wisconsin, and areas in Anchi- at considerable expense and transported many miles gan, reinforced by many private pools provide a much before it can be used. There are few problems of more substantial resource for Chicagoans than they do fresh water pollution. On the other hand, the amount elsewhere. This would seem to be borne out by the significance attached in the Commission's Chicago of fresh water for recreation is very limited which studies to such establishments: -means that the population is extraordinarily dependent on the beaches of the Pacific Ocean from Point Con- Numerous lakes and swarai ception, north of Santa Barbara, to San Diego Bay on ps are found in the the south. Climatically, this area is quite unique morainic areas of northeast Illinois, southeastern Wisconsin, and southwestern Michigan with the because of extremely high summer temperatures at large attractive ones serving as major centers relatively short distances from the Ocean which make for private resorts. Commercial picnic beach water an important contrast to summer discomfort developments and public hunting and fishing and also because the mild climate enables use of the beaches throughout the entire year. opportunities are also concentrated in the areas of lakes and wetlands.11/ The public water recreation resources of the and southern California region consist principally of Pacific Ocean beaches, a number of water impound- LI/The Chicago Study, ch. 1, "The Physical Settings." ments such as Lakes Arrowhead and Big Bear in 33 San Bernardino County, the Colorado River reser- age swimming. The basic recreation at the beach voirs-Lakes Mead, Mohave, and Havasu-and the primarily involves use of the beach itself. Although Salton Sea. The following table indicates the dimen- there are a number of mountain lakes in the region, sion of these resources, together with principal these are the result of artificial impoundments, and improvements. of these only Lake Arrowhead and Big Bear Lake in' the San Bernardino Mountains provide any great amount Table A-19.-Selected water recreation facilities and of swimming. Other available surface water and, resources of'souAe'rn Calif-o-r-nia reservoir sites have progressively been appropriated for urban water supply. This leaves the remainder of Beaches: the inland swimming to be provided at the Salton Sea some 3 hours drive from Los Angeles and the Colorado Ocean beaches (length in feet) 602,613 River with its three large reservoirs about 300 miles Inland lake beaches (length in ie`e`t') 41,303 from Los Angeles. In contrast, the great proportion Effective feet of beach ................. 165,693 of the Los Angeles metropolitan population lives only Boat moorings ........................ 16,681 26 miles or so fro-m-the oce-aK -beaches, and these are Boat launching units ................... 332 quite accessible by highway. This tends to make the Lakes: beaches primarily day-use areas. In addition to the lack of effective beach area de- Less than 50 surface acres ............. 22 scribed above, commercial, industrial, and residential 50 surface acres-or more ............... 19 developments have monopolized considerable area of beach: The Los Angeles- Long Beach Ports; U.S. Navy Source: Adapted from appendix, table "I", Selected Recrea- and Marine Corps installations -in San Diego Bay and tion Facilities and Resources, 195B-Colifornia Public Outdoor at,Camp Pendleton; unbroken stretches of beachelubs Recreation Plan, part 11. and residences north of Santa Monica, and along the Popanga-Malibu portion of the highway;and South of According to the standards developed, by the Cali- Santa Monica oil wells and attenda@t structures. 'fornia Public Outdoor Recreation Plan, an "effective foot of shoreline? I is the equivalent of an area of shore- Of course there are extensive areas of public beaches line 1 foot wide by 665 feet long, composed of 100 which can, support a variety of water recreation activi- square feet of water surface suitable for swimming. ties in the six-county area. However, these resources Two hundred square feet of beach for sunbathing and are called upon to serve almost the total swimming play, 100 square feet of buffer zone and 265 square demand of the Los Angeles metropolitan region. Al- feet for parking. Each 1,000 persons inthepopulation together the southern California Pacific Ocean beaches requires 25 effective feet of shoreline. 12/ Thus the provide a large portion of all the water-oriented rec- gross linear measure of southern California public reation of a very large population concentration. More- beaches of about 114 miles is reduced to about 31 over, these particular forms of recreation are much effective miles and on this measure can adequately preferred by the people of the six-county area. The serve a population of about 6.3 million persons, where- very aridity and high summer temperatures and smog as the 1960 six-county population was 8.8 million of the interior portions of the region make ocean beach persons. recreation an almost essential element in the- way of The California Public Outdoor Recreation Plan com.- life. of these millions of highly mobile people. Thfs ments with respect .to this si Ituation, "At the@present makes these beaches, considerably, more important than a casual accommodation for outdoor recreation; time no publicly owned beach exists in southern Cali- fornia where there is opportunity to establish a proper they provide a complement, for which there is no sub- ratio between sand area and required uplands for stitute, to a Way of life. parking 'and other facilities. 1, 13/ This comment and While 'the inland waters of the region area welcome the preceding. estimates mean-that -although Southern addition to water regreation of the ocean beaches, they California has many miles of beach, much of it cannot provide, a somewhat different recreation outlet. The be used effectively, partly because of inadequate park- great, Colorado River reservoirs, as well as the river ing facilities. According to the California Public itself, -so, heavily used by Los Angeles residents,. Outdoor Recreation Plan, swimming is by far the require a long trip and an overnight stay. A great dominant form of -outdoor recreation in the two deal of the activity in this area is in the form of boat- counties Orange and Los Angeles at the heart of the ing, water skiing, and fishing. A Somewhat similar metropolitan area. Out of a total of 48 recreation situation obtains at 'the Salton Sea, which requires a activities in Los Angeles and Orange Counties, swim- 6-hour round trip drive. Some of the water impound- ming accounted for 59 percent compared with 20 ments, including Lake Arrowhead and Big Bear, lie percent for the next highest recreation activity, closer to the population concentrations, but they tend picnicking. 14/ to be overcrowded on weekends for that very reason Actually it is not the lineal footage of water edge and they are somewhat beyond the distance of easy that is so important as it is the area of sand beach. day-use travel. Moreover, some of these reservoirs This is because the cold ocean water tends to discour- do not permit swimming., L2 Consequ6ntly the publicily owned, Pacific beaches /California Public Outdoor Recreation Plan, pt. 11, app. of southern California, with all their variation of land table "I", footnote f, P. 185. form, wave action, type of surf, and bottom are a U/Ibid., part 11, p. 107. tremendous asset to the vast population of the region. 1-4/lbid., p. 105 (figures cited are for 1958). In addition to swimming and some bathing, these areas 34 present a variety of opportunities for fishing and boat- of water resources to established recreation areas. ing; skin diving in this area becomes a major activity Wherever water is available at designated recrea- with 200,000 devotees in the region. tion areas, very heavy use tends to follow. But.,again These public beaches were made available through in the case of these five metropolitan agglomerations, a number of government bodies. Although the State recreation water supply has frequently been insuf- of California appears as the dominant title holder, the ficient or inadequately developed or inefficiently con- operation of the beaches is divided among several trolled. The result has been the vast overcrowding counties and municipalities. Facilities seemtofollow of some areas and the underuse of others. no standard pattern. Some beaches have only basic . Some developments are highly successful, but quite -sanitary facilities, but Mission Bay at San Diego is frequently the example of a successful development highly developed with the finest artificial marina on has not been fully exploited. This is shown inthe case the California coast,- developed day-use areas of sandy of IAlton Lake 'near St. Louis, in the park districts of beaches and grassy parks, picnic grounds, and anchor-7,. counties adjacent to Chicago which could have capi- ages, and protected water for sailboating. tilized on the experienc e- af the Chicago Park District . From an overall point of view, however, it does not, in the development of the Lake Michigan waterfront, appear that either the people of the Los Angeles metro- and at some of the southern California beaches. politan complex nor their representatives at any level of government have become @ sufficiently aware until There tends to be a steady encroachment on the very lately of the urgent need to husband and develop water resources of many great American cities due a very precious recreation resource of the Pacific to poorl y controlled pollution and through unregulated shoreland. private development and control of shoreland areas. CONCLUSION However, these adverse situations are attracting more and, more public attention. The evidence of the popu- Water is an. essential element of the recreation larity of outdoor recreation for these outdoor concen- environment. Consequently the five metropolitan trations is manifest in,the very large use which is regions have been analyzed in terms of the relation, made. of the available areas. CHAPTER SiX THE CHALLENGE OF THE FUTURE - OUTDOOR RECREATION AND THE ROLE OF GOVERNMENT The task of providing and distributing adequate door recreation-a desire for more freedom of outdoor recreation opportunities for - residents of movement- a more spacious environment. And while large metropolitan areas is already complex and this outward movement has, with almost explosive difficult. As metropolitan population concentrations force in quite recent years, transformed metropolitan grow in density and extent, the associated problems shape and structure it has also made provision of of maintaining adequate levels of public, services of outdoor recreation more difficult and more complex all sorts will also increase. as we have seen. We have referred in earlier chapters to the manner People have found in suburban living a way to enjoy in which metropolitan residents seek outdoor recrea- the best of two worlds; the greater economic oppor- tion and have described some of the impediments to tunity of the large metropolis and the illusion, at fulfillment of their recreation needs and preferences. least, of a spacious environment. Tbus, the continual We confidently expect, with further metropolitan growth of large metropolitan agglomerations, and the growth, the development in several parts of the progressive subordination of an extensive hinterland country of metropolitanized regions. We also expect to the imperious forces inherent in metropolitan a concomitant increase in the demand for outdoor organization, constitute not only the principal physical recreation and an increase in the complexity of out- form of our more recent national development, but door recreation planning and management. Possibly also an expression of less tangible social objectives. this may bring about an increased recognition and This development provides the principal problem status of these functions. And while a considera@le areas for planning and management of outdoor rec- portion of recreation facilities for metropolitan resi- reation. The following table indicates the 1960 and dents will continue to be provided by private enter- estimated 1976 and 2000 populations residing in the prise, overall planning and management functions will population centers of 1 million and over in this necessarily be performed by government at some country. level. In terms of the future rate of increase of large metropolitan concentrations, the West is expected to METROPOLITAN GROWTH AND THE DEMAND be the most rapidly growing region, risingfrom a FOR OUTDOOR RECREATION population in 1960 of 11.7 million to over 40 million by 2000. The Northeast which contains large portions The growth of large metropolitan centers is one of of the great eastern megalopolis is expected to decline the dramatic tangible - forms in which our natlional from its dominant position with a 1960 population of development is now expressed. This present national nearly 24 million, to second rank with a population of form, shaped by several precedin&@stages, 4s under- nearly 43 @nlillion-in 2000., while the north-central lain by two fundamental forces: technological develop" region, @ now in- second position with a metropolitan ment on the one hand and the drive for economic population of over 19 million, moves to first rank by opportunities on the other. Present-day technology 2000 with a population in large metropolitan concen- makes possible both mass production and distribution trations of over 47 million. to a mass market-, these function most effectively in And with increasing per capita income, more a metropolitan environment. leisure, more transportation, a metropolitan way of The search for economic opportunities, in part a life means also an increasing emphasis on the ameni- function of technology, draws people away from rural ties of life. The increased rates of growth of large areas and smaller communities with more circum- metropolitan centers and their wide proliferation is a scribed opportunities and lower wages to the wider rough guide to what might be termed consumer sover- opportunity horizons and larger rewards of the eignty with respect to choice of place of residence. metropolitan complex.l/ Outdoor recreation is one People could live and could raise families in the of the components of the complex of goods and serv- denser population areas of central cities with attendant lees which comprise the material component of this restrictions on movement. But now many of them better life. To some extent, too, the outwardresiden- choose suburban life and its amenities. tial movement to the suburbs from the central city of Outdoor recreation is such an amenity. We may, the metropolitan complex seems to reflect perhaps therefore, confidently expect that pressure for outdoor some of the same motivation as the search for out- recreation among the residents of large metropolitan centers will expand at a rate somewhat greater than -!/Harvey S. Perloff, Edgar S. Dunn, Jr., Eric E. Lampard, the rate of population growth. The following table Richard F. Muth, "Regions, Resources and Economic Growth," presents estimates of the volume of outdoor rercrea- published for Resources for the Future, Inc., by the Johns tion activities which the residents of large metro- Hopkins Press, Baltimore, copyright 1960, pp. 225-232, MI. politan centers will seek by 1976 and 2000, 36 Table A-20. Actual and estimated population of large SMSA's by major census regions, 1960, 1976, and 2000, United States Region 1960 1976 2000 Thousargis, Percent. Thousands' Percent Thousands Percent Total Unites States .............. ............. 179,323' 100.0 230,019 100.0 350,477 100.0 Large SMSA's total ........................ .... 61 778 34.4 87,175 37.9 152'753 416 Northeast ... ......... ......... 23,930 13.3 28,679 12.5 42,955 12.3 North Central 19,171 10.7 27,454 11.9 47,411 13.5 South ................. ...... f.............. 7,021 3.9 11,216 4.9 21,934 6.3 West ............................................... 11,656 6.5 19,826 8.6 40,453 11.5 1/For these purposes --Large SMSA" means an SMSA with a,1960 population of I million and over. -NExcludes Armed Forces overseas. Source: '*Population Projections of the United States for' 1976 and 2000;" Commission Staff; included in "Projections to the Years 1976 and 2000" ORRRC Study Report 23. Table A-21. Actual and estimated-niamber of occosionsi/ by persons 12 years and over residing in large standard metropolitan areas,2/ by Selected recreation acti*itles and Major regions, 1960, 1976, and 2000 (millions) 1960 1976 2000 *Occasion United North- North- orth- North. ed North- North- Cen- South West United Cen. South West Unit Cen- South West States east States ea st States east tral tral tral All activities ......... 1,606 622 547 150 200 2,700 310 220 226 623 5,742 1,616 1,82.7783 1,514 Driving for pleasure ... 298 107 126 27 38 502 160 187 59 96 952 264 324 131 133 Walking for pleasure ... 277 132 74 27 45 442 163 130 53 95 892 - 267 270 124 230 Swimming ............. 260 115 71 22 52 498 176 148 56 118 1,107 323 335 149 3DO Playing outdoor games or sports ............ 187 65 68 15 39 356 110 121 40 85 810 221 262 108 221 Sightseeing ........... 118 32 49 10 26 201 56 74 22, 49 408 105 137 54 112 Picnicking ........... 106 45 34 7 IS 172 60 57 18 38 325 94 104 42 85 Bicycling .............. 71 20 19 15 17 104 29 30 19 26 138 48 55 33 52 Attending outdoor sports events ........ 59 18 25 7 8 95 28 35 13 '18 180 48 61- 26 44 Fishing .............. 58 20 23 5 11 89 27 32 10 20 IS9 43 53 21 Boating other than sailing or canoeing 56 24 20 4 9 110 38 38 11 23 248 72 81 32' 63 Nature walks .......... 37 19 11 3 4 63 24 2D 7 12 124 38. 39 16 30 Camping ............... 17 4 .6 2 5 36 10 12 4 11 88 22 28 12 27 Hunting .............. 14 4 6 2 2 21 6 8 3 5 36 9 12 5 9 Aiking ............... 14 4 3 1 6 28 8 7 3 10 62 16 17 8 21 Water skiing .......... 12 5 3 1 3 30 10 8 4 7 79 23 23 11 22 Horseback riding ...... 11 4 3 1 3 18 6 6 2 5 39 10 12 5 11 Attending outdoor concerts, drama, etc 11 4 4 1 2 10 7 7 2 5 45 13 141 6 12 -!/Number of separate days on which persons "aged in activity during June-August except hunting for which Septerriber-November period was used. 2/Population I million persons and over. This table affords some insight hito the nature-of cant aspect of these forecasts is that outdoor recrea- recreation needs and preferences of residents of tion participation among metropolitan residents is .large metropolitan centers which seem likely to expected to outpace population increase largely due, prevail for the next 40 years. As indicated in chapter to factors Inherent in the characteristic economic 3 above, a number of the activities listed seem par- and social structurg of metropolitan residents. ticularly meaningful in gaging the type of resources The population of large SMSA's (Standard Metro- which need -to be provided to meet future needs of politan Statistical Areas of 1 million population and this particular segment of the population. One signifi- over)_ increases over 40 percent in 16 years while 37 Table A-22. Comparison of rates of growth of large The rapid population growth of-the Pacific coast metropolitan population and of outdoor recreation and the accompanying increase in outdoor recreation demand, 1960, 1976, and 2000-summer months demand are the results of an assumed high rate of in-migration, relatively higher wages, and a population Population Recreation de- relatively heavily weighted with young, well educated, increase Mond increase married couples with families. These people are expected to be concentrated particularly in the southern (percent) JZ(p e-rcent) California counties. Population growth and regional 1960-76 ....... ? .............. -41 73 distribution are the dominant factors determining the 1976-2000 ..................... 75 106 dfir-ection-in which metropolitan -recreation derriand- will grow, also of the areas of impact since the largest 1960-2000 ............. 147 257. _@ortion of demand is for short trips to day-use and 2/source: Tables 20 and 21. overnight, recreation areas. While the South as a region will remain in its present relative position, large,scale. metropolitan development and accompany-, recreation demands increase by over 70 percent- an Ing heavy demand for outdoor recreation opportunities average annual increase of recreation demand of will occur in Georgia, Florida, and east Texas. about 3-1/2 percent per year compared with an'aver- In chapter 3'the activity composition of outdoor age annual metropolitan population growth of 2.2 recreation demand was discussed. Table 24. idim- percent. In the 24-year interval between 1976 and tifies the amount of activity in those forms. of out- 2000, metroplitan population increases at an annual door recreation most typical of metropolitan resi- rate of 2.3 percent while recreation demand grows dent-a-whi-e-b-aT-eexpected to originate in metropolitan at an annual rate of 3 percent. Thus the expected regions in 1976 @and 2000. This table also indicates average annual effect of economic growth on outdoor the relative importance of these activities. recreation demand is to raise per capita participation . Out of a total of 17 principal outdoor recreation for the future. 7 This, of course, implies. that the activities (cf., table 21) engaged in by residents of recreation demand of each year is somehow satisfied. large metropolitan centers in the United States the .Another set of - comparisons is that between antic- eight- aZ_tivi-ties IiAted in Cable 24 account for about ipated regional population growth of metropolitan 85 percent in 1960, 1976, and 2000. Moreover, rank regions and the anticipated regional outdoor recrea-. order of the@ participation in these activities among tion demand in the. following table.- residents of the large metropolitan areas in the @ This table demonstrates that the distribution of the United States changes entirely due to socioeconomic demand for outdoor recreation among residents of causes, and not because of- population growth. Thus metropolitan' centers by major census regions is three activities: driving for pleasure, walking, anticipated -to conform closely. to the distribution of and swimming, are affected by changes in the socio- metropolitan population by major census regions. economic variables to a greater degree than the last The rank order of metropolitan populations and the five activities: playing outdoor games and sports, rank order of anticipated recreation demand of sightseeing, picnicking, bicycling, and attending out- metropolitan residents are th -e same.' door sports events. Driving for pleasure retains H these forecasts of the conformity of regional first rank in 1976 but drops to second place in 2000. distribution of outdoor recreation de 'mand and the Walking for pleasure in second place In 1960 drops population in 1976 and 2000 are realized, then it to -third place in 1976 and 2000, whereas swimming, follows, in terms of absolute volume, that the heaviest ranking third in 1960, moves to second place in 1976 demand will originate in the Northeast and North- and is expected to be the most popluar activity Central regions, but the largest relative increases nationally among residents of all large metropolitan will be experienced in the west and more probably centers in 2000. these will largely originate in the Pacific coast These eight most popular outdoor recreation ac- metropolitan centers. Population change is the bases tivities of metropolitan residents also account for forthese relative increases. very close to 85 percent of regional totals in.each Table A-23. Percent of total metropofitan population by major census region and percent of total outdoor summer month recreation demand of metropolitan residents by major census regions, 1960, 1976, and 2000 1960 1976 2000 Region Metropolitan Recreation Metropolitan Recreation Metropolitan - Recreation population demand population demand population demand (percent) (percent) (percent) (percent) (percent) (percent) Total ............ ............ 100.0 100.0 .100.0 100.0 100.0 100.0 Northeast ....................... 38.7 38.7 32.9 32.9 28.1 28.1 North Central .................... 31.0 34.1 31.5 33.0 31.0 31.8 South ............................ 11.4 9.3 12.9 11.7 14.4 13.6 West ............................. 18.9 17-91 22.71 22.4 1. 26.5 1 26.4 Source: Tables 20 and 21. 38 Fable A-24. Number of activity occasions by selected types of recreation activity among residents of large metropolitan regions: United States, 1960, 1976, and 2000-summer months and rank order 1960 1976 2000 .Recreation activity Rank Million Rank Million Rank Million All ........................ 1,606 2,785 5,742 Driving for pleasure ................ 1 (1) 298 (1) 502 (2) 952 Walking for pleasure ............... (2) 277 (3) 442 (3) 892 Swimming ........................ (3) 260 (2) 498 (1) 1,107 Playing outdoor games and sports ... (4) 187 (4) 356 (4) 810 Sightseeing ....................... (5) 118 (5) 201 (5) 408 Picnicking ....................... (6) 106 (6) 172 (6) 325 4@_ Bicycling .................. (7) 71 (7) 104 (7) 188 At-tending outdoor sports events ..... (8) 59 (8) 95 (8) 180 Total , ..................... 1,376 2,370 4,8 62 4 Percent of all activities ..... 85.7 1 1 85.1 1 1 U.7 Source: Table 21. of the four major census regions for 1960 to 2000. to affect current patterns of preference sufficient to However, rank order changes which are anticipated alter the relative requirements for supply. among activities vary considerably among regions In terms of what is implied for. facilities to be and between these and the. United States activity totals provided to meet this anticipated growth the key (cfi.table Ar2l). 'Thus in the Northeast, walking for appears to be properly located day-use facilities. pleasure. @ had. first rank in 1960, swimming was in More specifically the . demand would seem to be secon& placer'. Driving for pleasure was first in the greatest for a recreation environment which would: North-Central region in 1960 and. rank order of the (1) emphasize adequate water, beach and parking fa- first, -four activities was the same in that region in cilities; (2) permit automobile driving under pleasant 1960 as national total& This was true in the South conditions of traffic and scenery; (3) permit walking also. In the West swimming was in first place in all -under pleasant conditions of space and environment; years, but shifts occurred in the rank order of driving and (4) provide adequate play and sport areas. for pleasure and walking for pleasure. Playing out- . While these are the factors which would facilitate door games and sports remained . in fourth place: for the most popular activities of metropolitan residents all regions Land years. , it should be borne in mind that probably no activity It is to be noted that among the first four most im-. is single valued. The individual recreationist probably portant activities, changes were confined to shifts in selects a mix of activities in every outing, and the the first three, and in no region or year did any of value of the outing is heightened to.the extent that he the first three most popular activities in 1960 fall can engage in all the activities of his particular mix. below third place to the year 2000. Shifts in rank Thus many walkers will also be@drivers, sightseers, order occurred among the last four activities between and picnickem Fishing, a very important, activity, yearg'and among regions but in no case was an upward will be engaged in by people who are also picnickers shift in these activities large. enough to cause a rank and boaters, and so forth. .order higher than fifth with the single exception of But all activities share a common need for certain bicycling which in the southern region in 1960 tied "backbone", facilities without which no recreation for fourth .place with playing outdoor games and area has great appeal. Primary, of course, is a sports. pleasant environment with ample space in the recream- The outlook in the years ahead for outdoor recrea- tion area and around it. as well, and with natural cover tion demand among residents'of large metropolitan of some sort. Sanitary facilities and drinking water regions is. for steady increases in the quantity. This are essential everywhere. Cleanliness and mainte- demand will grow inproportion topopulation increases nance of access.roads are likewise essential. These but at a. somewhat greater rate. The difference in are considerations which arise from analysis of likely growth between population and recreation reflects the behavior patterns discernible today and which probably anticipated impict-da_ nuiriber of socioeconomic can be counted on in the future. variables particularly income, leisure, occupation; and education. These, however,,do not tend to cause THE PLANNING AND POLICYMAKING FOR much shift among regions except that the North- OUTDOOR RECREATION Central region will move from second to first place in terms -of the, amount of recreation demand which The process by which outdoor recreation opportun- residents of large metropolitan centers will generate ities for metropolitan residents are provided has Changes of great magnitude will not occur in i;; three' major stages: (1) determination of the need and recreation a:ctivity, "mix" although by the year 2000 its characteristics; (2) plans to meet the need; and swimming will be the dominant activity in all regions. (3) management of recreation areas and facilities to Within regions shifts will occur in rank order of the provide maximum opportunity. In the past, efforts to more popular activities but these will not be sufficient deal with these three stages have been concentrated 39 on the recreation site itself and solutions have tended, been singled out for study.j/ In earlier years, city therefore, to be stated in terms of the area of the site. officials have tended to think in terms of city parks. In the same fashion the needs and preferences of the County and State officials have been concerned with recreation seeking public were based on observations their particular constituencies and Federal land of the behavior of recreation seekers at the site of a management agencies including the National PoLrk designated recreation area. The result of these ob- Service and the U.S. Forest Service have necessarily servations was frequently to impute this behavior to been concerned with an undifferentiated national the public at large. public. This particularized approach did not permit differ- This, of course, emphasizes the essentially public entiation between people who traveled long distances nature of the task of piloviding outdoor recreation. and those who traveled shorter distances. Besides it For although the amount of recreation provided by gave no insight into the specific problems of the private enterprise and by private voluntary groups is ,,residents of large metropolitan areas as contrasted substantial, the overall task of planning and policy to residents of other areas or the problems arising making is directed toward public recreation and is out of efforts of both groups to use the same recrea- carried out by government agencies at all levels. tion area. Nor did this method sufficiently analyze And the great majority of all recreation areas are one recreation site and its use in relation to other publicly owned, 283 million acres in 24,000 publicly recreation sites and their use. In more technical designated nonurban recreation areas. 4/ Thus, the terms this method tends to assume that the persons problems of planning, policy formulation and manage- who -visit a given site truly represent a population ment of recreation areas located outside the imme- universe when in fact the data tended to reflect only diate metropolitan area fell "between the chairs." the behavior of the group actually observed and noth- More recent efforts to deal -with the probil-em of ing else. outdoor recreation for metropolitan residents prob- A somewhat related method is based on observation ably came'about to a considerable degree as a result of the relations between the areal extent of sites and of unbearable congestion experienced in areas which the number of users. 2/ This approach seems to have were accessible to the engulfing flood of recreation led to the notion tQ -a satisfactory criterion for seekers from the great metropolitan concentrations. recreation development was gross park acreage-so As a result, the solutions probably tended to be many acres per thousand people in the population specific, rather than general, limited rather than unIverse. The very wide range of such land-man extensive, piecemeal rather than comprehensive, and ratios among public authority attests to its la6k'of finally and most importantly site- rather than market- scientific foundation and broad applicability. oriented. A similar preoccupation with site tends to focus This approach would naturally result in limited attention on the inherent qualities of sites rather, than- planning concepts, and these would tend to over- on the purposes to be served at one site in relation to simplify an inherently difficult problem. This is not other sites and to public needs. As a result, some to say that the provision of outdoor recreation for sites have much land and too little water as in the residents of large metropolitan centers is essentially case of some of Georgiais Sta_f@_ parkk. 0dier sites more difficult than for other public services but only: tend to provide water only for certain recreationuses that in the categories, water supply, sewage, and as in the case of some divisions of the Cook County transportation, recognition of the need for regionwide Forest Preserve District in Illinois, in spite of the provision of these services took place earlier because almost universal preference for swimming. In the of their acute and immediate impact on comfort and case of'southern California beaches, the effective health. But In spite of this analogy to other services, beach area is greatly circumscribed because of lack the outdoor recreation planner for metropolitan re- of parking areas and beach width. gions does come late to the scene and does confront . But these apparent deficiencies in planning stem in an unusual dilemma. Indeed, his absence at the time part from the fact that only recently has the specific of earlier planning decisions now places him at a outdoor recreation need of large metropolitan popula- particular disadvantage. He has little to guide him in tions for recreation opportunities beyond city limits allocating community resources to recreation or among recreation sites. Lacking any clue to consumer sovereignty except that of residential agglomeration, -31n the summer of 1961 members of the ORRRC staff reviewed -he has to depend on budgets and political decision the literature dealing with outdoor recreation standards to making. Moreover, he tends to be separated from the determine the acreage in use by planning agencies throughout -operations and management phases of outdoor recrea- the country. For nonurban local areas the acres per thousand tion, He does not have intimate concrete knowledge population varied from 10 to 20. For State recreation areas of what the public wants in the wayof outdoor recrea- the standards varied from 31 to 45 acres per thousand'in the tion nor what it actually gets. 5/ population. For regional parks standards varied from 100 acres per thousand in the population to 15. Other mis- NFor example, the .Park, Recreation and Open Space project cellaneous *standards used by several authorities varied from i0Intly sponsored by the Tristate New York Metropolitan a minimum of 17 acres per thousand in the population to 500 Region and the Now York Regional Plan Association, Inc. acres and'over for nonurbon reservations less than 60 minutes NORRC Study Reports I and 2. of traveltime from Ooint of residence. Another authority NSee Harvey S. Perloff and Lowdon Wingo, Jr@, "Urban Growth, suggested 300 acres per thousand in the population for national, and the Planning of Outdoor Recreation," in ORRRC Study natural; and recreation areas, including parks, wilderness Report 22- Introduction -"The Big Issues in Planning Outdoor forests and parkways., Recreation." 40 In preceding chapters an effort was made to indi- W .esi is more. lavish with land resources because it cate the principal characteristics of the demand of has more of them than does the Northeast. Or to put metropolitan residents for outdoor recreation and to it another way, the pressure to accommodate a large relate, this to salient aspects of the existing supply public has resulted in management decisions for of recreation opportunity which these residents con- more intensive use of existing facilities but in all front. Among the - most critical aspects were the probability -the result was achieved bit by bit, park locational relations among recreation areas and be- by park, with varying degrees of regard for the com- tween these and the metropolitan public. Another fort of picnickers and the actual carrying capacity critical relationship is the location and distribution of the particular land resource. Probably these de- of water for recreation purposes. cisions were made with very little consideration of Thus areal extent cannot serve as a single or even their effects on similar facilities at other sites or a very significant criterion for choosing potential of similar decisions on a particular site. recreation sites. Indeed the validity of the areal The principal criteria to present-day management principle was tested in the study of outdoor recreation decisions about outdoor recreation in the hinterland along the New York-New Jersey- Philadelphia axis of great metropolitan centers is congestion. Relative (the New York Study), and it showed that recreation degrees of congestion very largely determine the use was related to facilities and degree of development quality of the recreation experience at a given rec- and not to acreage. @/ An example of the relatively reation site in the hinterland of large metropolitan negligible value.of acreage as a measure is the ocean regions, and the more attractive and better located shorelines of the New York-New Jersey-Philadelphia sites are more liable to be subjected to congestion metropolitan region, "Hence, beaches._ . representing than less attractive, less well-managed sites. The roughly 8 percent of the total miles of usable recrea- millions who swarm to Coney island, Jones Beach, tion shoreline and 1.3 percent of the total acreage Alton: Lake, and the Lake Michigan beaches, or who reported by all types of outdoor recreation- receive inundate the picnicking facilities of the Cook County roughly 36 percent of the total visits reported by all Forest Preserve in Illinois demonstrate the wisdom types of outdoor recreation areas in the 120-mile of the decision to establish these facilities and at the zone2_1 7/ same time penalize the: area by reducing the quality The conclusion which seems to follow from this of the recreation it affords. discussion is that considerable extensions of the A related aspect is intensity of use or the peaking recreation carrying capacity can often be achieved of -large numbers of visitors in a short period- a half without acquisition of additional land. Land acquisition day or 2 or 3 hours a weekend, a few weeks, or 1 or fairly close to large metropolitan centers is always 2. summer months. In the slack periods. attendance time-consuming, expensive, and sometimes fraught may be cut in -half or disappear completely, leaving with bitter controversy. Some acquisition of sites to the facilities idle as, well as the investment they serve the mass recreation needs of metropolitan represent. residents is, of course, necessary. However, this In addition to theAmpact on facilities caused by objective should not be confined to increased acreage congestion, management is confronted with problems but rather to obtain a proper balance between need, arising from the presence of large numbers of people. and opportunity. Thus some ex Iisting areas can be Many of these are safety problems-water is a pleas- made more attractive by additional facilitie's so that ant but sometimes a hazardous element. Drownings a wider array of recreation opportunities is provided. and near drownings among swimmers and boaters Such techniques as use-zoning can be instituted to occur not infrequently, and the hazard is ever present. solve conflicting use problems which tend to depreci- People unfamiliar with the outdoors get lost, children ate the value of a site. More adequate parking facil17 become separated from parents, fires start, quarrels ties can enhance the attraction -of an underused area*. and violence erupt, and problems of vandalism are a The extension of existing water surface or the creation potential threat in all recreation areas, public or of a new impoundment may bring out the full use private. The manager of a recreation area subject potentials of areas. to heavy use must be able to deal not only with re- But here again the planner is handicapped, because sources but with humanity as well, and the impact of in practice it is not the planners but managers who recreation seekers in the mass can test the metal of are in the best position to Judge what ends can be any area manager particularly, as is frequently the obtained by reshuffling the facilities and land and case, when he is understaffed and underequipped. water use of a specific site to achieve increased On occasion the behavior of recreation seekers capacity. Nevertheless, in regions of greatest popula- appears almost mercurial in its swift change. These, tion and relatively scarce resources, similar re@ unanticipated shifts sometimes catch management sources serve more people than in areas more off guard. A few years ago Lake, Havasu, behind abundantly endowed; the West. has twice the number Parker Dam on the Colorado River, was established of picnic developments with larger total acreage than as a wildlife refuge; it was also a fairly good fishing the Northeast which has twice the West's picnic lake. The lake and. adjacent lands were administered capacity. 8/ This example seems to imply-that the by a small management staff which carried out duties in,connection with the refuge and a relative small @/New York Study, ch. 3, "Standard for Measuring Use Value number of fishermen. -Of Recreation Resources." Suddenly, almost overnight, this lake was discovered Z/New York Study, ch. 3, "Inventory Within 120 Mile Zone." by Los Angeles speedboat fans and water skiiers. The N"Outdoor Recreation for America," Washington, January area erupted with activity. Since there were indequate 1962, p. 62. parking facilities and access roads for the influx, and 41. also since this was a younger and somewhat reckless frequently engaged in, but even 8 separate activities crowd having traveled a long way to enjoy their fun, mean 8 different kinds of services and, as we have a serious traffic hazard developed. People arrived seen, most individuals try to find a mix of at least at all hours. They parked cars anywhere and anyhow. 2 activities. So in contrast to other services, such They sought approaches to the lakeshore down pre- as water supply or transportation, no single instru- cipitous slopes and launched boats at inappropriate ment can serve. Furthermore, there are inherent and dangerous sites. The placid meditations of conflicts, sometimes severe, among even the simpler fishermen were rudely disturbed by the athletic antics activities, of enthusiastic speedboaters and water skiiers. On the other hand, no one of these activities mal@es In this remote, thinly populated desert area, the demands for unique or dramatic resources but rather small custodial staff were overwhelmed and harassed implies access to areas where rather simple activities by a whole series of problems for which neither can be enjoyed by large numbers of people. As we training nor experience had prepared them. For a have seen above, from each population center in the time pandemonium reigned. metropolitan region' demand radiates to cover an area Behind such events lie numerous causes. Principal any point in which can be reached in not more than among them. is the absence of overall regional plans 2 hours driving time. In the New York Study the outer which comprehend the complex pattern of recreation limits of these driving time zones determine the activity-,which is imposed on the hinterland of metro- "recreation hinterland"-a 120-mile loop roughly politan centers. There is-lack of knowledgeby planners 3 hours from the New York-Philadelphia axis of popu- of possible interrelations between.people and re- lation concentration. The St. Louis Study sets 150 sources and lack of established communications be- miles as an outside limit. In the Chicago Study the tween'plann@rs. and managers. Managers, primarily areas within 150 miles of"Chicago are defined as the site- orienteq,@@y experience and training, find them- Chicago region. The Atlanta Study sets similar outer selves at the point of * t of a- public in motion limits. The Los Angeles Study sets no specific limits ___ I @ 1m I C' over a va;rl:4y@ a PCeTfrom unknown points of but implies that Los Angeles residents willfrequently tr9a origin. leerimanagers of private facilities tell travel as much as 250-300 miles for their recreation. a similar,@6iory4of frustrated endeavor to preserve in spite of. some variations as to its extent, all of order, maintain sanitation, and prevent vandalism. these studies of the recreation of metropolitan resi- Proprietors of summer resorts -and tourist businesses dents tend to identify for each metropolitan center's shake their heads in doleful memory' of harassed corresponding metropolitan recreation region. This dealings with swarms of "summer peopl. *e." region and its recreation resources provide a large Perhaps all of these are only incidents- rough spots proportion of the total recreation actiV4 of the sometimes unavoidable when a large percentage of the metropolitan center4 If. satisfactory resources for population of 180 million people take to the road in recreation can be made available in this area, then search of outdoor recreation. And by and large the a considerable part of the recreation "problem" of public must find a reasonably high level of satisfaction metropolitan centers would be solved. or they would not repeat the experience. And by and Each one of the constituent studies of this series large the voracious appetite for outdoor recreation of our vast metropolitan agglomeriff6rii is somehow has focused attention'on the metropolitan recreation region Jn recognition of the strategic position it -appeased * By and large our national recreation plant occupies in the re .creation problem. It seems to be is made to serve current need in spite of the fact that the consensus that a'solution of the existing problems much of it was not designed with all these activities and frustrations @now confronting recreation planners. in mind. But frequently the job is not well done and consists in bringing about a proper balance between the national outdoor recreation capacity is strained the recreation needs of the metropolitan center and to meet current needs, overcrowding and congestion the resources of the metropolitan recreation regio In. are characteristic deficiencies of that part of the To some extent this involves some redistribution and recreation plants serving day use and weekend use of reorganization of existing resources to provide prin- residents of. large metropolitan centers. Moreover, cipal access within a 50-mile zone which, within the the coqgestion of the recreation site extends to traffic larger metropolitan recreation region, is the area on many ingress and egress routes. Indeed in some of most intense impact. cases, such as communities adjacent to the New York- All studies indicate that a large part of the problem Philadelphia axis, one band of traffic serves as an effective barrier to other bands. is in terms of location and distribution of facilities and, the, availability of water. The New York Study. PATHS TO SOLUTION OF THE PROBLEMS emphasizes, the concept of balance: OF RECREATION POLICY FOR LARGE: The concept of a balanced program is a dynamic METROPOLITAN CENTERS one ... a recreation program requires internal balance as it moves toward greater overall levels Perhaps the first step toward a more satisfactory of expenditure. Our inventory shows large amounts handling of the large volume of recreational demand of recreation land, often with inadequate facilities, originating among residents of large metropolitan and sometimes with poor and ugly roads leading centers Is a full recognition of its difficult and com- to them. It shows needs of children disregarded plex nature. In contrast to other public services, although thousands of acres are put at the disposal recreation covers a multitude of activities. As we of relatively few adults. It shows heavy emphasis have seen, 8 recreation. activities account for 85 on costly projects. and little. on control measures percent of the 17 outdoor recreation activities most that would greatly increase the yield of public 42 and private dollars committed to recreation of their extraordinary mobility, might have exposed purposes." 91 the problem in advance and a careful inventory might have given a clue to resources that might have,pro- Needs for recreation and opportunities for recrea- vided a more timely solution. tion must be stated. The needs of the New York, the factor of mobility causes other:problems. Of Chicago, or Los Angeles metropolitan population the five metropolitan centers in this study, three- cannot be determined solely by counting the people New York-New Jersey- Philadelphia, Chicago, and the at some, or even all, of the recreation areas in the six-county southern California complex-all have metropolitan recreation region. They can only be problems of L overlapping regions within a 2-hour determined by direct inquiry at the point of residence. driving distance. The New York SMSA 2-hour. driving The ability of the resources of the metropolitan rec- zone overlaps a large New Jersey SMSA which in turn reation region to meet these needs requires an in- overlaps the Philadelphia zone and the Philadelphia ventory of all existing and potential sites. The ability zone overlaps a Baltimore zone on the south. Chicago of existing sites to meet a portion of the metropolit .an overlaps, Milwaukee to the north and the southern demand, must be evaluated; A measurement of land Lake Michigan- Indiana complex on the south and east. and water surface areas is not enough. It is necessary Los Angeles and San Diego are both large SMSA's with to construct a facilities Index or measure (see the overlapping 2-hour driving-distance zones. This over- New York Study), I 'Standards for measuring use value lap condition is bound to increase with the growth and of recreation resources" which-Vantifies the ability extension of existing metropolitan centers and. the of each site to furm'sh recreation opportunities. Then rise of smaller centers to become either parts of it is necessary to visualize all the recreation sites e2 .dsting agglomerations or to form new nuclei. What in such a fashion that their interrelatedness is taken are now problems of in-e-tio-@olft-aii-r-e-c-r-eation regions into account. This means that the recreation sites will become more complex as more and more re- within a metropolitan recreation region should be gional overlaps occur, particularly in the north- conceived as an integrated system which functions as central region where several large metropolitan a whole. For this is how they really do function. areas are likely to develop within a short distance of Recreation behavior at one site is in part, a result one another. of the presence or absence of other sites and the The New York Study illustrates that this overlap related ability of. these other sites to perform, the problem can sometimes be solved by a. successive relative appropriateness of their location, the quality series of shifts across regional lines. of their environment, and their water endowment. Of course, the basic land and water resources suitable Where the I- and 2-hour time zones of deficient for recreation are frequently distributed throughout counties of one State overlap those of deficient the metrqpolit .an recreation region in a highly, irregular counties of another State an area exists which fashion. This complicates the problem to some ex- should be intensively studied for the development tent, but on the other hand the very simple basic of more recreation opportunities... I . specifications of the great preponderance of the rec- It should be noted at this point, however, that reation activities preferred by metropolitan residents recreation resources and problerns cannot be gives a wide flexibility to resource utilization. rigidly divided according to State. For example, Another reason for visualizing the recreationprob- much of New York's problems can be solved in lem'of metropolitan centers .as a regional problem is New Jersey. And according to our inventory data, the marked personal mobility of many residents of most of New Jersey's outdoor areas can be made 'large metropolitan centers. Thus while it is possible more useful by improving facilities and expanding to visualize recreational demand and its attendant capacities. Similarly, some of New, Jersey's problems can be mitigated by development in problems on' a region-wide basis, it becomes'in- Pennsylvania. According to our data, Pennsylvania @creasingly difficult to deal with these problems as is well endowed with land but is short of water the planning horizon narrovs. To return for a moment to the Lake Havasu experi- and facilities. The several impoundments whiQh have been, proposed to ring the city of Philadelphia ence, it is possible, to explain what happened there and,the causes for it only in a broad regional context would solve the recreational water problem for that city and for part of New Jersey. 10/ covering, a metropolitan center, an extensive highway system, and a potential resource. The, lack of outlets Here we see Ihow the mobility of recreation seekers for these particularly desired activities .1 speedboating can become a problem-solving tool. In still another and water skiing-closer to Los Angeles, the growing way too mobility . can be brought into useful play; Los Angeles interest in boating and water skiing, are highways can be designed to break bottlenecks, thus all relevant factors. extending the size of the time-mileage zone so that There were probably others. Hence, explaining the hew facilities are in effect brought into the region. problem or, even attenapting, to solve it exclusively in terms of Lake Havasu leads to no explanation and THE PROBLEM OF JURISDICTION AND' little, if any, solution. PerliaLps it is only because of RESPONSIBILITY,.' the superior accuracy of a backward view, but it does seem likely that knowledge in some,detail of what In the foregoing sections of this chapter, we have dis- Los Angeles people really wanted plus a realization -cussed the importance, for outdoor recreation among 2/The New York Study, ch. 4, "Achieving Balance and fte-w York Study, ch. 3, "Overlap Zones: A Regional Efficiency." Problem." 43 me tropolitan residents, of the relations between the the States of New York and New Jersey until about metropolitan center And the 1 to- 2-hour driving- 1935 and since then has been handled under interstate distance zone immediately adjacent to- it.- The rec- compact. reation resources available in this time-distance In addition to the several levels of government, zone with a rough maximum radius of 150 miles from many units of the same government level are involved the metropolitan center provide the major recreation in the metropolitan recreation region. The metropoli-. opportunities for the great mass of the residents of tan center itself includes a number of counties and the metropolitan center. autonomous m u n I c I p a I I t I e's. The New York-New However, this recreation region has many functions Jersey-Philadelphia metropolitan complex involves to perform in addition to that of recreation. The re- 38 counties, Atlanta 5, St. Louis 6 , Chicago 6, and gion is not a vacuum. It contains many small cities Los Angeles 6. The city of St. Louis is ringed by 98 and towns. It is the location of Industrial sites, high- autonomous communities ranging in size from over ways, airports, rail lines, port and port facilities 50,000 down to-50. The six-county Los Angeles com- which also serve both the adjacent metropolitan and plex includes 135 incorporated cities, among them 4V other population centers. The recreation resources such major communities as San Diego with over are usually scattered through such regions in a very I million population, Long Beach, Santa Monica, irregular fashion, since they are located not in any Riverside, San Bernardino, and Pasadena. Presum- neat geometric pattern but according to the dominant ably, each of these governmental bodies has police topographic features. and tax power and some degree of official responsi- Nor are the outdoor recreation opportunities Inthis bility for outdoor recreation within its boundaries. zone the exclusive domain of residents of large metro- Three of the five metropolitan centers in this study politan centers. Indeed, these are only part of the involve more than one State either in the metropolitan total public to be served by the area. Thus, not only center itself or in the adjacent 150-mile recreation does recreation compete with many other -services region. for resources, but metropolitan residents also com- pete with others who use the metropolitan recreation The St. Louis metropolitan area spreads from region. Missouri into Illinois. The Chicago recreation region These resources are provided not alone by the extends from Illinois into Indiana, Michigan, and public and private recreation agencies of the metro- Wisconsin. The New York megalopolis spreads from politan center but by several other levels of govern- Connecticut across New York into New Jersey and ment jurisdiction and by a greatly dispersed number Pennsylvania. Strictly speaking, the southern parts of private agencies ranging from nonprofit voluntary of the six- c(xmty southern California complex contains groups to the proprietors of a variety of recreation a portion of the Mexican State of Baia California in resorts. its recreation region. Parallel situations of the pro-, However, the great mass of the recreation seekers liferation and complexity of government will be found of the metropolitan center who journey into the metro- to exist in all other large metropolitan centers in this politan region engages, as we have seen, in activities country. most generally provided through public agencies- In this situation there. is ample opportunity for out- that is, official bodies which are at one level or an- door recreation to suffer from overlapping of respon- other of government. sibility, contradictory policies, and unnecessary dupli- To a very large degree the quality and quantity of cation of function. It is also possible for a considerable outdoor recreation available to metropolitan residents anwunt of confusion to result. We have seen that some in the dominant day-use aud overnight recreation of these things. do occur. The bulk of the State pro- areas in the metropolitan recreation region are de- vided recreation areas of Illinois, Indiana, Wisconsin termined by public policy and are supported by public and Michigan are so located that they do not serve expenditures. To the extent that the government unit the dominant needs cd Chicago residents, or for that favors the type of activities most commonly sought by matter, of the residents of other large SMSA's. In metropolitan residents and also provides financial the case of the States neighboring Illinois, this is support@ then the dominant needs of metropolitan partly becattse of the location of suitable, natural residents are likely to be met. resources. But it also might be presumed that Illinois But no clear general policy of public responsibility officials, feel that Chicago should look 'after itself for the provision for outdoor recreation for,metro- because of its great tax resources@ and because of politan residents has.been established anywhere ex- the dominant population situation it represents in t1te cept possibly and very recently in the New York State . population. " At any rate, State polif cy -has not metropolitan area. Instead.there is a tremendously made successful'effort& to, provide an adequate rec- complex array of government jurisdiction and re- reation for Chicago residents. While Atlanta suffers sponsibility for the outdoor recreation function. no present shortage of recreation outlets, the govern- Usually at least three. levels and sometimes four ment of the State of Georgia has not evidenced a or even more levels., of government are involved in willingness to recognize the quantitative pressures of the development of -recreation policy within the metro- this large metropolitan center, and many State recrea- politan recreation reglon. The usual levels are State, tion facilities are out of, the reach for day and over- county, and city governments. Frequently however, night use of the Atlanta population. Outdoor recreation the Federal Government appears in an important role facilities provided by the State of Missouri tend to be as in the case of the six-county southern California located at the extreme edge of the St. Louis 2-hour metropolitan complex. Palisades Interstate Park was driving zone or beyond it. On the other hand, the originally handled by joint commission representing States of New York, New Jersey, and California have 44 several substantial recreation developments within rated municipalities. However, it seems that it is not easy access of the large metropolitan centers. the legal authority to act which affects the policy and The development of public recreation policy and its program of public recreation agencies in the metro- execution are inevitably matters of political process. politan region. At least, this appears to be the case The State has to decide the allocation of funds ior in the five metropolitan studies of this series. Rather, acquisition and development between day-use and it is, the relative willingness to act, and to assume overnight facilities, between seashore and mountain, responsibility within fairly broad legal limits. This between one part of the State and another, and between can be understood in the case of large cities which the needs of large metropolitan centers and those of are called upon to provide large amounts of com- smaller communities. In general, however, the State munity type recreation inside the city limits. This is not a s sensitive to the residence of -- th e users of obligation tends to commit a large portion of the its facilities-as are the cities and counties more recreation item of municipal budgets. Chicago, for immediately concerned. example, seems to be In this position. The Chicago The political concern of county government with Park District provides a -large amount of the total respect to the users of county recreation facilities facilities made available by all park districts in the can be a matter of great sensitivity. County taxpayers entire metropolitan area. These facilities include do not like to see benefitg of their public facilities 338 developed parks, 334 playgrounds, 153 fieldhouses, reaped by nontaxpayers. On the other hand, they do 42 outdoor and 11 indoor swimming pools, 594 tennis not relish the loss of a tax base when land goes into courts, 138 baseball diamonds, 134 ice rinks, 32 public use, as when the State or Federal Government beaches and 14 miles of beach.property, 7 marinas, acquires lands in their jurisdiction. 1,815 slips, moorings and space for boats, 4 golf A resource-rich jurisdiction can find its recreation courses, 2 stadiums, a planetarium, 2 conservatories, facilities overrun by residents from other jurisdic- a zoo, a large underground garage, and several large tions. Orange County, Calif., has developed some surface parking lots. 12/ fine beaches which serve not only its own residents, In addition, the ClTcago Park District conducts a but thousands of people from neighboring Los Angeles large number of recreation programs and activities. County as well. The high degree of mobility among The city of St. Louis similarly tends to focus attention Americans almost guarantees a large export of free on urban- type recreation developments and activities, recreational services from any facilities financed the city of Los Angeles recreation authorities con- locally, leaving local people to stand the costs of front, as we have seen in previous chapters, a heavy increased operation and maintenance and, perhaps, demand for urban-type community facilities to pro- to witness the deterioration of their facilities caused vide for minority groups and aging people, as well as by overcrowding. from out-of-town visitors. Unfortunately, the increased business due to tourist It is no wonder that city officials facing.demands expenditures does not in the case of day-use and short for this type of service find it difficult and even, overnight recreation areas provide much offset to the politically infeasible to propose extensive recreation costs of providing this type of public recreation be- development outside city limits. But this decision, cause, as we have seen, this form of outing does not Of course, simply passes the burden onto some other typically involve much outlay. On the other hand, the jurisdiction. In the case of Chicago, this is the State _expenditures of recreation seeking Chicagoans in of Illinois, or the several county forest preserve WiIsconsin app -arently are a valuable contribution-t-o districts in the metropolitan counties. In the case of that State!s economy. These trips, hoiArever, tend to the city of St. Louis, it is the - State of Missouri or be for@"extended'weekends and vacations. They are St. Louis County. not strictly of the short, overnight and day-use type. But the county authorities also have to face con- In the State of Georgia, some public recreation stituencies, who are not anxious to foot the bill for areas are leased to private concessioners who then recreation resources used by their neighbors. In the operate the facilities for a profit. This practice may case of Atlanta, a fortuitous circumstance has partly be feasible if the charges do not serve to bar the solved this problem, - namely the construction of a general public from the use of the facility. Unfortun- large Corps of Engineers reservoir easily accessible ately, this device is sometimes used to circumvent to Atlanta residents. 13/ The Corps of Engineers the right of minority groups to use public facilities. installation at Alton 1136ks and Dam, near St. Louis, On the other hand, some private recreation areas in solved a similar problem for that metropolitan area. Georgia do apparently provide an excellent array of But in neither case were these installations designed recreation services to a fairly wide cross section of for recreation. Consequently, the provision of these the white population, and to this extent these private facilities does not represent the outcome of planning facilities do serve a useful, but limited purpose. Ii/ decisions by local governments but are windfall The laws of California permit local governm@n-t to benefits unlikely to be repeated. acquire and operate recreation areas outside- of their Water enters into the sphere of government rela- jurisdictional boundaries. The city of Los Angeles tions in the area of recreation in both the New York- operates several outdoor recreation areas in the Philadelphia and the southern California recreation High Sierras. Indeed, the legal authority to engage in regions. In these regions, municipal water supply the provision of outdoor recreation in southern Cali- reservoirs are not fully available for recreation fornia is wide and well established. This authority uses. The authorities that manage these facilities apparently extends to counties as well-as to incorpo- 2 L/The Chicago Study, ch. 3, "The Chicago Park District." U/Cf., Atlanta Study, app. B-"ldc, Cason Calloway Gardens." L3 /Allatoona Reservoir, and LakeSidney Lanier. 45 are reluctant to make them available for recreation imbalance. In recent years, the pressure of beach on the grounds that use of these reservoirs for rec- activity demand has become so heavy that the State reation constitutes -a health hazard to the public, has also concentrated on providing beach and harbor although there is evidence that the hazard can be facilities. 16/ minimized. This objection has been somewhat modi- But the result of this policy decision is to concen- fied both in New York and southern California to trate State fun.ctfons in an area where city and county permit fishing on some reservoirs. recreation functions are already in action for similar The New York City Croton System has 18- lakes and purposes. At the same time, counties, where needed reservoirs and 186 miles of shoreline, only an hour's recreation resources have not been developed because drive from New York City. But the use of this system the counties have not felt they could stand the burden, is closed to all recreation use except fishing. 14/ The -remain underdeveloped and without State aid. The southern California water supply situation is, zio-mpli- result is that the U.S. Forest Service is "the only cated by the perennial Water shortage which means major supplier of outdoor recreation services in the that municipal supplies must be brought long distance mountain areas." 17/ at great expense at,the same time thatthe importance The deferral oTa6hievement of a more balanced of water rights4 in neighboring watersheds inhibits the development of the resources of the metropolitan use of local streams for recreation impoundments recreation region results from a government decision for fear that water rights might be invalidated on the based on the Weighing of alternates'. More people in grounds that such use implies a surplus of -water for the Los Angeles complex at that time wanted further .more essential purposes. The restrictions of access ocean front development in areas already developed to water recreation resources in both these instances than appeared to want it in the areas where develop- arise from policy decisions by government. The ment would have created more balance. The State of policy problem then has as its basis a political con- Georgia had to decide between relief of critical over- flict at the same level of government developing out crowding of existing facilities and the creation of new of opposed views of the public interest. developments for different kinds of services. Behind When different levels of government possess author- these decisions lie the pressures of a rapidlyexpand- ity to perform similar acts, pressure is likely to ing population. It appears probable that immediate develop to force action at the higher,level., Thus, pressing needs are politically more important than local authorities in a metropolitan recreation region, considerations of future balance of needs not yet confronted with public demand for more outdoor rec- manifest. And quite probably the struggle to keep reation outlets, can avoid a decision which may entail abreast of present need probably stretches available taking property off the tax rolls and increasing local government resources to their limits. So in a sense taxes by claiming that recreation is primarily it State the decision is between an existing need and a future responsibility. This is reported to be the attitude of goal and, on the criteria of numbers and need, both some southern California counties. 15/@ the State and the counties could very probably justify It is difficult for government atit-h-orities to insist their decisions on the ground of serving "the greatest on following sound ., long7run outdoor recreation pol- good to the largest number." icies When short-run problems reach acute propor- Indeed, a good many of the decisions of -government tions, even though this decision may result in a at all levels can be traced back to the push and pull considerable imbalance in the outdoor recreation of constituencies. Southern California county com- resources. The Atlanta metropolitan region needs a missioners have traditionally opposed committing system of regional parks in order to provide outlets county resources to outdoor recreation. But this for residents of the more densely populated inner position is not taken arbitrarily or in a v acuum. If it city. 'At the same time, there is need for overnight were, then the commissioners would long since have camping facilities. However, day-use, not only by been changed and new attitudes would have been re- Atlanta- residents but throughout the metropolitan fle6ted. Rather, the existing attitude reflects tradi- recreation region, is very heavy. As a result, local tional attitudes among their constituencies. The. and State officials tend to facilitate day-use in the citizens simply do not want to be taxed to pay for metropolitan recreation region, while the regional recreation services which perhaps would primarily park and overnight areas are pushed into the back- apply- to nonresidents. Since it is one of the charac- ground. teristics of outdoor recreation that it occurs at the In@ the six southern California counties, ocean recreation site, the presence of a site automatically beaches receive very heavy use, not only for swim- implies a large influx of strangers into communities ming but also. for boating and other activities. At the on the very days on which the citizens of these com- same time, as we have seen earlier, there is a munities expect to enjoy leisure and peace. Then too, dearth of mountain and desert recreation development. the sites which are desirable for recreation are often Moreover, the financial resources of each of the four the areas@ adjacent to which the more affluent and ocean front counties are greater than those of the two influencial. citizens have developed their homes and counties, San Bernardino and Riverside, which contain country clubs. the mountains and deserts. These two counties have The point is not that such attitudes on the part of a lagged in the development of their own resources constituency are unselfish, or even public spirited, .which has tended automatically to accent the regional but rather that citizen behavior is rational, and that L4/New York Stu-dy,_ch. 4, Recommendation 7: "Use of Water L6/L. A. Study, ch. 4, "Division of Beaches and Parks;" Supply Reservoirs for Recreation." "Division of Recreation," U/Los Angeles@Study, ch. 3, "Political Aspects." 2/1 bi d. -46 government necessarily reflects constituent senti- weaknesses or deficiency in the government handling ments. It is also reasonable under these circum- of recreation matters. But on further consideration, stances for State recreation authorities to solve the it seems that these difficulties reveal themselves problem by elevating. it to a higher policy and decision- fundamentally as problems am 'ong and between, groups making level where a different and more diffused of people, aggravated by the special characteristics constituency is involved. of recreation, of mobility, of rapid population change Indeed, most of the public decisions about recrea- and growth, and of the shifts within metropolitan tion in the metropolitan recreation region are rational, centers such as the "flight to the suburbs." responsive to constituency attitude, and within the Another aspect of government's relation to outdoor limits of that constituencies area of political influ-. recreation in the recreation region of large metro- ence-valid. It cannot be denied, however, that the politan centers is the multiplicity of governments ensuing decisions are frequently adverse in their which are involved. This complex structure appears effects on the recreation seeking residents of large to some people to result in considerable overlapping metropolitan centers. For example, those officials. and duplication of function. In any event, it is not responsible for the,.-maintenance of a pure Water easy to comprehend, and often appears confusing to supply to large metropolitan centers stand pretty observers. But when the analysis is focused on speci- rigidly against any, form of, recreation that involves fic situations, confusion tends to disappear and the contact between reservoirs and, human bodies. This functional arrangements though, far from simple, are denies these reservoirs to swimmers. valid for the purposes for which they were made. One But even this is a responsible, not an arbitrary, of the tests which should be applied to this structure act of government. An element of risk of contamina- is pragmatic-the enormous volume of outdoor rec- tion is involved. The question is, how serious is. the reation activity which this complex Istructure regularly risk? The guardians of the reservoir think it too provides to metropolitan residents- somehow the, job large to permit recreation use of the.reservoirs. gets,done, Morton Grodzins.argues thatthepresent This is not an attitude to be discounted, even in the arrangement of governmental operation in outdoor interest of overwhelming pressure for water recrea- recreation should not necessarily be'dcneatened.11 He tion. The officials know that if disease does occur says: that it may be widespread; in any event, they would Why does lack of neatness recommend itself? be open to criticism in case it should occur. The State First of all, the overlapping concern of many of Georgia shifts its recreation activity responsibility governments in a single problem in no way pro- to -private or semiprivate organizations. Georgia hibits indeed it invites, the establishment of counties pay the State for recreation services in V some instances, and the State .accepts county . assist7 general goals by the central government. It also ance in other instances. These actions again cor@ invites central authorities to stimulate activity respond to constituent attitudes and are in that sense by the smaller governments. rational. They achieve an objective sought by a Second, the existence of many governments constituency. operating freely in a single program in an area The Federal Government, through its landholding preserves the desirable openness in the system. agencies, provides recreation resources in metro- There Js no single source. of initiative, rather there -are many. ... Third, a system of many politan recreation regions. The administration of these lands reflects policies set at the national level, power centers is well suited...to. meet the infinite but frequently modified to reflect regional or local variety of expressed needs. It responds quickly .recreation needs. In southern California, forest fires (sometimes too quickly) to citizen demand. Be- constitute a great hazard for several months in the cause there are many points of decision, citizens and citizen groups have multiple opportunities to year. Consequently, southern California forests must be closed to recreationists at a time when the forests influence decisionmakers. ... Fourth, many are most attractive and in spite also of the fact that governments operating in recreation even if they these forests constitute the major portion of the @o roughly the same thing, are effective in meet- region's mountain recreation resources. 18/'Some- ing the growing pressure on recreational times, Federal land holdings are so locatQ-that they resources.19/ do not provide a maximum recreation utility for Perhaps one of the reasons we are able as. a nation metropolitan recreation, needs, as in the case of to produce so much outdoor recreation is because we St. Louis, and to some extent in southern California. have so many producers of it. This As perhaps, an unhappy circumstance. but one which can hardly be laid at the door of . government But fundamentally,, it is perhaps not so much a action. question of the many governments in recreation, but The foregoing discussion of the relation between of the many publics in recreation. It seems likely government units in the provision of outdoor recrea- that improvement in the quality and quantity of future tion in areas adjacent to large metropolitan centers recreation resources for, the residents of large metro- reveals a number of problems, which are sometimes politan centersdepends essentially on the enlightened stated as problems in government planning and policy attitude of informed publics. I I decision. Not infrequently these problems appear as 9@ORRRC Study Repori22, "Trends in American Living in L/Los Angeles Study, ch. 4, "State and National Government Outdoor Recreation;" Morton Grodzins, "The Many American Aspects of Outdoor Recreation in Southern California;" Governments In Outdoor Recreation," part Ili-"The Virtues "I.I.S. Forest Service." of Chaos." 47 PROBLEMS OF THE FUTURE nanced. Finally, there is the present New York Re- gional Plan Association, Inc.@, which recently produced Despite the accomplishments of our multifaceted a valuable 6eriesof Influential publications including recreation system, and the confidence expressed in the "Race For Open Space,11@ and "The Law of Open our complex governmental machinery, it must be Space. Thus, at every important step in the develop- admitted that a formidable task lies ahead, if our large ment of outdoor recreation progr aiiis for the great New and growing metropolitanpopulation is to have access York metropolitan population, there has been vigorous, to adequate recreation .resources. able', and informed participation by private citizens. The pressures on scarce resources which Are As a result, the public has been Well equipped to make located near great, metropolitan centers is already important political decisions about outdoor recreation. heavy. Those at the center of the decisionmaking Both the 1924 and 1960 bond elections confirmed the apparatus of government will be called on more and desire of the public for outdoor recreation, and their more to make ever more crucialand larger selections' willingness to tax themselves to pay for it when they among alternate uses of resources, for wa Ite.r. supply, understood the issues. highways,. military installations, and other's perhaps As we have seen earlier, public reaction to the notI present .ly foreseeable. Moreover, these choices political issues @posed by the increasing pressure for will affect not only the immediate constituency of outdoor recreation for residents of large metropolitan conventional political subdivisions, but of regions centers can be shortsighted and selfish when it is interstate in nature. uninformed, or only partially informed. To some ex- Up to the present, we have had relatively little tent, this lack of public education about outdoor rec- experience with interstate regional undertakings. One reation reflects the fact that the subject matter as yet such undertaking, the Palisades Interstate Park, rep- is not particularly well known, there is not very much resents a successful experience. Another, the Dela- written material on the subject, and very little sub- ware Basin Interstate Compact awaits the test of time. stantial research has been completed. Altogether, a No city and no State has had a longer, larger, or great deal of digging for essential facts remains to be more successful experience in providing outdoor rec- done. More studies need. to be made, more books reation outside metropolitan boundaries for a large written, more research accomplished, to provide the metropolitan population than the State and city of New basic material for. public informatioii and education York. 20/ This record of success is very largely a about outdoor recreation. record of massive public, support on critical issues. But the entire decisionmaking machinery of govern- In 1924, a $15 million @ New York State park bond ment at all levels also needs to be energized and issue carried by nearly a million majority. Asso- oriented to the planning of outdoor recreation in the ciated. with this great political victory were important metropolitan recreation region. The reluctance, hesi- planning concepts: (1) provision of recreationre- tancy, and even irresponsibility of local government sources for metropolitanxesidents who wish. to drive with respect to outdoor recreation is not irrational automobiles into the country was a State responsi- in view 'of the problems posed. Nevertheless, the bility; (2) landscaped drives should link New York assistance and coordination of government action at City with the parks surrounding it and with each other; all levels become more and more essential as the and (3) .parks should be administered jointly by existing recreation problems of the future grow in dimension units of government, State, county, city, andtown. and complexity. In November 1960, -a similar massive public support Here again the New York experience provides an was evidenced in the overwhelming majority which sup- important insight into approaches for securing inte- ported a $75 million New York State park bond issue. gration of government action at all levels. This was Following @ this victory, the voters of New Jersey ap- manifested in the 1928 decision to promote jointfunc- proved a $60 million bond issue, and Pennsylvania tions of existing New York governmental units rather than to create a new level of government to administer is moving towards a similar proposal. A very significant aspect of this New York record outdoor recreation in the New York metropolitan area. of success is the maintenance over the years of a The 1960 bond issue election evidences a similar re- high degree of public interest In parks expressed gard for joint government action. This measure al- through private organizations and individual citizens. locates the $75 million total as follows: 11$20 million This interest has been highlighted by such personal to acquire State park plans, $15 million for other State acts of:generosity as the 10,000 acre and $1 million outdoor recreation plans, $12 million for New York gift by Mrs. E. H. Harriman in 1910. The 1924 State City, $12 million for cities other than New York, and bond issue proposal arose partly from the work done $16 million for park plans in co Iunties, towns, and by private citizens beginning in 1921. This private villages." 21/ group was known as the New York State Association, These two political decisions of 1928 and 1960 imply of which Robert Moses was secretary. The decision a great deal of political sophistication- the responsi- as to the fo .rm of administration of New York metro- bility for action with respect to outdoor recreation by politan area parks was based on a regional survey of the existing, conventional government structure is New York and its environs, which was privately fi- confirmed, and then these units are given the means to carry out their responsibilities by the State. Thus, the role of the State is also maintained. Its powers LO/The following discussion of the background of recreation in are properly used to enable local levels of govern- New York is 6osed very largely on the New York Study, ch. ment to discharge their responsibility. State powers 6, '.'Government and Outdoor Recreation In The New York- Philadelphia Region." 1 @The NewYork Study, ch. 6. 48 are used to promote joint action, and not to supersede local units of government, removes the ground for local responsibility or to intervene directly as the restricting use of local facilities to local residents. substitute for action by the local levels. This policy This very recent legislation has not yet proven itself. explicitly removes the basis for the claim that out- However, it is clear that the careful attention to the door recreation in the metropolitan region is a State problems of government decisionmaking and policy rather than a local responsibility. The State contrib- formulation are implicit in the design of this proposal, utes 75 percent and the local unit 25 percent of the and for its execution. acquisition costs of park plans. There is a distinct Thus in the long New York experience there is a incentive in this provision for full discharge of local lesson which may serve as a guide for metropolitan responsibility. Also the provision that all facilities centers which have yet to face in the years ahead the developed with the use of these State funds be open problems of providing adequate outdoor recreation to the general public since it applies equally to all resources for the people who reside in them. 49 BIBLIOGRAPHY "Outdoor Recreation and'the Megalopolis, A Study of Present and Future Needs of the People Living in the New York-New Jersey-Philadelphia Urban Region." Institute of Public Administration, Sumner Myers, study director, 684 Park Ave., New York 21, N.Y., ORRRC Study Report 21. "The Future of Outdoor Recreation in the Atlanta Standard Metropolitan Statistical Area." Frank K. Gibson, Department of Political Science, University of Georgia, ORRRC Study Report 21. "The Future of Outdoor Recreation in the Greater St. Louis Metropolitan Region." Gregory Stone, Washington University, ORRRC Study Report 21. "Outdoor Recreation, Needs and Preferences of the People of the Chicago Area." Northeastern Illinois Metropolitan Area Planning Commission, George W. Hartman, studydirector, Chicago, Ill., ORRRC Study Report 21. "The Impact of the Growth of the Los Angeles Metropolitan Region on the Demand for Outdoor Recreation Facilities in Southern California, 1976 and 2000.11 Dr. Fred E. Case and others, University of Cali- fornia at Los Angeles, Los Angeles, Calif., ORRRC Study Report 21. "Outdoor Recreation for America-A Report to the President and the Congress." Outdoor Recreation Re- sources Review Commission, Washington, D.C. January 1962. "Shoreline Recreation Resources of the United States." ORRRC Study Report 4. "The Quality of Outdoor Recreation as Evidenced by User Satisfaction." ORRRC Study Report 5. "Water for Recreation-Values and Opportunities." ORRRC Study Report 10. "Private Outdoor Recreation Facilities." ORRRC Study Report 11. "Open Space Action." ORRRC Study Report 15. "National Recreation Survey." ORRRC Study Report 19. "Participation in Outdoor Recreation: Factors Affecting Demand Among American Adults. ORRRC Study Report 20. "Projections to the Years 1976 and 2000: Economic Growth, Population, Labor Force and Leisure, and Transportation." ORRRC Study Report 21. "Man and His Relation to Nature." Laurence K. Frank, ORRRC Study Report @2. "The Many American Governments and Outdoor Recreation." Morton Grodzins, ORRRC Study Report 22. "Demographic and Ecological Changes as Factors In Outdoor Recreation." Philip M. Hauser, ORRRC Study Report 22. "Urban Growth and the Planning of Outdoor Recreation." Harvey S. Perloff and Lowdon Wingo, Jr., ORRRC Study Report 22. 19U.S. Census of Population: 1960, Final Report PCC(l)-IA, Number of Inhabitants, United States Summary." Bureau of the Census, U.S. Department of Commerce. "Statistical Abstract of the United States, 1959: 1960.11 "California Public Outdoor Recreation Plan," Parts I and 11, 1960. "The Planning Function in Urban Government." Robert Averill Walker, The University of Chicago Press, Chicago, Illinois, Second Edition. "Metropolis 1985: An Interpretation of the Findings of the New York Metropolitan Region Study." Raymond Vernon, Howard University Press, Cambridge, Mass. 1960. 50 "Metropolitan Chicago, An Economic Analysis." Ezra Solomon and Zarko G. Bilbija, Graduate School of Business, University of Chicago, The Free Press of Glencoe, 111. "Prospect for America." The Rockefeller Panel Reports, Doubleday & Company, Inc., Garden City, N.Y., 1961. "Metropolis and Region." Otis Dudley Duncan, W. Richard Scott, Stanley Lieberson, Beverly Duncan, and Hal H. Winsborough, Published for Resources for the Future, Inc., by the Johns Hopkins Press, Balti- more, 1960. "Regions, Resources, and Economic Growth." Harvey S. Perloff, Edgar S. Dunn, Jr., Eric E. Lampard, and Richard F. Muth, Published for Resources for the Future, Inc., by the Johns Hopkins Press, Balti- more. The City in History. Lewis Mumford, Harcourt, Brace & World, Inc., New York, 1961. The Exploding Metropolis.' I The Editors of Fortune, Doubleday & Company, Inc., Garden City, N.Y., 1958. I'Metropolitanizat'ion of the United States." Jerome P.: Pickard, Research Monograph 2; Urban land Institute, Washington, D.C., 1959. "The Law of Open Space." Shirley Adelson Siegel, Park, Recreation and Open Space Project of the Tri- State New York Metropolitan Region; Regional Plan Association, Inc., New York, N.Y. "The Race For Open Space." Regional Plan Association, Inc., Final Report of the Park, Recreation and Open Space Project of the Tri-State New York Metropolitan Region; New York, N.Y., 1960. 51 Part 11 THE FUTURE OF OUTDOOR RECREATION IN THE ATLANTA STANDARD METROPOLITAN STATISTICAL AREA A Report to the Outdoor Recreation Resources Review Commission by FRANK K. GIBSON Department of Political Science University of Georgia 53 PREFACE One measure of the general prosperity of the in transportation indicate that the mobility of United States is the growing interest at all levels Americans will certainly increase fantastically in the of government in the matter of the most effective next 40 years, making even more flexible the travel programs for filling the increasing amount of leisure habits of our citizens. The inevitable result will time available to our residents. As the workweek be an inundation of existing recreation facilities. for most Americans decreases, as paid vacations It is not the intention of this rather brief report increase, and as more and more people live to take to examine outdoor recreation in its many phases advantage of lower retirement ages, the problem of as it affects the entire Nation, or even the whole how to fill idle hours becomes of more than passing of the State of Georgia. Rather, this is an attempt importance. to look at -the future of outdoor recreation in one Coupled With the matter of leisure time is the tiny part of the country-the Atlanta Standard Metro- growing menace of the diminution of open spaces politan Statistical Area. Those readers who might, and forest land available for outdoor recreation. with justification, look forward to reading a detailed As urbanized areas flow outward to meet other account of recreation programs and plans for Atlanta urbanized areas, the threat of the "vanishing country- and its environs, will be disappointed at what appears side" becomes less fancy, more real. Certain below. For this report considers outdoor recreation writers, believing that exaggeration is necessary,in as -simply another activity engaged in by both public order to awaken the American people to the dangers and private sectors. As such, recreation is subjected of exploding populations and exploding metropolitan to the same social, political, and economic forces areas, paint gloomy pictures of a future consisting that impinge on such programs as health, welfare, of constant streams of automobiles moving from highways, and education. To consider recreation one urban area to another through polluted air, past apart from these forces appears to me to be naive polluted streams, to a shrinking number of over-. in the extreme. crowded, debris-littered recreation areas. Little is achieved bk-considering recreation in The problems created by more leisure time and some Utopian sense in Which each family has its less recreation land has lead some recreationists to own reserved campsite, completewitha 11 the comforts propose the immediate acquisition and preservation of the living room, situated beside a mountain stream of vast areas of open land before such land disappears. full of hungry trout. This scene never existed, does Even if one admits that this type of proposal is not now exist, and will never exist. It is equally attractive, certain questions must be raised concerning meaningless to frighten people into hasty unplanned its efficacy. One very important question concerns programs by raising the specter of a land in the the financing of such programs., As mundane as it future in which open spaces will be only a memory. is, the question, "Where does the money come Much more can 'be achieved i 'f a factual account of from?" has more than a slight amount of validity existing resources at all levels of government is to it. This Nation is unfortunately in a situation presented along with a program keyed not only to in which most of its public lands are in the West, recreation needs, but also to the manifold other needs and most of its population is'in the East; acquiring of this country. Then, and only then, will it be millions of acres of land where it is most needed possible for the people themselves to establish, in can, therefore, be an expensive proposition. an intelligent manner, some type of priority in meeting A second question relating to vast increases in these challenges in the future. outdoor recreation turns on the validity of the oft- It should not be necessary to state that any person times exaggerated claims made by proponents of who attempts to anticipate the economic, political, this activity. While there may be an instinctive and social conditions in the year 2000 is either urge to return to the land on the part of most men, very brave or extremely foolish. Without fully and there may be a therapeutic effect on those who admitting to either of those labels, it does seem seek the solace of the wilderness, intensive research discreet to note that all predictions and projections necessary to prove these assumptions is either lacking discussed in this report are based on many assump- or is of a type that is open to serious question. tions, prime among which are a continuation of One might, for example, pose the query as to whether world peace and a constantly rising standard of the effort and money expended on recreation might living in this country. Should any of the assumptions not produce better results for more people if spent on which the projections are based prove to be on increased education, imaginative programs of invalid, the projections themselves will, in all mental health, medical care, welfare, and the like. probability, be equally invalid. Regardless of the above questions, however, it Most reports of this nature include in the preface must be admitted that the demand for more outdoor acknowledgments to persons who aided in the project. recreation' areas and facilities is increasing in Since such a listing usually results in the omission volume with each passing year. That amazing product of some person or persons with attendant hard of the industrial revolution, the automobile, has feelings on all sides, and since I do notwishto freed people from the confines of their neighborhood, have any person other than myself indicted for the their city, and their State. More recent innovations opinions expressed herein,. let me take this opportunity 54 to sim ply thank all those who, in one way or another, September 1, 1961 Frank K. Gibson helped me finish a study that was begun with many Department of Political Science misgivings and was finished with even more. University of Georgia 55 CHAPTER ONE THE SETTING In recreation, as in any other function of govern- tional average in every census except that of 1940. ment, a consideration of many diverse factors is The decreasing strength of the Southeast can best be vital before even the most tentative findings or demonstrated by a tabular presentation showing the conclusions are possible. It is essential, for example, percentage increase in population in the United that the political, economic, physical, and social States by census decade and comparing that with the climate be examined in order to prepare the context Southeast percentage increase. in which the instant problem of outdoor recreation may be explored. Table 13-2. Percentage increase in population by For the reason stated above, this chapter will census decade, 1870-1950 describe, as briefly as possible, the history and background of the southeastern region, the State of Year Un i ted Georgia, and finally the Atlanta Standard Metro- States Southeast politan Statistical Area. 1870-80 ..................... 26.0 17.8 REGIONAL GROWTH 1880-90 ..................... 25.5 17.8 1890-1900 .................... 20.7 18.3 In considering the southeastern region-that area 1900-10 ..................... 21.0 15.6 that has several times in the past been referred to as 1910-20 ...................... 14.9 10.5 "America's number one economic problem"-this 1920-30 ...................... 16.1 12.2 chapter will rely very heavily on a recent publication 1930-40 ....................... 7.2 10.6 of Resources for the Future entitled "Regions, 1940-50 ...................... 1 14.51 12.0 Resources, and Economic Growth." l/ As used in this section, the term Southeast will include the States of Virginia, West Virginia, Kentucky, In the period from 1870 to 1910 the population of North Carolina, South Carolina, Georgia, Florida, the United States increased 131 percent, while that Alabama, Mississippi, and Tennessee. of the Southeast increased only 89.7 percent; in the period from 1910 to 1950 the population of the United POPULATION States increased 63. 8 percent, while that of the South- east increased 53.5 percent. The Southeast spreading across 533,963 square If to the above data are added information on miles, contained some 33,710,921 persons or 18.79 density of population and net migration a fairly clear percent of the total population of the United States picture of gross population changes In the Southeast in 1960.'2/ The figure of 18.79 percent represents may be drawn. These additional data are shown in a new low for a region that has for the past 90 years tables B-3 and B-4. fought a losing battle in the population struggle. What has happened to population in the Southeast Table B-1 depicts the percentage of the total U.S. can be summed up very briefly. This region has had population represented by the Southeast for the past a constantly increasing population but has not kept 10 census decades. pace with the rapid acceleration in other regions. What has happened in the Southeast with reference Using the census regions of New England, Middle to population is easily seen by a study of census data. Atlantic, Great Lakes, Plains, Southwest, Mountain, These data demonstrate that the population of the Far West, and Southeast, the period from 1870 to Southeast has increased with each decenial census 1910 found the Southeast trailing all other regions in but that the rate of increase has been below the na- percentage increase in population. In the 40 years Table S-1. Percentage of total U.S. population represented by Southeast Region 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 Southeast .................... 29.1 27.3 25.5 25.1 23.9 23.0 22.2 22.9 22.4 18.79 from 1910 to 1950 the Southeast trailed all regions -!/Harvey Perloff et al, "Regions, Resources, and Economic except the New England and Plains regions. Growth," (Baltimore; The Johns Hopkins Press, 1960). Here- From 1870 to 1950 the Southeast has shown a minus after referred to as Perloff. figure in net migration figures for every decade. This -2/U.S. Censu s of Population, 1960. Except where noted other- region is the only one of the eight that can claim this wise, all population data are basedon the 1960 census. dubious distinction. Unfortunately, precise data on 56 Table B-3. Density of population: United States and In rank order of regions by personal income per Southeast by selected decades capita the Southeast has occupied the last place in every census since 1880. In regional distribution Region of total personal income the Southeast improves its 1910 1930 1950 position but even here it trails two other regions and had in 1957 only 15.4 percent of the Nation's total United States ................... 30.9 41.3 50.7 personal income while having 21.8 percent of its Southeast ............... 41.2 5i. 1 63.3 population. 4/ On the brighter side, however, it should be noted that both in per capita income and migration are not available to demonstrate the types in total income, the Southeast has shown a consistant of persons that are migrating from this region. 3/ increase in every census period except 1900 and 1930. Regardless of relative increase in income, the fact Urban Population remains that as late as 1957, the Southeast had a per capita income of less than 71 _percent of the The Southeast has typically been characterized by national average. More important, however, the a rural agrarian economy. While this picture has relative increase in this region's per capita income certainly been accurate in the past, it is rapidly was smaller (only 2.7 percent) than in any comparable changing today. While this region trailed all other period, since 1930. What is evident in this region regions in urban population in 1910 and 1950, it has was summarized by Perloff and his associates as 'been above the national average in rate of increase in follows: "The depressing effect of population growth .every census since 1880. keeping close pace with the growth in total income In rank order of regions by rate of increase in. is evident in the Southeast where, despite steadily urban population, the Southeast stood eighth in 1.870, increasing economic activity and increasing wage fourth in 1910, and third in 1950. These data indicate levels, per capita income continues to be far below that while the Southeast is losing ground in terms of the national average.@/ total population, the trend toward urban centers is strong in this region. The changing character of this urban movement will be examined in greater detail ECONOMIC INDICATORS in the section on Georgia. The Southeast has long been characterized as having PER CAPITA INCOME an economy solidly based on agriculture. While this picture is often distorted (by 1920 less than half The Southeast has moved steadily upward in per the labor force in this region was engaged in agri- capita income but still trails all other regions in culture) it is true that agriculture has dotninated this vital factor, as shown in table B-6. the region's economic, social, and political climate for generations. As table B-7 indicates, agriculture's share of the j/But see, C. Horace Hamilton, "Educational Selectivity of labor force has decreased dramatically since 1910, Net Migration from the South," Social Forces, vol. 38, No. I but still is almost twice as large as the national October 1959, pp. 33-42. Professor Hamilton, on the basis Of average. Manufacturing has begun a comeback after census survival rates, arrives at the following conclusions: its rather staggering loss during the 19301s, while (1) During the decade 1940-50, the least loss by migration service enterprises continue their steady growth. was in the "no education" category. There are several factors that stand out with (2) The greatest migration loss in this decade was among reference to the adjustments that have taken place young adults in the 15-29 age group. in the economy of the Southeast. These factors may (3) On the basis of race, the heaviest migration among be summarized as follows- @vhites is in the lower education categories, while among (1) The decreasing share of the labor force devoted nonwhites the selection is markedly heavy in the higher to agriculture is indicative of a more diversified educated categories. Net migration rates for nonwhites economy. is lowest among those with no education-less than 4 (2) The Southeast has a considerably larger share percent- but rises rapidly to nearly 20 percent at the of manufacturing employment than of value added by high school and college level. manufacturing indicating a relatively low rate of (4) A heavy migration of whitefemale college graduates. productivity. (See table B@8.) (5) A heavy migration of white female high school graduates. (3) In labor force related to trade and finance, the (6) The urban and rurol-nonform areas of the South lost non- Southeast has increased its share far more than any white adult population by migration in the high school other region in the last three decades but is still and college categories. At the sometime, these areas furthest below the national average. gained in nonwhite population in migration in the "no education" and "1-4 year" categories. This demon- strates rural to urban movement of lower education, non- -@/Perloffl. op. cit. p. 24. whites. -@/lbid., p. 26. The Southeast can be contrasted with the Plains (7) Analysis of dato indicates that net migration*has sub- States in this respect where, according to Perloff, the slacken- stantially lowered the educational level of the urban ing population has helped to keepthe level of real income from and rural nonfarm areas to which migrants have gone both falling in spite of a relatively slow growth in the volume of in and out of the South. economic activities. 57 Table 1@4. Net r@igration per 1,000: Southeast, 1870-1950 1870 1880 1890 1900 1910 1920 1930 1940 Regior to to to to to to to to 1880 1890 1900 1910 1920 1930 1940 1950 Southeast ................... -18 -26 -39 -33 -47 -64 -23 -58 Table B-5. Rate of increase in urban population, Table B-6. Regional income per capita United States and Southeast United States and Soutlieust Year United States Southeast Year United States Southeast 1870-80 ..................... 41.0 16.2 1880 .......... $ 302.1 '$150.6 (49.9) 1880-90 ..................... 56.5 63.8 1900 ............... 414.0 197.1 (47.8) 1890-1900 ................... 36.4 37.1 1920 .................. 578.0 326.2 (56.4) 1900-10 .... 37.1 48.3 1930 .................. 640.0 321.0 (50.2) 1910-20 .... 29.0 36.0 1940 .................. 727.4 419.3 (57.6) 1920-30... 27.3 39.3 1950 .................. .1,062.7 719.2 (67.7) 1930-40 ... *'"** ............. 7.9 18.6 *1957 .................. 1,236.0 870.1 (70.4) 1940-50 ........... ........ 19.5 33.5 Table B-7. -Labor force distribution by industry, 1910-1950, United States and Southeast Year Agriculture Mining Forestry Manufacturing Service United States 1910 ......................... 32.46 2.53 0.45 0.18 27.92 36.42 1920 ........................ 2.5.63 2.62 .52 .13 30.90 40.20 1930 ........................ 21.44 2.02 .36 .15 28.90 47.13 1940 ........................ 17.53 1.84 .38 .12 21.01 59.12 1950 ........................ 11.56 1.54 .36 .13 23.92 .62.49 Southeast: 1910 ....... ... 58.93 1.73 .65 .23 14.46 24.00 1920 ........................ 49.49 2.72 .67 .20 18.38 28.54 1930 .... **----* ..... 42.21 2.52 .57 .28 19.78 34.64 1940 ....... 33.41 2.62 .77 .23 15.40 47.59 1950 .........I .............. 21.35 2.60 .76 .24 17.79 57.26 .Table 13-8. Southenst manufacturing labor force and area and now ranks below only the Middle Atlantic value added by manufacturing as percentage of States. national average, 1910-1950 (5) The Southeast devotes a larger share of its Year Manufacturing labor force to domestic services (here used in the Value Added restricted sense of, those persons who work as Labor Force domestic servants) than any other region. Since this is a -nonproductive factor in the economy, it must be 1910 ....................... 12.69 10.04 considered as a deficit. This picture is madebleaker 1930 ....................... 14.38 9.86 by the additional fact that the,percentage of labor 1950 ....................... 15.43. involved in this category is being reduced very slowly as compared to the rapid decrease in most areas. (6).While the percentage of the labor force devoted (4) In the regional distribution of service labor to professional services has increased in the South- force, the Southeast has replaced-the Great Lakei east, this region still ranks at the bottom. Conversely, 58 this region leads all others in percentage increase fall line in Georgia. Georgia's coastline stretches in this category. some 100 miles from South Carolina to Florida. These factors added together demonstrate that the Southeast is diversifying its economy but if it is to Piedmont belt continue to grow it must devote less of its labor force to agriculture and domestic services and increase Running north of the fall line to the mountains is an the productivity of the labor force devoted to extensive area known as the Piedmont Belt. This manufacturing. area is very hilly with an altitude ranging from around 500 feet where it meets the Coastal Plain to something COMPOSITE PICTURE OF THE SOUTHEAST less than 2,000'feet at its extreme northern bound- aries. The deep valleysand high hills have resulted The Southeast of the 1960's is a radically different in much erosion in this area. Streams move rapidly region than that termed "the Nation's number one through this'area and the rugged terrain causes a economic problem" some 30 years ago.. With each substantial number of Waterfalls that are scenic passing decade the face of this region changes as per attractions. Rainfall varies from 50 to 60 inches a capita income increases, the educational level of the year and is distributed evenly throughout the year. 9/ population rises, less and less of the-labor force is devoted to agriculture, urbanization increases in every The mountains, State, and every economic factor points to a favorable future. An area of approximately 1,850 square miles in the northeast corner of Georgia is covere&by a portion THE STATE Of GEORGIA of the Appalacihian Mountains. Brasstown Bald is the highest. peak at 4,784 feet, while Rabun reaches 4,696 In order to understand the nature of the demand for feet above sea level. There are 14 other peaks in the outdoor recreation and the supply of recreation vicinity that are more than 4,000 feet high. This area resources, it is necessary to examine briefly the with swift running mountain streams, high peaks, and State of Georgia from a political, economic, and social heavy wooded hills is rapidly becoming the major viewpoint. Only after such an examination will the recreation area of the State. The average summer complicated picture of the Atlanta Standard Metro- temperature is 71' at Clayton, the principal resort politan Statistical Area come into focus. 6wn. THE PEOPLE AND THE LAND The valley region Georgia, as its residents will proudly acclaim, is The valley region covering the northwest section of the largest State east of the Mississippi River. Con- the State has a general elevation of from 600 to 800 sisting of 58,876,000 acres, of which 58,262,000 are. feet. The region is part of the Appalachian Valley land and 429,000 are Water, Georgia ranks 21st among which can be traced north as far as New York. the States in order of size. The highest point in the State is Brasstown Bald Mountain with an altitude of The Cumberland plateau 4,784 feet, the lowest point is sea level; the mean altitude is 600 feet. 6/ The extreme northwest tip. of Georgia lies in what There are five fopographic regions in Georgia: is known as the Cumberland Plateau, aregionof rela- The Coastal Plain, the Piedmont Belt, the mountains, tively flat surface with an elevation of between 1,500 the valley region, and the Lookout Plateau (a part of to 2,000 feet. To date this areahas shown little in the the Cumberland Plateau).I/ (SeeFig@B-2for physio- way of economic importance and the relative absence graphic features.) of surface streams precludes its use as a major recreational area. Coastal plain The temperature range of the State is such that it can rightfully be placed in the temperate zone as Covering about 60 percent of the area of the State, table B-9 indicates. the Coastal Plain is characterized by a flat surface The annual mean temperature is 62.0* and the av- broken by low hills generally sloping toward the sea. erage percentage of possible sunshine is 60.0 The northern @boundary of the Coastal Plain is an percent. 10/ irregular line passing through Columbus, Macon, and The population of Georgia in 1960 was 3,943,116; ll/ Augusta. 8/ This northern boundary represents the a 14.5 percent increase over 1950. As indicated in table B-10, Georgia's percentage increase in population exceeded that of the United -@/U.S. Bureau of the CeRsus, "Statistical Abstract of the States only in the decade from 1930 to 1940. The very United States, 1960." (Eighty-fifst edition.) Washington, D.C., small increase in the decade of the 20's is chiefly due 1960. Hereafter referred to as 1960 Statistical Abstract. to the disastrous cotton crops of that period- a disaster -2/E. S. Sell, "Geography of Georgia" (Oklahoma City: Harlow caused by the boll weevil. Publishing Co., 1958). For moredetailed account of the physical base in Georgia, see Belcher, J. C. and Dean, K. I., "Georgia today" (University of Georgia: Athens, 1960), -2/lbid., p. 11. pp. 1-25. Lo/lbid., p. 175. j/lbid., p. 9. L/1960 U.S. Census of Population. 59 P YSIOGRAPHIC DIAGRAM H L OF up tp .,;Loh OF GF-ORGIA (well --r- Nor CO Allot Clirek HI Lake Jackson dke Sinclair. zr IC glacksheor a** APELO amiftbi so FIGURE B-2 60 Table B-9. Normal monthly temperature in Atlanta Month Normal monthly Normal monthly Normal monthly temperature maximum temperature minimum temperature January .......................................... 44.6 525 36.6 February ......................................... 46.6 55.1 38.0 March ............................................ 53.1 62.3 43.@ Apri I............................................ 61.5 70.8 52.1 May ............................................. 69.5 78.7 60.2 June ............................................. 76.9 85.9 67.8 July ............................................. 78.7 87.3 70.0 August ........................................... 78.1 86.4 69.7 September ........................................ 73.9 82.3 65.4 October .......................................... 63.5 72.2 54.7 November ........................................ 52.1 60.4 43.8 December ......................................... 45.3 53.0 1 37.6 Source: 1960 Statistical Abstract, pp. 167, 168, 169. Table B-10. Population of Georgia and the United States, 1900-1960 Population (000) Increase Georgia as Year percent of United States Georgia United States Georgia United States 1960 ............................... 179,323 3,943 18.5 14.5 2.16 1950 ............................... 150,697 3,445 14.5 10.3 2.29 1940 ............................... 131,669 3,124 7.2 7.4 2.37 1930 ............................... 122,775 2,909 16.1 0.4 2.37 1920 ............................... 105,711 2,896 14.9 11.0 2.74 1910 ............................... 91,972 2,6D9 21.0 17.7 2.84 1906 .......... . ................... 1 75,9951 2,216 1 20.7 1 20.6 2.92 Source: The Bureau of Business Research, "Georgia Business," vol. 20, No. 5, November 1960, P. 2; 1960 figures from 1960 Census Population Reports, Series P-25, No. 227. The column in table B-10 entitled "Georgia as In that same year Georgia ranked 40th in the United Percent of the United States" demonstrates very States in current expenditures per pupil. 13/ graphically the losing battle that this State is fighting. It should be pointed out that great stricfe-s are being With each decade the percentage that Georgia's pop- made with respect to expenditures for education in ulation bears to the U.S. population decreases. This Georgia (at the State level more so than at the local decrease is also evident in the State's rank position level) and the position of the State should improve in among the other States in the Union. In 1910, Georgia the future. was the 10th largest State; in 1920, the 12th; in 1930, the 14th (a position it retained in 1940); in 1950, the l3th; and, in 1960, Georgia dropped to 16th place, its Migration lowest position to date. In population per square mile, Georgia now ranks One of the principal effects of out-migration in 25th among the States; the first time since 1920 that it has held such a lofty position. Georgia's population Georgia is the constantly decreasing percentage of density is increasing more rapidly than that of the Negroes in the population of the State. Out-migration United States as a whole. of Negroes has served to more than balance the proportionately high birthrate among Georgia Negroes particularly in the rural areas. 14/ Education The South has long been kn(;;@rn as an area with an extremely high birth rate. While there is some Georgia proudly boasts of being the home of the validity to this statement, the gap between the crude first chartered State university and of being the first State to support a system of common public schools. Many GeorLrians are aware. however, that with the U/1960 Statistical Abstract, p. 111. The average for the United median school level of the United States standing at States in 1950 was $294 per pupil; for Georgia the figure was 9.7 years in 1950, Georgia's median was 7.8 years for $194. the total population and only 4.9 years for Negroes. 12/ L4/In 1957, almost 39 percent of the live births in Georgia were colored when the Negro race represented less than 29 percent of the population. The live birth rate of Negroes was, in L;'See appendix. A, table B-38. 1957, 8.3 percent higher than that of the white population. 61 Table B-11. Population per square mile, United States and Georgia Region 1900 1910 1920 1930 1940 1950 1960 United States ......................... 21.5 26.0 29 '9 34.7 37.2 42.6 50.5 Georgia .............................. 37.7 ".4 49.3 49.7 53.4 58.9 67.7 Source: 1960 Statistical Abstract, p. 13; 1960 figures from U.S. Census of Population, U.S. Summary, p. 20. Table 3-12. Selective Service registrants exnmined, found acceptable, and disqualified: 1959 Disqualified Percent found Medical Mental Failed mental acceptable Toto I d i squ a I i fi cut i on disqualific @ti on and physical, United States ....................... 5u 48.8 21.6 21.6 3.1 Georgia ............................. 41.8 58.2 @18.8 33.3 4.9 Note: Figures do not add to total because of administrative disqualifications. Source: 1960 Statistical Abstract, P. 249. birth rate in Georgia and the United States is rapidly Urbanization closing, as is the difference in infant mortality.15/ During the decade from 1950 to 1960, as in pre- Of great importance to the future of this State is ceding decades, Georgia lost a substantial number of the growing trend toward urbanization. During the its citizens through migration to other States and other 1950-60 decade when the total population of the State regions. Net migration figures for 1940-50 show a increased by 14.5 percent, the urban population in- loss to Georgia of 290,000 residents (-9.3 percent). creased by 39.8 percent while rural areas showed a Comparable figures for 1950-60 show a net loss of net loss of -6.5 percent. 18/ Since a table on the. 214,000 residents (-6.2 percent). 16/ The migration urban-rural balance is found in the appendix, 19/, loss has meant that only its relati-vely high birth rate suffice it here to say that census data for f9_60 (26.8 percent in 1959) and its comparatively low death demonstrated that, for the first time, over half (55.3 rate 17/ has permitted Georgia to show a total popu- percent) of all Georgians reside in urban areas. lation increase through the past decades. As in practically all States, the trend toward the While detailed data on migrants leaving the State city has been accompanied by a flight to the suburbs. are sketchy at best, there is every reason to believe Thus, while central cities gained population at a rate that Georgia's loss . is greater in quality than in of 41.3 perdent in the decade of the fifties, the urban quantity. Particularly among Negro migrants, but to fringe gained 71.5 percent. While there are some some degree among whites also, migration appears indistinct factors pointing to a possible reversal of to be selective of the more productive parts of the this trend, they are not yet clear enough to be used population. Negro migrants tend to be younger than as a basis for any suggestion that there is a "move the average for the State and are better educated than back to, the city" in Georgia. those who remain in Georgia. The reason for this In concert with all other States, Georgia is rapidly selectivity among Negroes is both social and economic becoming a State on wheels. Motor vehicle registra- in character J(if the two can be separated). The tion figures demonstrate a steady rise (slowed but educated Negro has a difficult time in Georgia in se- briefly during World War II) to a point in 1960 when curing a position for which his training has fitted him. there were almost four vehicles for every 10 people He also meets the numerous social, political, and in the State. economic barriers, legal and extralegal, that convince many that their futures lie in another. region. The rather stariling decrease in the proportion of Negroes Personal Income to whites in Georgia gives mute testimony to the colored exodus. In the important matter of personal income, Georgia is rapidly gaining on the national average but started with such a low base that it is having difficulty in L5/Georgia's gain with respect to infant mortality has been truly achieving success. Table B-14 illustrates the great amazing. In 1940 when the U.S. rate of infant deaths per 1,000 strides made in the last 30 years but also illustrates live births was 47.0, Georgia's rate was 57.8. By 1958, how- the fact that personal income in this State is but 71 ever, the Georgia rate for both whites and nonwhites was ' percent of the U.S. average. From the viewpoint of actually lower than the United States rate. See " 1960 Stati s- percentage increase, however, the picture looks tical Abstract," p. 67. brighter for this State. From 1929 to 1958 the per- L6/1960 Current Population Reports, Series P-25, No. 227, p. 6. centage increase in per capita personal income was U/In 1959 the mortality rate per thousand for white males at age 45 was 5.7; for white females 3,1; for nonwhite males 11.3; for L8/1960 General Population Characteristics, PCM 12-B, P. 5. nonwhite females 8.6; see -1960 Statistical Abstract," p. 59. 2/See appendix A; table B-34. 62 Table B-13. Motor vehicle registration in Georgia, 1920-1960 920 100 1950 1960 Number of vehicles (000) ............. 146 345 510 898 1,513 Source: 1960 Statistical Abstract, p. 561; 1960 figures from Georgia Department of Revenue, Motor Vehicle License Unit. 193 percent for the United States as opposed to employment had dropped to 13.7 percent of total em- Georgia's gain of 325 percent; from 1950 to 1958 ployment and is expected to decline even further in comparable increases were 38 percent for the United the future. 20/ Between 1940 and 1950, Georgia lost States, 46 percent for Georgia. As will be noted in 30 percent of her farm population; between 1950 and another section of this report, Georgia's per capita 1960 her loss was 13 percent. income will probably continue to rise more rapidly Other important changes have occurred in the than the U.S. average but probably will not equal that agricultural picture in Georgia. The number of farms average before the next century. has shown a steady decline since 1930 (from 256,000 The impact on outdoor recreation of the relatively in 1930 to 166,000 in 1954, the last year for which low per capita income in this -State cannot be over- complete data are available). During the same period, emphasized. While the Atlanta Standard Metropoli- however, there hag been a constant increase in the tan Statistical Area has a much higher per capita average acreage per farm (from 109.6 in 1940 to 145.1 income than the remainder of the State, action in the in 1954), the average value per farm ($2,223 in 1940, matter of State expenditures on outdoor recreation by $8,710 in 1954), and the average value per acre the State Legislature will be based on the entire (from $20.2 8 in 1940 to $60.03 in 1954). 21/ 2 State not on the Atlanta SMSA. Any program based Along with the increasing size of fiims and the on a large expenditure of State funds must take this rising value per farm has come an increase in pro- fact into consideration. fessional management. This is best illustrated by the fact:that from 1950 to 1954, a brief .4-year. span, THE ECONOMY OF TkE STATE farm tenants as a percentage of total farm managers dec reased from 42.8 percent to 34.6 percent. This The- relationship. between a state, s economy - and the professionalization has not been accompanied liy a future of outdoor recreation is clearly evident in the comparable increase in the productive capacity of data compiled in ORRRCIs National Recreation Sur- Georgia's farrn population. In spite of this increase, vey. Among the economic factors that will have an however, in 1950 Georgia ranked 45th among the 48 influence.on recreation are the percentage of skilled States in output per farm worker. Only South Caro- and unskilled workers in the population, the gross e arn- lina, Tennessee, and West Virginia had poorer ing and average weekly hours of employees, the number records.22/ of workers engaged in agriculture, the number of In gross income per farm, Georgia showed a fine persons engaged in personal service type occupations, 97 percent increase between 1949 and 1958,23/ but and the like. still ranked some $2,478 below the national average Georgia@s economy is constantly @under discus Ision of.$8,063. at present. As is true in eve Iry Southern State, Cash income per farm came from the following Georgia spends an increasing amount of money and commodities (in rank order) - Broilers, cattle, hogs, effort in trying to, attract new industry to the, State. and cotton lint. This section will attempt a brief review of the econ- The agricultural, pattern in,Georgia, is apparent. omy of the State in order to set the background for The general exodus from th 'e farm will continue; the the following chapters that examine the future of number of farms will decrease; the size of farms outdoor recreation. will increase; and the value per acre of farms will increase'. Each of these factors will have a direct The Form Sector influence on outdoor recreation. While farm. land is theoretically available as recreation potential, the Georgia has traditionally been known as an agri- cost of purchasing large tracts becomes prohibitive cultural State. Because of its history as a producer for both public and private,groups as its value as of cotton and tobacco, rural domination of most farm land increases. As important, however, is the public institutions was not only accepted but was, fact that farm income is rising veryrapidly. If, as until the turn of the present century, an accurate the ORRRC National Recreation Survey andthe Survey indication of the prevailing balance between agri- Research Center study.L4/ indicate, participation in culture and industry. As tables B-15 and B-16 outdoor recreation is related to income, an increase indicate, however, an important change has occurred since 1900. The following tables indicate that while Georgia's L/National Planning Association, "Economic Projections by total labor force has increased with each passing States for 'Years - 1976 and. 2,000," p. 47. decade, the agricultural labor force has decreased L'/"1960 Statistical Abstract," pp. 618-619. both -in.absolute numbers and as a percentage of the U/Perlo'ff, op@-!cit-, p. 681. labor force. By 1910, the agricultural laborforcehad L3/Hodge and Jones, op. cit., p. 3. declined to 43 percent of theAotal although the farm M/Evo Mueller and Gerald Gurin, "The Demand for Outdoor population continued to represent over 50 percent of Recreation," (institute of Social Research, the University the total population until 1930. By 1957, agricultural of Michigan, 1961). Hereafter referred to as SRC. 63 Table B-14. Personal income, per capita: United States and Georgia, 1929-1960 Region 1929 1940 1950 1958 1960 United States ............................... $703 $595 $1,491 $2,057 $2,271 Georgia .................................... 350 340 1,016 1,487 1,622 Georgia Per Capita Income as Percentage of the United States, 1929-60 United States ............................... 100 100 100 100 100 Georgia ........... I ........................ 50 57 68 72 71 Source: 1960 Statistical Abstra@t, pp. 312-313; Hodge and Jones, "Georgia's Economy," "Georgia Business," vol. 20, No. 10, April 1961, p. 1. Table B-15. Total labor force and agricultural labor force in Georgia, 1870-1950 1870 1880 1900 1920 1940 1950 Total labor force (000) ........................................ 445 598 864 1,129 1,264 1,350 Agricultural labor force (000) ................................... 348 468 557 483 389 275 Source: Perloff, pp. 622-625. Table B-16. Form population as percent of total noted, however, that construction today utilizes much population, United States and Georgia, less unskilled labor than it did in 1930. * The Negroes 1920-1960 involved in construction today are more likely to be Year United States Georgia semiskilled laborers and thus receive much higher wages than in previous years. 1920 .................. 29.9 58.2 (2) Transportation, communications, and public util- ities increased dramatically between 1940 and 1950 1930 .................. 24.8 48.8 (47 percent) after a slight decline in the decade of the 1940 .................. 23.2 43.8 forties. Negroes represent a constantly decreasing 1950 .................. 15.3 27.9 portion of those engaged in these activities (from 36 1960 ................... 11.7 TI. 2 percent in 1930 to 23 percent in 1950) as fewer and Source: Georgia Statistical Abstract, 1961, p. 106. fewer unskilled day laborers are used. (3) Wholesale and retail trade employees increased 99 percent between 1930 and 1950. Of particular in- in participation may well be expected in the rural terest in this category is the number of white women areas of this State. involved. White women represented 16 percent of all those involved in wholesale and retail trade activities The Nonfarm Sector in 1930; 21 percent in 1940; and 27 percent in 1950. This represents an increase of 11 percent during a The drive for industrialization in Georgia has period when 'the total white female labor force in- brought about a diversification of economic activities creased by only 8 percent. during the past several decades. While complete (4) Of particular significance to the economic well- data are not yet available for the decade of the being of a State is the number of persons engaged in fifties, sufficient information can be obtained to personal services. Since this is a nonproductive type demonstrate that the changes that began to develop of activity the number should decrease as a State's in the 1920's and 1930's have continued at an accel- economic health increases. Using this theory, erated pace. Georgia's economic health is rapidly improving. In Since a detailed table on employment by industry spite of a. 19 percent increase in population between group and sex is included in the appendix of this 1930 and 1950, the number of persons engaged in report, 25/ only a few of the most significant trends personal services decreased by 16 percent. The need bJlisted at this point. Such a listing would in- composition of the personal services work group has clude the following: changed rapidly. Once almost exclusively the domain (1) The number of persons engaged in construction of Negro women (and still predominantly so), the activities increased by 133 percent from 1930 to 1950. number of whites, both male and female, has shown Seventy-five percent of this increase occurred in the a constant increase while Negroes have shown a con- decade from 1940 to 1950, and 20 percent of the in- stant decrease. crease was among Negroes. Stated differently, in 1930 Negroes represented 34 percent of all those (5) The number of persons engaged in professional persons engaged in construction; in 1950 this per- services increased from 4 percent of the total labor centage had decreased to 26 percent. It must be force in 1930 to 7 percent in 1950. (6) Georgia's total labor force increased less inthe period between 1930 and 1950 than did its total L5/See app. A, table B-41. population (15 percent compared to 19 percent), but 64 that total labor force was engaged in more, productive smaller in those areas. The effects of these factors activities in the latter year. The greatest changes on outdoor recreation are discussed in chapter4. in the labor force were the increasing number of white females and the decreasing number of Negroes- CONCLUSION male and female. Since Negroes were, for the most part, engaged in agricultural or domestic services, The. State of Georgia is in the midst of a rapid this decrease is a healthy sign. transformation. Its economy has shifted from an (7) The number of employees engaged in manu- agricultural to an industrial base. Its people are facturing in Georgia has conformed to the U.S. pattern moving from the farm to the city; are becoming more of increases during times of prosperity and decreases educated, and more productive with a higher per during periods of high unemployment. Table , B- 17 capita income. Its political system continues to be demonstrates this trend. dominated by rural residentsand is highly conserva- In the period from i946 (the first post-World War, II tive, but is undergoing some alterations that may year) until 1959, manufacturing employment in G6orgia bring about radical changes in the near,future. increased by 28 percent. During the same period, manufacturing employment in the United States in- The Atlanta Standard Metropolitan creased by only 12 percent. In the, very important Statistical Area factor of value added by manufacturing Georgia showed a dramatic increase of 108 percent compared to an Atlanta's future as a great metropolitan center was increase in the United States of slightly less than 90 determined primarily by, its becoming a regional rail percent for the period from 1946 to 1959. center but the city was founded as a State rail center. The increase in Georgia in manufacturing ein- In 1836 the legislature authorized the construction of ployees and value added is particularly significant a State-owned railroad which was to run from the since it is probably closely linked to the decrease in Tennessee line to the southwestern bank of the farm employment-a relationship that traditionally Chattahoochee River at a point best suited for running has meant higher personal income-both total and per branch lines to other points within the State. capita-and a more productive economy. In 1837 the terminus of this road was established (8) Georgia's production workers work an average at a point which is today in the heart of Atlanta. of 40.3 hours per week-exactly the same as the na- This event signalled the actual beginning of the city, tional average, but receive an average weekly salary which, still unincorporated, was given the name of only $64.88 as compared with a national average of "Terminus." $89.47. With the promise of its becoming a railroadeenter, In general it can be said of Georgia's economy that a few families moved to "Terminus" in the next few it is rapidly becoming more and more diversifiedwith years. The town was first incorporated in 1848 under agriculture playing a less significant role with each the name "Marthasville," and 2 years later the name passing decade. As the exodus from farm to city was changed to Atlanta. continues, more and more of Georgia's population will Not. until branch lines began to come in from be concentrated in a relatively small number of other towns in the State did Atlanta begin to grow metropolitan areas largely in the central and northern significantly. Small industries began to appear, and parts of the State. Since industry tends more and more by 1854 the population reached 6,000. to locate in urban areas, particularly in and around As Atlanta's position as the rail center of the metropolitan areas, the amount of space available for Southeast became solidified, its growth accelerated. outdoor recreation tends tQ become smaller and In 1845, when the town was just beginning to grow, it had one railroad, a population of about 100, and a few negligible manufacturing enterprises. The State Table B-17. Employees in manufacturing in,the Unite,,4 census of 1859, however, provides a picture of States and Georgia for selected years, 1880-1959 Atlanta showing phenomenal growth in just 14 years: the population was about 11,500; there were 15.pri- Year United States (000) Georgia (000) mary industries producing at a rate of about $415,000 per year, employing 319 persons and having a payroll 1880 .................. 3,841 38 of about $110,000; four major railroads served the .1890 .................. 5,526 64 city; the assessed value of real estate was $2,760,000, 1900 .................. 7,199 92 and the sales of goods amounted to $3 million. 1920 ................... 121,861 182 This then was Atlanta just before the Civil War, 1930 ............... ... 14,111 233 a small bustling city, growing at a fast pace. The 1939 .................. 10,078 188 war years that followed and the subsequent recon- 1943 ................. 17,381 303 struction period proved to be the most important, 1946 .................. 14461 264 and certainly the most dramatic, part of the city's 11949 ...... 7 ........... 14:178 264 history. 1953 .................. 17,238 318 With the beginning of the Civil War, Atlanta's 1956 ...... 16,903 335 commerce and manufacturing took on a somewhat 1958 .................. 15,468 319 different nature but it continued to grow, as did the 1959 ................... 16,168 336 city's population. Atlanta became an important mili- tary center and supply depot for the Confederacy. Source:, Perloff, op. cit., pp. 632-633; Hodge, and Jones, . The successful blockade of southern ports forced op. cit., P. 5. the South to equip its armies and supply the needs 65 of its people with very little help from outside supply Middle Atlantic area through northeast Georgia. sources. As a result, Atlanta became one of the During this period also, wholesale trade became Confederacy's largest arms and munitions manu- an important part of Atlanta's commercial structure, facturing centers. Established factories were con- and in 1877 the State capitol was moved to this city. verted and scores of new ones were built to manu- Despite Atlanta's pronounced industrialization facture weapons and ammunition of all types as well movement, the South as a whole was still very much as the miscellany of war such as brass buttons, dependent on agriculture, and Atlanta was severely uniforms knives, coffins, etc. In 1862 the city limited by this falct. It was recognized that some- passed under martial law and became the head- thing had to be done to build confidence in manufac- quarters of Confederate quartermasters and com- turing, to bring out local financial resources, and to missaries. encourage investment from other areas. In an attempt Atlanta's vital importance as a supply depot and to accomplish these things, a group of Atlanta busi- manufacturing center of the Confederacy led to nessmen promoted the Atlanta Cotton Exposition of "Andrew's Raid' I in April 1862, when the Union Army 1881. Cotton was the economic staple of the South was in Tennessee. In this well-known incident a then, but few cotton products4ere actually manufac- party of Union soldiers stole a -locomotive a few tured Within the South. The exposition was a demon- miles north of Atlanta and headed toward Chattanooga stration of the possibilities and practicality of textile with the intention of destroying all the major bridges manufacturing in the South. Itwas extremely success- between the two cities, thereby cutting off the major ful and seems to mark the beginning of the develop- supply route of:the Confederate Armies to the north. ment of the textile industry in the South. Historians differ considerably as to what the value With the boom in railroad construction in Georgia of this feat to Northern forces would have been had beginning around 1880 and the general improvement the attempt been successful, but some believe it would in rail transportation, Atlanta's strategic position in have shortened the war by as much as 2 years. the Southeast became more and more important. Atlanta fell to the Union Army in September 1864. The increased, decentralization of business .,made Great damage had been done by tiwo months -of -possible, by improved communications@ -and :trans- bombardment during the se:ige and as Ithe Confedera .te portation gave more meaning to.,the cityls-@roleas a forces evacuated the city, they blew up theremaining distribution center for the South. Wholesale1rade on locomotives and carloads of ammunition. Intfieproc'- a regional basis increased greatly, and the, establish- ess the central railroad yards were virtually wiped ment of regional branches by large corporations was out. intensified. . The destruction of the city, begun before the Union Atlanta, of course, was the South's principal bene- forces occupied it, was completed when they left. ficiary of this trend. The city developed into the Virtually every business house and manufacturing plant Southeastern financial center with bank clearings in the city@ was burned, and machinery not destroyed increasing by 5',000 percent from 1890 to 1926, 12 by fire had been broken. Of an estimated 3,800 times as much as the population increase. Insurance houses in the city only about 300 were left standing. companies concentrated on Atlanta as their regional Atlantans began returning to the city as soon as headquarters and the city became the third largest the Union forces moved out to the south. Rebuilding insurance. center in the Nation. was haphazard at first; shanties were thrown up using "By the turn of the century --the pattern for Atlanta's the debris of the ruins. The rate of reconstruction future development had be@n fairly well established. accelerated in the following months, but there. Were The pity began as a railroad center and had diversified still formidable obstacles to be overcome before it to become an important manufacturing center after the could get. into full swing. The scarcity of buildings Civil War. As the South began its industrialization made rents enormous and building materials were movement in the latter part of the 19th century, equally high. Not until about 1869, when a number of Atlanta's position as the rail and communications cen- planing mills, machine shops, foundries, and other ter of the Southeast made it th .e logical location for shops producing needed materials had been,-estab@ the regional service industries which@ were growing lished was the- city able to get on a solid basis in so rapidly at that time. rebuilding substantial buildings at reasonable costs,. The growth of Atlanta since the turn of the century Atlanta's position as a rail center and the city's has been steady averaging 29.8 percent per census rebuilding boom gave business and industry a double period. Table B- 18 indicates that with the sole excep- incentive to locate there as the economy became tion of the depression decade from 1930 to 1940 stabilized. Atlanta has increased its population by more than Despite the strife created by Reconstruction poli- 25 percent every 1 0 years. cies, Atlanta moved ahead steadily. The city's posi- tion allowed it to take full advantage of the railroad's RECENT GROWTH increasing importance. Most of the goods moving between the South Atlantic coast and the Mississippi The growth pattern changed radically beginning in Valley. and beyond went by way of Atlanta as did a 1940. With the advent of World War II, Georgia large share of the goods moving between the Deep because of its favorable climate became a great train- South and the. Northeast. ing ground for armed services personnel. The logis- The decade between 1870 and 1880 was one of sound, tics support for these bases, the increase in service steady growth. The population rose from 21,000 in industries, and the location of several defense indus- 1870 to 37,000 in 1880. In 1873 the Airline Railroad tries in the metropolitan area (notably the Lockheed was completed, giving Atlanta a new link with the aircraft plant, still the largest single industrial 66 Table B-18. Population of Atlanta standard metropolitan Table B-19. Population growth, City of Atlanta, statistical area, 1900-1960 1950-1960 10-year increase Population Year Population Area Number Percent Area and year (square Numberl Percent 1900 ............... mi les) 1960 1950 in- in- 214,693 .... .... crease crease 1910 ............... 291,401 76,708 35.7 1920 ............... 367,174 75,773 26.0 City of Atlanta, 1930 ............... 479,019 111,845 30.5 1950 .......... 37 315,262 331,314 -16,052 - 4.8 1940 ............... 558,842 79,823 16.7 Area added since 1950 ............... 726,989 . 168,147 30.1 1950 ........... 91 172,193 106,471 65,722 61.7 1960 ..... ......... 1 1,017,192 290,203 39.9 City.of Atlanta, Source: Atlanta Region Metropolitan Planning Commission, 1960 .......... 128 487,455 437,785 49,670 11.3 "Population Housing," 1960, P. -1. Source: Atlanta Region Metropolitan Planning Comm Iission. employer.in the area) brought about a sudden spurt in population between 1950 and 1960, the Atlanta area in. the population. grew faster than all. other metropolitan@ areas with . The Korean, War, and the continuation of, the East- population in excess of 1 million, with the exception West, conflict - combined during the fifties to keep, of Los Angeles, Houston, Dallas, and San Diego. 27/ defense related activities at a substantial level. The addition of two counties to the SMSA during the THE PEOPLE fifties is indicative of the spread of population outward from the central city. The 1,017,188 residents of Atlanta are overwhelm- Between 1950 and 1960 the population of the city of ingly Georgians as indicated by table B-20. The almost Atlanta increased by 47.1 percent (331,314 to487,455) complete absence of any substantial number of foreign while the population outside the central city increased born is typical of all Georgia cities. The population by only 33.9 percent. Since the pattern of growth in is heavily anglo-saxon, Protestant, with strong ties to metropolitan areas across the nation is for the southern life and tradition. While the number of in- central city to lose population, the Atlanta situation migrants from outside the South is increasing with appears, at first glance,, to be unique. Upon investi- , the growing industrialization, of the metropolitan area, gation, however, the answer is very simple; the city it should remain predominantly native for many years increased its population only by annexing a substan- to come. tial area of land during the decade. The number of Negroes in the Atlanta area has Fig. B-4indicates the boundaries of the city in 1950, increased with each census since 1900 reaching a and the boundaries in 1960. During the decade, the high mark of 221,000 in 1960. Table B-21 indicates city annexed slightly over 91 square miles, increasing clearly, however, that while the Negro population is its area to 128 square miles. The effects of this ex- increasing it represents an ever-debreasing portion pansion are given in table B-19 which indicates that of the total population. From 1950 to 1960 the non- had its boundaries not been extended, the city of "white @ (over 99 percent Negro) population showed its Atlanta would actually have suffered a, loss of some greatest increase since the decade of the twenties 16,052 persons or 4.8 percent of its population. In but the white increase was still substantially greater. other words, Atlanta in company with most other As fits the national pattern, the Negro population metropolitan areas in the United States, is losing of the area is concentrated in the central city of population in its "down town" section. Atlanta where it now represents 38.3 percent of the The Atlanta SM-SA as indicated onFig. B-5,26/ in 1960 comprised 5 counties and 45 incorporated Table B-20. Source of Atlanta metropolitan resident municipalities; of the municipalities, only4 (excluding families Atlanta) have populations in excess of 20,000 (the largest, East Point, has a population of 35,633); Sou rce Percentage 4 others have populations of from 10,000 to 15,000; 1 has a population of 6,260; and the remainder all Georgia .................................... 77.6 have less than 5,000 residents. The overwhelming Southeast other than Georgia .................. 12.4 majority of the last-named group have populations West of Mississippi .......................... 5.0 of less than 2,000. Thus, the Atlanta SMSA has a New England ............................... 2.6 very large central city with a growing number of Midwest ..................................... 2.0 small towns and cities. Foreigm country ............................. W) Its land area of 1,724 square miles and its popula- tion in excess of 1 million make the metropolitan ILess than 0.1 percent. area the largest in the Southeast and move it to 23d Source: Atlanta Constitution-Journal Research Study place in -the nation. In terms of percentage. increase (unpublished). L6/The boundaries of the Metropolitan Planning District are L7/Metropo.litan Planning Commission, "'Population Housing," coterminous with those of the Atlanta SMSA. p. I 67 @ANDY 0 rit ING '10 ,I,\ 4- CHAMBLEE 0SMYRNA ONORTH ATLANTA s +9 A. iik H& 00 4 VECATUR 0 all AT LANTA ATLANTA pe-. 1950 1 0 '*@g',4, A S, rpq DO 0 PANTHERSVILLE 066 a COLL TGE PA K C@EKALS _CO CLAYTON CO. RED OAK 1`01O.W FARK CITY OF ATLANTA SHOWING MUNICIPAL BOUNDARY, 1950 AND FIGURE B-4 68 UFOR REST all An HAVER MOUNTAIN LL n PARK ALPHARETTA ACWORTR OSUWANNER F U L T 0 N iJ7 w KENNESAW ODULUTH BERKELEY LAKE DACULA 0 MARIETTA ONORCROSS LAWRENCEVILLE 51 P&--- DORAVIL GWINNETT c 0 8 : 8 ORAY80140 SMYRNA CHAMBLEE OLMOURN 081ORL:LVILLE POWDER SPRING$ NORTH LOOANVILLE ATLANTA GTO He ..STILL MOUNTAIN CLARKSTON 0 0 DECATUR OPINE LAME ATLANTA @?AVOHOALE ESTATES 1) E X A L 0 LITHOM.IAO EAST POI T HAPEVILLE COLLEGE PARK CREST -0 ?" A It K FULTON MOUN4 AX N VIEW LC I TEY UNION Cory J7 V7 MORROW FAIIl9U of 1AL I RN 0-i CLAYTON PALMtTr0 JONESSOR ATLANTA REGION METROPOLITAN PLANNING DISTRICT SHOWING MUNI,CIPAL AND COUNTY BOUNDARIES, FIGURE B-5 69 Table B-21. Population of Atlanta standard metropolitan statistical area, by race: 1900-1960 White population Nonwhite population Year Total Percent Percent Percent Percent population Number increase of total Number increase of total 1900. ....... ....... 214,693 142,542 66.4 72,151 33.6 1910 .................................. 291,401 204,152 43.2 70.1 87,249 20.9 29.9 1920 .......................... : ........ 367,174 266,504 30.5 72.6 100,670 15.4 27.4 1930 ................................... 479,019 348,815 30.9 72.8 130,204 29.3 27.2 1940 .................................. 558,842 409,128 17.3 73.2 149,714 15.0 26.8 1950-.1 ............................... 726,989 554,328 @35.5 76.2 172,661 15.3 23.8 1960, ................................ ''1'017,192 796,192 43.6 78.3 221,0001 28.0 1 21.7 .,Source: Atlanta Region Meiropolitan Planning Commission. total population; an increase of 7.1 percent over 19 *50. Table B-22. Population of Atlanta standard metropolitan There is no reason to -expect a reversal of this trend statistical area by counties, 1940w]1960. of an increasing Negro population in the city of Land Atlanta and a decreasing Negro Population in the metropolitan area outside of Atlanta. area 1940 1950 1960 (square GROWTH PATTERNS miles) Population: Table B-22 and FigB-6 indicate growth trends in the Metropol itan metropolitan area over the past two decades. Fulton area ........ 1,724 558,842 726,989 1,017,192 County, the largest in area and in population, is in- Clayton County. .. 149 11,655 22,872' 46,365 creasing its population at a much slower rate than Cobb County .... . 346 38,272 61,830 114,174 any of the other four counties and comprises an DeKalb County. . 269 86,942 136,395 256,786 ever-decreasing share of the area's total population. Fulton County 523 392,886 473,572 556,326 In terms of percentage increase Clayton County Gwinnett County 437 29,087 32,320 43,541 demonstra 'ted the most spectacular gain but the base in this case was very small. The most substantial Percent of total.. gain was achieved by DeKalb County, the second Metropolitan smallest in land area in the metropolitan complex. area ..... 100.0 100.01 100.0 100.0 DeKalb's densityr is presently almost equal to that of Clayton County.. 8.6 2.1 3.1 .4.6 Fulton County. Cobb County .... 20.1 6.8 8.5 11.2 A factor of exceeding importance in the whole PiC7 DeKalb County.. 15.6 15.6 18.8 25.2 ture of outdoor recreation is the amount of open Fulton County 30.3 70.3 ;65.1 54.7 space available within and adjacent to the metropolitan Gwinnett County 25.4 5.2 4.5 4.3 area. Since this will be discussed in detail at a later 10-yepr increase point, suffice it here to point out that only 69 percent (percent): of the metropolitan population lives within incorporated Metropolitan areas. A wide range exists among the counties in area ........ .... .... 30.1 39.9 this respect; only 34.6 percent of Gwinnett County's population resides in municipalities, while 93.0 percent Clayton County.. .... .... 96.2 102.7 of Fulton County's residents are city dwellers. The Cobb County .... .... .... 61.6 84.7 other three counties with the percentage of population DeKalb County.. .... .... 56.9 88.3 residing in incorporated areas are: Clayton, 67.2 Fulton County .... 20.5 17.5 percent; Cobb, 37.0 percent; and DeKalb, 36.8 percent. Gwinnett County 11.1 34.7 Figure B- 1 is a schematic diagram of the directions Source: Atlanta Region Metropolitan Planning Commission, in which the population of the metropolitan area is 1960, "Population Housing" (compiled from Official Publi- spreading. The center octagon in the figure roughly cations of the U.S. Bureau of the Census). approximates the old 37-square-mile area of Atlanta The eight sectors of the SMSA represented by the in1950. As was, pointed out above, this area lost, over. 16,000 population in ,the decade between 1950 and 1960. bars on the sketch are"ranked below in the order of The radial bars represent the suburban population their population growth over the 10-year period: 28/ radiating out from.thp city. 1. NORTH NORTHEAST-A gain of 56,822persons. This sector includes the'eastern parts of Buckhead The eight sections represented by the bars on the and Sandy Springs, and those portions of DeKalb and diagram are ranked below in the order of their Gwinnett Counties which are north of the northeast population growth. It is worth noting, though not at expressway-the north Atlanta- Chamblee- Doraville- all surprising, that the areas of greatest growth are Norcross-Dul-uth-Buford corridor. those through which the major expressways run as they radiate out from the downtown section. 48/lbid., p. 15. 70 ........ ............................. ................. ...................... ......................... ...... ..................... ............ ............... ............ ...... ............ ........ ......................... .................. ........................ ............. ......... ........................ .............. ..... ................................... ........... :::::. - ....... ............. ............... ...... .......... .................... ....... .......... . ............ 0 ..................................... ....................... GW I N N ET T:::::::::::: c o 8 0 ........................ .......... ........... I....... .... ...... .................. ........... ...... .......... .............. ....... ........ .. ................. 1960 .......... ......... 1,017,192 .......................... L8 D E K A ............ ........... .................... F U L T 0 1950 .............. ........ ........................... ....................... 726,989 .......... 1940 ...... .. .... . ........ 558,842 ...................... CLAYTON ..... ........................ ............... ................. 'METROPOLITAN AREA ATLANTANETROPOLITAN AREA POPULATION BY COUNTIES, 1940 TO 1960 FIGURE B-6 71 11 - - - - - - - - - - 02 `ME FIGURE; B-I 72 2. NORTH NORTHWEST-A gain of 56,550persons. total in every way except in political influence. In- This sector includes the western parts of Buckhead dicative of its importance is the fact the metropolitan and Sandy Springs, and the Smyrna- Marietta- area has. almost 26 percent of the State's population, Kennesaw-Acworth corridor in Cobb County. . 1 37.6 percent of the urban population, 27.4 percent of 3. EAST SOUTHEAST-A gain of 50,595 persons. the households, 3 8.9 percent of total personal income, This sector includes the south Decatur-Glenwood- 36.0 percent of total retail sales, 68.0 percent of Avondale-Belvedere-Panthersville-Lithonia areas of wholesale sales, and 36.0 percent of the value added DeKalb County, and is bisected by the new southeast by manufacturing. expressway. hi the following paragraphs an attempt will be made 4. EAST NORTHEAST-A gain of 36,163 persons. te depict briefly the economical base of the metro- This sector includes the Druid Hills-North Decatur7 politan area. Clarkston- Tucker- Stone Mountain areas in DeKalb County, and all of Gwinnett -County south of the Transportation northeast expressway, including the Snellville area and the Lilburn- Lawrenceville corridor. Beginning as a railroad center, Atlanta has main- 5. SOUTH, SOUTHWEST- A gain of 32,985 persons. This sector includes the tricities area-East Point, tained its strategic position in the transportation field. Coll .ege Park, and Hapeville in Fulton and Clayton Thirteen main lines of 7 railroad systems operate Counties, and the Union City- Fairburn- Palmetto COr- 58 passenger trains daily out of the city with connec- ridor. tions to all parts of the Nation. Sixteen airlines operate over 400 flights daily from the recently 6. SOUTH SOUTHEAST-A gain of 31,970 persons. opened jet airport. Three hundred and forty-eight This sector includes the Lakewood- Thomasville-Blair buses are scheduled in and out of the city daily and Village areas in Fulton County, and the Mountain over 70 regulated truck lines serve the area. View-Forest Park-Jonesboro corridor in Clayton County. 7. WEST NORTHWEST-A gain of 22,631 persons. Industry This sector includes the Grove Park-Center Hill- Collier Heights- Perry Homes areas in Fulton County, Over the past three decades, the metropolitan area and the Mableton-Austell- Powder Springs corridor in has made great strides in diversifying its industrial Cobb County. base. Once limited almost solely to processing tex- 8. WEST SOUTHWEST-A gain of 18,219 persons. tiles and to transportation, the area can now boast This sector includes the Beecher Hills-Cascade a well-diversified economy riot tied to any single Heights-West Manor-Ben Hill- Campbellton areas, base. Table B- 24 which uses employment figures. in- all in Fulton County. dicates how evenly distributed the labor force is in The age distribution of the Atlanta metropolitan the Atlanta SMSA. area does not differ radically from that of the State Over 1,100 new plants have located in the metro- as a whole as Is indicated by table B-23. The lower politan area since 1946. These industries employ percentages in the younger and older groups are, more than 44,000 employees and have an annual pay- of course, favorable to Atlanta. With respect to age roll of approximately $143 million. distribution, proportion of male to female, and fer- Among the manufacturing industries, transportation tility ratio the Atlanta area does not differ radically equipment is by far the leader in employment with from that of other southeastern metropolitan areas. 29/ over 22,600 persons on the collective payroll. Also significant are the food trades, the textile, apparel THE ECONOMY and publishing fields. By far the largest single plant Atlanta has been for some years now the industrial, in the area is the Lockheed aircraft plant with an trade, cultural, and transportation center of Georgia annual payroll of over $90 million. and the Southeast. Its dominance of Georgia is almost In any ranking of the 15 largest cities, in the South- east, Atlanta ranks first in such important categories Table 5-23. Age distribution of population of Georgia as number of employees in commerce and industry, payrolls in commerce and industry, number of whole- and Atlanta standard metropolitan statistical area, 1960 sale firms, number of retail sales personnel, bank - deposits, and the like. Atlanta's average position in 18 any ranking of southeastern cities marks it as the Under Over years Fer. leading city in the area. In a special market report Area 18 18-64 65 and tility prepared for "Media Scope', in December 1960, years years years over, t rates Atlanta was entitled "Distribution Hub of Southeast" prcen and noted that in the important matter of value added male by manufacturing Atlanta had risen from 64th to 48th place nationally from 1950 to 1958. Table B-25 indi- Georgia ........ 38.9 53.7 7.4 47.7 502 cates the spectacular rise of Atlanta in the area of Atlanta ........ 36.5 57.0 6.5 46.8 455 value added by manufacturing. Source: U.S. Bureau ofthe Census. Sales and distribution L9/With, of course, the exception of metropolitan areas in The importance of Atlanta as a trade area for Florida which have large numbers of older people. the State of Georgia is demonstrated in tables B-26 73 and B-27 depicting the wholesale and retail trade of annual increase of 6.43 percent during the preceeding Atlanta as a portion of Georgia's total. decade. In terms of total income, the Atlanta metro- , While the above tables indicate the importance of politan area represents a phenomenal 39 percent of the Atlanta in the trade picture of Georgia, no tabular entire State income. presentation can depict the actual drawing power of this city. An example of this drawing power is found THE GOVERNMENT OF THE AREA in the fact that from as far away as the city of Savannah on the coast, shoppers travel to Atlanta to The city of Atlanta is governed by a mayor and a visit the downtown area or 1 of the more than 50 unicameral council consisting of two aldermen from shopping centers that ring the central city. The each of the city's eight wards. For a city of its largest department store in Atlanta, Rich's, offers size, Atlanta has an antiquated charter that estab- free delivery within a 100-mile radius of the city. lishes a weak mayor system of government. The With the completion of the major arms of the express-, strides made by the city in the past two decades are way system the retail volume will doubtless continue in many ways attributable to the imaginative leader- to increase. Wholesale sales increased by 136.0 ship of Mayor William Hartsfield. Mayor Hartsfield, percent between 1950 and 1960; a 60 percent improve- who will retire from office at the end of his present ment over the comparable increase between 1940 and term, has led in spite of the charter, not because of 1950. it., A less persuasive politician would have run into Per capita income in the Atlanta metropolitan area almost unsurmountable barriers. was $2,390 in 1960, above the national average, and In recent years, the business community has taken more than $780 more than the average for the State. an active interest in city politics. The most recent The 1960 figure of $2,390, represented a rate of evidence of this interest is the announced candidacy of the recent past president of the Atlanta Chamber Table 9-24. Employment by industry'group Atlanta of Commerce, a businessman of high repute in the area.. standard metropolitan statistical area, 1959 Fulton County in which most of the city of Atl .anta is located, and which has 54.7 percent of the total Industry Number employ .ed Percent population of the metropolitan area, is the only county Total, 1959 ....... 358,250 .0.0 in the State that operates under a county manager system of government. A very modern governmental Contract construction ... 21,700 6.0 organization staffed with well-qualified personnel has made this county a highly effective unit of local Manufacturing: government. Durable goods ........ 45,450 12.7 A certain amount of functional consolidation has Nondurable goods 41,400 11.6 taken place between the city of Atlanta and Fulton Transportation, communi- cations, and public utilities ............... 35,100 9.8 Table B-26. Wholesale sales Atlanta standard Trade: metropolitan statistical area and Georgia, Wholesale .......... 36,950 10.3 1930-1960 Retail ...... 58,000 16.2 Georgia Atlanta Atlanta as Finance, insurance, and Year (million) (million) percent of real estate ............ 24,900 7.0 Georgia Service ............... 46,300 12.9 Government: 1930 ............... 566 278 49.1 1940 ............... 787 465 59.1 Federal ...... 18,200 5.1 1950 ............... 4,962 2,218 ".7 State and local ....... 30,250 8.4 1960 ............... 51735 3,900 1 68.0 Source: Atlanta Constitution-Journol Research Survey Source: Special Study of Industrial Bureau, Atlanta Chamber of (u npublished).' Commerce. Table B-25. Value added by manufacturing, Atlanta standard metropolitan statistical area and Table B-27. Retail sales Atlanta standard metropolitan Georgia, 1930-1960 statistical area and Georgia, 1930-1960 Atlanta as Atlanta as Year Georgia Atlanta, percent of Year Georgia Atlanta percent of (million) (million) Georgia (million) (million) Georgia 1930 .............. 314 97 30.9 1930 ............... 536 155 28.9 1940 ............... 771 . 195 25.3 1940 ............... 714 225 31.5 1950 ............... 897 253 21.2 1950 ............... 2,231 745 33.4 1960 ............... 2,283 822 36.0 1960 ............... 4,414 1,600 36.0 Source: Special Study of Industrial Bureau, Atlanta Chamber of Source: Special Study of Industrial Bureau, Atlanta Chamber of Commerce. Commerce., 74 County. Of particular interest to this study is the The remaining four counties and the cities in the fact that the city operates the entire system of parks SMSA fit no particular governmental pattern. Since for both the city and the county. The county pays a the relationship of municipal and county governmental portion of the cost of operation but city personnel structure is at best peripheral to this study, it need have exclusive operating authority. The county retains only be stated that with the exception of the Metro- the right to establish parks outside the city boundaries politan Planning Commission no other agency of but to date has not exercised that option. government has metropolitan-wide jurisdiction. 75 CHAPTER TWO RECREATIONAL HABITS. AND PREFERENCES OF RESIDENTS OF THE ATLANTA SMSA It is the intention of thi S chapter to examine into the tends, as a region, to have a lower rate of partici- recreational behavior of the residents of the State of pation than any other region. By specific activity, the Georgia in general and the Atlanta Standard Metro- South has a higher rate of participation than any other politan Statistical Area in particular. The major region only in fishing; rates somewhere in the middle source of data in this chapter will be the study on on boating,2/ water skiing, camping, and horseback recreational behavior completed by the Survey Re- riding; and rates lowest in swimming, hiking, driving search Center l/ at the University of Michigan and the for pleasure, nature walks, and picnics. ORRRC National Recreational Survey. It should be pointed out, however, that with respect In order to relate the findings of the surveys noted to most of the activities listed above, regional dif- above to the Georgia picture, it will be necessary to ferences are not significant and probably should not examine the population of the area in some detail. be emphasized in recreational planning. The SRC and Since the various reports of the ORRRC will discuss NRS studies are both extremely important pieces of the general ramifications of certain demographic research but if the maximum advantage of the data characteristics as they are related to recreational compiled is to be realized, they will have to be re- behavior, this chapter will give explicit recognition peated periodically in the future. It is unfortunately only to those characteristics of the Atlanta population true that statistical data on recreation preferences that distinguish this area from other regions of the and habits are not available for the years preceding country or from other standard metropolitan statistical the studies mentioned above. This fact alone means areas. that periodic surveys will have to be made in order An example may serve to clarify what is implied in to ascertain whether regional differences are the preceding paragraph. Both the ORRRC National significant. 3/ Recreation Survey and the Survey Research Center In the following portions of this chapter, participa- report indicate that there is a direct and irrefutable tion in individual activities will be examined from the inverse relationship between age and participation in viewpoint of income, race, age, education, rural- outdoor recreation activities, i.e., as a person's age urban residency, and profession or occupation. This increases, his participation rate decreases. If this examination will substantiate the thesis that the reason thesis is valid-and the evidence is overwhelmingly in for the South's low position in any regional ranking is favor of its validity-then a high proportion of young caused by its high percentage of nonwhites; its low per people in a given population would indicate a heavy capita income; its low achievement educationally; its pressure on recreation facilities. higher rural classification, and its dearth of persons If an examination of the age structure of Atlanta, s in higher status professional positions. population indicates that it varies substantially from The- lengthy treatment accorded racial factors in those of other regions or other metropolitan areas, this chapter calls for a brief word of explanation. this factor will be explored in all of its ramifications. While the author has not had the opportunityto subject If, on the other hand, the age structure of Atlanta's the data from the SRC and NRS studies to the intensive population differs very little from that of other urban examination they richly deserve, it does appear that areas, this fact will be noted and the matter of its there is a great degree of uniformity among residents relevancy will be stated but not elaborated. of metropolitan areas in this Nation with respect to In other words, only those characteristics that dis- recreational habits and preferences. The residents of tinguish Atlanta from comparable urban areas in the Atlanta SMSA do not, for example, differ radically other regions will be discussed at length. Where in their recreation preferences from the residents of differences do not exist, the conclusions and criteria St. Louis or Chicago as those preferences are affected that the general ORRRC reports will make will apply by age, income, occupational status, and the like. With to the Atlanta SMSA. certain exceptions, it can be posited that residence in REGIONAL COMPARISON 2/The SRC and NRS studies do not agree on boating. According to the latter, the South rates lowest among the regions in this Both the SRC and NRS reports indicate a slight activity, while the former places the South somewhere in the relationship between region of residence and rate of middle group. This, however, is the only major activity on participation. As indicated by table B-28, the South which the two studies disagree with respect to regional dif- ferences. !/Eva Mueller and Gerald Gurin, "The Demand for Outdoor Rec- '2/For an interesting criticism on the type of correlations used reation," Institute of Social Research, the University of in the SRC study, see W. S. Robinson, "Ecological Correla- Michigan, 1961 (hereafter referred to as SRC study). The tions and the Behavior of Individuals," "American Sociolog- ORRRC study is hereafter referred to as NRS. ical Review," vol. 15 (June, 1950),.pp. 351-357. 76 a metropolitan area tends to promote a large degree of below the white rate in every region. The difference uniformity in recreational preferences regardless of in rate of participation between southern nonwhites where the area is located in the, United States. As and the same group in other regions is probably more and more persons move into metropolitan areas, caused by the large number of southern Negroes who it can be expected 'that -,regional, differences now reside in rural areas., The NRS study indicates very existing will tend to. disappear. clearly that the participation rate for rural nonwhites However, the element.. of race, and its, relationship is much higher than for nonwhites residing either in to recreation do tend to differentiate Atlanta from standard metropolitan areas or in urban areas outside other regional metropolitan centers. -Since over a standard metropolitan areas. Since nonwhites in all quarter of Atlanta's population is colored, and since regions except the South tend to reside in urban areas, that colored population has, in the overwhelming this would- cause the participation rate in nonsouth ,majority of cases, migrated from, rural sections of regions to be low. Georgia, there is a pattern of recreational habits and On the basis of the increasing exodus of the Negro preferences that, at least at the present time, requires from the rural to the urban areas in the State of careful and detailed study. It is for this reason that Georgia, it can be anticipated that, for a time at this chapter devotes so much space to the racial least, the fishing rate among Negroes will decline. In factor. the Atlanta area, however, this decline will be re- versed if additional facilities are provided for Negroes RACE or when the younger Negro becomes aware that segregation is not permitted on facilities administered The SRC report concludes a study of the relation- by the Federal Government. At present, observation ship. between race and outdoor activities as follows - indicates the Negroes in the Atlanta SMSA do not have "Race shows a- marked relationship with outdoor a high participation rate in fishing. This is doubtless activities, Negroes engaging in these activities rela- due, in part, to the. fact that there is a sensitivity to tively infrequently . . . This is true even when income, visiting public places on the part of. a race that has education, occupational status, and place of residence too often met with discrimination in public areas. , are held constant." 4/ At another point the SRC re-' In planning for the future, much will depend on Port states, "Negroes are less likely to take a whether additional public fishing facilities are made vacation trip than white people with the same income available on Corps of Engineers reservoirs. If such and vacation privileges.,, 5/ facilities are made available, it can be s ,afely pre- The NRS study does not include narrative con- dicted that the rate of participation among Negroes clusions but an examination of tabular data on white- will increase radically. nonwhite breakdown by activity reveals the following picture: Hunting Fishing Whites have a higher participation rate for hunting While the southern nonwhite has a higher participa- in the South than do nonwhites although nonwhites have tion rate in fishing than in any other region, he falls a higher "days per person" ratei The latter is probably due to the high participation rate of southern -4/SRC study,. p. 55. rural Negroes who tend to hunt not as much for J/16id., p. 99. recreational purposes as for food. This factor of Table B-28. Rate of participation in outdoor recreation by activity and region!/ South West Northeast North Central S PIC ORRRC SRC ORRRC SRC ORRRC SRC ORRRC Activity partici- partici- partici- partici- partici- . partici- partici- partici- pation potion potion potion potion potion potion potion (percent) (percent) (percent) (percent) (percent) (percent) (percent) (percent) Swimming ................ 21 40 27 48 36 53 22 42 Boating .................. 13 19 6 23 11 21 15 27 Fishing ................. 26 33 18 30 22 21 21 23 Skiing ................... 2 6 1 9 5 4 3 6 Hiking ........... 6 4 12 9 7 7 8 5 Driving for pleasure ....... 43 45 50 56 46 54 49 58 Nature walks ............. 5 12 8 16 6 15 6 15 Picnics ... .............. 23 43 33 54 32 57 38 58 Camping .................. 5 8 15 17 4 5 5 7 Hlorseback riding ......... 2 5 6 11 1 4 3 i4he SRC and the NRS tables are not exactly comparable. Data on this table for the SRC report were taken from pp. 37-38 and indicate the percentage of interviewees who stated that they engajed in a particular activity "often" during the.lost year. Data for the NRS report are from the lead table (unnumbered) and purport to show the "percent of persons 12 years old and over participating ... during June-August 1960 by activity." The two sets of data should not, therefore, he compared one with the other, but should be used, individually, to compare regional participation. 77 providing food may also' account in part for the high It is, most ,difficult to determine the importance of rural participation rate for nonwhites in'fishing. bicycling as a form of outdoor recreation in the Hunting Iis an- acti-vity peculiar ly related to Ithe Atlanta SMSA., Here, as is true in the Nation as a urban-rural division, in Georgia. Rural, Negroes whole, this form of recreation is engaged in almost participate 'actively in small game hunting (rabbit, exclusively'by children. While the pronouncements of squirrel,' opossum, and coon in particular), while certain persons, such as Dr.. Paul Dudley White, have those residing in the Atlanta SMSA have a I partici- some temporary'effect, in general it can be said that pation rate that is very low. As is true with whites, at the present time, and for the future, bicycling will one reason for a lack of participationis the' dwindling not be a major form of outdoor recreation for adults. supply of open land, and.game cover. Additionally, Negro children will doubtless continue to participate however, the low income level of the Negro,'his rela- in bicycling in the future. For whites, however, the tive lack of vacation time, and the increasing use of spread of residential areas, particularly in sub- hunting preserves from which he is barred, tend to divisions without sidewalks, will probably mean that restrict his participation. It is extremely doubtful the ratio between white and nonwhite participation that this pattern will change radically in the years will increase in.favor of the nonwhite. ahead. Nature walks Sightseeing Southern whites have a significantly higher partici- Whites tend to participate in sightseeing in all pation rate and a much higher I 'days per person' I rate regions - much more than do nonwhites. Among the than nonwhites in nature walks. Among those who nonwhites, the rural element participates in this reside in large metropolitan areas, there is no activity much less frequently than does the urban non- significant difference between whites and nonwhites in white; while among urban nonwhites , the person the South. In small metropolitan areas, in urban and residing in a small metropolitan area has the greatest rural areas, the white participation rate is signifi- participation rate. Among those persons living in cantly greater than the nonwhite rate. Ile nonwhite large Metropolitan areas, whites tend to engage in who resides in a large metropolitan area engages in sightseeing about 20 percent more frequently than this form of outdoor recreation to a much greater. nonwhites (among women, the white participationrate extent than do his counterparts in smaller urban and is almost 25 percent greater than the nonwhite). rural areas. Since sightseeing is restricted by the segregation In the Atlanta SMSA, participation in nature walks by pattern in Georgia, Negroes do not participate nearly Negroes tends to be low for two reasons. The first, as actively as do whites. As per capita income, and probably the most important reason, is the lack education, and leisure time pattern increase for the of facilities. Few of the parks in downtown Atlanta Negro, and as the segregation barrier is breached, it where the Negro population is primarily concentrated, can be predicted that Negroes will participate much lend themselves to this type of activity. Second, more frequently in this activity. nature walks, as an activity, appear to be closely related to past experience and education. The Negro's background in Georgia has not been one that Walking for pleasure would tend to make him interested in the wonders of nature. Most of Atlanta's Negro population originated Walking for pleasure, like bicycling, is an activity in a rural environment where the outdoors meant long in which the nonwhite rate of participation is signifi- hours of physical labor; this type of experience is not cantly greater than white in all regions of the country too conducive to acquiring an interest in nature except the West. While the difference is greatest in studies. the North Central part of the country, it is signifi- As the Negro improves his social and economic cantIy greater in the South (33 percent of the nonwhites status, and in particular, as Negro children educated participate in the South, while only 25 percent of the in adequate schools reach maturity, this type of whites do so). Among nonwhites this activity is activity should increase. The extent of the increase particularly attractive to residents of large metro- will, in large part, be determined by the adequacy of politan regions, and the same can be said for white availabld facilities. residents. Walking for pleasure, in other words, is essentially an urban pleasure. Bicycling In a large sense, walking for pleasure is a euphe- mism in Atlanta as far as Negroes are concerned. Bicycling as a form of outdoor recreation is White people engage in this form of recreationfor the particularly favored by nonwhitesin the South., Except pleasure of it; Negroes 1endAo,participate simply be- for the West, this region has by far the highest cause it is one of the few forms of recreation in which participation rate in bicycling among nonwhites; a no capital outlay is required and in which few rate which is twice that of whites in the South. By segregation barriers are encountered. As more ade- place of residence, those nonwhites who reside in quate facilities are made available and as the level of non- SMSA urban areas have by far the highest partici- income rises, the rate of participation among Negroes pation rate with males in large metropolitan areas should drop in this activity. Conversely, if more leading the way in this sex group. In days per person, park space is made available, and if there is less land days per participant, nonwhites in urban areas congestion oncity streets, white participation should outside the SMSA have the highest rate of participation, increase. 78 Camping Swimming 'Ibe tremendous growth in camping in recent years Swimming is the most popular form of outdoor ac- makes this activity one of particular importance. tivity for youngsters in, this country. The participation Drawing racial lines on the basis of the NRS report, rate for the South is the lowest of all regions, but a one finds that whites engage in camping much more gi!eat part of this difference is based on the low rate than Negroes in every region (four times as often in of Negro participation in swimming, which is only 57 the South), but the difference in participation rates percent as great as the white rate.. In the country as a for, large metropolitan areas is statistically whole, the participation rate for both whites and non- insignificant. . , . . : 1 1. ;. I whites is hig4est,. in-large,metropolitan, areas; in the The.rels, almost no.Negro camping in.rural. areas, South the rate of participation is lowest among resi- whereas the greatest.-participation among whites is dents of such areas. found in rural areas. Negroes in the Atlanta SMSA do not participate in . At present, camping (both as a group and individual swimming @nearly as actively as whites. Whites, form of recreation), in the Atlanta SMSA, is almost especially those below the -age of 21, show a con- exclusively a pleasure reserved for whites. The stantly increasing rate of participation that willprob- reasons for the lack of participation by Negroes is ably continue to rise as more and morefacilities are all too obvious; camping costs money for equipment, made available. At present, there are over 1,000 and it requires campsites. Both of these factors are swimming pools-public and private-in FultonCounty in short supply for Negroes. Assuming a long-run alone, and the number is increasing- annually in all increase in the income level and leisure time of both parts of the Atlanta SMSA.. whites and Negroes in the SMSA, it can be predicted The low participation rate for Negroes is difficult with some assurance of safety that camping will in- to explain. There is, however, some indication that crease dramatically among residents of the A ' tlanta it is caused, at least partially, by a lack of experience SMSA if additional facilitiesare made available with-, on the part of those Negroes who have migrated to in a reasonable distance of the area. White partic .i- A Itlanta from a rural area. . The Survey Research pation will, however, continue to exceed that of Center study indicates that exp erience in a particular Negroes through the study period. activity as a youth tends to extend that participation into a person's later years. Many Negroes who grew Picnicking. up in a rural area had no facilities available for swimming and thus tend to participate very little even when facilities are made available in the urban areas The South is the only region where the white partici- -to which they have migrated. pation rate in picnicking is higher than that for non- whites. The highest rate of participation among Boating nonwhites is found among those in large metropolitan areas where their national rate exceeds that of whites Boating is essentially a white sport in the South and 58 percent to 51 percent. Nonwhites in rural areas in every other region of the U.S. According to the have by far the lowest participation rates of either NRS report, 23 percent of those white persons inter- nonwhites or whites. .' @: Viewed In the South engaged in this activity during June- The lack of picnic facilities bars any substantial August of 1960, while only 3 percent of the Negroes amount of picnicking among Georgia Negroes. Since interviewed reported such activity. In the U.S. as a this is a form of re 'creation that requires little ex- whole, the figures were 24 percent and 6 percent re- pense other than transportation, any increase in spectively. Among whites, residence in metropolitan facilities will almost certainly bring about a pro- areas in the South meant a higher rate of participation. portionate increase in participation on the part of In the Atlanta SMSA boating is, for all intents and Negroes. It is . with this type of activity that the purposes, a form of recreation reserved almost ex- absence of Negro, facilities close to the SMSA is most elusively for whites. The rather formidable capital dramatically illustrated. With only one colored State outlay required for boating acts as an almost insur- park, and few other public'or private facilities, the mountable barrier to Negro participation. There is colored person simply has no place to go. another less precise, more vague reason. Boating is one of those activities that is by custom in the South Driving for pleasure closed to Negroes. Boating should continue'to increase 'among-whites Driving for pleasure is the outdoor recreation in the Atlanta SMSA but at a decreasing rate. A re- activity that rates the number one position in the South port issued by the Outdoor Boating Club of America with 45 percent of all those interviewed stating that and the National Association of Engine and Boat they had engaged in this activity. While whites par- Manufacturers 6/ indicates a deceleration in motor ticipated much more frequently than nonwhites, the sales in Atlanfa in 1959. Since this particular form great racial difference is found amongrural residents. of recreation is governed largely by facilities avail- Among those residing in large metropolitan areas, able, it can be predicted that substantial increases nonwhite participation was almost exactly the same as the rate for whites. Rural nonwhites have only about @/"Bootinq 1959" (A statistical report jointly presented by the half the participation rate of their counterparts in Outdoor Boating Club of America and the National Association urban areas and about half the rate of white rural of Engine and Boat Manufacturers, New York and Chicago, dwellers. 1960), p. 7. 79 among whites are dependent on more public access least partially because their parents cannot afford points on existing bodies of water and on new bodies of the recreational activities engaged in by,whites. water such as reservoirs. The establishment of ad- The Negro in Georgia, particularly in large urban ditional reservoirs south of the Atlanta SMSA should centers, is undergoing a very rapid transformation. mean another spurt in boating participation. Held in a position not unlike peonage for almost a An increased rate of participation (now almost nil) hundred years after his status as a slave had legally can be expedfed among Negroes as per capita income ended, the Negro has finally begun to assert his de- increases in this race. mand for .equal status in a loud strident voice. The Negro in Georgia is changing his status with Conclusions with Respect to Race each passing year. His per capita income, still appallingly low outside the urban areas of the State, The presence of large numbers of Negroes in the has increased in each of the past three decades at a State of Georgia is significant in planning recreational rate greater than that of his white counterpart. His activities. While the proportion of Negroes 7/ to infant mortality rate, once disgracefully high, is now whites has shown a steady decrease through the years , practically equal with that of the whites in the Atlanta it still represents 28.6 percent of the total population. SMSA. His death rate is rapidly declining to a point Of those persons residing in urban areas, Negroes where in the Atlanta area again it approaches that of represent 29.7 percent of the total; in rural areas the white rate. His educational level, while still 27.2 percent of the inhabitants are colored. At the much lower than the white level, is increasing rapidly present time, approximately 23 percent of the popula- among the younger aged groups. tion of the Atlanta standard metropolitan area is In most urban areas in Georgia, Negroes have colored, with the heaviest concentration being found in participated in the political process on a relatively the city of Atlanta (38.3 percent). free and equal basis for some years. In the city of The presence of such a large underpr -ivilegedgroup Atlanta, Negro members have sat as members on ap- in its population is of significance to Atlanta in study- pointive boards and in June 1961, a Negro candidate ing its recreational needs. The paragraphs above for a seat on the city council of Marietta (within the indi,eating a relatively low participation rate in out- Atlanta Standard Metropolitan Statistical Area) ran a door activities for the South as a whole, can be close second to the winner in afieldof six candidates. explained almost entirely by the fact that the majority As agriculture continues its decline inemployment, of Negroes in the South have been, and are, poorly the exodus of Negroes from rural to urban areas will educated, underpaid, have a minimum amount of continue. With that exodus will come a better educa- leisure time, and have scant recreational facilities tion, and for many, a rapid increase in earning power. available to them. When this occurs Negro participation in outdoor rec- A glance at certain of the recreational activities reation activities will increase in the entire State, and listed above clearly illustrates the recreational pat- particularly in the Atlanta area. tern of the Southern Negro. His rate of participation This change will not be as rapid as some would is extremely low in those activities that require ex- desire, but will not be as slow as have been past pensive equipment, membership in a club, or long changes in the status of the Negro. Certainly those Arips to recreational areas. Included in this category who plan recreational programs must be aware of the are boating, requiring a large capital outlay, and changing status of the Negro and should prepare for substantial maintenance costs; hunting, requiring pur- his increasing participation in such activities. chase of expensive equipment; and camping, again The fact that the SEC study found that race has a necessitating a substantial outlay for equipment. relationship with outdoor activities even when factors of income, education, and occupational status areheld The Negro participates heavily in those activities constant should come as no surprise. Certainly that are: (1) inexpensive or relatively so; and (2) recreation is a part of a cultural pattern-a pattern readily accessible in a region where many activities that is constantly changing. The culture of the Ameri- are foreclosed by segregation practices. Thus, he can Negro, particularly the southern Negro, has not drives for pleasure (38 percent participation); walks included, except in rare instances, such sophisticated for pleasure (33 percent participation); goes sight- pleasures as engaging in boating, camping, and the like. seeing (27 percent participation); fishes (30 percent The Negro has been too deeply involved in making a participation). Of these activities, only the category of living to concern himself too deeplywith such esoteric "driving for pleasure" requires a relatively large pleasures as outdoor recreation. capital outlay.. The rest are the types of activities that a segment of the Negro race has decided to that one can engage in at little cost. change that pattern is best illustrated by the de- The relatively high participation rate for Negroes segregation suits brought against the city of Atlanta in bicycle riding is confined almost entirely to the for the municipal golf courses; the suit in Virginia 12- to 17-year age category. Following that age that resulted in the closing of that State's most group, the participation rate drops to almost nothing. popular park; and the recent moves in Atlanta and One might well raise the question here of whether practically every large city in the South to desegregate Negro boys and girls ride bicycles for pleasure at municipal parks and swimming pools. Since the leadership for most of these movements is coming !@In discussing Georgia, this chapter will use the term Negro from a young element of the Negro race, and since, rather than nonwhite since Negroes comprise over 99 percent as will be seen below, it is the youth of this country of all nonwhites in this State. In 1960 the nonwhite population that most actively engages in outdoor activities, of Georgia was 1,125,893 of which 1,122,596 were Negroes. future years will most certainly show a definite 80 change in Negro participation in outdoor recreation. The median age in the Atlanta SMSA was 27.4 years Ascertaining the extent of this increase will be diffi- in 1960. This was a decrease over the preceding .cult, but a warning should be voiced that to attempt to census and is indicative of a trend now evident all project current practices by any mechanical means over the country. The great increase in population in will in all probability result in underestimating Negro the last decade Was among theveryyoungand the very demands and participation in the future. old, with some middle categories actually losing popu- lation. In the State of Georgia, for example, the AGE AS A FACTOR greatest percentage increases by age category were in the 70-and-over and 14-and-under range, with the The SRC report after studying several demographic categories in the 20- 29-year range actually losing characteristics and attempting to relate them to rec- ground. reation preferences and habits, concludes as follows: In the Atlanta SMSA 1960 data indicate population "The relationship (between age and outdoor activity) gains in the 14-and-under categories, relative losses is a sharp and striking one ... of all the factors in the 15 to 54 categories, and gains inthe-55and analyzed here, age has by far the strongest relation to outdoor recreation.ty 8/ over category. The important age groups of 19 and - under (important as being the most active participants Rather than analyzing each activity as was done in outdoor activities), now represent 39.3 percent of the With respect to race, a few general statements will - total population. This figure may be compared to the suffice to depict the relationship between age and out- 1940 and 1950 census data when the same age groups door recreation as reported in the NRS. represented 33.9 and 33.8 percent, respectively. (1) With the exception of driving for pleasure, every activity noted above, i.e., fishing, hunting, nature It might be noted parenthetically that the greatest walks, bicycling, sightseeing, walking for pleasure, gain among the younger groups occurred among camping, picnicking, swimming and boating, is en- Negroes, 43.5 percent of whom now fall in the 19 and gaged in most heavily by those persons who are fro underage categories. The figure maybe compared to M the white percentage of 38.1. The Negro gain in the 12 to 17 years of age. Outdoor recreation is very under 19 CL ategory was 7 percent from 1950 to 1960, obviously an activity of the young. while the white was 5 percent. (2) Driving for pleasure is an, activity in which age The rapid increase in the aged groups'in Atlanta is has apparently little significant relationship. Even here, however, peak activity is shown at the 18 - part of a nationwide trend. Table. B- 29 indicates the 24-age level, with a: rather sharp drop after this age consistent increase in the number of persons over 55 group in the South. years old in the SMSA. Of greatest impact is the (3) There is a partial conflict with respect to increase among Negroes. camping and nature walks between the SRC and NRS Table B-29. Percentage of persons 55 years old and over, reports. . The former states that these two activities by race, Atlanta standard metropolitan statistical area show a "curvilinear relationship with age', and re- Year Negro White Total ports greatest participation in the 30's and 401s. 9/ The NRS report indicates peak activity in camping in 1930 ................. 6.6 9.9 9.0 the 12 - 17-year age group with a sharp drop occur- 1940 ................ 8.5 12.5 11.6 ring immediately (12 - 17-24 percent participation; 18 - 24-10 percent participation); andshows the same 1950 ..... 10.8 13.6 12.9 picture for nature walks (12 - 17-27 percent partici-' 1960 ..... ......... 12.3 14.2 13.7 pation; 18 - 24-14 percent participation). Source: U.S. Census Of Population (1930, 1940, 1950, 1960). (4) With respect to place of residence, the NRS figures indicate- The median age for the Atlanta Standard Metro- A. Camping is lower in every age category in politan Statistical Are is sli ghtly higher than thatfor large metropolitan areas except in the 12 - 17-year a group where it compares favorably with all other the State at large. This difference is obviously ac- groups. counted for by the in-migration of young adults from B. Residency in large metropolitan areas means the rural areas. With better health standards and greater participation for the aged. For example, increased medical care, Atlanta can doubtless look participation by those over 65 years old is highest forward to a continuing increase in its older colored in metropolitan areas in such activities as boating, population. Likewise, improved medical care will swimming, and walking for pleasure. doubtless reduce infant mortality among Negroes. This C. Residing in large metropolitan areasmilitates reduction coupled with a birth rate higher than that for against sightseeing, picknicking, hunting and fishing. whites can only mean an increase in the number of In all activities except driving for pleasure I, the Negro children. The combination of a rather vigorous youth of the country participate more heavily than campaign for better recreation facilities now being their elders. This is true not only in those activities conducted by Negroes, added to an increased popula- tion in an age group whose rate of participation will. requiring physical stamina, but also the more sed- be -very high can only mean a greater and greater entary pastimes of picnicking, sightseeing, and walk- amount of pressure placed on recreation facilities ing for pleasure. The age composition of the Atlanta standard metro- for Negroes. politan area is not unlike that of the remainder of the The presence of the aged in Atlanta's population State of Georgia or of other metropolitan areas. poses the same problem as faced by recreation au- thorities everywhere in the United States. As that ff/SRC study, p. 42. segment of the population over 65 years old increases, 2/lbid., p. 46. As it must surely do, and as an earlier and earlier 81 retirement age becomes the practice, this problem- activities as fishing, bicycling, picnicking, and a lesser can become crucial. It would not be wise to forget demand for nature walks, sights -e-ei.ng,-boating,, and this group simply because it does not at present camping. participate at a high rate. As more and more While H60 data on income distributions are not yet youngsters participate in some form of outdoor available, the 1950 figures demonstrate all too well activity in their early years, an - increased adult the low position of the Negro even in the Atlanta area ,.articipation rate can be expected. where. he, is- relatively well off -when compared with Negro residents of rural areas. Detailed data on INCOME AND.EDUCATION income distribution are found in the appendix of this report. 12/ Suffice it here to say that 69.1 percent of The State of Georgia rates far below the national - . average in both income and education. Per capita the Negro families. in Atlanta had annual incomes of Ancome in Georgia in 1958, was $1,487, while the less than $2,000, while only 28.1 percent of the white national average in that same year was $2,057. The families were in this category. Based on the state- ment above that outdoor participation of individuals median educational level of.white Georgians in 1950 with incomes of less than $3,000 is very low, 86.3 was 8.8 years; of Negro Georgians apathetic 4.9 years. percent of the Negroes in Atlanta would be low These data should be compared with- the national partici ants; whereas among the white population, average of 9.7 years for whites, and 6.9 years .for 54.4 IP nonwhites. percent of all families had incomes of more than $3,000 in 1950, and would tend to participate much Fortunately, the Atlanta Standard Metropolitan Sta- more actively. tistical Area scores much higher on both scales. .While final figures are not yet available, preliminary OCCUPATION STATUS AS A FAMR. data for the SMSA indicates a per capita income and an educational median far above that for the remainder The SRC report states conclusively that '10ccd- 'of the State. pation shows a clear relationship with outdoor activity. The SRC repor4 in commenting on the relationship As we go down the hierarchy from professional to un- between income, education, and outdoor activities, skilled laborer, the rate of participation drops .stated: 141t does appear that upper income people and sharply."_13/ But the report then statesthat, "Multi- Ahose with more formal education make more active variate analysis indicates that-this is-due in large use of their leisure time than others." 10/ At a dif- part to income, education, and length of paid vacii- ferent point the report concludes thal-I 'Education tion.11 14/ Thus, it is not the occupational s 't4tus @ that shows a strong relationship with outdoor activity; the. deterriFines rate of participation but the concomitants higher educated being greater participants." IV , that accompany occupational status. The NRS report also indicates that for mofit-activi- An examination of the NRS data indicates that there ties there is a direct relationship between increased is an inverse relationship between service worker's and education and income and- increased participation in unskilled laborers and participation rates; in every outdoor recreation. Rather strangely, those persons activity st .udied'these two groups vied for the low spot. .with from I to 3 years of college tend to be more Clearly then, any city with a large number of service active participants than those with 4 or more years workers and unskilled laborers would probably have of college. This is tru e of camping, walking for, a low rating on any activity scale in"the area of out- pleasure, and boating. door recreation. I With respect to income, it can be posited that on The picture with respect to occupational status In the basis of the NRS report, a low income, particularly the Atlanta SMSA has, with certain exceptions, changed one of less than $3,000 annually, results in a very low surprisingly little in the past 20 years. Based on rate of participation in outdoor activities. In the the census definition of occupational groups, "pro- South the greatest participation in most activities is fessional, technical," and "craftsmen, foremen," -found in the $6,000 to $8,000 categories. In no single, groups have shown dramatic increases. Professional activity does peak participation' occur at an income and technical personnel, for example, have increased level below $6,000. from 6 percent in 1940 to 11.1 percent in 1960, . Residency in a large metropolitan. area when re- while craftsmen and foremen increased from 5 percent .1ated to income, education, and outdoor recreation in 1940 to 15 percentinl960. Aliother classifications shows the same pattern as indicated above, i.e., the have remained essentially unchanged during the last lowest income and poorest educated portion of the two decades. Service personnel, for example, re- population participates at the lowest rate in all forms presented. 8.5 pe r-cent. of the labor force in 1940, 8.4 of outdoor activity. percent in 1950, and 8.7 percent in 1960. 15/ Clerical Since the Atlanta Standard Metropolitan Statistical and sales personnel represented 20 per-cent of the Area does not differ radically from other areas of the labor force in 1940, 25 percent in 1950, and 21.9 country with respect to income, no problems peculiar percent in 1960. By adding unskilled classifications to this area are raised. Withrespectto education, the together, one can state that approximately one-fifth relatively low educational achievement level means of the labor force in the Atlanta SMSA represents in- that the participation rate of Atlanta citizens will be dividuals who, on the basis of both the NRS and SRC lower than those for other metropolitan areas. As the reports, are low participants in outdoor recreation. public education improves, however, Atlanta should 2 accept the fact that it faces a heavy demand on such L-/See app. A, Tables B-42, 13-43, and B-51. J-3/SRC study, p. 29. LO/lbid., p. 79. 1-4/16id., p. 29. L'flbid., p. 29. L5/All 1960 data are estimates. 82 The unskilled labor force in Atlanta is predominantly creased participation in outdoor activities appears colored. In 1950, for example, 12,938 of the 18,057 strong. The SRC report, however, issues a warning persons classified as laborers were Negroes; and on this point. 15,968 of the 16,719 persons classified as private Similarly regarding leisure, the assumption that househ6ld workers were Negroes. Thus, Atlanta present leisure time activity levels within socio- combines in one group those persons-Negroes and economic groups will. be maintained.as the -dis- 7@_nskilled laborers-who have very low-parti6ipation tribution of the population among these groups rates. As the economic base of Atlanta changes, and undergoes major shifts is not warranted. To be as the Negro continues his rise to a position of some- sure, it pLppears likely on the basis of current '@F thing approaching equality, this situation will probably data that more income and education will mean .change.16/ increased participation in many leisure time activ- ities. Yet it would. not be safe. to estimate the LEISURE TIME ACTIVITIES magnitude of the increase by. applying present participation rates within income and education The SRC report devotes a chapter to leisure time groups mechanically,to projected income and educa- use and outdoor recreation.17/ One of:the major tion distributions for some future year. 20/ findings of this chapter is thaf-approximately one-half There is, unfortunately, no data on the relationship of the American people do not feel a need for more be *tween race and leisure time activitiesi but based leisure time. -On closer examination, however, the on census information the Negroes inthe Atlanta data collected revealed that there is a direct relation- SMSA represent that group which is poorly educated, ship between leisure time needs and certain socio- has a low income, is more youthful thitn the median, economic characteristics. Thus, of those persons works inthose types of employment t@at offer little under the age of 45 and with incomes of over $7,500 in the way of paid vacation, and thusprobiably has little "nearly one-half said they would like to have more leisure time. free time." As age increases, the desire for more While 43 percent of American families took vacation leisure time decreases proportionately, until at the trips in the. year preceding the SRC survey, this age of 65, 21 percent of those interviewed replied percentage varies considerably with such faetors as that they had too much leisure time. 18/ income, occupational -status, and whether or not the When interviewed' as to the use@_of their leisure head of the household received a paid vacation. Itis time, a very large percentage (81 percent) listed hardly surprising to find that the higher the income television as their first preference; 66 percent listed and occupational status, and the greater the length of visiting with friends. or relatives; 63 percent, reading; the paid vacation, the stronger the likelihood -of a 57 percent, gardening or working in the yard; 46 family, taking a vacation. percent, pleasure driving; 44 percent, church or club Among the employed groups laborers and service work; and 41 percent listed "active sports" as con- workers were least likely to take a vacation. When suming most of their leisure time. 19/ it is -remembered that in the Atlanta ShISA Negroes Of especial interest to outdoor-recreation is, the represent 83 percent of these two categories, it Is fact that in the category of "active sports," fishing easily understood that Negroes take few vacations. led the list of all sports (slightly more than one of The SR C report Indicates that of those persons working every - six persons interviewed spontaneously. men- as, laborers, 64 percent took no, vacation at all,, 11 tioned fishing in the context of questions asking about percent took their vacation - at home, and only 23 activities that they engage in "quite a lot"). percent took a vacation trip. I The same relationship exists between demographic A second factor -that must be considered in assess- characteristics and leisure time use as was noted ing the recreational demand of -the Atlanta region is with respect to those characteristics and outdoor the relative lack of union activity in this area. While activities. Thus, as people grow older they engage the decline of agriculture and the concomitant increase less and less in active sports, and participate in in manufacturing has meant an increase in union fewer and fewer activities. Likewise, the more activity, the economic base of the city is still heavily education a person has had and the greater his tied to nonunion occupational groups. Laborers, serv- income, the more he is likely to make active use ice workers, sales personnel, and clerical workers of his free time. This does not mean that better represent the majority of the employment force of educated persons with higher incomes have more Atlanta, and these groups are traditionally not union leisure time (quite the reverse would appear to be oriented. true), but rather that they use what leisure time they The lack @ of strong union forces in the Atlanta ..have in engaging in more active recreation than do region means that the trend toward increased fringe their less educated counterparts with lower incomes. benefits such as longer paid vacations, raore holi- Since most studies indicatea general rise in income days, and shorter weeks, has not reached a substantial and educational levels, th.6 possibility' of greatly in- portion of the work force in Georgia as it has in other 1-.fy Bureau of Labor StatistIics data prepared for ORRRC predict regions of the country. 21/ While this picture is that by 1976 the percentage of professional and technical L'/lbid., P. 80. workers will increase, operatives will decline, laborers and '/Bureau of Labor Statistics data prepared for ORRRC show the foreTen will decline, managers, clerical and soles, will in, Atlanta SMSA rating far below the other metropolitan areas' L7 crease. See BLS, op. cit. table 10. studied (New York, Philadelphia, Chicago, St. Louis, and Los ./SRC study, p. 65, et sea. Angeles) in both the length of average vacations and in L'/lbid., p. 69. average nuinber of holidays per year. Atlanta's figure of 1.9 L9/lbid., p. 71. Footnote 21 con'tinued on next page. 83 rapidly changing and union activity will almost with the knowledge that it is difficult to assess the certainly increase, the traditional southern opposition Georgia road net by using standard criteria. In terms to such activity will certainly act as a barrier for of miles of roads, and accessibility to recreation some time to come. Thus, another warning must be areas, Georgia rates very well; practically every im- given about projecting regional outdoor participation on portant recreation facility within a radius of 70 miles the basis of national criteria and standards. of Atlanta is connected to Atlanta by a major highway. While the matter of accessibility to major outdoor The condition of Georgia's highways, on the other recreation areas within 70 miles of the Atlanta SMSA hand, does not represent as bright a picture. Caught will be discussed in the next chapter, there are sev- in the grip of a rural@dominated political scene, eral points that perhaps should be considered at this Georgia, not unlike most States, has been criticised for time. constructing too many miles of highways without The population pattern in the Atlanta SMSA is not adequate planning for future maintenance costs. unlike that of most youthful, rapidly expanding urban Critics of the State charge that-political figures vie areas; the downtown section is heavily and increas- with each other in sponsoring impressive bond issues ingly populated by Negroes. Of the 182 census tracts to build farm to market roads without giving consider- in the Atlanta SMSA, 35 contain more than 50 percent ation to what such construction will do to an always Negroes. Of these 35 tracts, 33 are in Fulton County, inadequate maintenance budget. the site of the City of Atlanta, and the other 2 are As a result of such activities, the State was forced, in adjoining DeKalb County. Twenty-four of the 35 in the 1961 session of the General Assembly to tracts Ihave populations that are 85 percent colored, authorize the issuance of $100 million in bonds for while I I contain no whites at all. Comparable figures heavy maintenance work needed in practically every for 1950 showed only 26 tracts in which Negroes section of the State. Fiscal experts quickly pointed outnumbered whites, 17 with more than 85 percent out that sound financial practices prohibit the use of colored, and none which contained a 100 percent long-term bonds for maintenance costs, and also noted Negro population. - Fifty-three of the 182 census that the full burden of maintaining the new interstate tracts lost population between 1950 and 1960. Only system will rest on the shoulders of the State. 13 of the 53 tracts that lost population were Negro Next to education, highway construction and main- districts and only 7 were in counties other than tenance is a function which consumes the heaviest Fulton. part of the; State budget. Table B-30 indicates the Surrounding the downtown district are rapidly ex- extent of highway expenditures since 1955 both in terms panding suburbs tied' to the city by a series of of dollars and in percentages of the total State ex- expressways. The major population expansion is penditures. While various suggestions have been occurring along the expressways to the northwest, advanced for reorganizing the highway department, the northeast, the east and the southeast. The pro- it seems clear that what is most needed is long range portion of owner-occupied houses and lot sizes in- planning in the construction of highways. creases in direct proportion to the distance from the downtown areas. Table B-30. State highway budget allotments.:-. 1955-1960 As will be seen in the next chapter, the major Percent of total public and private recreation areas within 70 airline Year Amount . Per capita miles of Atlanta lie in direct line with the population expenditures .expansion and on the routes of the interstate highway 1955 ..... $55,738,883.97 23.1 $16.19 system. Atlanta is currently involved in completing 1960 ..... $75,112,014.10 21.5 $21.81 its expressway and circumferential systems that, coupled with the interstate network, will make it Source: 1960 official report of the State auditor of the State of possible for a resident of the area to travel with ease Georgia. to a major recreation area 70 miles away in approxi- mately 2 hours from practically anywhere in the Atlanta CONCLUSIONS' SMSA. The onsite study made at Buford Dam, and the The South as a region tends to participate less inventory of recreation facilities made by ORRRC actively in most forms of outdoor recreation than do indicate that the overwhelming majority of Georgians other regions of the country. Only with respect to travel to recreation areas by automobile. This means fishing does this region demonstrate an activity rate that the extent and condition of the road net connect- greater than the rest of the Nation. Data indicate ing major urban areas -with important recreation that the most popular forms of recreation inthe South facilities is of great importance. For this reason, are water oriented, i.e., fishing, swfm-fiffng, -boating, an assessment of Georgia's highway system is in and water skiing. order at this time. One starts such an assessment Om reason for the-South's low activity rate may be Fao'tnote -21 continued,. found in its relatively low position with. respect to weeks of vacation rates below the St. Louis figure of 2.2 income and education; factors that bear a very close weeks which is itself much lower than that of the other metro- relationship to participation. With a per capita income politan areas. By the year 2000, the Atlanta figure on vaca- and a median educational level far below the national tion -s w-ill rise to 4.0 weeks, while the average number of average, States such as Georgia will probably con- holidays will increase to 9.1 days. In each case, Atlanta tinue to be below the national average in partici- will still-be number five in the five metropolitan areas under pation rate for some time to come. study by ORRRC. (All figures from BLS, "Estimate of the Residents of the Atlanta SMSA do not fit the pattern Decrease in Hours Worked," 1960-2000, June 1961.) found in the remainder of the State. The per capita 84 income, educational achievement, and number of The emerging Negro problem is of major signifi- skilled and semiskilled workers are all far above the ance. Tremendous strides have been made in de- average of the remainder of the State. It can be cre .asing Negro infIant mortality rates, and the death posited, therefore, that residents of Atlanta, colored rate from all causes has fallen rapidly. Accompanying as well as white, can be expected to participate far these decreases has been a comparatively high birth more actively than the remainder of , the State. rate among the colored population. These factors have The slowness with which labor unions are gaini Ing combined to produce an ever- growing Negro population ground, and the substantial portion of the labor force in the city; a population skewed toward the very that is still classified as laborers and service work- young and the very old. As the status of the Negro improves, he most certainly, will. begin to demand ers, means that Georgia and Atlanta residents do not more and more recreation facilities. No longer enjoy either the number of @ paid vacations or the prepared to accept facilities that are. not, and never amount of leisure time found in industrial centers in have been equal, the Negro race is becoming much the Northeast and North Central sections of the country. more vigorous -in its demands for an end to segrega- tion in all forms. With its rapidly expanding population and its chang- Major recreational facilities are readily accessible ing economic base, substantial changes in the derno- to Atlantans by virtue of an extensive highway net- graphy of Atlanta may be expected in the relatively work, and a planned system of interstate highways near future. Whether these changes will mean in- that will bring every major recreation area within creased participation in outdoor recreation may be easy driving distance of the city. The continuedprob- determined in part by the ability of the State and the-- lem of maintaining the highways already constructed will doubtless remain as long as political considera- SMSA to provide additional facilities. Substantial State. aid for the Atlanta area will probably not be forth- tions dictate the inefficient use of road funds. -coming until urban areas gain a greater voice in the In the next chapter the matter of existing recreation policy-making branches of the State government. areas and their use will be discussed. 85 CHAPTER THREE MAJOR RECREATION RESOURCES IN GEORGIA Having described in chapters 1 and 2 the social, interstate highway system'offer more area but little economic, and political characteristics of the south- else. Within 70 air-miles of Atlanta, there ar e 34 eastern region, the State of Georgia, andthe Atlanta rest stops on State and Federal highways. SMSA, as they are, related directly or ind irectly to outdoor recreation, attention is now turned to the STATE PARKS matter of existing outdoor recreation available to the residents of Georgia and the Atlanta SMSA. Georgia has 46 State parks comprising 54,894 This chapter will include material on the extent and acres. Thirty-seven of these parks can be classified location of major public and private recreation areas as developed and nine are undeveloped. 1/ As shown within the State of Georgia, a discussion of the on Fig. B-7 these- parks ate concentirated. around visitation to these areas, a description of @ potential Corps of Engineers reservoirs, andthe Chattahoochee areas, an examination of the governmental organization National Forest in the northern part of the State. used in the administration of the recreation function, Thus, three cluster around Lake Seminole in the and an appraisal of the sensitive subject of financing southwestern tip of the State; two are located around recreation Lake Allatoona; four around the shoreline of Clark Hill 'Reservoir; one is on Lake Lanier; and six .State-Owned Recreation Facilities are found in and around the Chattahoochee National Forest. Unlike many other States that use a manifold clas si- Before the park system is described in detail, fication of publicly-owned recreation areas, Georgia several general comments are in order. utilizes only one basic title, that of State park. (1) The State park system is water oriented. While there are several exceptions to this statement, Visitation data reveal without question that there is they are relatively unimportant both in terms of no comparison between the number of visitors to size and number of visitors.. parks without swimming, fishing, and boating and comparable data for parks with these facilities. The One exception may well be worth noting, since it NRS and SRC surveys, both of which demonstrated does attract a relatively large number of users. that fishing is the one outdoor activity in which the The exception is the roadside park. Located onevery South leads the Nation in rate of participation, give major highway, both State and Federal, the approximate additional weight to the popularity of water oriented 200 rest stops in Georgia serve two functions. From parks in Georgia. shortly after 9 a.m., the major users of such rest (2) The concentration of parks around Corps reser- stops appear, by observation, to be tourists-either voirs has meant that large areas of the State have from within or from without the State. Frequent relatively little in the way of outdoor recreation checks of selected rest stops indicate that a growing facilities. Thus, a broad belt running through the number of travelers, especially those with children, State along the "fall line', is practically devoid plan to stop for lunch, or between-meal snacks, of State parks. at rest stops. From approximately 5:30 p.m., untiL (3) The park system itself is of relatively recent 8 p.m., in the summertime, local residents use the origin, beginning in 1943, and has grown without rest stops as picnic areas. This is particularly design or long range planning. true of. those st.ops that include outdoor grills. (4) Most of the parks are too small and contain Rest stops on Georgia's highways are typically too little in the way of overnight facilities to operate very small, averaging from 50 to 100 feet in width, effectively as weekend recreation facilities. For and some 10 to 30 feet in depth. All include picnic this reason, Georgia's parks tend to be day-use tables (from 1 to 10), some include grills, and a facilities. In the last chapter of this report the small number have rather primitive toilet facilities. most effective use of a State system will be discussed Except for a very few built by civic and fraternal in detail. Suffice it here to state that under present organizations close to a city, almost none have conditions the State park system is too frequently drinking water available. The plans for the new interstate system include @/Data on all State parks ore listed in ORRRC inventory. The elaborate rest areas that comprise 1 to 3 acres, total number of parks and their combined acreage is from Na- with tables, benches, grills, and toilet facilities. tional Park Service, State Parks, Acreages and Accommoda- While rest stops are certainly a legitimate subject tions, (March 1961), p. 17. Included within the number 46 is for discussion in a study of potential recreation the Warm Springs Foundation and Little White House. Georgia facilities, they are not as presently established capable Veterans' Memorial State Park is counted only once, although of acting as anything but a brief respite for the auto- State publications list it both as a white park and as a ,mobile rider. -The larger areas planned for the new- colored park. 86 performing a role more legitimately within the Fort Mountain State Park purview of city or county parks. To illustrate this further, two State parks are actually located inside A mountain park located some 70 miles from boundaries of municipalities, two are just outside Atlanta, this park comprises some 2,514 land acres municipal boundaries, and one, Stone Mountain Con- and 12 acres of water. While limited overnight federate Memorial is within the Atlanta SMSA. facilities are available at Fort Mountain, it is essen@ (5) Budget allotments. and personnel are inadequate tially a day-use park. Overnight facilities consist to meet the rapidly increasing pressure on existing of one camp area (capacity 25 persons), a trailer facilities. camp (capacity 10 persons), and a cabin with a (6) The greatest single need at present in most capacity of 4 visitors. Pressure on these facilities State parks is for more camp and trailer sites, is described as from light to moderate. While plans are being developed for increasing The typical visitor to Fort Mountain is interested present facilities, they do not appear adequate. in picnicking, fishing, and boating, in that order. (7) The State park system is gear@d almost exclu- While some camping is reported, as is some viewing sively to summer activities. Even in those areas of historical sites, these must be considered as of North Georgia where various forms of cold weather secondary. During 1959 a total of 150,241 persons, activities might be possible, there is little or no visited Fort Mountain, with the vast majority of these attempt to formulate programs for seasons other visits occurring during the midsummer months. than summer. During late fall and winter this park is practically deserted., (8) Little if anything has been done to exploit. scenic areas and natural wonders in the park system., Present plans call for increasing the numbei! of picnic grounds and swimming areas, but there are The concept of the wilderness has been almost, no plans for increasing overnight facilities at this entirely omitted from the park programs. time. Fort Mountain is an example of a very scenic (9) Outdoor recreation per se has not been com- area that has not become popular primarily because pletely accepted by G 'eorgians as a legitimate function of the lack of modern comfortable overnight and of governanent in the sense that programs in public dining facilities. A major error is often made by health and welfare are accepted. This lack of accept- park planners in failing to develop a particular ance has meant that the political leadership of the park because of the limited number of visitors it State has been unwilling to appropriate that amount attracts. With respect to Fort Mou Intain, a well- of money sufficient to permit a planned development planned, rustic type lodge or motel (either privately of the park. systqm. or publicly owned) with a good dining room could (10) State parks are, without exception, readily mean the difference between a few visitors and many accessible by automobile. There Is little or no use visitors. made of public transportation by park visitors. With its excellent scenic trails, water for fishing 1 111) The periods of peak use in all State parks is and boating, and interesting ruins, this park should the weekend. During the week, the pressure in most become very popular. Under present plans, Fort parks can be described as "light" to @Imediumll Mountain will be approximately 20. miles from a on both day and overnight facilities. major interstate highway,. The existing concession stand operated by the park will be totally inadequate (12) Except for a relatively few isolated instances, in the near future and should be replaced. This is such as Jekyll Island for example, Georgia parks the type of area in which the State should try to serve Georgians. While present plans call for attract the attention of private motel'and restaurant increased attempts to capture a large volume of tourist representatives. It is also an area in which plans trade, the results to date have not been substantial as should be made for more effective use of the park far as the parks are concerned. An officially stated during the winter season. intention of attracting a portion of the "Florida trade" seems hardly plausible since the Florida Arnicalcla Falls State Park tourist season is greatest in the winter-a time of the year not too conducive, climatically, to stopping For scenic beauty, no other park in the State systern in most of Georgia's parks. It should be accepted surpasses Amicalola Falls. The center of attraction, that Georgia's parks for some time in the future and the basis for the name of the par .k, is a cascading will remain essentially resident recreation areas. wate 'rfall that drops a,total of over 700 feet. These. falls, part of the headwaters of the Amicalola River, Description of State Parks form a rapidly moving mountain stream that provides excellent trout fishing. There are no facilities for It is the purpose of this section to describe the swimming or water skiing. major, parks in Georgia within a 75-mile radius of Unfortunately, AmicalolaFalls park comprises only Atlanta and to give a less-detailed description of 244 acres of land area and approximately 20 acres those parks that are beyond the 75-mile radius'. 2/ of water. Although'it has overnight facilities for only 145 persons, there is only a moderate pressure on these even during the weekend in peak summer season. --@'The 75-mile radius as used here, and as used elsewhere in Present plans call for the development of 5 acres of this section, refers to air miles, not highway miles. This campgrounds, 2 acres of trailer camps, the con- scale is used because of the difficulty in arriving at accu- struction of 4 additional cabins (there are 4 now in rate highway mileage. existence), and picnic grounds with a capacity of 200 87 persons. It is estimated that 10 additional acres of the State Department of Parks, it could certainly could be developed as campgrounds, and 5 additional be considered a major asset. One would be naive, acres could be developed as picnic grounds. however, to think that either of these events will. The relatively small size of this park makes it take place in the near future. Faced with this highly questionable whether it can become, a major as sumption then, it can be predicted that the attractive- weekend facility. It should continue to attract sight- ness of Vogel will tend to diminish under the press seers at an ever-increasing rate, but the absence of visitors until basic changes are made. of hiking trails, swimming, and boating facilities will limit the number of family visits. Approximately Unicoi State Park 45,000 persons visited the park in 1959, the over- whelming majority on weekends. Unless its size is Lying 75 miles from Atlanta but easily reached for increased greatly, Amicalola Falls will probably a day's outing, Unicoi is rapidly becoming one of continue to be in attractive place to fish for trout, the most popular parks in the State system. Though and to take a Sunday afternoon picnic. very small in terms of acreage (273 acres of land, and 50 acres of water), and relatively new, more Vogei State Park than 160,000 people, including a large number from Atlanta, visited Unicoi in 1959. Lying just adjacent One of the youngest but most popular of all the to the Chattahoochee National Forest, this area Is State parks, Vogel comprises 134 acres of land area, full of scenic spots. Within five miles of Unicol, and from 25 to 40 acres of water. 3/ In terms of for example, is the Annie Ruby Falls, a fine sight visitors, Vogel rated third In the park system in 1959 recently made very accessible by the opening of a with approximately 300,000 daytime visitors and 8,000 newly paved road. overnight visitors. On its peak day 15,000 perspns spent some part of the daylight hours in this . 'very Overnight facilities at Unicoi include campgrounds, small park located approximately 75 miles from trailer camps, and 10 cabins. Total capacity at. Atlanta. present is 180 with a planned expansion to 530 within the next 5 years. In addition to the individual Vogel is one of three State parks that are leased to private persons. Under the terms of the lease, facilities, a" group campground capable of accommo- the State receives $4,500 annually. During the fiscal dating 100 persons is in constant use during the year that ended in 1959, a total of $3,584 in public summer months. money was spent on this park in spite of the lease Present campgrounds are conveniently located to the arrangement. main beach area but sites are much too close together Vogel offers facilities for swimming, fishing, pic- and provide no privacy. The same can be said of nicking, horseback riding, hiking, sightseeing, and the trailer camp. The cabins, on the other hand, camping. Present overnight facilities include 2 camp- are nicely spaced and are attractive. grounds with a capacity of 200 persons; 26-27 cabins Day-use activities include swimming, hiking, pic- accommodating 150 persons, and a lodge (The Walasiyi nicking, horseback riding (at private facilities), fish- Inn) with a capacity of 35 persons Swimming fa@cilities ing and boating. Unicoils future is limited substantially by its size. have recently been expanded and 5 acres of picnic grounds now exist. No expansion of overnight or Water acreage now provided by an impoundment cannot day.-use facilities are contemplated at present but be. increased, and the pressure on this limited acreage, it is estimated that the area could support 25 acres will continue to mount. The beach area, while of additional campgrounds and 10 additional acres attractive, is very small. Boating and fishing likewise of picnic grounds. are limited and cannot be increased substantially Picnicking, swimming, and horseback riding are the without becoming unattractive. most popular activities at Vogel during the summer. Four miles of hiking trails, and an additional 6 As is true of all Georgia parks, there is practically miles of roadway are available to the active visitor, no activity at Vogel during the fall and winter (in while the more passive visitor can picnic in the fact, Vogel closes on December 1 and opens April 15). attractive shady picnic grounds. Observation trips Facilities, both overnight and day-use, are under taken to the park confirmed that on any weekend heavy pressure at this park. Parking is a problem during the summer it is very crowded. Picnic on weekends and picnickers face an ever-growing tables, for example, are practically unavailable from competition for the limited number of tables available. noon until 3 p.m. Parking facilities, while adequate Vogel will con -tinue to be.a- ver-y po.pular pa rk- for during the week, are filled to capacity on weekends. both Georgians and tourists. Lying just off Route The popularity of Unicoi is evidenced by the fact 19-129, and offering a variety of day-use facilities, that the State received almost as much in revenue its crowded condition on weekends can only grow as it expended. Total expenditures, including capital improvements, were $32,046.91, while revenues from worse. Unfortunately, it is much too small to serve fees and rents totaled almost $27,000. as a major weekend facility, and the lease arrangement A limiting factor in the use of Unicoi is the total under which it now operates will most certainly act absence of any formal eating places either in the as a bar to any development other than more concession park or adjacent to it. The nearest place for a stands, If its area could be increased, and if it visitor to have dinner is the small town of Helen, could be once more brought under the administration several miles - away, and eating facilities in Helen are limited. The second limitation for weekend 3/6RRRC inventory lists 25 acres, but an official publication visitors is the relative lack of hotels or motels of the State Department of Parks lists 40 acres. in the area. 88 All over the northern section of the State, one finds Plans for the development of Fort Yargo include a almost a total lack of lodging and dining facilities. substantial increase in picnic facilities and some Until this gap is filled this beautiful area will not additional development of the old fort site, but little get the recognition it deserves. else. In its present state of development, the park is Red Top Mountain State Park almost useless, but it offers great possibilities for the future. Lying in beautiful rolling plateau country, A favorite recreation facility for the Atlanta SMSA this area could be built into a majorweekend camping is the Red Top Mountain State Park, located just 42 facility. By the use of impoundments, ponds sufficient miles from the center of the city and almost in at least for swimming and bank fishing could be the boundaries of the metropolitan area. While established in a short time and at a minimum cost. this park comprises only 1,457 acres it fronts on Hiking and nature trails, coupled with a substantial the Allatoona Reservoir with its 12,187- acres of game preserve of native animals could make Fort water. Over 170,000 persons visitedRed Top Mountain Yargo a very popular place. While eating facilities in 1959 with the weekend bringing large crowds all are available in neighboring Winder, they are not summer. of the type to be very attractive to visitors. The Picknicking, swimming, and boating a .re the most same can be said of overnight facilities. popular summer activities, while sightseeing, pic- With research, imagination, and some expenditure nicking, and fishing are the most popular in the of funds, the original fort could be reconstructed fall and winter. It should be hurriedly pointed out and could then becomea site worth visiting. that while the park .is used in the fall and winter, it is simply not logical to continue to expand the aIt least 90 percent of all visitations occur in the late number. of State parks when facilities such as Fort spring and summer. Yargo stand relatively undeveloped. Access to the park is adequate even on weekends Senoia State Park and large parking areas are readily available. Over- night facilities are extremely limited, consisting of More appropriately called a park area, Senoia Park one campground with a capacity of 100 persons. is a. small (9.5 acres) recreation area that has a Plans for the expansion of overnight facilities include playground, a swimming pool, and some picnic tables. campsites for an additional 400 persons and trailer Located very close to the Atlanta SMSA, this area camps for 120 persons. The area is extensive enough is leased to a private individual. No new development to develop another 20 acres of campsites. is planned over the next 5 years. Fees, rental .s, and concession stands, .amounted to Some 12,000 persons visited Senoia in 1959, with more than 61 percent of total expenditures in 1959. the overwhelming majority being residents of sur- Within 5 years, this park shouldbe on a self- sustaining rounding communities. During the week, teenagers basis. tend to dominate, but the weekend sees many families who use the swimming and picnicking facilities. Red Top Mountain is an excellent example of a I In general, it can be said that Senoia represents park that can serve both-as a major day-use facility the type of facility that the State should neither own for the Atlanta SM8A, as a fine facility for group nor operate. It is basically a commercial amusement camps, and as a moderately successful weekend center and should be operated as such. The State resource. If, as suggested later, Lake Allatoona has many. obligations in outdoor recreation but the is closely zoned for recreational activities, and if operation of local amusement parks is not among at least two additional public beaches are established, those obligations. this park should increase greatly in popularity within the next 5 years. Lying as it does, adjacent to the Hard Labor Crook State Park metropolitan area, and almost in the path of a major interstate highway, it will doubtless be a major Located an hour and a half from downtown Atlanta, day-use facility for Atlanta. Hard Labor Creek State Park must be considered a major recreational area for the Atlanta SMSA. Fort Yorgo State Park One of the largest of the State -parks, Hard Labor Creek comprises 5,186 land acres, 320 water acres, Located within easy driving distance of Atlanta and and 300 acres of marshes and bogs. Situated on comprising almost 1,500 acres, Fort Yargo State rolling woodland, this park is extremely popular Park is an excellent example of a facility in which both as a day-use and group camp area. Two a total lack of development has meant almost a group camps, Camp Rutledge and Camp Daniel Morgan, total lack of visitors. While data on visitation is bring large numbers of youngsters to this parkduring not available it can be estimated that only a small the summer period. number of people visit this park.* With no over@ Planned development of this park rates a high night facilities except for a very small Scout camp, priority. Overnight facilities are to be expanded with only limited picnic grounds, about all Fort Yargo to accommodate another 250 persons per night while can offer are the ruins of a Revolutionary War 25 additional acres of picnic space will accommodate Fort-ruins that are neither very attractive nor another 1,000 participants in this ever-growing pas- very interesting. Sightseers and picnickers, many time. According to a representative of the State more of the latter than the former, visit this park Department of Parks, another 500 acres of camp- from the surrounding community. grounds, 100 acres of picnic grounds, and 5 acres 89 of swimming facilities could be developed at Hard This. park has great potential. With 7 miles of Labor Creek. roadway now available for hiking, a rolling attractive Day-use activities at Hard Labor Creek include topography, and a convenient location (Columbus, swimming (the public beach leaves much to be desired), Atlanta, and the Warm Springs Memorial), a great .picnicking (tables presently are too close together), increase in visitors can be expected if picnic, camping, 13. miles of hiking trails or roadways, boating, and swimming, and parking facilities are rapidly expanded. fishing. It has been estimated that the park could support While the presence of large group camps in this another 25 acres of campgrounds and a like number park make it less attractive as a weekend site for of picnic grounds. Unfortunately, the lease arrange- family activities, it is large enough to accommodate ment under which the park now operates militates at least five times the total of 66,126 persons who against any expansion -of these types of facilities. visited the park in 1959. There are areas that can be Until the F. D. Roosevelt Park is once again under set aside for pioneer camps, but such areas cannot the direction and operation of the State, it will be very large. continue to be essentially a group camping. site . Another factor militating against this park becoming with a heavy influx of local residents into its picnic a major weekend 'area for the Atlanta area is its and swimming areas. proximity to several urban areas whose residents tend to use it as a swimming and picnicking facility. Indian Springs State Park An example of this trend is found in the large number of residents of Athens (35,000-40,000) who travel Located on a major highway only 50 miles from the 35 miles to Hard Labor Creek; Madison (2 680 downtown Atlanta, Indian Springs could, with sub- population) is only 10 miles from the park; Win@er stantial additions, become, a major resource. At the is less than 20 miles away; and Covington (8,167 present time it serves prin-barily as a day-use population) is approximately 15 miles away. Pressure facility for surrounding communities. With a large on. picnic grounds, in particular, must be -designated lake, an historical site (the springs that give the as,heavy on weekends. As.long as Georgia's munic-m 'Park - its:, name),. and @ two every @. large. picnic areas, ipalities -and --counties do such an inadequate job of the @ park receives , its . heaviest use on @ weekends providing..recreation facilities for their -residents, duringthe summer season. State facilities will be forced to meet,these needs Although almost, 100,000 persons,, visited -the park rather than@ performing a more suitable role. as in 1959, its -location (about midway between the weekend facilities. Atlanta SMSA. and the Macon SMSA) indicates that, with the addition of a planned swimming area and an expanded camping and picnic area, the number Franklin 0. Roosevelt State Park of visitors should double within 5 years, and continue to.increase rapidly in the next 20 years. The most popular park in the 'Georgia system in In the case of Indian Springs, one wonders again terms of visitors is the F. D. Roosevelt Park at about the efficacy of the State offering what is .Pine Mountain. Comprising 5,003 land acres and essentially' a day-use facility for surrounding local 60 water acres, this park 'was visited by 3,51,000 communities. If Indian Springs is to remain a picnic persons in 1959 (overnight visitors totaled an amazing and swimming area, there is really little need for 75,000-by far the greatest of any State park). State operation. Jf 'it is to be developed into a major Overnight facilities presently existing 'consist of a overnight camping area, possibilities of conflicting campground for 100 persons; a trailer camp for 50 interests of campers and day-use visitors remain persons; two large group-type cabins; and an inn rife. ' Overnight visitors who find their' areas with a capacity of 25 persons. inundated by thousands of Sunday visitors will tend Situated very close to the Warm Springs Memorial and Callaway Gardens, the F. D. Roosevel .t Park Ao look elsewhere on future trips. The State, has, to date, operated all parks in the same manner, draws heavily from the Columbus metropolitan area i.e., open to all visitors. Asoutdookactivityincreases, less than 50 miles away, but also attracts many however, this type of operation will not be possible. Atlantans from 90 miles away (F. D. Roosevelt Park What must be done is to divide the State system into lies within the 70 air-mile radius.). Pressure on.all those parks whose location close, to urban areas facilities, camping, picnicking, swimming, and parking makes their use as day facilities very'appropriate, is rated as "heavy" during the week and "very and those parks whose location far from urban areas heavy" on weekends. makes their use. as weekend, facilities more logical. This park, like Vogel and Senoia, is leased out Under this division, Indian Springs would probably for private operation. Georgia must be unique in become a day-use facility. that the two parks that are the most aftractive.in terms of visitors are both leased to private individuals. Stone Mountain Confederate Memorial Park Net return to the State for this very popular park appears to have been $2,076.04. Now in the developmental stages, Stone Mountain During the recently completed session of the Park has.. been the object, of continuing controversy Georgia General Assembly, legislation was introduced through the years. Planned around a massive out to lease or sell a segment of F. D. Roosevelt Park cropping of granite said to be the largest in the world, to neighboring Callaway Gardens'. While this threat this park has, been caught between diverse and was turned back in 1961, there is every reason to conflicting views on the most efficient or profitable believe it will rise again.. way to utilize its great potential as a scenic.wonder. 90 The history of this area reads like an Alice- Because of its relative isolation from large urban in-Wonderland story. On two different occasions in areas and its size, Magnolia Springs offers distinct@ the past, decisions have been made and sculptors possibilities for both individual and group camping. hired to carve a memorial on the face of the mountain If a decision in this direction is contemplated, the depicting a moment of glory for Confederate forces. present day-use facilities, particularly swimming and In each case, however, the commission charged with picnic areas, should be reserved for the public administering the project and the sculptor disagreed and new facilities should be established for camping or the - commission ran out of funds before the areas. project was finished. The net result at present is a partially completed sculpture on the face. of the Veterans Memorial State Park mountain-a sculpture that will probably never be finished. One of the two State parks that have separate Present plans call for a lift to the top of the areas for whites and Negroes, the Georgia Veterans mountain, -picnic - areas, swimming @ and boating Memorial Park is located on Lake Blackshear in the facilities, museum, gift shops, and concession stands. south-central part of the State. This is the second The 3,000 acres that comprise,this park lie within most popular park in the State and was visited,by the Atlanta. SMSA andwill be connected to.the - downtown over% 316,000 persons in 1959. Overnight facilities area by a modified: expressway.%' While,Stone.Mountain- consist of two campgrounds with . a total capacity is , being developed; essentially -as a.tourist attraction, - of 60 persons and 10 cabins that.@will accommodate it -will serve the residents, of. *the, SMSA as a major- 40 persons. Planned. expansion includes-increasing day-use facility for swimming, and picnicking. 4 camping capacity to 160 and adding a, trailer camp . The cost of developing this park is so great and for 50 persons. the controversy surrounding it so deep, that a decision Day-use facilities include swimming (to be expanded was made to administer it through a, commission from one to three areas), picnicking (also scheduled rather than through the Department of Parks., While, 'for a large expansion), boating, and fishing. A this proliferation of administrative agencies will be restaurant is located on park grounds; horseback commented on in more detail in a later section, riding and plane rides are available. it can be said here that the danger attendant on the Veterans Memorial is capable of sustaining sub- use of semi-independent agencies in the recreation stantial development in all its facilities. Park depart- field are serious enough -to warrant grave consider- ment officials estimate that campgrounds sufficient ation for the future. There is, of coursei little. to handle 2,500 persons are possible, while picnic possibility of returning the administration of Stone and swimming facilities could be increased at least Mountain or Jekyll Island to the Division of Parks. tenfold. While land acreage is limited (1,300 acres), Not only are there vested interests now involved, it is sufficient to accommodate a large expansion. but a public outcry: would doubtless occur if a Care will have to be taken in water -sports, however, change were suggested. A warning should be advanced, since Lake Blackshear is famous as a fi8hing spot however, about extending the authority device in the of great renown. Unless zoning is applied, a growing future. controversy between motor boating, water skiing, and fishing could well occur at this facility. More Distant State Parks Uffleocmulgee StatePark Ile remaining parks in the State system are all some distance from the Atlanta area, and must be Located some 170 miles south-southeast of Atlanta, considered peripheral in any study of outdoor facil- the Little Ocmulgee is a substantial park of 1,397 ities for that area. For this reason, the description acres. bordering on a sizeable lake that offers of the following parks will be much less detailed. swimming, fishing, boating, and water skiing. Over- night facilities include a campground (capacity 75), Magnolia Springs State Park a trailer camp (capacity 50), cabins (capacity 36), a lodge, and a number of scout huts. This is a very pleasant 1,106 acre park lying.some In 1959 this park attracted almost. 100,000 persons;- 200 miles east-southeast of Atlanta. Its central some @,ooo of whom were overnight visitors. As is attraction is A mineral spring, that forms a large- true of all Georgia parks, this is essentially a pool of extremely clear water in which marine life summer facility and its peak use occurs on the is clearly visible. Visited by over 90,000 persons weekend. Pressure on facilities varies, but at present in 1959, it,is essentially a day-use facility built can be classified as moderate. Expansion of camp around swimming and picnicking resources. Pressure and trailer grounds is planned to raise the overnight on all facilities is moderate during the week but capacity from 155 to 305. No expansion of day-usre becoffies very heavy on the weekend. facilities is planned for the immediate future, although Planned expansion will increase camping facilities the park is capable of substantial development. With to a maximum capacity of 300 with additional space good 'planning, this park, relatively 'isolated from for 75 persons in trailer'canips. Existing camping urban areas but easily accessible, could become a sites tend, as do practically all camping facilities fine camping facility. Any great increase in the in Georgia's parks, to be e@tremely close together. scout encampment would prohibit a like increase in Planned additions will use the standard four sites family camping. Here, again, a decision must, be to the acre-a vast improvement over present . made as, to the advantages of group camping versus standards. individual camping. The character of the topography 91 militates against the use of any of this park as a is felt that this park could, without difficulty, increase wilderness area. its camping facilities tenfold, double Its picnic It should be noted parenthetically that the Little facilities, and triple its swimming area. Oemulgee Park was one of the few State parks that Favorite summer activities at Kolomoki include actually showed a profit in 1959. Total expenditures picnicking and swimming, while the usual fall combi- were $2,500, while total receipts were $3,079.54. nation is camping and viewing the mounds. Jefferson Davis Memorial State Park Chehaw State Park Located in the south-central section of the State, Located only a few miles from the city limits of the Jefferson Davis Memorial State Park consists Albany in southeastern Georgia, Chehaw State. Park of only 13 acres built around a Confederate museum. is primarily a day-use recreation facility for the There are no overnight or day-use facilities other residents of Albany and surrounding communities. than the museum and a relatively small picnic While a campground does exist and there are plans area. It can be anticipated that this parkwill continue for doubling its capacity, the favorite recreation to attract a small number of visitors a yearbut activities are picnicking andswimming. Peakuse that it will not increase in popularity in any great occurs on summer weekends with very little activity degree. in the fall and winter months. This park may, within the next 10 years, be sur-. Reidsville Park Area rounded by the growing suburbs of Albany. If this ,should happen, and all indices point in that direction, The Reidsville Park Area, located within, the city the Reidsville Park area situation may well be limits of Reidsville, Georgia, poses a problem of some duplicated, with even more far-reaching effects since importance in the future. development of the Georgia the total investment in Chehaw is substantially greater. park system., This small (120 acre) facility has all Any developmental plans should take this matter intd the characteristics of a municipal park, e.g., swimming account. Long-range planning probably should em- pool, playground, picnic area. While there are camp phasize group camping, hiking, and other day-use and trailer facilities, they are used only lightly. activities rather than increasing overnight facilities Expansion plans for the next 5 years include the for , -individuals and families. The physiographic development of campsites and trailer camps sufficient features of this area provide excellent possibilities to accommodate 125 additional persons nightly, and for flora and fauna refuges. an increase in the picnic area. 'Laura S. Walker.State Park Serious questions should be raised concerning this type of park. While only two of the parks in the State system are now inside municipal boundaries, the The Laura S. Walker State Park, located 10 miles possibility of several more -occupying this status east of the city of Waycross in southeast Georgia, is is almost a certainty with the expansion of urban a major group camp facility for the southern part of areas. There may well be circumstances that require the State. Overnight facilities,..including group camp the State to finance municipal parks, as for example, facilities, have a current. capacity of 778 with plans those instances when a State development or program for expansion to almost 1,200. Pressure on over- inundates a small town (the Federal "impacted night facilities is termed moderate at present, but area" program is the best analogy), but these should there are indications that this park will grow in occur only very rarely. In the case of the. Reidsville popularity in the very near futt&re. area, it is recommended that the State seriously At present gr-Qup campAK, water skiing, and swim- consider transferring this park to the appropriate ming are th6,, mMzt@oopular summer activities at local governing bodies. Laura S. Walker Park. The small area encompassed by this park (160. Kciomoki Mounds State Park acres of land and 160 acres of water) preclude any extensive development of activities requiring large One of the most interesting parks, and the only tracts. Its proximity to- the Waycross urban area archeological area in the Georgia system, is the again raises the question of whether extensive over- Kolomold Mound State Park located in the southwestern night facilities should be developed in State parks section of the State, Built around one'of the largest that are located close to large municipalities. In Indian mounds in the Southeast, and a museum, this the case of Laura S. Walker, consideration should 1,283-acre park is a favorite group and family be given to extending group camp facilities but not campground. In 1959 over 2,000 persons spent the individual or family campgrounds. This park will' night either in tents or trailers. Total visitation in increasingly be used by Waycross residents for day-. 1959 was approximately 150,000. use activities, such as picnicking, swimming, and With a substantial lake for boating, fishing, and water skiing. It should not be planned as a major swimming, and attractive picnic areas, Kolomold weekend facility. Mounds attracts a large number of local residents on Saturday and Sunday. During the week, group Stephen C. Foster State Park campers, and those interested in viewing the mounds and the museum tend to dominate. While current Lying on the edge of Georgia's famous Okefenokee expansion of. plans are modest in, the extreme, it. Swamp, the Stephen C. Foster State Park is primarily. 92 a fishing camp. Open the year-round and used all Bainbridge Park Area 12 months, this 80-acre park was visited by 13,000 persons in 1959. Visitors come to fish and to This small park of only 7 acres is located inside sightsee both in the summer and winter. Extensive the municipal boundaries of the city of Bainbridge. camping occurs here with pressure on overnight Present facilities include a concession building, facilities designatedas "heavy" onweekends. Present picnic areas, a few hiking trails, and limited boating overnight facilities include a campground (capacity and fishing areas. There are no current plans for 40), 1 trailer site (capacity 4), 3 cabins (capacity extending the facilities or the acreage of the park, 20), and a large bunkhouse that sleeps 36. A small and it is recommended that none be made in the expansion in camping facilities is planned. future. Private services available in the park include This park. area is similar in most respects to the. lodging, food, fishing equipment rental, and guide Reidsville Park Area. Both are located within mu-@ service. nicipal boundaries, and both serve almost exclusively The unique location of Stephen Foster Park should as day-use facilities for the residents of the munici- not be spoiled by extensive development. While palities within which they are located. In neither @this park does riot meet the usual definition of a case is there enough acreage in the park areas to wilderness area, it is certainly one of the unspoiled expand presently existing programs or activities. spots left in the State. While present facilities are As was noted above, with reference to the Reids- .strained by weekend visitors, it would be a mistake ville Park Area, serious consideration should be to enlarge upon them. There are very few places given to transferring this type of facility to the local left for the citizen of Georgia to view the flora and governments involved. The State of Georgia has the fauna of the Okefenokee in relative quietness many needs in its park system; it cannot afford. and comfort-the Stephen C. Foster State Park should to expend its limited resources on municipal remain as one of those places. playgrounds. Unless the State divests itself of these small Crooked River State Park urban park areas, it is open to a wave of requests and protests from cities that do not have State parks The only park in the Georgia system other than within their boundaries. The city of Athens, for* Jekyll Island that offers salt water fishing is the example, has a relatively small park area just inside Crooked River State Park. Located on the bank of the city limits. Hampered by inadequate funds, this the river from which it takes its name, this park park has been only partially developed. with a very has not as yet attained the popularity@that will certainly small, and most inadequate, collection of cages come to it. Overnight facilities that include 10 containing several species of animals and.snakes. modern vacation cabins with a total capacity of 38 What would the State's reaction be if the city were to persons are under only moderate pressure even on offer this facility to the State for development as a weekends during the summer. Planned increases State Park? Logically, the State could not refuse in camp and trailer facilities will probably not be since it now. operates parks in some cities. undertaken until the pressure becomes much greater than it is today. . Jekyll Island A part of the reason for the comparative lack of popularity enjoyed by this park is its location, some The largest park in Georgia is Jekyll Island State distance from any major highway. Another is the Park, the star of the system. This park, comprising presence of much more widely publicized recreation over 11,000 acres, is operated by an authority not areas to the north and to the south. If Jekyll Island by the Department of Parks. Located a short dis- is to continue to serve the needs of higher income. tance from .the coast, j .ust south of. BrunswiQk,, groups in Georgia, Crooked River certainly offers Georgia, this island was purchased by the State for excellent possibilities for lower income groups. $640,000 in back taxes shortly after World War II..: Any, increase in camping facilities will require Publicized as a vac -ation spot for all Georgians, it additional swimming pools and picnic areas. has instead been developed essentially as an ex- tremely attractive recreation area for those Georgians Seminole County State Park and non-Georgians whose incomes permit them to pay the relatively high prices and fees charged by This park is a typical reservoir facility used the motels and restaurants on the island. 'Since: essentially for swimming, boating, water skiing, and Jekyll Island is described in some detail in a later. Jishing. Located on the shore of the Jim Woodruff section of this report, suffice it here to saythat Reservoir in southwest Georgia, it attracted over, Jekyll Island will probably become a very, very 150,000 visitors in 1959. While it does have moderate popular summer recreation area for well-to-do overnight facilities, and a small expansion is Georgians, and will become a major convention contemplated, its greatest attraction is as a day-use attraction. facility for outdoor activities. Too small (175 acres) to be extensively developed, it either should be Cloudiand Canyon State Park enlarged in area or consigned to remain essentially. a day-use park. If the latter course is taken, present Located in the extreme northeast tip of Georgia, plans for expanding swimming and picnic areas should some 120 miles from dowtown Atlanta, this park be undertaken very soon. comprises some 1,377 acres of Georgia's most 93 attractive mountain scenery. r1be lack of any water While Black Rook Mountain State Park is only 120 for swimming, fishing, or boating keeps this park miles from Atlanta, its visitors include very few from being one of Georgia's popular areas. While persons from the Atlanta SMSA. there is only I campground with a capacity of 25 people and a trailer camp that can.accommodate 20 Victoria Bryant State Park more persons, the pressure on even these limited facilities is only moderate during the heaviest part Lying along the banks of a tributary of the Broad of the season. A picnic area of approximately 3 River, the Victoria Bryant State Park comprises acres has not been expanded in 10 years essentially only 45 acres. In the total picture of rthe State sys- because of a lack of pressure. Future plans call for, tem, this park is insignificant. Too small to be additional campgrounds (4 acres -with a capacity of developed extensively, it is, and will remain, a small 40 persons), trailer camps. (4 acres with a capacity area. used by local fishermen and picnickers. The of 25 persons), and picnic grounds (5 acres with a State has nolmmediate plans for its development and, capacity of 100 persons). It is estimated that another in fact, should not spend'Any appreciable amount. 10 acres of campgrounds and, 5 acres; of picnic This park can do nothing but serve as a local area grounds could be developed In this park if funds were for surrounding towns and @villages,: a. service that made available. the State cannot.now afford..." With the Hartwell Res- Some 40,358 people visited this -.park. in 1959 with ervoir now open. only a, short distance, from.Victoria. , approximately 3,000 overnight. visits. While the Bryant public money should be expended in that area heaviest part of the season for Cloudland.. Canyon rather, than on this inadequate facility... is from - April through September, this - park , does. attract sightseers during all months of the year. Nancy Hart State Park The typical visitor to Cloudland is one who comes to picnic, to hike along its many trails, and to tent The Nancy Hart State Park, consisting of only 5 (this. is individual not group camping). Camping is acres, is not a park in the traditional sense of the permitted only in designated areas, but again the word, but is, instead, an historical site. The area pressure on overnight facilities is.so light that the is relatively undeveloped and probably will remain limited facilities are adequate. so. Other than. the historical site, it contains only Cloudiand Canyon' is a perfect example of an area a small picnic area, and serves essentially as a that should be retained as serniwilderness. Now picnic area for local residents. relatively off the beaten pith, this park will be within 30 miles of an arm of the interstate highway Bobby Brown State Park system. Unless action is taken to protect it, the .park could become very Ipopular as a day-use area Located on the Clark Hill. Reservoir, the Bobby with all the concomitant disadvantages this entails. Brown State Park comprises 632 acres and was While additional campsites should be provided, this visited by something over 13,000 persons in 1959. park' should. be retained basically for pioneer, or Still relatively undeveloped, this park has substantial rough camping. overnight facilities that are only lightly used at present. State officials obviously expect the park to Black Rock Mountain State Pbrk become more popular since plans exist to double overnight facilities within the next 5 years. , Located in the mountains at the northeastern, tip. Day-use facilities include picnic areas, a large of Georgia.' Black Rock Mountain State Park,gets its swimming area, and boating ramps. Summer visitors n.qTn from a mountain peak that reaches some 3,800 combine picnicking, boating, and fishing, while fall feet. The park itself comprises 1,141 acres of land visitors camp and. fish. Swimming and picnic facil- area and there are no stream or' lakes. This is ities are planned that will more than double present essentially a -picnicking and camping area which was capacities. visited by over 7.0,000 persons in 1959. Overnight Since Bobby Brown Park is some distance from facilities are limited to one, campground with a any large urban area, and is too far from Atlanta to capacity of 25 persons. be considered in any detail, suffice it to say that A visitor to Black Rock"Mountain State Park can this park will doubtless become very popular as a ,drive on a paved road to the peak, of the mountain major water sports area. where a parking area permits him to view the sur-' rounding country side. Since there are no trails for Alexander H. Stephens Memorial State Park hikin , such a visitor, would probably have a pi cruc lunch at one of the two picnic grounds then go home. Consisting of 1,147 land acres and approximately While. relatively large in area, this park's terrain 28 acres of water, the A. H. Stephens Parkisbuilt bars it from becoming a major recreation facility. around the restored home of a famous Georgian. Present plans call for an expansion of camping facil- Although relatively close to the Atlanta metropolitan ities to accommodate an additional 200 persons and area (100 miles) it is not considered a favorite by an expansi@n of picnic facilities to take, care of an Atlanta residents. This park is best known for its additional 50 visitors. While the area is developable group camp facilities, which in the summer time for a largeincrease in camping facilities,, the ab- represent the main part of, the visitor load. In the sence of surface water militates against this park fall and winter, picnicking and fishing lead -the list becoming a major facility in the foreseeable future. of visitor interest. 94 Since this park attracts only a relatively few George Washington Carver State Park people from the Atlanta SMSA no detail need be given on it. Suffice it to say that present plans call- The only colored park within a reasonable distance for an expansion of camping and -picnic facilities, of Atlanta is the George Washington Carver State Park and the construction of an additional swimming pool. located on the Allatoona Reservoir. L This 345-acre The future of A. H. Stephens Park appears to lie -park has a campground with a capacity of 140 persons. with group camping. Its location, only a relatively There are no trailer cLamps, no cabins, and no lodges short distance from the Clark Hill Reservoir, where or inns. All services such, as food, equipment rental, boating, fishing, and other water sports are readily grocery stores and the like are provided by private available, means that it is likely to be bypassed by concessioners. Approximately 10 acres of water are most weekend vacationers. set aside for boating, fishing, water skiing, and swim- Attendance in 1959 was 48,000 for the daytime; ming. Two picnic areas totaling 5 acres are heavily 9,100 overnight. Peak day visitation numbered 1,200. used especially on weekends. Use of campgrounds, parking areas,, and picnic gr@unds, is, for the most part, only moderate. Planned expansion for this facility include camp sites for 100 persons, 6 acres.of picnic grounds and Elijah Clark Memorial Park an additional 4 acres of swimming area. Park officials estimate that this park could be developed to accomo- date another 100 overnightguests, but such an increase Elijah Clark is a very small park in terms of land area (217 1acres) but it fronts on Clark Hill Reser- will probably not occur any time m the near future. .voir. It is- primarily a spot for campers,fishermen, . While more than 60,000 persons visited George Washington. Carver in 1959, pressure on most facili- and persons interested in boating. Since Clark Hill ties, except picnic areas, is termed moderate bypark Reservoir offers excellent fishing, this Park attracts officials. Favorite summer activities at Carver are Persons from a wide area and.once was very popular swimming, picnicking, and fishing,. inthatorder,,while with Atlanta joutdoorsmen-., The convenience of Alla-. fall. and--minter: sports, are. limited Ao ftshing,,and toona and. Lanier, reservoirs @ hasmeant a, diminution of.visitors from,Atlanta, but-total attendance atElijah sightseeing. Clark continues,: Ao: increase, z.eaching more than The - fact that@ this is the only Negro park within 100: 150,000 in 1959. miles of the heaviest concentration of colored people Present plans call for an expansion of camping in Georgia raises serious questions@'as to how,ade- facilities to accommodate an additional 300 persons, quately this State is meeting its responsbility to a a trailer camp. with a capacity of 150, and an enlarge- large segment of its population. Certainly, if one ment of both picnic and swimming areas. looks at any dornbination'of numbers of people versus The future, of this area'appears quite clear. It will numbers of'parks, or acres of parkland, the Negro continue to be a sportsmen's facility during the week facilities show a strong deficit. There is, however, with a heavy visitor load on Sunday for boating,. water another side of, the argument that must be examined. skiing, swimming, and picnicking. Its attractiveness As long as the rather limited facilities at Carver are for Atlanta residents will increasewiththe ,completion used only moderately, there is reason to argue that of a section of the interstate highway running relatively additional facilities'are not needed. close by, Put the park cannot be considered a major facility for the Atlanta SMSA. Thus, park division personnel are faced with a very important decision. Data from the Survey Research Other Facilities Center study indicate that. the availability of a rec- reation resource increases outdoor activity in most areas. Following this train of thought one would Con- In addition to the ab6ve-described parks, Georgia clude that additional facilities close to Atlanta would 'has nine parkii that are in an "unimproved status." increase the participation rate of Negroes. 'Con- These parks spread 'fairly evenly around the State versely, the Survey Research Center study indicated totaling 5,768 acres. Of -particular interest to the that Negroes . partic.ipate in outdoor activities less Atlanta SMSA is Lake Sidney Lanier Park on Lake actively than whites even whenfactors such as income, Lanier. This 1,028-acre area is now open!for fishing education, and occupational status are held constant. purposes but has no f a6ilities as yet. When improved, .On the basis of this finding one" would conclude that . Lake Sidney Lanier Park will be one of the most popu- additional facilities close to Atlantawould not increase lar areas in the system in terms of visitors. Two other the participation rate of Negroes to any great extent. parks, * Cook and Colquitt, and Mistletoe (1,500'and 1,773 acres respectively) offer distinct possibilities Regardless of the arguments advanced, one indis- as weekend recreation resources. putable fact remains: there is only,one small (P45 acre) State park. with limited facilities 'to serve th 'e 230,000 Negroes of the Atlanta SMSA. The nearest Colored State Parks park to Mlinta other than Carver is Keg Creek Park over 165 miles away. While it. is trdethat Negroes in 'In addition to the colored areas at Jekyll Island and the past have not been active participants in outdoor the Georgia Veterans Memorial State Park there ate activities,' they are.'presently undergoing 'a rapid five State parks reserved exclusively for Negroes in transformation and are increasingly adamant in their Georgia. demands for equal treatment. 95 Yam Grande State Park Federal Facilities in Georgia Located 175 miles from Atlanta, fam Grande is In terms of acreage and visitation, Federal outdoor 'strictly a day7use facility. Comprising only64 acres, recreation facilities in Georgia are far more im- Yam Grande has no overnight facilities and only very pressive than State facilities. Even by omitting the limited day-use facilities (a swimming pool, bath- wildlife refuges and the game and fish - management house, and small picnic area). There are no plans areas, and counting only national parks, monuments, for expanding either the overnight or da y-use facili- forests, and reservoirs, Federal facilities total ties. Yam Grande will doubtless continue to serve as 1,080,155 acres that were visited by 10,859,6ZI a recreation area for the residents of Swainsboro and persons in 1959. surrounding communities. Visitation figures for Federal areas, while probably more accurate than most recreation estimates, are,. Keg Crook State Park nevertheless, open to some question. There is no evidence, for example, to indicate whether the data The largest of all Negro parks is located on the for the Clark Hill Reservoir includes or excludes the Clark Hill Reservoir. Its total land area of 957 acres visitation figures for the several State parks and offers. excellent opportunities for development, but private encampments in and around that reservoir. -there are no plans for any improvement at present. Additionally, there are discrepancies between figures furnished by the Corps of Engineers, the Forest Overnight facilities at Keg Creek are limited to Service, and the statements furnished on ORRRC's one unimproved campground, and no plans exist to Inventory of Designated Nonurban Public Outdoor expand or improve this campground. Day-use facili- Recreation areas. This section of the report will ties consist of a picnic shed, a picnic area, a boat use data furnished by Federal agencies where such landing ramp, and a beach area. Favorite surnmer data are available; where data are lacking, inventory activities at this park are picnicking, boating, fishing, figures will be used. and swimming. No facilities are overcrowded accord- to State reports. NATIONAL FORESTS Fairchild State Park While Corps of Engineers reservoirs are themost popular recreation areas in the State today, the two Located on the shores of the Jim Woodruff Reservoir facilities that, in the long run, will be the most in southwest Georgia, Fairchild Park is the newest of valuable resources to Georgia residents are the the State parks. Comprising some. 309 acres, this Chattahoochee and Oconee National Forests. park @ has no overnight facilities and only limited day- use facilities consisting of a picnic shed, swimming Chattahoochee National Forest .area, and a picnic area. Unlike most of the colored parks, Fairchild is scheduled to receive some im- Stretching across the northern part of ,the State, provements. A campground with. a capacity of 75 the Chattahoochee National Forest covers 676,655 persons, 5 acres of picnic grounds, and 3 additional acres of land and 3,672 acres of water. Of the 3,672 swimming areas are planned for development within acres of water, all are open for boating and fishing, the :next 5 years. Park officials estimate that an ad- and 3,422 acres are open for water skiing. ditional 25 acres of campgrounds could be developed Day- use activities on 3 7 improved recreation areas if desired. include hiking over 100 miles of special trails and 465 miles of roads; swimming at 5 different areas Lincoln State Park covering 8 acres; picnicking at 32 sites covering 103 acres; sightseeing at 5 different observation sites and This is a small day-use facility located in the eastern one archeological site; boating, fishing, and water part of the State almost 200 miles fromAtlanta. Picnic skiing; and.hunting in season over the entire area. and swimming facilities are available as"are hiking Overnight facilities include 12 campgrounds with a trails in limited number. No plans were reported to total capacity of 600, a trailer campfor 45, and a lodge improve or expand existing facilities. capable of housing 175 persons nightly. , Plans for expansion include 90 additional camp- grounds for 1,350 persons, 30 trailer camps to de- Other Colored Facifites commodate 450, 75 picnic areas, 3 swimming beaches, an archeological site, and an historical site. In ad- At both Jekyll Island and the Georgia Veterans dition to these immediate plans, it is estimated that Memorial State Park, areas and facilities have been the forest could support campgrounds for an additional set aside for Negroes. Since neither of these parks 30,690 persons,, picnic, areas for 28,320 persons, and is within 200 miles of Atlanta, these facilities will not 87 swimming beaches. be described except to note the absence of overnight In 1959, over 1,169,000 persons visited the Chatta- facilities at Memorial Park and-,conversely ,the pre- hoochee during the day, with over 100,000. of these sence of a Negro motel at Jekyll Island. It is doubtful spending at least one night at one of the camps.. It has that either of these areas will be substantially im- been estimated that on its peak day (usually July 4) as proved in the near future. many as 15,000 people visit the forest, while the usual 96 summer weekend'sees 9,000 visitors. While fishing Oconee National Forest and hunting take place throughout the year, the Chatta- hoochee is basically a summer vacation spot. During, A large expansion of the Oconee National Forest the winter, a visitor can travel for hours through the raised the total acreage of this facility to 96,066 forest without meeting another person. acres, of which 95,979 are land, 37 acres water, and The typical summer visitor combines picnicking, 50 acres swamp or marshland. swimming, and sightseeing activities, while the fall Located approximately 70 miles from Atlanta, this and winter visitor hunts, camps, and enjoys the sights. resource is for all intents and purposes undeveloped. There are no overnight facilities although rough During 1959, 2,315 acres were added to the forest camping is permitted, no swimming beaches, and no at a total cost of $15,805., hiking trails. A few picnic grounds do exist, water The above figures,,taken from the ORRRC inventory, sports are permitted, and hunting occurs throughout are impressive, but data representing thousands of the'forest. Using the normal definition it can be. acres, and millions of visitors. are difficult for the classified as undeveloped. Developments planned within the next 5 years in- average person to digest. While a report of the nature of this one is not designed to point glowing pictures include campground accommodations for 180 people, of recreation resources, it would be remiss to fail 9 new picnic grounds, and an archeological area. to point out the great potential of the Chattahoochee Forest officials estimate that potentially the forest Forest as a recreation resource. can be developed to accommodate 2,790 campers, 1,710 picnickers, and 300 swimmers. The Chattahoochee lies across the most attractive Approximately 16,000 persons visited the Oconee part of Georgia., Consisting of high mountains, bi- in 1959. Summer visitors came to picnic, fish, and sected and trisected by deep gullies cut by rushing sightsee; fall and winter visitors to hunt, sightsee,, streams, interrupted by numerous waterfalls and and camp. It seems hardly necessary to state that rapids, and traversed by a fairly adequate system of pressure on facilities in the forest would be desig- roads, this forest is a riot of color in the fall as its nated as light to moderate. hardwood stands and pines blend and contrast. Across While large in area, the Oconee cannot be con- the miles that comprise this forest one can ride for sidered as valuable in recreation potential as is the hours without meeting a person during the week even Chattahoochee. The physiographic features of the in the summer-the peak period of use. land can be classified as rolling, with few hills. The area covered is basically agricultural and forest it is certainly true that pressure on campgrounds, lands intermingled. Water acreage is small but can must be considered as "heavy" during the week and, be developed without too much expense. The absence as "very heavy" on weekends. It is equally true of spectacular scenic areas such as are found in the .that heavy pressure is applied on picnic facilities on. Chattahoochee, and the scarcity of large water bodies the weekend during the summer. The fact that these- appear to indicate that this forest can best serve a conditions exist are, however, caused not by any over- purpose different than that planned for the Chattahoo- utilization of the forest but by the lack of facilities chee. Since it is not the purpose of this report to .available to serve the needs of the visitors. Of the recommend detailed recreation plans, suffice it to 676,655 land acres in the Chattahoochee, less. than say that the Oconee can be developed into a family 1,000 acres are now being utilized or are planned camp and vacation area in which a combination of for immediate. expansion. for recreation purposes on hiking trails, wildlife refuges, aboreturns, and other developed facilities. such facilities could be developed easily and at As will be 6onimented upon in the final section of relatively little expense. ,this chapter, the U.S. Forest Service is faced with 5 many complex problems as it tries to fulfill the PLANS FOR FORESTS multiple purpose aspects of forest development. 4/ Factors that must be considered include militin-t Forest Service officials anticipate a substantial hunting and fishing groups demanding that the forest increase in recreation in the southern region of which ,be closed to all except themselves, professional rec- Georgia is a part. Figures showing 1,362,100 visitors reationists interested in group facilities, wilderness to the two national forests in 1960 were divided into advocates who wish the forest to remain in a prim- the following categories: campgrounds, 92,300; picnic eval state, and conservationists on one hand and sites, 722,000; organized camping, 2,006; hotels. and private logging businesses on the other all seeking resorts, 8,000; recreation residences, 1,700; wilder- to achieve their own ends. ness, none; and other, 535,600. The plan for developing recreation facilities is For the purpose of this report it can be stated that twofold in character. the Chattahoochee Forest represents a relatively un- (1) Certain scenic areas will be protected for those tapped recreation potential for the Atlanta SMSA. who prefer wilderness type outdoor activities. With proper development, this area will be the major (2) The remainder of the recreation areas will be vacation facility for Atlanta for many years. more fully. developed to provide camping, picnicking, Swimming, and boating. 4 /Public Low 8&517, 86th Congress, 1960, commonly known as the "Multiple Use Law" requires that recreation be an --mriterview with regional director, Division of Recreation and integral part of forest planning Land Management, U.S. Forest Service, March 14, 1961. 97 There are no plans for trying to compete with the reservoirs partially because of the tremendous number National Park Service in providing recreation facili- of.motorboats and water skiers. While camping will ties such as playgrounds and other "commercial" continue to grow, it will be in the form of additional facilities. A heavy emphasis will be placed on camping weekend visits, not vacation camping. and development of campsites for individuals apd families. Lake Sidney Lanier CORPS OF ENGINEERS Located a short distance to the northeast of Atlanta, Lake Sidney Lanier has in the few years of existence The absolute absence of any large natural lakes in become the most popular recreation area in Georgia. Georgia has i n the past restricted the residents of In 1960, over 5,119,000 persons 6/ visited Lani-e-r: 1-o- this State to swimming and fishing in the rather fish (330,000), boit (1,046,_660)_,_camp (360,000), sight- numerous small streams and rivers that, while rela- see (580), picnic (2,085,000), swim (150,000), or en- tively plentiful, do not lend themselves to such water gage in miscellaneous activities (560,000). When one sports as boating and water skiing. A great part of considers that this reservoir has been in being for the sudden interest in boating in Georgia is a result less than 5 years, the number of visitors is truly of the construction of large Corps of Engineers remarkable. reservoirs in the Southwest and along a line running There are no publicly owned overnight facilities just north of the Atlanta SMSA. In terms of user days, at Lanier, and present plans foresee only limited four of these reservoirs, Lake Seminole, Allatoona, development within the next 5 years. The basic Lake Lanier, and Clark Hill, represent the greatest reason for the lack of overnight facilities is doubtless single outdoor recreation resources in Georgia. A due to the extensive private development around fifth reservoir, Hartwell reservoir lying north of Lanier. Private lots and homes, and subdivisions Clark Hill inthe boundary between Georgia and South are'increasing daily as an ever-growing number of Carolina, was closed on, February 1, 1961, and will Atlanta SMSA residents and persons from other within a few years be an additional attraction. areas in central Georgia buy or build summer Since information on each of these reservoirs is cottages or year-round homes on the shores-of this readily available from the corps, the descriptions extensive lake. A large number of persons who work given here will be most general in character. in the City of Atlanta find that the expressway system permits them to live at Lake Lanier and commute to Allatoona Reservoir work in an hour's driving time. As is true of Allatoona, Lanier is much more The Allatoona Reservoir is the closest of all reser- extensively used on weekends than during theweek. voirs to the Atlanta SMSA. Comprising 18,758 acres Its proximity to Atlanta permits this reservoir to of land, and 12,187 acres of water, it was visited by act as a day-use facility on Saturday and Sunday. ,2,516,000 persons in 1960. A large majority of this On those days, families drive to LaniOr to motor huge number of visitors was from the Atlanta SMSA. boat, swim, water ski, and picnic in ever-increasing numbers. Overnight facilities at Allatoona include 6, camp- The future of this reservoir is a matter of some grounds with a. total capacity of 420, and a large cabin conjecture. As available land becomes scarcer around for 6 people. Camping is permitted outside designated. the perimeter of the lake, pressure will probably campgrounds, and such camping probably accounts for increase for the development of campgrounds, and more than 10 percent of all overnight visitors (over- additional public access points. For the immediate .night visitors in 1960 numbered 160,000). Pressure on future, however, it seems likely that Lanier will be campgrounds at Allatoona is light to moderate during the major day-use recreation area for the Atlanta the week, but becomes very heavy on weekends during SMSA. the summer. Day-use facilities include 10 picnic areas totaling Clark Hill 28 acres, 4 swimming areas totaling 10 acres, 2 his- toric sites of 164 acres, hiking trails, boat ramps, Located on the boundary between South Carolina and and docks. Pressure on all facilities is very heavy Georgia, the Clark Hill, Reservoir is by far the during the weekend; only light to moderate during largest water impoundment in the State. With 85,830 the week. Visitation figures for 1960 breakdown as acres of land and 71,534 acres of water, this reservoir follows: fishing, 120,000; boating, 1,200,000; camping, represents a tremendous potential as a recreation 160,000; sightseeing, 395 000; picnicking, 410,000; resource. Over 3,010,000 persons visited Clark Hill swimming, 160,000; hunting, 25,000; and miscel- in 1960, to fish, motorboat, sightsee, or picnic. laneous, 40,000. @The most popular combination of activities was pic-', Planned developments in this reservoir include 1 81 nicking, swimming, and motorboating, followed by campsites, 44 trailer sites, 91 cabins, and picnic water skiing, camping, swimming, and fishing. facilities for 1,960 persons. Reservoir personneles- Overnight facilities presently existing include 12 timate that 1,041 additional campsites and 160 picnic campgrounds with a total capacity of 600, 4 trailer grounds could be developed if needed. camps for 150 persons, and 27 cabins with a total -Allatoona is, and probably will continue to be, a capacity of 135. Current plans call for a limited favorite weekend boating and picnicking spot for -6/Attendonce figures taken from tables submitted by U.S. Army residents of the Atlanta SMSA. Fishing has never Engineers, April 7, 1961. Informotion on facilities from developed as well at Allatoona as it has at other ORRRC inventory. 98 expansion of campgrounds to increase campsites Fishing reached its peak at Clark Hill in 1956 by 33 percent. The limited nature of this expansion when it represented almost 40 percent of all visitation. is odd in -the-extieffie -s'ince pressure on overnight Since 1956 fishing has leveled off at approximately facilities is heavy during the week and very heavy 500,000 a year. on weekends. Boating Its distance from Atlanta and its proximity to the Augusta SMSA most probably preclude the development With the single exception of Clark Hill, boating of Clark Hill as a major recreation resource for showed a drop at all corps lakes in 1960. The Atlanta. The reservoir will continue to serve as a drop at Allatoona and Seminole was substantial, day-use facility for Augusta and surrounding areas, while that at Lanier almost insignificant. The increase and will, increase as a weekend facility for residents in boating at Clark Hill was insignificant. While these of Georgia and. South Carolina who live within 76 data can in no way be said to indicate that the boating miles of its shores. Overnight facilities must'be fad has passed its peak in Georgia, they can mean rapidly increased, at Clark Hill if. it. is to fulf ill that those interested in this subject should investigate its potential. @vhy this drop occurred. There 'is reason to believe that the number of access points and ramps has a Lake Seminole bearing on this question. Located almost 200 miles south-southwest of Atlanta, Cam .ping Lake Seminole is the fourth of the large Corps of In spite of a general lack of adequate camping Engineers reservoIrs in Georgia. Consisting of facilities, this form of recreation continues to grow 6,629 acres of land and 35,617 acres of water, in popularity. From visits and conferences with Seminole's greatest attraction lies in its reputation interested officials one carries away the impression as one of the best fishing spots in the State. that the number of campers is, and will be, dependent only on the number and quality of facilities available. -Overnight facilities consist of 2 campgrounds Since campsites are relatively inexpensive, this type (capacity 50 persons), 8 trailer camps (capacity 128), of recreation should , certainly grow in the future 3 cabins (capacity 12), and 5 group cabins (capacity around corps lakes. 108). Pressure on these facilities at present is light both during the week and on weekends, but an expansion Sightseeing .program capable of accommodating an additional 208 overnight visitors is nevertheless planned. Of all recreation activities, sightseeing is the most The absence of major urban areas within a reason- difficult of all to isolate as a separate form of able distance of Seminole indicates that this reservoir' recreation. Normally sightseeing is a function of the should be developed as a major overnight facility newness of a recreation spot or of the opening of a for Georgians interested in fishing and hunting. new facility at such a spot. At corps impoundments this particular activity will probably decline unless new programs are instituted to attract observers.; Visitation Data on Corps Reservoirs Picnicking The following paragraphs and table B-31 summarize in highly abbreviated form the activities engaged in Picnicking, long a favorite Sunday afternoon activity by visitors to Corps reservoirs in the last 10 years. in the United States, but one which suffered a decline after World War II, has begun a comeback of rather Fishing extraordinary proportions around corps lakes. Here, as with camping, the popularity of picnicking will At Allatoona fishing visits have fluctuated, but have depend in large measure on the number and quality shown a steady increase in each of the last 4 years. of facilities available. It should be noted, however, that visits in 1960 (the peak year) were only 50 percent higher than in Swimming 1952, 9 years previous. Lake Lanier, open to fishing for only 5 years, has While swimming is a very popular sport in.Georgia, shown a steady increase throughout its history, but it has not been a major form of recreation at corps this activity still represents only 6.4 percent of the lakes until the past 3 or 3 years. Those, persons total visits to this lake. It is expected that fishing who are listed inthe "swimming" column are for will continue to - increase on Lake Lanier, which, the most part members of groups, public and private. by virtue of its location, is the most popular The absence of public beaches acts as a bar to a impoundment in Georgia. great increase in this activity. Seminole, one of the small corps lakes, is rapidly becoming one of the most popular for fishermen. Hunting In spite of the abrupt drop in fishing visits in 1959, fishing is king on this lake, representing 60 percent Hunting facilities are very limited around corps of all lake visitors. impoundments. This, more than any other factor, 09 Table B-31. Public visitation to corps of engineers' impoundments 1951-1960 (based on corps estimates and data- I March 1961) [Figures in thousands] ALLATOONA 1951 1952 1953 1954 1955 1956 1957 1958 1959 1960 Total visits .................. 923 907 1,068 1,175 1,241 1,409 1,536 2,375 3,153 2,516 Activity (approx.): Fishing ........................ 60 80 60 59 35 50 20 80 105 120 Boating ........................ 200 200 330 360 460 560 620 1,200 1,520 1,200 Camping ....................... 20 15 20 20 19 20 20 140 160 160 Sightseeing ..................... 365 305 370 410 400 430 455 375 680 395 Picnicking ..................... 85 120 110 150 160 195 210 305 500 410 Swimming ...................... 95 40 40 100 75 60 70 140 160 760 Hunting ........................ 50 60 55 40 40 40 20 50 80 25 Miscellaneous .................. 1 50, 90 75 351 55, 60 1 50 801 0 1 40 LANIER 1955 1956 1957 1958 1959 1960 Total visits .................. 6 1,606 255 2,261 4,906 5,119 Activity (approx.): Fishing .... .................... 0 18 25 80 .200 330. Boating ........................ 0 40 45 640 1,080 1,045 Camping ....................... 0 0 0 170 260 360 Sightseeing ..................... 0 45 95 670 2,380 580 Picnicking ..................... 0 30 45 540 750 2,085 Swimming ....................... 0 30 45 )60 235 150 Hunting ........................ 0 0 0 0 0 0 Miscellaneous ................... 1 61 01 01 0 0 560 SEMINOLE 1955 1956 1957 1958 1959 1960 Total visits .................. 10 32 611 1,316 1,034 1,370 Activity (approx.): Fishing ...... 0 0 290 670 300 900 Boating ........................ 0 0 150 290 295 100 Camping ....................... 0 0 0 15 20 15 Sightseeing ..................... 0 0 100 150 160 200 Picnicking ...................... 0 0 28 40 55 60 Swimming ...................... 0 0 0 80 120 75 Hunting ........................ 0 0 40 60 75 20 Miscellaneous 10 32 10 10 10 8 CLARK HILL 1951 1952 1953 1954 1955 1956 1957 1958 1059 1960 Total visits .................. 181 263 1,294 1,706 1,363 1,869 2,024 2,333 2,907 3,010 Activity (approx.): Fishing ........................ 0 0 560 456 450 760 485 300 "0 475 Boating ........................ 0 0 140 298 240 260 360 205 440 475 Camping ....................... 0 0 2 4 2 4 29 170 190 200 Sightseeing, ..................... 181 263 205 310 203 290 420 500 680 700 Picnicking ..................... 0 0 300 445 388 380 420 650 860 910 Swimming ...................... 0 0 35 64 25 75 140 230 .250 230 3 Hunting ........................ 0 0 17 22 15 25 0 48 47 20 Miscellaneous ................... 1 01 0 35 107 40, 75 140 230, 0, 0 100 accounts for the relatively small number of hunting be considered a major resource because of its visitors. limited facilities. Visitors combine sightseeing and hiking. Picnic facilities are extremely limited and OTHER FEDERAL AREAS no expansion is planned either now or for the future. As has been noted with reference to certain State In. addition to the two national forests and the four parks, a question can be raised as to the efficacy major Corps of Engineers reservoirs, the Federal of a national park located in a rapidly expanding Government operates a variety of other recreation urban area. Because of its location, Kennesaw areas -_ in Georgia. Time and space preclude the Mountain will be under a constantly increasing listing and description of each of these areas. Some pressure from those seeking day-use facilities. While of the better known Federal areas are described very little can be done about this matter on existing briefly below. areas, the Pdrk Service should be sensitive to the problems raised in its selection of future sites. Ocmulgee National Monument Fort Pulaski National Monument Located some 93 miles southeast of Atlanta, within Located a few miles from Savannah Beach on the the Macon SMSA, the Ocrnulgee National Monument coast, Fort Pulaski is essentially a tourist attraction. occupies some 683 acres of ground and attracts While it does offer a limited picnic area, and boating approximately 100,000 persons annually. This is and fishing are permitted on designated areas, the an interesting archeological site that attracts tourists, typical visitor is primarily interested in viewing local residents, and visitors of local residents. the fort as an historic site. As the coastal segment Guided tours and a visit to the museum are available of the interstate highway system is developed, Fort at a nominal charge. Pulaski should attract more visitors. It cannot, however, be considered a major outdoor recreation No attempt has been made to attract visitors by source for most Georgians. locating picnic tables on the grounds, and none are planned. This area is, and will doubtless remain, Okefenokee National Wildlife Refuge a quiet peaceful spot to visit. Pressure on its facilities are light to moderate, and it is doubtful While this report cannot describe the numerous that this will change substantially either up or wildlife refuges and game and fish management down in the near future. areas, it would be remiss to fail to give special At the present time, a struggle is being waged over mention to one of Georgia's unique outdoor resources. this area between the National Park Service and the Lying in the southeastern section of the State, the Bureau of Public Roads. The issue involved is the Okefenokee Wildlife Refuge covers approximately location of a leg of the interstate highway system 330,973 acres of which only 25,000 acres are land now planned to "violate" a portion of Ocmulgee. and 800 acres are water. The remainder of the The Park Service has suggested an alternative route refuge is swampland so dense that only persons for the highway, and this study would certainly with guides are permitted into its interior. support such a suggestion. Limited overnight facilities are provided for some 248 persons, and three picnic grounds covering Chickamauga - Chattanooga National Military Park 2 acres exist. The typical visitor to this strange area comes to sightsee, to fish, and to camp, in that Located a few miles from the Tennessee border in order. Sightseers from nearby urban areas visit northwest Georgia, this 8,190-acre park offers sight- Okefenokee in substantial numbers during the Week- seeing, picnicking, and hiking to its 900,000 annual end, but this area's principal function is to attract visitors. A $0.25 entrance fee permits a visitor tourists. Of all the outdoor resources in Georgia, to walk over 25.6 miles of trails and 39.4 miles the Okefenokee is the only one that attracts a sub- of roads. One picnic area of approximately 13 acres stantial number of winter visitors. is definitely overcrowded on summer weekends, but Little expansion is planned in the way of facilities appears to be adequate during the week. As is to for Okefenokee. It will probably remain, as it should, be expected, the typical visitor combines sightseeing, a vast swampland in which the visitor can view.. picnicking and photography during his stay. wildlife and plantlife in their natural, habitat. There are no overnight facilities at this park, and none are planned. Two additional historical sites Andersonvilie National Cemetery will be developed within the next 5 years, but no expansion is planned for picnic areas in spite of One of. Georgia's most famous tourist sites (made their present overcrowded conditions. more famous or infamous by the publication of a novel built around its grimmest days), is the Anderson- Kennesaw Mountain National Battlefield Park ville National Cemetry. As a Confederate prison camp during the Civil War, Andersonville was the This 2,863-acre park is within the Atlanta SMSA scene of mass deaths of Union prisoners of war and is located just outside the city limits of Marietta. by malnutrition, disease, and exposure. The comman- It is very clean, well managed, and very quiet. While dant of the camp was the only war criminal executed it attracts some 180,000 visitors a year, it cannot following the end of the Civil War. 101 Andersonville today is a 4uletly beautiful cemetry of Atlanta. Since these areas are described in some commemorating those prisoners who died there almost detail in appendix B of this report, suffice it to say a century ago. Visitors frorri both the North and that two of these areas, Callaway.Gardens and Lake South come here to see the rows of markers and the Spivey, offer models that might *be used for future numerous monuments erected by northern States. commercial development in outdoor recreation. As is true of all national cemetries, Andersonville Callaway Gardens, in' particular, is an extremely is immaculately clean and well managed. Itspopularity attractive, efficiently managed, recreation area. as a tourist attraction will doubtless continue Ao While its fee schedule is sufficiently high to discourage increase. large segments of Georgia's population,, it does offer to the weekend visitor a complete range of recreation Other Areas facilities. For the admirer of plant life, Callaway, presents imaginative landscaping featuring native as Georgia has many fish and game management areas, well as foreign trees, shrubs, and flowers. For the fish hatcheries, and experiment stations. As the active sports enthusiast, it offers golf, swimming, conservation and replacement of this country's rapidly water skiing, and boating. For the passive sportsman diminishing wildlife becomes a subject of concern to boat fishing and attractive picnic areas are available. more people, the popularity and importance.of these Lake Spivey, much closer to the city of Atlanta, areas will increase. A complete listing of all fish is more, of a day-use facility. With a 650-acre and game areas is available from the Fish and Wild- lake, 14 miles of shoreline, and over 1,200 acres of life Service. wooded areas and picnic grounds, Spivey is one Atlanta's favorite recreation spots. Both Callaway Gardens and 'Lake Spivey offer certain facilities not found at publicly owned recreation Private Recreation Facilities areas.' Amusement rides of one type or another, catering particularly to children, are most attractive Probably the most difficult aspect of any inventory to the family with small children. Such items, for of outdoor recreation resources in Georgia is in example, as miniature golf courses, which have no finding, describing, and listing privately owned place in a publicly owned facility, are very popular recreation.areas. The difficulties encountered inthis with youngsters. phase of the. project included, but were not limited There is a definite and growing need for more to, the following: privately owned recreation areas in and around the (1) Location.-Other than'driving around the area Atlanta SMSA. Publicly owned facilities cannot, watching for signs or billboards, examining trad6 and probably should not, attempt to 'compete with magazines and amusement sections of local news- private enterprises in certain types of recreation. papers, and talking to various people in the recreation This does not mean, however, that this report field, there appears to be no valid way of locating recommends the establishment of cheap, unsanitary, and mapping privately owned recreation facilities. honky-tonk types of carnivals operating under the (2) Securing Useable Information.- Once located, guise of outdoor recreation. It does mean that a problem arose in securing. accurate informa 'tion serious consideration should be given to some type that could be used in the report. Some amusement of tax concession for those businesses or foundations parks were eager to give information believing that willing to meet established standards in providing publicity would result. Some business concerns, on recreation facilities. Observations. made. during the the other hand, admitted that they operated a recrea- course of this study lead to the conclusion that of the tion area for their employees, but refused to give amusement centers relatively accessible to Atlanta, information for fear of adverse customer reaction. only Lake Spivey and Callaway Gardens would meet The feeling of these firms was that if customers the type of standards envisioned here. found out about a company sponsored recreation facility, they_.would expect to be invited to use the Voluntary Associations facility. If invited, these people would inundate the facility; if not invited they probably would cease to In addition to publicly and privately owned recreation be customer@.,,i.'. facilities, this State, and in particular the Atlanta '(3) Paucity@bf Accurate Data.--@For one reason or area, has a large number of quasi-public or private another, pHvately operated recreation facilities have groups that operate facilities for their membership. not been able to supply concise, accurate data. In In this category are included such groups as the some cases, this omission was caused by a natural Boy Scouts of America, Girl Scouts of America, and understandable reluctance to permit examination YMCA, YWCA, and various church groups. of business records; in other cases it was caused Twenty-three Boy Scout camps, located in every by a casual method of recordkeeping. section of the State, serve an ever growing number . Readers of this section should remember the above of youngsters in group camp activities. Eight of these difficulties and should excuse the very sketchy descrip- camps are within 70 air-miles of Atlanta and four tion here given. others are located just beyond the 70-mile circle. These camps vary from very rough pioneer or Facilities Operated by Business Enterprises wilderness camps, to well-developed facilities with shelters, improved sites, water, and sanitary facil- There are several major outdoor recreation areas ities. While no accurate data on number of children operated as private business ventures within 75 miles served are presently available, a conservative 102 estimate would approach 100,000 camper days for tennis and badminton courts are all available for the entire State. use by the guests. There are nine Girl Scout camps in the State, four This attractive area known as C-S-ta is, located on of which are inside a 70-mile circle around Atlanta, - property leased from the Corps of Engineers on Lake and two others are just beyond the circle. With one Allatoona, a few miles from Marietta, Georgia. exception all Girl Scout camps are highly developed The lease runs for 20 years at a cost of $90 a year. with facilities for swimming, boating (canoeing for the C@S-ta is open to employees of the Citizens and most part), hiking, horseback riding, nature studies, Southern Bank, their families, and their guests. and the like. Girl Scout camps recorded a total of Rentals for cabins and trailers are modest indeed. 29,494 camper daysin 1960. Cottages rent for $32 for seven nights; trailers Eight. YMCA resident camps located in various from $20 to $25 for seven nights. . Charge tickets parts of the State (5 within a 70-mile radius of are used instead of cash and are debitedto employees Atlanta) served 4,078 camper days in 1960. In checking accounts. addition, 16 YMCA day camps recorded a total of Delta Airlines also operates a recreation area for 6,951 camper days, making a grand total of 11,029 enaployees on Lake Allatoona. Offering. essentially camper days during 1960. the same facilities as C-S-ta, this area, known as While church group camps appear to be increasing "Cushing Park," is open to employees on a member- in number, this survey was able to definitely locate ship plan. Annual dues are $10, and lifetime member- only the following: ship costing $100 is available. There is an initiation fee. Ten trailers accommodating four persons each METHODIST CAMPS.-The Methodist Church has and four duplex cabins are available as overnight three group camps. One is located at Dahlonega facilities. While comfortable, these trailers are not in the mountains, one is located on Lake Allatoona, as. attractive as those at C-S-ta, although the rental and one is located on the Clark Hill Reservoir. is approximatel3r twice as much as C-S-ta. Day- These.camps operate only during the summer months, use facilities are essentially the same as those at and -records on camper days,are incomplete. C-S-ta, except that Cus hing Park has more dock and ramp facilities. PRESBYTERIAN CAMPS.-The Presbyterian Church Several large business enterprises in the Atlanta ,(or more accurately Presbyterian churches) operates SMSA answered our inquiries concerning,recreation group camps at Lake Allatoona, Toccoa, Hampton, facilities by stating that they did not have such and Hilton Head, S.C., The Hampton camp also facilities, but would not want to be identified as not functions as a Conference Center and is presently having them. There is a certain sensitivity among undergoing a great expansion. business concerns on this question. Some concerns establish recreation areas for employees, but do not BAPTIST CAMPS.-The Baptist Church operates a want the fact known; others do not have facilities, group camp for youngsters near Clayton, Ga. but are equally sensitive about the fact. The overall All of the major denominations hold retreats for impression one, gets, however, is that business youngsters and adults during the summer period. concerns in the Atlanta SMSA in general do not follow a policy of establishing such facilities. Whether Business Firms this attitude will change in the near future is impossible to predict on the basis of data now available. Most. business firms in the Atlanta area have considered but rejected the idea of employee recrea- Form Ponds tion areas. Most firms sponsor rather extensive recreation programs, but they are usually held on While it may seem odd to list farm ponds in a public or private recreation facilities. recreation study, these facilities are becoming Among the firms that have established their own increasingly popular in Georgia. A circle around areas, the most attractive surveyed during this Atlanta with a 70-mile radius would include 14,062 project were those operated by the Citizens and farm ponds ranging in size from less than 1 acre Southern Bank and by Delta Airlines. The Citizens to as large as 20-30 acres. As power boating and Southern area, in particular, is deserving of increases on large impoundments, moire and more commendation. Overnight facilities include 5 cottages persons are turning to the farm pond, particularly each accommodating 6 people, and 12 trailers, 11 of for fishing. While there are a substantial number which accommodate 4 people. Both cottages and of, such ponds to which an entrance fee is charged, trailers are tastefully furnished with every need the typical pond is used by the owner, his family, including linens and silverware, are air-conditioned, and his friends. and rent for substantially less than facilities operated Conservationists in general agree on the beneficial by the State Department of Parks. nature of these ponds, since they help to control Day-use facilities include a large manmade sand surface runoff, a strong factor in Georgia's extensive beach with lifeguard, cabanas, sun umbrellas and the erosion problem. like; a bathhouse with lockers (towels and soap are The topography of Georgia, especially of the land available at a nominal charge); and a large lodge above the "fall line" is conducive to small impound- with a snack bar, gameroom, dining area, television, ments such as farm ponds. With the financial help and a large kitchen. Outboard motors, motorboats, given by, both the State and Federal Governments, and large and small sailboats are available for rent. a steady increase in the number of these ponds can A boat ramp, shuffleboard court, softball diamond, be predicted. 103 Larger Impoundments hears the charge made that pulp and paper companies are removing from public recreation use (in terms of The Georgia Power Company operates eight lakes hunting and fishing in particular) huge tracts of that are suitable for recreation purposes. At present land. On the basis of data available to this survey, some 2,588 ieases on land surrounding those lakes it can be stated that this charge is false. On the are held by Georgians. Lots are leased for a term contrary, there is every reason to believe that land of 15 years with a clause inserted providing renewal purchased by paper companies is actdally more avail- for an additional 15years at the same annual rental. able for recreation than when in individual private The average annual rental is $50. While Georgia ownership. Power does attempt to restrict the types of structures An example of public use of private forest land is erected on leased lots, the restrictions are lenient offered by the Union Bag-Camp Paper Corporation. to an extreme. This company, one of the larger land holders in While no accurate records are available on visitation -Georgia, sent the following reply to an inquiry. to the 8 Georgia Power Companylakes, the company concerning public recreation on their holdings. estimates that "in 'a 12-month period, 100,000 people ... The matter of use of private forest lands by would use 26 boat-launching sites ... (and) ... another the general public is receiving more and more 100,000 people would use 18 areas available for a.tterition by our company and the pulp and paper picnicking." 7/ industry as a whole. We recognize the mounting Parenthetically, it might be noted that under the interest on the part of the general public in outdoor terms of the lease, lessees agree to install septic recreation, and we would be particularly desirous tanks or other methods of sewage disposal, and are of enhancing our reputation as "good neighbors" prohibited from discharging sewage or other objection- in this sphere of 'community relations. able matter in the waters of the reservoir. Lessees are also required to provide garbage or refuse disposal At the present time approximately 55 local facilities on the leased premises. Such provisions community organized hunting clubs are availing are necessary to the continued value of lakes and themselves of the use of our properties, paying lake lots. Some type of control of a nature similar a nominal lease rental which covers only the cost to the arrangements noted above should be in operation of administration for this privilege. The acreage around all Corps of Engineers reservoirs and should leased by the hunting clubs provides hunting and be rigidly enforced. other forms of recreation for the clubs' members and for their friends in their respective communities. Private Forest Land None of our nonleased land is posted and we do not object to persons hunting on the vast majority of There is a growing concern in Georgia over the our. acreage. We do request that persons wishing extent of forest land owned and operated by large to avail themselves of this privilege notify our companies-particularly pulp and paper concerns. tract superintendents or their assistants of their Whether this is a valid matter@ of concern depends intent. The tracts leased to organized hunt clubs in large measure on one's point of view. A request may be posted by the individual club, if its members for information on large@ land holdings by private so desire. concerns elicited a response. from 'the Georgia The general public is not excluded from enjoying Forestry Commission to the effect: (1) that body fishing privileges in the rivers and creeks on our has no precise data on the extent of large land hold- properties. We do have some ponds on some of our ings, but (2) that from personal observation the situa- lands that are not, at the present time, open to tion is not a matter about which Georgians should be the general public. concerned.8/ An inquiry addressed to the Georgia Forestry We have not as yet embarked on an extensive Association, Inc., elicited the following statement: program of providing parks or recreation centers. on -our properties for use by the public. This Small privately owned tracts of forest lands in particular phase of recreation is, however, being the amount of 18 million acres out of the total of given serious consideration. There ire, as you 24 million forest acres in this State are in the would recognize, a number of problems attendant hands of private individuals, mostly farmers. 91 upon such a program, not the least of which are While it can be stated that there are counties in. the questions of liability and maintenance. South Georgia in which land holdings by private We recently completed a. study, the purpose, of corporations are very extensive, there is apparently which was to determine where it might be practical little concern at the State level over this trend. for us to institute such facilities and the cost of The matter of land holdings by private corporations their development and maintenance. is of interest in this study only as the subject relates As a result of this study, we developed and opened to outdoor recreation. In this connection, one often a recreation area on company properties in Virginia. The attached tear sheet from one ofour company -2/Letter from Mr. J. T. Smith, Jr., assistant manage-r, Land publications describes this area, which is in the Department, Georgia Power Co., dated Oct. 13, 1960. nature of a "pilot" project. We are hoping that j/Letter from Mr. James Turner, assistant director, Georgia this particular recreation area will prove popular Forestry Commission, dated July 5, 1961. because it will serve as a stimulus to us to activate -2/Letter from Mr. H. R. Brown, executive direct-or, Georgia similar facilities on properties that we own in Forestry Association, Inc., dated July 11, 1961. Georgia and several other Southern States. 104 Oiir forest lands, as you are aware, represent purposes and for control purposes, it-would appear the life blood of our business operatio "ns. Not to unlikely that such activities can be 1. 'Counted on as exercise some reasonable control over the'use of representing any substantial answer to Ithe ever- them would be inviting fire hazards which, in all increasing demand for outdoor recreation unless an honesty, we have faced with some trepidation .... 10/ organized program is undertaken. It is not, however, The Virginia project mentioned in the letter above is unrealistic to suggest that local recreation agencies, a 4-acre tract on a peninsula extending into a mill public., quasi-public and private-should, in con- pond. The company provided the land, and erected sultation with industrial owners, plan programs around picnic tables, fireplaces, toilet facilities, and waste the use of private lands. There seems little doubt that industrial owners paper barrels. The tract was cleared of underbrush, of forest land,would seriously object to mass, organized and a half-mile road was built into the area. The recreation programs on their lands. However, with millpond into which the peninsula extends is a public proper planning and adequate supervision, outdoor fishpond managed by the Virginia Commission of activities such as hiking, swimming, fishing, hunting, Game and Inland Fisheries. Under Virginia regu- picnicking, and camping could be beneficial not only lations, no swimming is permitted in such ponds. to the public but to industry as well. As tree farming This project is a joint venture of the Union Bag- becomes a major part of Georgia's economy, the use Camp Paper Corporation and the Wakefield Ruritan of private land for recreation purposes will increase Club. The club has assumed responsibility for in importance. maintenance and supervision of the area, and groups wishing to use the area or its facilities make reser- Georgia parks and recreation personnel at both the vations with the club. State and local levels should immediately initiate Union Bag-Camp Paper is not unique in.permitting conferences with industrial land holders in order to its acreage to be used for recreation purposes. ascertain 1he best policies and procedures for the During the course of this project, the Georgia Forestry development of this resource. Association submitted to the author the results of a survey entitled "Recreation on Forest Industry Lands Hunting Preserves in the South." The following paragraphs describe the contents of the report. While private hunting preserves were well known in Five-hundred forty-three companies owning or Georgia even before the Civil NVar, the preserve as leasing 28,954,760 acres of land in the South were a commercial venture is of relatively recent vintage. surveyed. Over 24,000,000 of the more than 28,000,000 The Georgia. Fish and Game Commission and the acres of land were reported open, without charge, Sportsmen's Service Bureau list some .28 such for picnicking, hiking, swimming, camping, and berry- preserves in Georgia, 8 of which are within the 70- picking. Something over 10 million acres were open mile circle surrounding Atlanta. Ah@ of these for "organized recreation." Only 25 of the 243 prese ves stock quail, some stock quail a@dpbeasant, companies included in the survey require a permit . r, for any of the recreation activities menticaed above. while 'a few stock quail, pheasant, mallard, and Forty-two (17.2 percent) of the companies operate chukar. 63 public parks and 61 picnic areas with a total There is every reason to expect that the number of acreage of 18,476 acres. Twenty additional com- hunting preserves will increase strongly within the panies plan to open parks in 1961, and 38 others near future. As the urban areas expand into previously plan to undertake this activity in the near future. unoccupied land, and as population increases, the Almost 300,000 acres of industry land are leased number of persons who can go hunting in the evening to public or private agencies for recreation purposes after work or in the morning before workwill continue and 35 more companies plan to lease additional land to decrease. Hunting then will become, as it has in the near future. in many areas today, a weekend or vacation venture. Over 87 percent of the acreage surveyed is open The weekend hunter, unlike most of his forebears for hunting, and over 2 million acres are in game who shot game for food, is interested almost solely refuges ahd game management areas. Over 60 percent in the sport of shooting. Forced to drive rather of the total acreage surveyed is open to all hunters long distances to find the ever-decreasing supply of without even the requirement of a permit. game, his is susceptible to the lure of a commercial Fishing is even less limited than hunting. On preserve that practically insures a full day's bag of 11,287 miles of streams, and 180,530 acres of lakes game with each visit. Although long-range projections (artificial, natural, and fishponds) fishing is permitted, show a negative curve for hunting, it can be predicted, and only 9 of the 207 companies with all or part of without undue hesitation, that this activitywill continue their land open to fishing require a permit. to attract a substantial number of participants in The survey concludes with a statement that there Georgia for some time in the future. If this assumption were a total of 3,892,617 recreational visits to industry is valid, the future of the game preserve appears lands. bright. While one can expect the owners of large tracts Conclusions on Facilities of land to give increasing weight to recreational activities in the future both for public relations Because of the rather complex network of levels and types of outdoor recreation resources available L2/Letter from W. Kirk Sutlive, manager, public relations divi- to the residents of the Atlanta' SIASA, 'conclusions sion, !Jnion Bag-Camp Paper Corp., dated June 28, 1961. with respect to their adequacy or inadequacy can 105 probably b&t1b6 summarized under the three headings: the conflicting demands on land, it is suggested governmeiital._@ 'voluntary, and private holdings or that future planning locate parks where they are most enterprises." needed and instituting programs for the acquisition of Within the Atlanta SMSA itself, outdoor facilities, land immediately. In this regard, it is suggested while impressive when seen on a map or @ when that consideration be given to .the establishment. presented in terms of acreage, do not meet the of a regional park along the Chattahoochee River. standard criteria established for urban areas. Onthe Day-use resources in the SMSA are not limited basis of the commonly accepted standard of an acre to local @parks. On the contrary, both in terms of of parks for each 100 persons, the SMSA 'would acreage 1. and visitation, Federal and State parks need something over 10,000 acres of parks to serve exceed the local resources. At the State level, the Or its current population. As is true in practically Stone Mountain Confederate Memorial Park will, every urban area of the country, gross figures are when completed, be a major resource for residents not an accurate measurement of the adequacy of a of the area. Although this park is being developed recreation resource. primarily as Ia tourist attraction, its location close Atlanta's deficit in outdoor resources is based on to the downtown area will inevitably result in its several factors. First and. foremost, there is a becoming essentially a day-use facility. relative absence of open space in the downtown area At the Federal level, Kennesaw Mountain offers a of the central city. lf there is valu6Ao the individual quiet retreat for those in the SMSA who are interested in outdoor activity, this value must accrue to the in outdoor activities such as hiking, sightseeing, low income as well as upper income groups. Atlanta, nature studies, picnicking, and the like. Whether this in concert with most large cities, has a bard core, Of park should remain in Federal hands or be transferred low income housing in its downtown area, the residents to local'supervisors is a matter that requires serious of which are almost without available outdoor consideration. resources. It must be made clear that -what is being The two most important recreation resources discussed here is not playground facilities, but open measured in terms of visitors are the two Corps of areas for walking, picnicking, and other passive Engineers reservoirs located on the fringes of the types of activity. SMSA. They s Ierve both as d y"use facilities and as Atlanta has accomplished much in its public housing ga and urban renewal programs.. Some recreationists Weekend camping areas. The heaviest pressure on public access points occurs on Wednesday afternoon feel, however, that in neither of these programs, when many retail outlets close, and on the weekend. particularly in the housing projects, is there a suffi- Care in zoning these lakes and in more closely ciency of green areas. In public housing projects supervised sanitation regulations must be under- green 'areas are practically nonexistent,' while in taken to preserve health conditions. urban"renewal projects open spaces are often too restrici6d inl@,itrea. The greatest potential in securing the recreation 0,7 O&tion problem in the city of Atlanta is The rb r needs of Atlanta residents is the Chattahoochee compli6ated-by its attraction for residents of areas National Forest which lies some 70 miles north far removed from its own boundaries. Recreation of the SMSA. With over 680,000 acres of virtually officials in the city estimate that as much as 40 percent undeveloped area, this resource will, if imaginative of the participants in certain summer recreation planning takes place, take care of the weekend and programs are from@ outside the metropolitan area. vacation needs of Atlanta for many years to come. Grant Park, a major recreation facility, . attracts More overnight facilities, more dining. facilities, people from all over Georgia and from many sections more trails to scenic areas, more and better roads, of neighboring Alabama.' This additional load on more personnel to police the facilities, and more existing park areas has increased to a point where personnel trained in recreational activities are needed. on weekends facilities must be described as The resource is there; all that is needed is an adequate overcrowded. program. In the general area of State parks, a policy against Another need of the Atlanta SMSA that must be purchasing small sites close to urban places should faced soon if it is to be met successfully is the be adopted, and consideration should be given to establishment of large regional parks. ll/ Chastain transferring those State parks already inside municipal Park, the largest local park in the SM_-SA is much boundaries. to municipal authorities. tob small to serve as a regional resource. While Present needs of the Atlanta SMSA are adequately land is yet available at a reasonable cost, three served by the State parks now existing except for the regional parks of at least 5,000 acres should be major deficit in facilities for Negroes. A single established. Past planning on the subject of park State park within 75 miles of the heaviest single areas in the Atlanta -SMSA has too often taken the concentration of Negroes in Georgia can hardly form of recommending park locations then permitting be considered adequate. the loss of those areas to demands for industrial Greater use should be made of willingness of location. While it would be naive to fail to recognize industry to allow recreation on their lands. Wher- ever possible public or quasi-public groups should U/The term "regional park" as used here refers to a large park make arrangements to supervise recreation areas d 1 f numerous communities. It differs from on private lands. This will ease the pressure on serving the ee s a .. 1p: 13,@ I the use of this same term by some national agencies which existing facilities. use it to refer to,a recreation area that draws adherents from Plans for additional recreation areas must be several States. coordinated in the future. At present there appears 106 to be no coordination of long-range plans between individuals, or corporations. Additionally, the depart- levels of government. - , ment -is empowered to purchase, lease or condemn Figs. B-7, B-8, and B-9 represent an attempt to land. (utilizing, the' right of eminent domain) for use demonstrate the relationship between major recreation as a park. 14/ resources and the highway system in being and in the Section 127 of title, 43 1of the code permits any planning stages. Fig. B-7 should not be interpreted county or city to expend funds for the -purchase of as including all recreation resources inGeorgia-this any land or property, within the county or city to is an almost impossible task on a limited scale become the property of the State if the State agrees map. Location of recreation areas on the map ,are to improve ahd,.maintain such land as part of the only approximate. State parks system. In like manner, any county or Administration of Recreation city, individually" or in'combination, may contribute funds for the upkeep of -any, State-owned park or The basic program of outdoor recreation in G I eorgia other property Within the county or city. is the responsibility of the State Department of Parks, 'Faced with the possible threat of integration suits, which has jurisdiction over all State parks except the general assembly in 1956 enacted legislation Jekyll Island and Stone Mountain. This department Yermitting the sale, lease, grant, or exchange of is theoretically within the Division of -Conservation any property. comprising parks and playgrounds to any created in 1943 and is carried as such In the State, individual or group. Under the' terms of this act Auditor's Official Report. 12/ The department is an several of the parks, including Jekyll island, passed outgrowth of the work of the Civilian Conservation to private individuals under lease arrangements. Corps and the Works Progress Administration both Although this" act was repealed in 1958 and Jekyll of which did extensive work in Georgia in 1934, Island has been: recovered, two of the most popular 1935, and 1936.13/ In 1937 a Department of N atural parks in the St@te, Vogel and Franklin D. Roosevelt, Resources was established, of which the current are still leased to private individuals. Since the Department of Parks was one of the divisions. device of leasing parks to private individuals obviously In 1943 the Department of Natural Resources was does not act as a bar to integration suits (as the nepElaced by the Dii7isfori of Conservation,_&&fis@isflifig_ Commonwealth, of Virginia discovered when it at- of three departments including the current Department tempted to lease Seashore State Park), @ the, State of Parks. Today, the department, while theoretically should move to recover administratiZ)n of all privately in the Division of Conservation, in reality reports leased Statb parks at the earliest opportunit:y. If directly to the Governor and considers itself indepelid- outdoor recreation is a legitimate governmental ent of any other agency. function as is indicated by the State constitution and The Department of Parks is headed by a director laws, there is no valid reason for the operation of appointed by the Governor. The administrative State parks by any person or group other than a structure of the department is uncomplicated, con- duly constituted agency of thel State. To provide sisting of an assistant to the director, and three major otherwise comes perilously close to a delegation divisions: General Office (accounting, Inventories, of State functions to a private agent; and records), Engineering Division (parks inspector, The Georgia Department of Parks is at present ill- and parks maintenance division), and Recreation housed and apparently understaffed to do an adequate (recreation officer, and information-publicity). Of job of supervising a system of parks spread all over the personnel in the central office, both the recreation the State and constantly increasing in popularity. Dis- officer and the assistant to the director have cussions with various individuals in. the department professional training in the field of recreation. lead to the inescapable conclusion that little long As is true in departments of recreation allover the range planning is attempted. The basic reason for this nation, the Georgia Department of Parks operates lack., of planning apparently lies in the rapidly vascil- with a relatively small permanent staff, and a large lating allotment of appropriations for parks. Addi- number of seasonal employees. Of late, the department tionally, however, staff members feel that more has employed college students for summer work in personnel and an acceptance of outdoor recreation as the various parks. a legitimate function of government would add greatly Under current legislation, the department is given to giving a stronger sense of direction to the the customary right to accept property or money Department. for the purpose of creating or maintaining parks frorn the Federal Government, counties, private When the park systernwas small and visitors few, the - year- to-year type of'operation now engagedinwas L2"Terminology on this point is-confusing. 'Title 43 of the probably adequate to the task. In 1961, however, this State Code which creates the department and empowers it to same system consists of 43 parks that were visited estdblish and operate a system of parks refers to the agency by over 3 million persons annually. Since all indica- 6 as the Departmentof State Parks, but the auditors report tors point to an ever-increasing pressure on the park designates it as theDivision of Parks, in the Departmentof system, the time has surely passed when the State Conservation. Official stationery of the agency carries a could afford the haphazard, ad hoc type of administra- title of Department andit will be so referred to throughout tion engaged in previously. As of this date, however, this report. there is no evidence to indicate any fundamental L 3 Information in this section is taken from a report prepared for change. ORRRC by the American Political Science Association and from the annotated Codeof Georgia. L4/"Annotated Code of Georgia," Title 43-124. 107 PPA GEORGIA lit cc 65 ATLANTA S.M.S.A. AND e NWR MAJOR OUTDOOR RECREATION AREAS %WWR cc STATE PARK CORPS OF ENGINEERS RECREATION AREA B5 r 's CORPS OF ENGINEERS RECREATION AREA as (UNDER CONSTRUCTION) NATIONAL FOREST PRA v STATE DEVELOPNENT 55 NATIONAL MONU.ENT S.F. STATE FOREST .W.A. NATIONAL OILDLIFE REFUGE R. STATE WILDLIFE REFUG P.R:A. PR? @A TE RECALATION AREA C C'RC CA"I' PRA RA' Ct GC I sc 55 as G RLSC OUTCCAW a BOY OUT AMP PAR Gs N PRA NWR NWR 4S NW) -6F p PRA NWR SWR NWR C PRA ov, 3F zI cc 0 @01 0 @2030@40 MILES FIGURE B-7 108 GEORGIA MAJOR HIGHWAY NETWORK s A7LANTA 21 Cl F L 0 D A FIGURE B - 8 109 GEORGIA INTERSTATE HIGHWAY SYSTEM APPROVED & PENDING 0 10 20 30 40 'o 5 MILES FIGURE B-9 110 Fish and Game Commission an amendment to our constitution creating a Game and Fish Commission... (with) . . long ten- The popularity of fishing in this State is reason ures and staggered terms of office ... no matter enough for including within this section a brief note who is the Governor of Georgia, that agency will on an agency whose functions are essentially those of continue to function until the people change it, education and law enforcement. The Fish and Game immune to the caprices and whims of politics. 16/ Commission is the oldest State agency operating in the area of outdoor recreation. Originally established Thus, at least according to this speaker, a basic as a department in 19 11, it has gone -through several reason for the, establishment of boards and,com- changes in organization (from department, to board, missions is the desire@ on the part of the people of to division, to commission), reaching f ts,current status Georgia, to remove certain functions from.the direct in 1943 when the function of conserving fish and wild- control of the Governor. The oft-stated desire of the life was transferred to a constitutional com- people to "take education out of politic�?@ is, in mission. 15/ Georgia, extended to a host of functions and programs. - One critic raised a legitimate question with regard The State Game and Fish Commission consists of to this matter, however, when he asked, "Shall we 11 commissioners (representing each of the 10 con- continue the trend that has been set to create con- gressional districts, plus one special district com- stitutional boards or. agencies to run departments of prising the coastal counties) appointed by the Governor State independently or shall we cease , and de- and confirmed by the senate, for 7-year terms. The sisi?" 17/ commission serves as a policy making body, and Fish@@d wildlife management is a legitimate concern supervises the action of its director who is the working of all the people of Georgia. Since those people elect head of the agency. the Governor, sound organizational principles in this The commission cooperates closely with the National author's opinion, require that control over'Sttefunc- Park Service, the U.S. Forest Service, and with private tions be vested in his hands. There is no more valid ow Iners in the propagation and breeding of -fish and reason, to have a constitutional commission for game wildlife, and in the control of hunting andfishing. and. fish than to have one for recreation and parks. While the organizational structure of the Game and If the people of Georgia fear their Governor, their Fish Commission is of peripheral interest to this recourse hes to the ballot box, xLot in the establishment study, it does offer an example of an administrative of boards and commissions that are, in effect, beyond organization that is deserving of comment. Why should the control of duly elected executive officials. . , . an agency engaged in the function of propagating and Before leaving the matter of the State Game and Fish breeding wildlife: (1) be given commission status Commission, it is worthwhile to note an important rather than departmental status in the normal chain function added to this agency's responsibilities. Under of organization, and (2) be given constitutional status? the Federal law requiring the registration of allbo.'ats The reason often given by critics of,this State is employing motors in excess of 10 horsepower, some that Georgia has a propensity for establishing boards State agency must be designated. to administer the and commissions which formulate as well as ad- provisions of the act. In Georgia, the agency so minister policy. In 1960 there were almost 60 such designated is the Game Find Fish Commission. A, boards and commissions in existence; 9 of which had Motorboat Registration Unit has been established to Constitutional status. Included in the nine are the handle the large volume of applications that havebeen Board of Regents of the University System of Georgia, submitted during the course of the,.last year. A fee the State Board of Education, the Public Service schedule has been established based on the'length of Commission, the Board of Pardons and Paroles, the the boat. Fees for a 3-year period are as follows: Board of Corrections, the Personnel Board, the Class A, less than 16 feet . . * *....... $5.25 Veterans' Service Board, the State Medical Education Class 1, 16 feet to 25 feet ............ 7.75 Board, and the Game and Fish Commission. The Class 11, 26 feet to 40 feet ............. 10.25 reason for this expansive list was stated by the Class 111,,40 feet and over ........ 15.25 chairman of the State's Constitutional Commission in 1943: While gross data have been assembled on the number We have witnessed in the history of Georgia of motorboats meeting the 10 horsepower requirement, a development, a gradual development, that places an analysis of that data is notpossible since the Game large, .tremendous powers in the office of Gover- and Fish Commission has adopted a policy of giving nor of Georgia. At times those powers were an exclusive contract to an advertising firm to use exercised wisely according to the public opinion these *data. In return for the. exclusive use of these of the people for their interest; at times perhaps data, the advertising firm has agreed to furnish certain they were exercised unwisely. As a result of analyses of the information to the commission, Since the unwise exercise of those powers, the people this analysis has not yet been made, it is impossible of Georgia went on record as wanting to put in to give any data on motorboat ownership in terms of the constitution certain constitutional guarantees residence of owners. However, the head of the Motor- as to the independence of various State depart- boat Registration Unit, on the basis of his run-through ments.... of the registration applications, was of the impression *** The people of the State wanted, and the legislature passed, and then the people ratified 1-6/Albert Saye (ed.), -"Records of the Commission of 1943-1944 to Revise the Constitution of Georgia," vol. 1, pp. 199-200. PS/The constitution of Georgia, art. V, sec. IV, par. 1. U/Ibid., p. 201. that the Atlanta SMSA was no more heavily represented in which whisky was being sold by the drink (a prac- than other urban areas of the State. In other words, tice not now engaged in). Atlanta SMSA residents own proportionately no more The details of the controversy which arose as a and no fewer boats than the residents of other urban result of this disclosure are of no interest in this places. report. What is of interest, however, is that the Two other State agencies of importance in the rec- Governor of Georgia, when asked t@) comment on the reation area can be considered together since they story, included in his answer the frank statement that have essentially the same type of organization. These he had no legal control over the Jekyll Island Authority two agencies, the Jekyll Island State Park Authority, or its operation. In t iheory, authorities such as that and the 'Stone Mountain Memorial Association, rep- which operates Jekyll Island report to, and are respon- resent another step in the proliferation of agencies sible to, the general assembly. As the President's performing similar tasks without the desired amount Committee on Administrative Management discovered of control by the executive of the State. when it began its investigation of Independent Regula- The Jekyll Island Authority, consisting of ex officio tory Commissions at the Federal level, however, an members including the State auditor, the director of agency responsible to a legislative body is, in effect, State parks, the chairman of the State Public Service responsible to no one. Commission, the State attorney general, and the The point of this overly long example is that the secretary of state, was created, as have a number of authority device has two major weaknesses. First it like authorities in the last two decades, to circumvent is not effectively responsible to the duly constituted Georgia's extremely restrictive constitutional debt and elected officials of the State. Second, its 11raison limitation. 18/ dletrell is to circumvent a limitation placed in the The net. R-fect of this constitutional limitation is that constitution at the request of the 'people. Thus cir- Georgia can incur no long-term debt. As a result of cumvention results in the issuance of revenue bonds this unrealistic limitation, this State in order to meet requiring the operation of revenue producing ventures. its increasing capital needs has- resorted to the Outdoor recreation is a legitimate form of govern- establishment of public corporations or authorities mental activity in which all the citizens of the State and has vested in them the right to issue bonds. have an interest. It should not be operated as a The State then rents or leases the facilities from business venture by a quasi-independent body. the authorities. Authorities now in existence include, in addition to Jekyll Island, the State Bridge Building State Highway Board Authority, State Hospital Authority, State Office Build- ing Authority, School Building Authority, Rural Roads The State Highway Board has a peripheral interest Authority, and many others. in outdoor recreation in its construction and operation of roadside parks along major State highways. Since While one can sympathize with the impossibleposi- tion into which the debt limitation has pushed this these parks were discussed earlier, itis notnecessary State, a word of caution must be raised with respect, to describe them. at this point. in this instance, to Jekyll Island. Authorities have Local Agencies two principal weaknesses: (1) they issue revenue bonds which traditionally carry a higher rate of interest Local outdoor recreation facilities are administered than general obligation bonds; and (2) they are, in too many instances, not responsible or responsive to the under a variety of organizational arrangements but people since they operate as quasi- independent typically by a department of parks and recreation. agencies. Discussions with local recreation personnel indicate that while there is a growing interest in parks and The matter of financing capital expenditures will recreation, it too often is tied to some program such be discussed in the next section of the report. The as the attraction of industry or tourists rather than as matter of authority responsibility or lack thereof can a phase of education. be best demonstrated by a recent happening on Jekyll In the Atlanta SMSA there is no metropolitan-wide Island. Georgia law forbids the sale or consumption recreation agency. The only functional consolidation of intoxicating liquor on State property and prohibits in the area of recreation occurred under the Greater entirely the sale of whisky by the drink. This prohibi- Atlanta Improvement Plan which vests operations of tion applies with equal force to property owned and parks and recreation in Atlanta and Fulton County in operated by any State authority, including Jekyll the Atlanta Department of Parks and Recreation. While Island. Yet, during the early summer months of the city now operates all parks and playgrounds (with 1961, an Atlanta newspaperman broke the news that financial contributions from the county), Fulton County motels on Jekyll Island were openly pperating bars retains the right to establish its own parks outside the municipal boundaries of Atlanta (an option it has LB/Por. 1, sec. 11, of art. V11 of the State constitution provides not exercised as yet). that "No debt shall be contracted by, or on behalf of, the There is no metropolitan-wide system of planning State, except to supply such temporary deficit as may exist and coordinating the activities of the various parks in the treasury in any year for necessary delay in collecting departments. Recreation personnel do meet in- the taxes of that year, to repel invasion, suppress insurrec- formally to discuss their programs, but no formal tion, and defend the State in time of war, or to pay the existing program of consultation is operating and none is debt." This section permits debts not to exceed $500,000 to planned. pay teachers, but requires that such debts be repaid within The Metropolitan Planning Commission has made the year. several studies of recreation needs in the SMSA, 112 particularly in the area of park needs. But, even authority device must be used, it should operate only here, there is little if any consultation between the in the financing of capital needs, and 'should vest in planning staff and city or county recreationpersonnel. the Department of Parks the operation of all facilities. The Metropolitan Planning Commission has no trained (2) A formal metropolitan-wide recreation agency recreationist on its staff; a point made very early in should be created to work with the.MetropolitanPlan- any conversation with local recreation staffs. ning Commission in studying the needs of the metro- politan area and in recommending needed additions and improvements to the local governments involved. The net result of the above is a complete lack of The composition of the Metropolitan Planning Com- long-range, coordinated planning at the Metropolitan mission, its financial support, and its powers might level. When to this lack is added the omission of any well be used as a guide for such an agency. The long-range planning on the part of the State, and the time will certainly come in the SMSA when a functional void in consultation and coordination between State consolidation in the field of recreation will be de- and local authorities on future park developments, one manded. The time fo *r such a consolidation is not yet wonders how this State has done as well as it has. here, however, and to recommend. such a plan at present would be impractical in the extreme. (3) An intergovernmental body, similar to the Federal Agencies present Southeastern Study Commission should be established at once to act as a coordinating device for all long-range planning at all levels of government. A study of Federal agency administration is hardly Such an agency should also conduct studies on resident appropriate in a report on outdoor recreation in preferences and customs in outdoor recreation. The Georgia. Suffice it to say that the two Federal agencies initiation for such an agency should come from the most heavily involved in outdoor recreation in Georgia Federal Govermnent. are theU.S. ForestService andthe Corps of Engineers. If these steps are taken, many of the administrative problems now encountered by recreation officials will be considerably eased. Conclusions with Respect to. Recreation Administration Financing Outdoor. Recreation Since ORRRC is, bylaw, prohibited from considering urban type recreation activities, this section -on finance Georgia is faced with many problems in the area of outdoor recreation. Its financial ability to meet what is, of necessity, limited to a general review of the local must be an ever-increasing pressure on existing tax and expenditure structure. This limitation is facilities requires the maximum amount of coordina- necessitated by the impossibility of segregating that tion among all agencies- State, Federal and local- part of a recreation budget that is allotted to play- that are concerned with outdoor recreation. Yet ground activities and that partthat is allottedto parks Georgia today faces that need with a proliferation of and other activities. State agencies, some of which are beyond the control A second limitation on this section is an unwilling- of the duly constituted authorities of the State, an ness on the part of the author to consider the matter absolute lack of any long-range planning at either of Federal finance in the outdoor recreation area. the State or local level, the absence of any mechanism This unwillingness is caused again by an inability to to coordinate 'programs of Federal, State, and local segregate. recreation from other activities in such agencies, the lack of even a metr6politan-wide plan- agencies as the National Forest Service, and the ning and coordinating device in recreation, and an knowledge that ORRRC staff members are in a better apparent unwillingness on the part of any agency to position to secure data from Federal agencies than is initiate corrective action. the author. A privkte agency in Atlanta, the Atlanta Community LOCAL FINANCE Council, Inc., has begun a study of recreation facili- ties in the metropolitan area to ascertain the needs Any study of local finance must be divided into two of the area. While the Atlanta Department of Parks sections- (1) municipal finance, and (2) county and Recreation, the DeKalb Planning Commission, and finance. Since the financial structure of Georgia other local authorities are working with this group, it counties, with the possible exception of Fulton County, would be naive in the extreme to expect this.type of is relatively simple, this area will be discussedfirst. program to be too successful. County Finance if Geor ia is to meet the increased demands of the Georgia counties depend almost entirely on the 91 people for outdoor recreation, the following steps property tax in financing all governmental activities, should be taken: including recreation. Title 69-602 of the Georgia Code specifically empowers counties to acquire land for parks by purchase, lease, or by eminent domain, (1) All recreation functions at the State level should while title 69-607 permits the issuance of bonds for be delegated to the State Department of Parks. If the the purpose of acquiring land and equipment for parks. Title 69-608 title 2-5701 both mention parks and below, it can be stated here that the possibility, of new recreatidn"-0.1egitimate purposes for which cities and State grants to counties for recreation- purposes. is counties4iiiiy levy a portion of the general property tax. remote indeed. The incidbnce of tax burdens for outdoor recreation at the county level thus falls directly on the property County financing of outdoor recreation can be owner. summed up very briefly. Recreation expenditures at the county level fall directly on the shoulders of the Several questions may be raised with reference to property owner since the only major source of revenue the financing of additional parks expenditures at the available to the county is the general property tax. county level: (1) Can the counties afford to spend more for rec- Municipal Finance in Georgia reation? While several persons have tried to establish a formula for determining the true value to a com- Georgia cities, like counties, are authorized to ex- munity of its various expenditures, no success has pend general tax revenues for parks and recreation, crowned their efforts. Certainly one can s 'tate that may issue bonds for acquiring land and equipment, most counties in Georgia could, by better assessment and may levy a portion of the general property tax policies, increase their property tax digests thus for the maintenance and operation of parks and play- creating a larger base upon which taxes could be levied. grounds. The city of Atlanta, for example, levies a Since many of Georgia's counties atpresent, however, half mill recreation tax on real property and, in ad- contribute relatively small am un s to their education dition, allocates money from the general fund for system, it could be posited that increased county parks and.recreation. revenues would of necessity go to a school system that is badly in need of additional funds. 19/ Unfortunately,. as is true with municipalities all over the Nation, Georgia cities face a.constantly in- (2) If educational needs are taken care of by a creasing rate of expenditure without a concomitant Federal aid program, could Georgia counties then increase in revenue, and are rather desperately finance greater expenditures for parks and recreation ? seeking new sources of revenue. At the preserittime, An affirmative answer to this question would have to most Georgia cities depend on the general property be qualified by stating "Yes, but only at the expense tax and business license taxes as their major sources of permitting %county roads to deteriorate even fur- of revenue. While the cities do a much better job ther." A few years ago, the State of Georgia es- than the counties in their assessment practices, there tablished, aRural Roads Authority, and authorized this are serious questions to be raised about increasing body to .expend $100 million in the construction of the property tax. Georgia cities are faced, as are county roads, the maintenance of which were to be the cities all oVer the Nation, with an exodus of residents responsibility of the counties. It now appears almost to the suburbs. This exodus is. almost inevitably fol- certain that the State will, because of the financial lowed by a general fall in the value of residential position of the counties, be forced to take over the property in the city., To increase the property. tax in maintenance of the roads built by the authority. the face of this situation might well hasten the exodus In addition to education and roads, counties must and could -result in a, lower, rather than higher tax aid in financing programs of health and welfare, police return. protection, libraries, and the like. In times of relative prosperity the property tax, with adequate assessment Several new sources have been suggested for procedures, produces sufficient revenue to finance municipalities. These include a local sales tax, a these programs with additional amounts for recreation local income tax, and a local gasoline tax. Each of in the form of a half mill tax in many counties. The these taxes would bring in substantial amounts of property tax, however, has a distressing faculty of revenue, but, the possibility of,the State permitting falling as the prosperityof the, community falls. There their use at the present time is doubtful. The State is some question then as to the efficacy of planning now utilizes all three of these taxes and a rural- substantial park improvements based on a tax which dominated legislature looks with a "jaundiced eye" may in time of recession produce little in the way of on any attempt to permit the cities a share of the revenue. revenue that accrues from their use. (3) Should new sources of revenue be made available Georgia cities, by and large, spend infinitesimal to counties, thus enabling them to finance improved sums on recreation. What is expended comes, for the park programs ? Unlike the case of cities, there is most part, from the general fund. The principal little evidence to indicate any strong movement to give sources of revenue for the general fund are the counties additional taxing powers. Since the county, property tax and the business license tax. The heaviest more and more, acts essentially as an administrative incidence then of recreation expenditures falls on the district for the State, and, since there continues to be property owner and local business enterprises. more and more centralization of traditional county Faced with serious problems of financing new functions at the State level, it appears obvious that streets, transit systems, parking facilities, slum the only additional revenue that will be made available clearance, public housing, police protection, and the to counties will come in the form of new State grants. like, the possibility of increased recreation expendi- While the matter of State financeswill be discussed tures at the municipal level is dim indeed. If in- creased programs of parks and recreation at the 1-9/For example, Georgia's elementary and secondary school municipal level are to come, the best hope at present teachers receive annual salaries almost $1,000 below the appears to be from a type of Federalprogram similar national average. to the Williams bill. 114 STATE FINANCE The deficit in fiscal 1961 was easily financed by a withdrawal from $50 million surplus fund built up over In the fiscal year that ended on June, 30, 1960, the the years. In fiscal 1962, however, it is anticipated State of Georgia expended on activities related to that a deficit approaching $24 million will occur, and, outdoor recreation $3,620,488.24. M/ 'Of this total, unless *drastic changes are made or the economy of the; $1,450,000 was allotted to State -parks (including State moves forward very rapidly, the total surplus Jekyll Island), $1,295,000.00 to. the State Game and will be wiped out in fiscal 1963. This will occur at a Fish Commission, $90,770.74 to the Georgia Historical time when. Georgia's obligations are constantly commission, $434,717.50 to Stone Mountain Memorial increasing. Commission, and $356,000.00 for authority rents. 21/ Georgia @ is therefore faced with one of two alter- While the total allotments represent almost $d-.80 natives if it is to meet the needs of its people in such per capita (based on 1�60 population of 3,943,116) diverse areas as highways, education, mental health, for the State, this figure is misleading for included and welfare; either taxes must be increased or ex- in the figure of $3,273,988.24 is $1,081,451.81 in fees penditures reduced. Since the State suffers deficits collected by the Game and Fish Commission. The in each of the areas listed, the possibility of reducing total amount expended from State funds is, therefore, expenditures is remote. It can be stated, therefore, $2,192,536.43 22/ which represents about $0.56 per that taxes will, of necessity, be increased. capita. In terms of its share of the total budget, allotments for outdoor recreation in Georgia in 1960 The tax most likely to be increased in Georgia in amounted to 0.01 percent of total allotments. the relatively near future is the sales tax. An in- To speak of tax incidence on such an insignificant crease of I cent in this tax should produce approxi- proportion of the budget is difficult indeed. On the mately $45 million annually, an amount sufficient to other hand, if appropriations are to increase for balance the budget in the immediate future. While outdoor activities, funds for such an increase must leading State politicians arepresently making ringing come from the general fund. An analysis of that fund promises against any tax increase, it-is-highlyprobable should therefore indicate on whose shoulders the that a one cent increase in the sales tax will occur burden for increased appropriations will fall. within the next 3 years. By far the greatest single source of tax revenue in Even if the sales tax is. increased, however, Georgia is the 3 percent sales and use tax. This source Georgia's troubles arenotover. The additional burden produced $146,277,038.10 in 1960, or 39.5 percent of of maintaining the interstate highway system, the all tax revenues. Following the sales tax as revenue State's share of the Federal old-age medical benefits producers were the motor fuels tax ($84,044,284.78 law, and constantly rising costs in the field of educa- or 22.7 percent of tax revenues), and the income tax tion, should wipe out any revenues that accrue from ($60,076,154.21 or 16.2 percent of tax revenues). an increase in the sales tax. What then is left? These three taxes account for 78.4 percent of all tax President Kennedy has already asked for an increase receipts. Other taxes, with the percentage each pro- in Federal taxes on motor fuels. If he is successful duces are alcoholic beverages and wine tax (5.6 per- in securing this increase, the possibility of Georgia cent), motor vehicle license tax (4.4 percent), cigar increasing the State motor fuels tax is limited indeed. and cigarette tax (5.4 percent), insurance taxes (3.0 Corporation income taxes cannot be increased when percent), and all others (2.9 percent). With the pos- the State is seeking desperately to attract industries sible exception of the income and insurance taxes, to locate here. Excise taxes on tobacco and alcohol Georgia tax structure is regressive in nature falling could be increased, but the amount of revenue realized heaviest on those least able to pay. would be negligible. Tax receiptsadded to Federal grants, returnsfrom The above description of State finance has as its investments and a budget system that gave the Governor end the author's conclusion that in its present state, control over a huge contingency fund, permitted Georgia cannot afford any large increase in expendi- Georgia to operate with a surplus during the decade tures for outdoor recreation. On any priority scale, of the 19501s. In fiscal 1961, however, for the first outdoor recreation would probably be listed below time in over a decade, expenditures exceeded income education, highways, public health andwelfare, mental by something over $5 million. There was no single health, and corrections. Since each of thesefunctions cause for the deficit. It was, instead, a result Of needs additional funds badly, it is unrealistic, either rapidly rising expenditures coupled with slowlyrising financially or politically, to speak of increasing out- revenues. door recre@tion expenditures in any substantial LO/S e eIapp. A, table B-56 for data on expenditures for years from amount. I 1950 to 1960. There appears to be a rising sentiment in this U/Appropriations to and expenditures of the Georgia Forestry State to place more of the burden for financing a Commission have been excluded from this section because of particular function on those who use it most, or who the difficulty involved in attempting to segregate the amount most benefit from its existence. In outdoor recrea- expended for recreation. tion this would take the form of higher fees for those L/It should also be pointed out that over $88,000 was collected who visit State parks and use their facilities. This from concessions in the various State parks. This money is type of philosophy has an attractive ring to it until available for expenditures by the parks. It is distributed one begins to realize that those who need outdoor throughout the system, not held by the park which collected recreation the most are the least able to afford high fees. 115 If outdoor recreation has beneficial effects onthose in outdoor recreation but that, in addition, establishes who participate in it; if * it adds to the mental and a fee system for those who want, and can afford, extra physical well-being of a State's citizens; then it is a facilities and services. A separate study is neededon legitimate function for government to undertake. If establishing appropriate fee schedules that are equi- government undertakes the function, it should not be table and adequate to aid in the financing of new reserved for those who can probably afford their own facilities. outdoor activities without having the government pro- It would also be a remission of responsibility to fail vide them. - to note that private capital could, with certain tax What is needed in Georgia is a system of parks inducements, play a major role in future recreation that makes available to all residents a basic program plans. 116 CHAPTER FOUR WHAT DOES THE FUTURE, HOLD? In every study that concerns itself with a govern- be raised concerning this issue. Certainly it is not mental program or resource, a point is reached in too extreme to suggest that serious research into which two basic functions must be performed. First, human behavior is necessary before exorbitant claims there must be a "summing up"-or overview of all that are made with regard to outdoor recreation. There is, has gone before. Second, it becomes necessary to for example, a trend presently developing in the try to predict, within very broad limits, what the field of juvenile delinquency to establish training future holds for the particular program under in- programs in forested areas, again based on the vestigation. assumption that being "outdoors" will somehow Before these two specific functions are undertaken, change those who live there and make of them better however, certain questions concerning outdoor recre- citizens. A review of the literature in this field, ation might appropriately be considered. however, uncovers little research, worthy of the name, to prove or disprove the thesis or assumption Legitimacy of Government Programs on which these programs are based. (Editor's note: in Outdoor Recreati on Readers may wish to compare this conclusion with discussions of this subject included in ORRRC Study The existence of extensive local, State and Federal Report 22.) parks appears to imply that there is no longer a need to justify governmental activity in the area of For many reasons, the country has recently be- outdoor recreation. Perloff and Wingo, intheirhighly come quite concerned about the physical fitness or stimulating paper l/ note three substantial reasons lack thereof of the population. Faced with a long and harsh battle with an ideological foe, citizens of for government programs of outdoor recreation. One the United States are prevailed upon from the highest is the uniqueness that characterizes certain types of office in the land to exercise so as to be better pre- recreation resources. There is, as stated by Perloff pared for the battle which may someday come. Those and Wingo, "only one Grand Canyon, and it is not who support outdoor activities have welcomed this reproducible or divisible. 11 2/ The continued existence physical fitness theme, and have used it to buttress of these resources requires government intervention, their insistant demand for bigger and better programs for only governinent has the power and the financial of outdoor recreation. While no one would suggest ability to preserve these natural wonders. Secondly, the capital required to acquire, develop, and maintain that physical fitness is not a desirable end, it is substantial recreation facilities is beyond the capacity difficult to relate to the typical individual's use of of private individuals or groups and must, therefore, existing outdoor activities. There, is little exercise be undertaken by a public agency. in picnicking, one of the favorite forms of outdoor A third reason, cited by Perloff and Wingo, along recreation, and not much more in fishing, a. second with the great majority of writers in the field of very popular activity. recreation, is that there is some relationship between The relationship between physical fitness and out- the health and well-being of society and the existence door activities is tangential at best. Certainly, it of outdoor facilities permitting one to escape the cannot be denied that in the history of selective debilitating effects of urban life. Perloff and Wingo service those persons from rural areas were re- state that "Physical activity, fresh air, and sunshine jected for physical deficiencies in much higher pro- loom as particularly important needs in an urban portion than were urban dwellers. Thus, it is rather society." 3/ dangerous to hold that just being outdoors has some Other writers, too numerous to cite, note the bene- clinical effect on a person's physical well-being. A ficial effects of periodic visits to a wilderness area well-supervised program of physical education in the where something akin to a spiritual catharsis takes public schools is probably much more important. place and one returns refreshed and renewed. While this study is not the proper forum on which to debate the issue of the validity of those who pro- Until research is undertaken to substantiate the claim the benefits that accrue to those who return claims of outdoor enthusiasts, it is suggested that to nature, there are interesting questions that might programs for expanding outdoor facilities be urged for the sole reason that the people want them ex- panded. This, at least, is demonstrable by the ever- !/Harvey S. Perloff and Lowdon Wingo, Jr., "Urban Growth and growing number of persons who visit outdoor areas the Planning of Outdoor Recreation," (A paper prepared for of one type or another. In a democracy such as the the Outdoor Recreation Resources Review Commission, United States, it is legitimate for a government to July 1961), pp. 45-48. undertake a function when its people through one 2/lbid., p. 47. device or another make known their wish that the 2/1bid., p. 46. function is desired. 117 ABSENCE OF CRITERIA AND DATA Where Do We Stand? To the initiated, a journey'through the literature on It is the intent of this section to summarize, very outdoor recreation produces a sensation of visiting briefly, the present outdoor recreation picture in some never-never land beyond the imagination of Georgia, and the Atlanta SMSA. This summary will Lewis Carroll. Data on visitation and visitors are include not only a survey of major recreation re- used for planning and projecting that are often not sources and their present usage, but will, in addition, susceptible of validation. Estimates and guesses involve a description of the economic, political, and become facts from which conclusions are drawn that social forces at work that will in large measure de- then become new facts from which new conclusions termine the scope and form of future recreation are drawn. Since there is little.to gainfrom belabor- programs. ing this situation, it is sufficient to note that accurate planning is not possible if accurate base data are not State Recreation Facilities and Their Use available. In 1946, a total of 458,500 persons visited Georgia In regard to. data. on recreation habits and prefer- State parks. in that same year a total of 10,000 ences, it is, perhaps not too important to, worry about camper days plus 12,000 group days was recorded. past data. Practically. all recreatiomprograms in the In 1960, 3,449,218 persons visited Georgia State parks, past have. been based on what a person or group of and a total of 77,257 camper days and 49,473 group persons , thought was either desired or' desirable. camper days Was recorded. Thus, in 14 years, the Unfortunately, - too much planning was based on the number of visitors and camper days expanded .almost latter rather than the jormer. . If, facilities for eight times, while the number of group camper days swimming and fishing are all that are available to a increased Iover 400 percent. Table B-32' indicates population, rather obviously. swimming and fishing will the increase in visitors to State parks from 1951 to be the most engaged in activities for those who visit 1960. the resource. What is badly needed in outdoor recre- ation is a mechanism for determining what the population in a given area wants, not what a group Table B-32. 4umber of visitors to Georgia State parks, thinks would be good for them. 1951-60 Some of the aspects of a vicious circle 'occur in Year Visitors recreation planning. The University of Michigan study, "Participation in Outdoor Recreation: Factors Af- 1951 ...................................... 1,750,611 fecting Demand Among American Adults," indicates 1952 ...................................... 1,859,927 that there is some relationship between experience and 1953 .......I................................ 2,795,291 preference in outdoor activities. Thus, if one ex- 1954 2,870,000 periences the pleasures of swimming as a youth, he 1955 ....... 3,161,311 tends to engage in this activity as an adult more . than 1956 2,863,871 does the adult who did not have such experience in 1957 ....I ................................. 3,007,131 his younger life. If this relationship does exist, then 1958 ...................................... . 3,049,575 those who plan recreation facilities determine in large 1959 ...................................... 3,172,095 measure the preference of the population in the area 1960 ...................................... 3,449,218 of outdoor activity. For example, if swimmingfacili- Source: Georgia Department of State Parks. ties are not available for the youth of a community, swimming will probably not be a recreation prefer- Table B-32 is interesting in several ways. Not ence of that community. The University of Michigan only does it demonstrate an increase in visitations attempt to break through this problem bythe use of of almost 100 percent. in the 10-year period under an aspiration scale is a step in the tight 'direction consideration, but it also. shows the vacillatory that should be extended. nature of that increase. For example, an increase of 109,316 from 1951-52 was followed the next year A further weakness in recreation planning at by an increase of 835,364. This gross figure was present is the lack-of any reliable criteria for then followed the next year by an increase of only deterinining such basic questions as number of camp- 75,000. The irregular curve formed by visitation sites per acre, number of picnic tables per acre, figures is attributable to several causes. The great and the like. This is not to imply that any magic increases are due primarily to the opening of new standard can be established into which all areas can parks or to extensive redevelopments of facilities be forced. There will certainly be instances when on old park sites. Relatively small increases or 10 picnic tables per acre are too many and others losses can usually be traced either to unstable when 20 such tables are completely acceptable. economic or social conditions, or unnatural weather The California study of outdoor recreation planning!/ difficulties. offers an example of a start in the sliding scale type There are at present 46 State parks in the Georgia of standards and criteria that should be, agreed upon system. 5/ Of this number, 37 are developed in by those 'v@ho determine recreation policy. varying degrees of intensity while 9 are relatively -@/This figure includes Jekyll Island, Stone Mountain, and Warm 1/"Committee California Public Outdoor Recreation Plan," Springs, none of which is administered by the Department of parts I and 11, Sacramento, 1960. Parks. 118 undeveloped. The parks are spread across the length It is equally unfair to ask the citizens of the entire and breadth of the State, but tend to be concentrated State to finance recreation facilities for the citizens around Corps of Engineers reservoirs or around the of one community. perimeter of the Chattahoochee National Forest. The What is suggested here is that the State contribute, 54,849 acres included in State parks mean that there through the device of helping finance a regional is an acre of State park for every 73 residents of park, to any urban area that attracts a significantly this State. large number of visitors from beyond its own bound- Of the 37 developed parks, 31 are operated by the aries. But, that municipalities pay the entire cost State Department of Parks, 3 are'administered by of operating facilities that are used almost exclusively authorities or commissions, and 3 are leased to by their own residents. private individuals. Again considering only the de- .(3) Overnighi facilities are in need of expansion at veloped parks, 30 are exclusively for use by whites, most camps. Further developments. in expanding 5 exclusively for Negroes, while .2 have segregated campgrounds, however, should improve current con- facilities for both races. ditions that result in far too many campsites in limited Seven State parks (. six white and 1 colored) are areas. within easy access of residents ofthe Atlanta SMSA. (4) Negro parks, are too limited in number and Easy access in this sense means that they are within quality. If Georgia is to maintain separate facilities a 75-mile radius of the downtown area. While 75 it must increase colored facilities at once. This is miles is a longer distance than is generally applied particularly true in the area surrounding Atlanta in ascertaining day-use accessibility, the presence of since at present only one Negro park exists within expressways in and around Atlanta means that each 150 miles of Atlanta. of these parks can be reached by'automobile in (5) Recreation administration is badly divided in approximately 2 to 3 hours. When the interstate Georgia. In addition to the State Department of Parks, highway system is completed in Georgia, all State the State Game and Fish Commission, The Georgia parks will be accessible to Atlantans within a driving Forestry Commission, the Jekyll'Island State Park time of approximately,4'hours. Authority, the Stone Mountain Confederate Memorial Overnight facilities in State parks vary considerably State Park Authority, and the Warm Springs Memorial in number and quality. In 1960, developed campsites Commission, all operate in the area of outdoor had a capacity of 2,643 campers, cabins were available recreation. 6/ for 773 persons, and trailer sites could accommodate The use -6f semlindependent authorities in the area another 777 persons. Additionally, group camp facili- of recreation is open to serious question. Such ties were available for several hundred campers. authorities are outside the normal chain of command Georgia's parks are used almost exclusively in the and are not subject to popularly elected officials; summer. Except for some @sightseeing and fishing, as such they are frequently not responsive to the there is no cold weather program in existence. needs and demands of the population. Additionally, the During the summer, facilities ate under heavy pres- authority method of financing governmental functions sure on weekends, but are used very lightly during too often results in fee schedules too expensive for the the week. The activities that are most popular in the average resident of the State. parks are picnicking, swimming,'fishing, and boating. The possibilities of conflict between the Georgia Certain glaring inadequacies . are evident in the Parks Department and the Game and Fish Commis- State park system. These can be summarized as sion are many and serious. While the latter is follows: essentially an educational and enforcement agency, (1) Many of the parks are too small for extensive a recent occurrence indicates what may happen in the development. Twenty-seven of the developed parks future. The Bowater Paper Corp. of Tennessee re- have less than 1,000 acres; 22 comprise less than cently deeded a 650-acre lake in central Georgia to 500 acres; 10 have less than 100 acres; and 4 have less than 10 acres. (2) Some State parks are too close to urban areas. Two parks are now within the municipal boundaries, 1/On the question of the advantages, and disadvantages of and several others are so close to municipalities that having many governmental agencies operating in the area they too will be within city boundaries, or certainly of outdoor recreation, the author completely agrees with ' within urbanized areas within the next few years. ORRRC, and violently disagrees with Martin Grodzins. These parks are almost exclusviely day-use facilities Professor Grodzins holds, "For reasons already given, for nearbyurban areas, apractice that raises a serious no attempt should be made to provide among public agencies, question as to the possibility of transferring these 'A clecrcut division of responsibility,' as suggested by the parks to local ownership and control. first progress report, for the Outdoor Recreation Resources The apparent conflict between this suggestion and Review Commission. Rather, all planes of government ... should the recommendation for three regional parks in and be encouraged to increase the facilities and services they around Atlanta can be solved if one remembers the provide. All of them do ro Iughly the some sorts of things, nature of the two types of urban areas under con- and this too has been shown to be desirable." Morton sideration. Atlanta attracts a large number of Grodzins, "The Many Governments of Outdoor Recreation," visitors to its parks from well beyond its own first draft of paper prepared for the Outdoor Recreation boundaries; Reidsville and Bainbridge do not. It is Resources Review Commission, June 1, 1961, while Mr. rather unfair to expect the'residents of Atlanta to Grodzins emphasizes the recreation agencies operating pay@ for the recreation of those persons who live on different levels of government, his paper con apply equally outside the SMSA but who use its recreation facilities. to different agencies on one level. 119 the Georgia Game and Fish Commission. The Com- needs of the Atlanta metropolitan area for years to mission plans to develop the area for camping, come. picnicking, fishing, and boating-the same activities The two reservoirs were visited by over 8 million that the State Department of Parks administers in its visitors in 1960. A large portion of these visitors system of parks. Since the Game and Fish Com- were Atlantans who use the reservoir as day and mission is not a recreation agency and is not staffed weekend facilities for swimming, boating, fishing, and to supervise recreation programs, its activities in water skiing. An increasing number of residents of this direction can only bring it into conflict with the the SMSA are building either summer or year-round State Department of Parks. cottages on one of the two reservoirs. (6) The system of leasing State parks to private Two needs, evident at both reservoirs, are studies individuals was adopted during the early confusion leading to the creation of zoning regulations for resulting from the U.S. Supreme Court's decision in boating, fishing, swimming and water skiing, and Brown v. Board of Education of Topeka, Kans. (segre- more adequate regulations concerning sanitation fa- gation in public schools). This practice has so many cilities for the growing number of private residences. inherent dangers that elaboration is not necessary While neither of these problems is of pressing im- except to suggest that corrective actions be taken portance at present, they will increase in severity immediately. The fact that two of the most popular unless corrective steps are taken soon. parks in Georgia are now leased to private individuals The two national forests accessible to the Atlanta makes the need for corrective action even greater. SMSA offer tremendous possibilities for outdoor rec- (7) Activities at most State parks do not show reation. The Chattahoochee Forest in particular, can, enough diversification. The typical park has a small if properly developed, be a major resource. At beach area, picnic grounds, boating and fishing, and present, the greatest needs in the Chattahoochee are a small camp area. While these facilities are, in additional overnight facilities (both public and private), many cases, inadequate at least they exist. On the more hiking trails, better directions and pulloffs for other hand hiking trails, nature walks, wildlife refuges, scenic areas, and, most importantly, more imaginative and the like are conspicuously absent in many State planning onthe part of those who develop new recrea- parks. tion activities. The Oconee Forest is new and is practicallyun- Local Facilities developed. While it is not as attractive scenically as the Chattahoochee, the need for the future is for land Recreation facilities within the Atlanta SMSA vary in large quantities. This need can be met, in part, by in quality and quantity depending on where one happens the more than 98,000 acres of the Oconee. to be. In the downtown areas there is a paucity of Private Facilities recreation facilities other than playgrounds. In those parks such as Chastain and Grant where splendid facilities exist, the pressure, especially onweekends, There are a paucity of private outdoor recreation is very great. To those residents of the Atlanta area areas in the usable range (75-mile radius) of the who visit these parks are added the growing number Atlanta SMSA. Private areas as used here include of persons from outside the metropolitan area who both commercial-type parks open t '0 the public on a visit Atlanta on the weekend and add to the pressure. fee basis, and private facilities operated by industrial Other than the Atlanta City system of parks, and concerns for their employees. Except for two very the planned expansion of DeKalb County's system, the attractive commercial parks, Lake Spivey and Calla- only recreation resource of interest in the SMSA is way Gardens, there are no large-scale recreation the Cobb County Recreation Authority. Financed areas within 70 miles of Atlanta that offer facilities through the sale of lots and admission fees, this other than swimming, boating, and amusement-type facility is essentially an attempt to build a subdivision facilitie s. around a large recreation area. Consisting of a With respect to recreation areas operated by in- mammoth swimming pool, a golf course, and picnic dustrial or business firms for their employees, it areas, this facility offers a possibility for future use can be stated that this type of fringe benefit is not too in the increasing number of subdivisions being estab- popular in the SMSA. With several striking exceptions lished in the SMSA. described in chapter 3, business firms have preferred The lack of any regional parks in the SMSA is, to use public or private facilities for sponsored next to the absence of open space in the downtown company pr .ograrns. No evidence was secured during area, Atlanta's greatest weakness. Regional parks of this survey to indicate any change in this policy. a size adequate to meet the needs of Atlanta's resi- There is a growing trend among church groups to dents as well as visitors are a must. purchase or lease land for group camps. These groups and such groups as the YMCA, theBoy Scouts, the Girl Scouts, and the Boys'. Club, are forced to Federal Facilities locate their camp areas further and further from the city of Atlanta as the price of land close to the met- Within a 70-mile radius of Atlanta, two great ropolitan area makes the cost of large tracts pro- national forests and two large Corps of Engineers hibitively high. reservoirs dominate the outdoor recreation picture. There is a growing amount of criticism about the With over three-quarters of a million acres of land extensive land holdings of certain industries in and water, these facilities, if properly developed, Georgia, particularly those of pulp and paper com- should serve the weekend and day-use recreation panies. While these holdings seem small in terms of 120 the total area of the State, they do represent substan- northeast and southeast, have shown equally consistent tial portions of some sections of Georgia. The en- losses. There is every reason to expect that this lightened attitude of most companies with reference trend will continue through the study period. to the use of their lands for certain recreation The exodus from the farm, accompanied, as. it has activities may, however, actually operate to the been, by a drive for industry, has caused dra Imatic advantage of many Georgians. changes in the labor force of the State. Construction A growing number of business firms, some with employment increased by 133 percent in the period holdings close to ther Atlanta SMSA, have adopted from 1930 to i950; transportation, communications, policies permitting free access to their lands for and public utilities, increased by 52 percent from hunting and fishing, and are now considering the 1940 to 1950; and wholesale and retail trade increased possibility of establishing formal recreation areas. by 99 percent in a 20-year, period. Some few companies employ recreation specialists, Of particular significance ' to the economic well- and are weighing the advantages and disadvantages of 'being of a State, is the number of persons engaged in increasing this phase of their activities. personal services. Since this is a nonproductive type of activity, the number of persons so engaged should Summation decrease as a State's economic health improves. Using this theory, Georgia's economic health is im- In summary, the raw materials exist for a vastly proving rapidly. In spite of a 19 percent increase in expanded outdoor recreation program relatively close population between 1930 and .1950, the number of to the Atlanta SMSA. There is, however, much to be persons engaged in domestic services decreased by done to develop these raw materials to meet what is 16 percent. certain to be an increasing demand for more adequate Georgia's total work force increased less in the overnight facilities and day-use activities. These period between 1930 and 1950 than did its population, needs will be discussed below. but that force is now. engaged in more productive activities. The greatest changes in the labor force The Economy of the Area. were the number of persons engaged in manufactur- ing, construction, wholesale and retail trade; the Before turning to the specific recreational needs of decreasing number of Negroes employed; and the the Atlanta SMSA, a brief summary of the economic smaller percentage of persons employed in agricul- and social environment of the region is in order. ture. All of these changes are healthy and need no Georgia is undergoing a rapid transformation from explanation. -a rural, agriculturally dominated economy, to a mixed The increase in nonagricultural activity has not economy with a heavy manufacturing concentration. been uniform across the State. The great increase in Georgia's labor force has increased with each decade industrial development has occurred in a remarkably since 1900, while the agricultural labor force has few urban areas. Nowhere has this increase been decreased both in raw numbers and as a percentage more marked than in the Atlanta SMSA. While Atlanta's of the labor force. By 1957, agricultural employment economy is discussed in detail in chapter 1 of this had ,dropped to 13.7 percent of total employment, and report, suffice it to say that the SMSA has become is expected to decline even further in the future. The the leading industrial, manufacturing, and trade cen- number. of farms has also shown a steady decline ter of the State. The Atlanta SMSA now comprises over, the last 30 years as small farms have been 25.8 percent of the State's population,, and 3 8.4 percent consolidated. The average size per farm and the of its ur'ban population; 2 7.4 percent of the households; average value per farm have increased substantially 38.9 percent of total personal income; 36 percent of as mechanization permits larger areas to be farmed total retail sales; 68 percent of wholesale sales; and economically and efficiently. Farm tenants in Georgia 36 percent of the value added by manufacturing. are rapidly decreasing as professional management, In addition to being the leading growth area in the required by intensive mechanization, becomes the State of Georgia, Atlanta is increasingly becoming norm. the central urban area of the southeast region. Long As mechanization and large farms become the recognized as the transportation hub of the entire standard in Georgia, the traditional trek to the city by region, the Metropolitan area's function as a whole- farm laborers, tenants, and small owners increases. sale and retail center, and as a manufacturing and This trend to the city, already witnessed in other distribution center has increased dramatically in the parts of the country, has been accelerated in Georgia past decades. Its place as the central communications to a point where urban-rural data for 1950 which point seems assured for some time in the future. showed a population of 55 percent rural, and 45 per- With no major geographical barriers, with a tax cent urban, were completely reversed in the 1960 system consciously geared to -attract industry, with census with Georgia now having over 55 percent of a planned network of expressways and a well-planned its population in urban areas. circumferential highway connecting six major seg@ Figs. B-10 and B-11illustrate the pattern of popula- ments of the interstate highway system, the Atlanta tion gain and loss in this State for the decades from SMSA appears destined to become the most important 1920 to 1960. On each of these maps the darker the Metropolitan area in the entire South. area the longer the county or counties have been gaining or losing population. Thus, onFigjB-Joshow- The People ing population increase, those counties containing large urban areas have shown consistent gains, while No one is better aware of the deficits faced by the on Fig. B-3.1 the rural counties, lying in a band running people of this State than its own residents. Studies in 121 DECADES OF POPULATION INCREASE Appearance of increase (960 HIM 19,4o 1930 1920 COOSV468 Of Population. FIGURE B-10 122 DECADES OF POPULATION DECREASE Appearance of Decrease 'fill I I I I 1960 1950 1940 1930 1920 ......... .. . .... ... (j, -4, .1 I h jj@ Source: Censuses of Population., FIGURE B-11 123 State agencies point out the relatively low educational A Look at the Future Development of the State level, the low. per capita income, high birth rate, high infant mortality rate, and the loss throughout- Economic migration. Such studies point with pride to the great studies made toward meeting these deficits but are A. The general exodus from farm to city will con- honest in admitting that much remains to be done. tinue in Georgia with urban areas representing ap- Georgia's residents are relatively homogeneous in proximately 75 percent of the total State population in national origin (British Isles. Only 0.5 percent of the the year 2000.7/ population is fareign b6rnF,_religRo_n (95.4.pereent B. Agricultid-ral employment will continue to de- cline sharply, with productivity continuing to increase. belong to a Protestant church), and mores. They are The number of farms will continue to decrease, while younger than the national average. The median age the size value per farm, and value per farm acre in Georgia is 25.9; in the United States 29.5. A great will incr'ease. By 1976, agricultural employment will part of this difference is'found in Georgia's rural account for 7.3 percent of the work force and this will areas where the median age is only 24.1 years as decline to 3.4 percent in 2000. Currently, agriculture opposed to an urban median of 27.2 years. The rural accounts for 13.7 percent of the labor force.8/ figure is, of course, a result of a much higher birth rate and a shorter life expectancy. In general, C. Manufacturing will continue at approximately its Georgia has more young people-38.9 percent of the present position as a user of labor comprising around population is under 18 years, compared to a figure of 23 percent of the total work force by 2000. Substantial 35.8 percent for the U.S.-and less old people-7.4 changes will probably occur in the nature of manufac- percent over 65 years compared to a national figure turing employment as textile employment declines of 9.2 percent. due to automation, while market- and-resource based industries, especially metal products, will increase The Negro population ratio has been declining rapidly. Metal working will represent approximately steadily. In 1900, 46.7 percent of the population was a quarter of all manufacturing by 2000. colored; in 1920, 41.7 percent; in 1940, 34.7 percent; D. Transportation,. construction, trades, utilities, in 1950, 30.9 percent; in 1960, 28.6 percent. The and government probably will 'retain about the same Negro population living in rural areas has declined relative position in the future that they holdin today's both as a percentage of the total population and also economy. in absolute numbers. On the other hand, the Negro . E. Georgia and the Southeast have been gaining on population In urban centers has increased. Projection U.S. per capita income since 1929, but by 1960 of trends from 1950 to 2000 indicates that by the latter Georgia's per capita income was only slightly more year the Negro population will amount to less than than 72 percent of the U.S. average. It is expected 16 percent of the total population, and that it will be that this gain will continue but at a slower rate, and concentrated almost exclusively in urban areas. that by the year 2000 will still be less than 85 percent The crude birth rate in Geogria has consistently of the national average. The increasing per capita averaged 10 percent higher than the Nation as a whole. income in Georgia will result from inoreased.urban- This differential, however, is found exclusively among ization, industrialization, and a continuing rise in the Negro race. The urban nonwhite population in educational level. A reduction in low-paying pursuits Georgia has a birth rate 20 percent higher than the such as farming and personal service also tends to national average, while the rural nonwhite population increase the per capita income. has a birth rate 60 percent higher than the national F. Farm woodland should decrease during the next average. As the Negro population concentrates more 40 years while nonfarm woodland should hold its and more in urban centers, the differential between present position or increase slightly. white and nonwhite birth and death rates will slowly G. The Atlanta SMSA is expected to continue its disappear. position as a major growth area. In the words of one Georgia has both gained and lost population due to of the foremost economic statisticians in the South:_ migration over the years. For the period 1951-58, "The city (Atlanta) has a broadly based, diversified Georgia lost 41 percent of its natural increase through economy. It is a regional city, and draws much of its migration; this was considerably less than the drain economic strength from outside Georgia. Atlanta is from migration during 1940 to 1950, when the loss the capital of Georgia and also a great commercial was 48 percent. A projection of migration data indi- and industrial center. There are no natural barriers cates that migration will shift in 1980 from a loss inhibiting growth. The result has been a city expan- factor to a gain factor in the State's population growth. sion of the entire 360' perimeter. Factors are mostly Such a projection, of course, assumes a continuation enhancing to its future growth. Therefore, we believe ,of strong economic development. Educational achievement is also increasing rapidly. -Z/Based on projections submitted to the Southeastern River With a minimum foundation program assuring certain Basin Commission by Professor John Fullmer, Georgia Insti- minimum standards of expenditure; with a substantially tute of Technology. improved certification program, an excellent con- !/Projections from National Planning Association, "Economic struction program, and the inevitable passage of a Projections by States for the Years 1976 and 2000," (Pre- Federal grant-in-aid act for education, the deficit pared for Outdoor Recreation Resources Review Commission, existing between the South and the rest of the Nation 1961), and from projections of Professor John Fullmer pre- with respect to educational achievement should dis- pared for the Southeastern River Basin Study Commission appear by the year 2000. (unpublished). 124 the city's long-run growth rate will be sustained.". (4) As more and more of Georgia's population This authority projects the population of the Atlanta concentrates in urban areas, and as new industry SMSA to 2,990,000 in the year 2000. continues its practice of locating in those same The National Planning Association estimates the areas, the amount and quality of space available population of the Atlanta SMSA in 1976 as 1.8 million for outdoor recreation in and around urban areas and as 3.28 million in 2000; while the bureau of Labor will become more and more scarce. This simply Statistics estimates 1.6 million in 1976 and 2.9 million means that not only will the total -area available in 2000.9/ Since the BLS figure is closer to the for recreation decrease in and around urban areas, author's judgement, it will be used in the remainder but it will also tend to be "chopped up" into sec- of this report. Table B-33 includes data onpopulation tions that are not themselves large enough to pro- projections for 1976 and 2000 as well as projections vide park areas. The need to protect that green on per capita income and civilian employment for space now -available and to hold it for future rec- 1976 and 2000. Per capita income inthe Atlanta SMSA reation use, was the prime reason for the Williams is estimated by the NPA at $3,010 in 1976 and at bill in the last session of Congress. $4,338 in 2000. Civilian employment should approxi- (5) A generally higher per capita income and a mate 650-700,000 in 1976 and 1,150,000-1,200,000 in shift in manufacturing from textiles to metal prod- 2000. ucts with a noncomitant rise in occupational status will mean a general increase in outdoor activity in Table 3-33. Selected data for Atlanta S.-ASA, the State at large and in the Atlanta SMSA. 1976 and 2000 (6) There are indications that the South will con- tinue to suffer from an excess of unskilled labor. Subject Year As new industry moves to the South it constructs 1976 2000 new plants-modern automated plants-thus de- creasing the amount of manpower needed. Popula*tion (000) .......... 1,600 2,900 (7) The decrease in agriculture and domestic Per capita income ......... $3,010 $4,338 services, activities now engaged in by large num- Civilian employment (000).. 1 650-700 1,150-1,200 bers of Negroes, will increase the income of those Negroes who move to other occupations. Source: Population and civilian employment data from U.S. Bureau of Labor Statistics, "Projected Total Population and Land Use Patterns Total Labor Force for Selected Areas in the U.S. for 1976 and 2000." Per capita income figures from National Planning As the population of the Atlanta SMSA increases to Association "Economic Projections by States." its figure of approximately 1.6 million in 1975 and 2.9 million in 2000, expansion will be greatest along Manufacturingin the SMSA will hold about the same the major expressways and interstate highways. Ex- relative position it has in 1960: trade activities, con- pansion will probably be greatest in the next two struction, and service activities (except for domestic decades to the northeast, northwest, and southeast. services) will increase with the greatest increase The rate of expansion to the north will decrease, occurring in professional services. Government em- however, as the metropolitan area reaches the south- ployment should hold its present position. ern extremes of the mountain area. The effects of each of the above conclusions on Figure B-3 illustrates the present areas of popula- outdoor recreation are obvious. tion concentration in the Atlanta SMSA. An overlay of the expressway system would tie the cluster to the (1) While farmland is theoretically available for central city in a dramatic fashion. recreation purchase, its increasing value per acre In the period following 1980, increasing expansion makes prohibitive the cost of purchasing tracts of should occur to the southeast and to the southwest. sufficient size to permit effective use as recreation The latter is an area that in decades before 1960 has areas. shown a very slight increase, but long-range plans (2) For those remaining on the farm, per capita for developing water routes to the Gulf should change income will rise rapidly. If, as the National Rec- the southeast area to a popular industrial area. reation Survey indicates, outdoor activity increases The pattern of land use should follow that by large as income rises, an increase in outdoor activities urbanized areas all over the country. The central by rural residents may be expected. city will continue to lose residents to the suburbs as (3) The decreasing amount of farm woodland it becomes more and more the commercial heart of means a withdrawal of land potentially available the area. Existing residential areas close to the for recreation purposes. On the other hand, non- central city will probably take on more and more of farm forest land should hold its own, and assuming the characteristics of the central city, and will, a continuation of the 'current practice of permitting therefore, lose their suburban characteristics. certain types of recreation on private lands, this Industry, in particular light manufacturing, will resource remains available for exploration. expand' along the expressways. Residential areas spr@@ading further and further from the central city will take the shape of the now familiar cul de sac 2/NPA, Economic Projections by States, p. 149, U.S. Bureau of extending out from the expressways and connection Labor Statistics, "Projected Total Population and Total routes. The six major arms of the interstate system Labor Force for Selected Areas in the U.S. for 1976 and will be. connected by a series of circumferential belts 2000," unnumbered table pre&red for ORRRC, April 1961. permitting residents of any one section to travel 125 rjV 4,A POPULATION DISTRIBUTION -1960 ONE DOT EQUALS 2500 PERSONS SCALE IN MILES 5 5 Willi ATLANTA REGION METROPOLITAN PLANNING COMMISSION FIGURE B-3 126 rela tively easily to any other section of the city or to The concept of the green belt surrounding urbanized the downtown area. A rapid transit system now in the areas is not tenable in the Atlanta situation. Such a planning stage, will result inevitably in the exclusion concept envisions a city spreading rather uniformly of private vehicles from downtown areas. Present outward in a series of concentric circles. Atlanta is plans call for high-speed busses for a rapid transit not growing in this manner and there is little evidence system, but these will doubtless be replaced with that its pattern will change. The sector theory of city newer forms of transportation such as the monorail, growth comes closer to meeting the pattern set in or the air train (a vehicle floating a few inches from Atlanta but it too is outmoded by the great changes the ground and traveling at very high speeds). brought by a system of high-speed expressways. Present type industrial districts will mostprobably be unable to withstand the continuing pressure of Trends in Regional Culture industrial expansion and will evolve into a pattern more similar to the sector concept of city growth. All evidence available points to a diminution of the The year 2000 should therefore present a picture of existing differences in regional culture patterns in a metropolitan area with a less densely populated the United States. The many factors influencing this central city than is found in 1960. Arms will project trend toward homogeneity include: (1) increased mo- from this central city in six directions to a distance bility of American residents particularly among the of 35 to 40 miles in the north and 40 to 45 miles in growing number of young educated persons ';, (2) the the south. The area between these arms will be tremendous impact of television bringing all sections essentially residential in character with the subdivi- of the Nation into every person's living room; (3) the sion remaining as a common symbol. Subdivisions increasing standardization of physical vestments and now existing close to the central city will have either tastes caused by the spread of chain stores; and (4) disappeared or will be comingled with commercial the overwhelming importance of Federal grant pro- and industrial properties. grams that establish minimum standards of health, The amount of land devoted to farming inthis ever- welfare, and security. widening metropolitan area will continue to shrink Of the above factors, that which is most important rapidly. Farm land cannot compete in value with in the South is the Federal grant program. The South's either industrial or residential values. Thus, those rise from its position as.the "Nation's number one areas within 50 miles of downtown Atlanta that are economic problem' I has been accompanied by rising now utilized for farming will disappear. standards of health and welfare due almost exclusively Residential areas extending out from 'the arms of to Federal "intervention." The inevitable passage of the expressways probably will not take on the char- a Federal aid-to-education act will emnplete the cycle acteristics of Levittown. Instead they should tend to that began with the passage of the Land Grant College consist of a relatively small number of homes ar- Act in 1862. An education act will provide the means ranged in the now familiar circle. Residential lot of meeting the South, s greatest single defect today- an sizes should. be approximately the same as they are education median far below that of other sections of in 1960 unless dramatic break through in utility the country. services make larger lots possible. Georgia expends a greater portion of . its total The shopping center pattern already set in the revenue on education than do 42 of the 50 States; yet Atlanta SMSA will probably continue. As residential the schools -in this State are tragically inadequate in areas spread out from the central city, additional meeting the needs of a rapidly increasing population. shopping centers will be established. In the first half The 12-year elementary and secondary school sys- of 1961 over one-half of every retail dollar in the tern,is less than a decade 'old in Georgia,.and while metropolitan area was expended outside the central the one-room school is rapidly disappearing, its city. This trend should continue as. retail outlets vestigial remains continue to hang'on in many rural continue to desert the central city in moves to the areas. The exodus from rural areas to urban centers suburbs. Every major department store and chain has completely disrupted the Georgia education pic- food store has now established branch outlets in the ture. While children go to school in shifts in some growing number of shopping centers. cities, fine new school buildings stand practically Wholesale trade will continue strong in the down- vacant in some rural counties. .town area because of the transportation advantages With the passage of a Federal aid-to-education act, gained. Almost certainly wholesale distribution sub- first for constructionpurposes, then for,supplementing centers will be established along major expressways. teachers' salaries, will come Federal . minimum Finance, professional, and utility operations, along standards in teacher certification, curriculum com- with central business headquarters will dominate the position, and other aspects of Federal aid. The net downtown area. result of such standards will be an upliftingof the en-_ The pattern of growth described above, with indus- tire educational structure to a point whereby the year try spreading along the major highways and subdivi- 2000 the State of Georgia, as well as the Atlanta met- sions extending out from those highways will result ropolitan area, should not vary greatly, if at all, from in large areas of open space that will be available for the national pattern. It can be predicted, therefore, recreational use. The danger inherent in this pattern that recreational preferences, based on differences is that these spaces, though large in the aggregate, in educational achievement, should be essentially the will be so chopped up by highways, commercial en- same in Georgia as in every other section of the claves, and small subdivisions, as to make largepark United States. areas impossible. Action to preserve these open Other cultural differences found in the South, such spaces must be taken.soon if it is to be successful. as the traditional large southern family, the relative 127 absence of mobility, the intensity of religious activity, facilities are inadequate. For a race that constitutes will probably decline in the future. The differences 28.6 percent of the total population, there are only now existing between the South and other sections will five separate parks and two areas in white parks; but decrease as the urban trend contir,ies in this region. raw data do not give a true picture of the adequacy of Size of family, for example, should approximate the Negro outdoor parks. Negro parks, for example, have national average by 19 80, since the greatest difference no overnigat facilities, no group camping, only one between Georgia and the rest of the Nation at present has a restaurant and only four have boating and swim- is found in rural areas. ming facilities. Of the 54,849 acres of State park If it can be assumed that a greater degree of homo- property, slightly less than 2,000 acres (less than geneity will prevail among the various sections of the 4 percent) are reserved for Negroes. country with respect to demographic characteristics, What the future will bring can be only a matter of there appear to be two very important factors that conjecture. At present, Negroes in Atlanta have in- may well distinguish the South from other sections of stituted legal proceedings to integrate city parks. the United States. Opinion among veteran observers is unanimous in The first of these factors is associated with the believing that if successful, this action will result in Negro problem in the South. Data to substantiate closing all swimming and picnic facilities. Opinion is predictions about the future of the Negro in the South just as unanimous that an attack on segregated State are completely lacking. In their absence one is forced parks will have the same result. How long such a to resort, with many misgivings, to the judgement of closure would remain effective may be judged in part those who have observed the southern scene for some by the situation in Virginia. time. Based on such judgements, it can be predicted The Virginia Seashore State Park, probably the that the Negro problem will not be solved in the South most popular of all State facilities, was closed in 1956 by the year 2000. While great strides have been made as a result of a desegregation order. Attempts to in raising the economic and social status of the Negro lease the park were blocked by an injuctive proceeding. in.Georgia, he still remains in a definitely inferior The park remained closed until 1-961 when it was re- position. opened but only for walking and riding purposes. The decreasing number of Negroes engaged in Swimming, camping, and picnic areas are still closed, agricultural production and domestic services will and opinion in Virginia is strongly against reopening result in a higher income level for this race, but the these facilities any time in the foreseeable future. concentration of Negroes in urban areas, and in par- If. Virginia's behavior is any guide, it can be antic- ticular in the Atlanta area, will serve to intensify ipated that Georgia's park system will be disrupted rather than mollify the conflict between the races. for years in the event of integration. Certainly new. One should draw little encouragement from the park acquisitions and capital expenditures in present victories won to date in the struggle of the colored parks are both kept at a minimum as a result of the race against the barriers of segregation. While ever-present specter of integration. major victories have been won, they have not occurred The Negro problem slides easily into the second in areas of great sensitivity. For example, the in- major factor that distinguishes the South from other tegration of the city of Atlanta's golf courses was sections. It is traditional in the South for upper in- peaceful almost entirely because of the insignificant come and, increasingly of late, for middle income number of Negro golfers. Had there been thousands groups to purchase private recreation facilities in the of Negroes anxious to participate in golfing, the end mountains or on the shores of private or public result would have been the same, i.e., the integration reservoirs. The proximity of Lake Allatoona. and of the municipal golf courses, but the effects.would Lake Lanier has increased this practice for residents have been radically different. It can be posited that a of the Atlanta SMSA. While data to substantiate this wholesale influx of Negro golfers would haveprobably thesis are not now available, it seems probable that resulted in either a closing of the golf courses or in the closing of State parks would not be felt as strongly an exodus from the courses on the part of the whites. by those who traditionally make decisions in Georgia A pattern of recreational use has already developed as it would be felt by the low income groups. in Atlanta that is similar in many ways to the "block- While the Negro's status will doubtless improve in busting" that occurs in most northern and some the South, it would be optimistic in the extreme to southern cities. As the colored section in the down- expect his assimilation into the traditional southern town area spreads, an exodus of whites occurs from culture any time in the near future. Should the courts those neighborhoods into which the Negroes move. force an end to segregation in State parks, attempts The inevitable result of this spread is that white will first be made to circumvent integration by playground areas tend to become surrounded by mixed lease or sale of the parks, then closure will be or colored neighborhoods. When this occurs, the end ordered. Since those persons with the greatest product is a transfer of the playground from white to political influence in this State have private recrea- colored status. Within the past 12 months, two previ- tion resources, or are rural residents whose demand ously all-white playgrounds in the city of Atlanta have for outdoor recreation is low, the pressure to reopen changed status in this manner. will be resisted for many year Is. At the present time Negro recreation facilities in the city of Atlanta are practically equal to the, white Rising Demand for Recreation Facilities in most instances. What the colored race lacks badly, what Atlanta and Atlantans lack, are parks in the downtown area and green spaces in public housing Projecting trends is a tricky business under any facilities. At the State level, Negro outdoor recreation set of circumstances. Demographers who, as late as 128 the 19301s, were predicting that this country's popu- activity might wish to engage in the same activity at lation would peak out at something around 175 million the same time, the probability of this happening is have, ever since, been revising their estimates almost nil. upward often with unseemly haste. Much the same It is apparent, however, that regardless of how one has been true of economic forecasters who have been rationalizes recreation figures, there will be a very wrong more often than right as they attempt to pre- large increase in the demand for outdoor recreation dict the intermittent curves of the GNP and its in the Atlanta area. Asper capita Income, educational components. level, and occupational status increase, the rate of If population projections are dangerous, projections participation in outdoor activities will certainly in- of recreation demand or even more so. The absence crease even it the total resources available for such of accurate data on past preferences and habits activities remain fairly constant. Research on the makes difficult the establishment of any base points question concerning the point at which a resource is froni;,which to work. -Of like. importance is the fact so crowded that people will look elsewhere for their that the segment of outdoor activities that require recreation is too uncertain at present to permit expenditures for equipment such as camping, boating, valid. conclusions to be drawn. While it can be as- water skiing, some types of fishingi and hunting, sumed that such a point does exist, the experience are often subjects of fadism. All three of these fac- of such divergent areas as Jones Beach and Yosemite tors require of the researcher a knowledge that he is National Park indicates that the average individual operating in an area not yet susceptible to precise will accept extremely crowded conditions at his mathematical calculations. favorite recreation spot before he rebels to the extent If it can be assumed that relative peace prevails of staying away. 13/ during the next 40 years (relative in this sense as- What is happening in Georgia is not at all unique. surnes a continuation of the cold war at its present More and more people have achieved an income level temperature level-no hotter and not substantially that permits more funds to be expended on recreation. colder), and that the economy of the country improves Unfortunately, the overwhelming majority of these in a relatively smooth ascending curve, it can be people participate in outdoor activities almost ex- predicted that the demand f or outdoor recreationin the clusively in the summer. Thus, in Georgia, at least Atlanta SMSA will triple its present rate of approxi- 80-85 percent of all visits to major outdoor areas mately eight user-days per capita. 10/ On the basis occur during the months of June, July, and August. of the rate of inc reases in the past and-a continuation of To make the problem of recreation planning even more the present move of the population to urban areas, a difficult, demand even during the summer months is tripling of demand is a very conservative figure. 11/ concentrated largely on weekends. The result is that Assuming a population of 2.9 million for the Atlanta facilities that are overcrowded on Sundays inparticu- SMSA in theyear 2000, 12/afigure of 25 user-days per lar, lie relatively unused during the week. Manytrips capita represents the enormous total of 72,000,000 were taken to various parks to test this thesis. user-days by the turn of the century. Without exception, Sunday visits to State parks, Corps This extremely large figure needs some interpre- reservoirs, and scenic areas in the national forests, tation. It should not be read as implying that 72 brought back reports of serious overcrowding. Yet, million persons will descend on outdoor resources repeat visits on any weekday showed that facilities from the Atlanta SMSA. The National Recreation Sur- outside the boundaries of the Atlanta SMSA were vey, the Survey Research Center survey, and the Buford being used at approximately 30 percent of capacity. onsite study all demonstrate with varying degrees of Checks of campsites and cabin rentals indicate that conclusiveness that single-purpose visits to a recrea- the pressure on overnight facilities is also essentially tion area are rare indeed. Thus, an individual, or a weekend phenomenon. An increasing number of per- more appropriately a family, will for example, visit sons arrive at the park or forest on Friday evening a State park to camp, picnic, swim, boat, and fish. and stay until Sunday evening. Visits to campgrounds In any projection of user demand, such a family is, during the week invariably resulted in reports of in effect, counted five times. While it is true that only light pressure on overnight facilities. theoretically all those who participate in an outdoor ORRRC studies on vacation and leisure time in- dicate no substantial changes in the workweek or in LO/The figure of 8 user-days was arrived at by adding the total vacation schedule. 14/ In essence these projections visitation figures for all recreation areas within a 75-mile indicate a workweek of approximately 30 hours radius of Atlanta and allocating these figures to the Atlanta spread over 5 days, and a vacation schedule keyed SMSA and other areas on the basis of estimates, observed records and licenses, and discussions with private and public officials. Using this method, the Atlanta SMSA showed a gross figure in 1960 of approximately 8 million user-days. The author would be the first to admit that this figure is not susceptible to a close audit, but it does represent our L3/There are some indications, in fact, that many people en- closest estimate. joy a crowded recreation area rather than a quiet place in Ll/The figure of 25 user-days per capita was also arrived at by which they ore alone. A great deal of research needs to be the Southeastern River Basin Study Commission for their undertaken before any valid conclusions can be drawn con- target year of 2000 for the eight river basins under their cerning recreational preferences. The NRS and the SRC re- L2/ jurisdiction. L4 ports represent only a narrow beginning. ORRRC and Southeastern River Basin data agree substan- _/See ORRRC, "Leisure Time in the U.S. in 1976 and 2DOO," tially on the figure of 2.9 million. Working Paper No. 19, May, 1961 129 to the 3 summer months. 15/ If these projections The effect of this system on outdoor recrea- are valid, the same uneven demand with great peaks tion would be great indeed. Industrial vacations on the weekend now observed will continue. Three in the United States are very closely linked to questions must be raised concerning this problem. the school vacation. To adopt a system such as 1. Does the projection of vacation time period described above would nece"itate a complete take into account the increasing interest in suggestions revision of industrial vacations, and would serve for changing the traditional 9-month school year to to spread the pressure on outdoor facilities more one that operates on a four-quarter basis? 16/ There -evenly over the year, requiring again awholesale is growing criticism of a system that permits a revision in the current recreation program now multimillion dollar capital plant to sit vacantfor tied directly to warm weather activities. Con- 25 percent of the year, and then to utilize "double versely, such a system would almost certainly shifts" during the regular school term. Pedagogists increase the amount of weekend activity during also question the loss to the student when his 9 the summer months. months of activity are followed by 3 months of inactivity. 17/ In any case, long-range plans for outdoor recreation Some interesting models can be constructed .in this should be drawn only after close consultation with area that are plausible and that would have a tremen- policymakers in the field of education. dous impact on outdoor recreation. Two examples 2. The second problem that must be raised is should suffice to demonstrate what is meant. tangentially related to the first. Serious questions can be raised about any program designed to meet a A. Assume a system in which children go to demand felt only on weekends. If school systems are school 12 months a year with a vacation period criticised for permitting capital structures to sit of 1'month following each 3 months of school. vacant one-quarter of the time, what criticism could Thus, a child would be in school during the be directed against park facilities that are practically months of September, October and November, unused over 90 percent of the year? and on vacation during the month of January. The problem of severe fluctuations in the demand Summer vacations would then be limited to a curve apply to day-use as well as overnight facilities. month. The effect on outdoor recreations of such Picnic tables represent a good example of this cate@ a system would differ for families with and gory. One gets the impression from demand curves families without school children. For those that the acreage of outdoor recreation areas must be with school, children, the effect of the system literally covered with picnic tables to satisfy all those Would be to concentrate a fantastic demand on who wish to engage in this favoriteformof relaxation. summer vacation facilities for I month. Addi- Yet visits to recreation areas during the week find tionally, there would probably be an increased empty picnic tables starkly demonstrating the peaks interest and participation in cold weather outdoor and valleys of user-day demand. activities. 3. Still another problem alluded to earlier in a B. Assume a system in which the school sys- different context faces recreation planners. In an tem operates 12 months of the year with earlier chapter, reference was made to the fact that one-quarter of the school population on vacation Atlanta's park system is increasingly usedbypersons each quarter. Pedagogically this system would from outside the city, outside the metropolitan area, have no advantage over that now operating, but and even at times by residents from outside the State. it would increase the capacity of all schools by To attempt to measure the. capacity of Atlanta's parks one-fourth and would mean that school facilities to meet an increased demand on the part of its own would be in operation 12 months of the year. residents is impossible without knowing how many nonresidents will use these same parks. L5,'Precise figures for the year 2000 are a workweek of 30.7 Likewise, the capacity of existing and planned hours and a concentration of 67.4 percent of the population State and Federal areas to meet increased demands taking vacations during the months of June, July, and of residents of the Atlanta SMSA, is dependent in August. Projections on vacation periods were not extended large part on how many persons from outside the beyond 1976. These figures may be compared to a work- study area also wish to use these facilities. Assume, week of 38 hours in 1959 and a vacation schedule that con- for example, that the figure of 72 million user-days centrated 67 percent of vacation time in the 3 summer months. is valid for the Atlanta SMSA. Assume further that L6-'For an interesting and provocative study at the relationship with intensive development, existing resources (par- between education and outdoor recreation see George D. ticularly the two national forests) could accommodate Stoddard, "The Merging Pattern of Outdoor Recreation and this volume. Then, obviously this entire plan could Education- Prob I am s, Trends, and Implications" (Working be rendered useless, if by virtue of its development, Paper prepared for ORRRC, July 10, 1961). Unfortunately, the Chattahoochee Forest became very attractive as a Professor Stoddard devotes most of his paper to a presenta- vacation resource for large numbers of persons from tion of materials on the use of outdoor camps as a part of outside the study area. the regular school curriculum. On the matter of change in This interdependency of recreation areas is men- the length of the school term, he dismisses this as having tioned repeatedly in the Perloff and Wingo paper, "Ur- been tried with poor results because of parent reaction. ban Growth and the Planning of Outdoor Recreation," U/Certainly the need for a 9-month school term with free time where it is noted that persons desiring to use outdoor in the summer was necessary when children were needed to facilities do not respect political boundaries. To help on the form during the growing season. To continue it attempt to meet this problem by some division of at present, however, seems indefensible. responsibilities such as natiQnal areas for vacationers, 130 State areas for weekend trips, and local areas for grams. What is sadly lacking in downtown Atlanta, day-use facilities seems to ignore a very common and increasing in such metropolitan area cities as human trait of using whatever is available where it is Marietta, East Point, and Decatur, are green wooded available. Thus, residents of the Atlanta area will areas with paths, benches, gardens, arboretums, riding doubtless continue to use certain State parks as day- trails, and the like. use facilities, and will use the Chattahoochee Forest Acquiring the land for downtown areas will be as a day-use, weekend-use, and vacation area regard- expensive, but a city that can afford to utilize over less of what this does to recreation planning. half of its area 19/ for parking lots and garages can What is needed then is not so much a system with certainly provide green areas for its residents. time designations, i.e., annual vacations, weekends, Both the urban renewal acts and the new omnibus day-use, but rather substantial multiple purpose housing acts provide means of financing such spaces areas within reasonable commuting distance of major on a limited basis. urban areas. Perloff and Wingo note that the need in In addition to providing green, open spaces down- the future should not be thought of in terms of beau- town, recreation areas for public housing projects tiful scenic areas, but in terms simply of large are long overdue. Since it appears that public acreages of land. housing, as a part of urban renewal projects, will The Atlanta SMSA appears to be particularly. for- be a continuing part of the American scene, it is tunate with respect to future needs. Not only does it recommended that in all future developments, parks have extensive public areas relatively close to its and recreation areas be provided as an integral boundaries, but those areas are very scenic. Addi- part of the plan. Current obstacles in Federal legis- tionally, the absence of large urban areas close to lation to this type of development should be removed north Georgia would indicate that an invasion by and park areas should be required before any funds gross numbers of out-of-state visitors to the Chatta- are made available for housing projects. If outdoor hoochee is unlikely. 18/ With the extensive changes in recreation has beneficial results on its participants, transportation forecast in the 0RRRC study on this then surely those economic unfortunates who are subject, however, residents of urban areas in the forced to live in public housing can profit from it Midwest and the Middle Atlantic States may begin at least as much as the suburbanite whose home to use north Georgia as a vacationland. sits on a half-acre wooded.lot. Since the area of national planning of recreation resources is beyond the scope of this study, it can Regional parks only be suggested that in a nationwide plan the interdependency of all recreation sources, Federal, State and local, be given a major place. With this Of equal importance to the Atlanta SMSA is the request recorded, the following recommendations are need for extensive regional parks. Too frequently made for the future of outdoor recreation in the in the past, park planning in 9.11 urban areas has Atlanta SMSA. consisted of a land use survey that gives highest priorities to industrial and residential properties, Future Needs of the Atlanta SMSA in ascertaining what remains and designates that as the Areas of Outdoor Recreation park or recreation areas. The areas designated for parks are then "zoned for recreation, but are not. Following the general format used throughout this rapidly developed. The. resultant in too many cases study, recommendations in this section will be pre- has been an increase in the value of the land set sented according to the level of government involved. aside for parks as the consequence of the expansion of industrial use property. Once the recreation Local Facilities property has appreciated in value, the cry is raised that the city cannot afford to set aside such valuable Two major steps must be taken at the local level land for such an esoteric purpose. A film of past if the rising demand for day-use facilities is to be experiences would thus reveal the designation of park met in the Atlanta SMSA. Each of these needs has land fairly close to the central city; the inundation been discussed in some detail in early sections of of that land by industrial districts, the designation this report and will, therefore, be summarized here. of new park land further from the city and its inundation. This process repeated ad infiniturn re- Downtown space sults in parks being established not where they are needed, but where the land is not useful for any other While praise is due the excellent work of the purpose. Atlanta Department of Parks and Recreation, its Because of the inability of a city or even a metro- activities like those of recreation agencies in sur- politan area to finance the acquisition of large tracts rounding urban areas, are restricted too much to of land relatively close to the central city it is the playgrounds and indoor programs. While no one recommendation of this study that the Federal Gov- can criticise a well organized playground program, ernment and the State of Georgia jointly finance the it inust be recognized that this type of program is acquisition of land for three major regional parks aimed primarily at children or the relatively few within the limits of the present SMSA. Major parks adults who participate in the arts and crafts pro- L'/The major urban areas within reasonabie distance of the 2/At the present time over 54 percent of the area of the city* of Chattahoochee Forest have large forest reserves of their own. Atlanta is utilized for some type of parking facility. 131 in the meaning of the phrase as used here would Action on the proposal for regional parks must be constitute a minimum of 5,000 acres each. undertaken at the earliest possible date as the amount While the location of such parks should be decided of available land within the Atlanta SMSA is rapidly upon by common agreement of the governments in- dwindling. Data for 1960 on land in farms as a volved, a strong suggestion is made here that serious percentage of total land area in each of the five consideration be given to the establishment of one counties comprising the SMSA show DeKalb County park along the eastern bank of the Chattahoochee with 20 percent, Clayton County with 26.7 percent, River where that stream forms the western boundary Cobb County with 30 percent, Fulton County with 33.9 of Fulton County. A park of the nature envisioned percent, and Gwinnet County with 42.5 percent. This here would extend some 300 to 500 yards back from percentage is dropping rapidly and as it drops the the river's edge, and would form a strip running price of that land remaining will increase propor- parallel to that edge. Development within this park tionately. In 1954, over 52.1 percent of the total land and in the other two required parks should be imagina- area of the SMSA was listed as farmland. Six years tive and should look to the needs of a population that later not one county listed as much as 50 percent of will increasingly consist of large numbers of young its land under the category of farmland. Unless action and old people. is taken almost immediately to preserve the 15,000 The financing of regional parks should be a joint acres recommended above, the cost of acquisition venture. Acquisition costs should be borne by the will increase to prohibitive heights. Federal and State Governments on a pro rata share of something approaching the 50-50 ratio now in State Facilities use for most grant programs. 20/ The cost of development irid maintenance would Recommendations for future State programs in State most app .ropriately fall upon the shoulders of the facilities are partially negative and partially affir- constituent governments of the metropolitan area. mative. In a negative sense the State should neither The actual operation of regional parks would be purchase nor accept as gifts small tracts of land or under the control of a regional parks commission water for development as State parks. Many existing comprised of representatives of each of the five parks are much too small (10 comprising less than counties plus an additional representative from the 100 acres) for extensive development either as city of Atlanta. The present Metropolitan Planning day-use or weekend facilities. Commission represents a model that might be used Those State parks that are either already within in establishing the structure of the governing body. the limits of small towns or that are so close to Powers and duties of the parks commission should a small town that they are essentially local parks, clearly establish this body as the policy-making should be turned over to local authorities for ad- mechanism with the power to hire an executive ministration. In future acquisitions care should be director to administer the day-to-day operation of the taken to see that parks are so located as to be required parks. accessible to residents of urban areas but not . A fee schedule should be established for all facili- located in urbanized areas. ties in the regional park. Such a schedule should Any further use of the authority device as a means differentiate between residents and nonresidents of of financing and administering additional state parks the SMSA. The schedule should be sufficiently high should be discouraged. All too frequently authorities to discourage the use of the parks by large undis- in order to amortize revenue bonds must establish ciplined groups, but certainly low. enough to attract a fee schedule so high as to preclude the use of the lower income families. The precise fee schedule facilities by a majority of the State's citizens. Addi- should be calculated so as to finance a large part tionally, the authority serves to proliferate the num- of the special facilities located in these parks. bers of agencies involved in recreation making plan- In proposing the use of a metropolitan-wide com- ning more difficult, and making the task of assigning mission, the author is aware of the conflict between responsibilities almost impossible. this suggestion and his criticisms of the Jekyll Island The potential confl ,ict between the State Game and Authority as being outside the normal chain of com- Fish Commission and the State Department of Parks mand. There is, however, a great difference between can be prevented if early action is taken to define the two structures. There is in being a State Depart- the respective jurisdictions of the two agencies. ment of Parks capable of administering a facility The State Game and Fish Commission should retain such as Jek jurisdiction over the propagation of fish and game, .yll Island; there is no such agency in existence in the metropolitan area of Atlanta. Since should enforce hunting and fishing regulations, and it would be the epitome of political naivete to suggest should cooperate with the State Department of Parks a consolidation of existing governments in the Atlanta and the State school system in educational programs, SMSA, some joint arrangement is necessary before but the planning and administration of recreation a metropolitan-wide program can be undertaken. programs should be the sole prerogative of the State Additionally, under the plan suggested'above, parks' DeDartment of Parks. .commissioners would serve as representatives of With respect to overall administration, a major the governing bodies of the local units and thus would decision must be made with respect to the efficacy be responsible to elected officials. of removing the Department of Parks from the Division of Conservation or making the legal fiction LO@This type of program does not fit the requirement of existing a fact by giving certain administrative control over Federal aid legislation, and would thus necessitate new State parks to the Division of Conservation. Control action by Congress. in this sense includes record keeping, personnel 132 recruitment and training, central control of financial of visitors by 1976, and double again by the year transactions and records. Under current conditions 2000 if its facilities are expanded. Suggestions that existing in Georgia, this report recommends the portions of this park be sold or leased to private establishment of a separate department of parks in owners should be 'resisted, and every effort should name as well as in fact. be made to return the supervision of the park to the Facilities in certain developed State parks located State Department of Parks. within a relatively short distance of the Atlanta Of the undeveloped parks, the one that will doubtless SMSA should be expanded. Major.expansion in camp become very popular is Lake Sidney Lanier State and trailer grounds should be undertaken at the Fort Park. With a substantial land area fronting on the Yargo (now relatively undeveloped), and Hard Labor most popular lake in Georgia, and readily accessible Creek parks. These two parks comprise substantial to the Atlanta SMSA this park should attract almost acreages (Fort Yargo covers almost 1500 acres, I million visitors annually by 2000 if extensive public while hard Labor Creek comprises over 5,500 acres), beaches, boat ramps, and picnic facilities are and both are easily accessible to Atlantans on major established. State highways. While it is the contention of this New State parks to the north of the Atlanta SMSA report that the Chattahoochee and Oconee National should receive relatively low priorities in consider- Forests will become the major camping areas of the ing Atlanta's outdoor recreation needs. New areas State in the future, the State should retain a sub- should be secured on the Hartwell Reservoir to the stantial share of the weekend camper in its park northeast and extensive areas should be secured system. Fort Yargo has a great disadvantage in on the reservoirs to the south recommended below. its lack of surface water for swimming but site In each case, extensive campgrounds should be planned studies for small impoundments should be made here as well as extended bearhes and boat ramps. at once. 21/ Red fo-p Mountain State Park lies so close to the Federal Facilities SMSA, and in particular to the Marietta urban area, that it should be developed almost exclusively as a While the major Corps of Engineers reservoirs day-use facility, in contr6t to a facility that would should continue to attract more visitors than any attract large numbers of overnight visitors. As noted other single type of recreation facility (user-days above with reference to the proposed regional parks, should increase by a minimum of 20 million on Lanier, the SMSA attracts such a large number of visitors Allatoona, Hartwell and Clark Hill), the area of from beyond its boundaries that most State parks here greatest potential for comprehensive recreation de- are acceptable where they are not acceptable in velopment lies in the national forests, primarily smaller urban areas. The possibility of utilizing a in the Chattahoochee National Forest. Corps reser- portion of this park as a demonstration area by the voirs will "out-draw" the Chattahoochee as day-use State Department of Education in developing camping facilities devoted primarily to swimming, boating, programs in the public schools should be explored. and fishing, but, if outdoor recreation is to become Day-use facilities at Senoia Park and Indian Springs a meaningful part of the education process, its need extensive developments. These two parks are future lies in that band stretching over 700,000 located very close to large urban areas and will acres of North Georgia. continue to increase as popular recreation spots for While commonly accepted recreation facilities such picnicking and swimming. Senoia Park's very small as picnicking, camping, hunting, and fishing must be area (less than 10 acres) precludes its use for any provided in both the Chattahoochee and the Oconee other type of recreation. Indian Springs on the other Forests, it is recommended that more imaginative hand, can be developed more extensively for hiking planning be undertaken in developing these areas. and nature walks. Group camping should be em- It is indeed unfortunate that practically every recrea- phasized at Indian Springs. If funds are available for tion area in Georgia is almost an exact duplicate of the acquisition of land, consideration should be given every other area. This is probably necessary on the to increasing the area of Senoia. limited acreages of State parks; it is not necessary The small size of Vogel, Unicoi, and Amicalola in such extensive areas as the National forests. parks militates against any substantial expansion of While outdoor recreation planners are infinitely overnight facilities. In each case, the scenic attrac- better qualified to speak on what can and cannot tions of these parks should be made more readily be done with large tracts of land, itseems reasonable accessible by hiking trails and interpretive programs. to hope that new projects might be undertaken in Rustic cabins and some additional campgrounds should developing the Chattahoochee. This is not a plea be added to existing facilities. for the maintenance of wilderness areas; the exploding The F. D. Roosevelt State Park, although outside demand for outdoor recreation precludes the luxury the immediate study area, will obviously continue of setting aside, as a sanctuary, a large portion of to increase in popularity. The park is large enough public land for the benefit of a very small portion of (over 5,000 acres) to stand extensive development. the public. Rather, this is a recommendation that It is, at present, the most popular park in the Georgia much greater use be made of the national re- system, will probably double its recorded number sources that abound in the mountainous areas of the Chattahoochee. Ll/As this study was in the process of being completed, the Let this area be developed with cabins and camp- State Department of Parks announced plans to construct a sites fitted to the natural decor of the surroundings. 125-acre lake at Fort Yargo, and to develop its camping Provide decent sanitation facilities, not the type that and picnic facilities. are so odious as to drive people from the forest. 133 Separate the cabins and campsites with stands of trees. the Little River. In the establishment of these Plant plots of ground with flowers and shrubs that reservoirs, serious consideration should be giver are suited to the soil and climate and ask vacationers to designating major sections to public use rather than to help in their cultivation. Stock the area with in- disposing of land through the use of the bid system. 23/ digenous animals such as squirrels, deer, rabbits, Where possible, State and local authorities should-be and the like. Have highly trained personnel available brought into the planning of such public areas in the to interpret the program. Invite the cooperation of very early stages of reservoir planning. Once es- schools in sending groups of children to live and tablished, public areas should be turned over to the learn the lessons of nature. Teach children and State and/or local governments for administration. adults the meaning and sensitivity of the balance of Other Federal facilities within reasonable access nature. Encourage visitors to help in reforestation to Atlanta, such as Kennesaw Mountain National by planting a tree or a'shrub with their name attached Battlefield Park, and Ocmulgee National Monument, so that, year by year, they can watch it grow. will probably continue to increase in popularity al- If a wrong has been committed in the use of na- though they will'be relatively insignificant in the tional forests, it is not that they have been desecrated total recreation picture. If new areas such as these by overuse, but that they have not been used as a two are planned, it is hoped that they will not be public resource. The basic claim of the National located, as are these two, so close to urban areas Park Service that its principal function is topreserve that they become little more than day-use facilities those unique resources that can never be duplicated for some municipality. or can never be replaced if lost, cannot, or at least Private Facilities should not, be used by the Forest Service. A stand of trees can be replaced if the ground upon which Public facilities cannot, and probably should not, they grow is retained in public ownership. If outdoor bear the total burden of the increasing demands for recreation is actually, as well as legally, one of the outdoor recreation. Facilities such as Lake Spivey, multiple uses of national forests, then let it come of Callaway Gardens, and Radium Springs will continue age and take its rightful place, not as an overgrown to increase in popularity, as those who can afford playground, but as an integral part of a comprehensive their attractions, will for one reason or another, education system. choose them over public facilities. 24 / Lake Spivey With respect to Corps of Engineers reservoirs, in particular, because of its advantaie-ous location and this report recommends a substantial increase in its numerous attractions, should become one of the public areas including an extensive development of most popular swimming and picnic facilities in the swimming areas with the paraphernalia such as SMSA. beaches, dressing rooms, and sanitation facilities It is, of course, impossible for this report to that accompany this activity. Public areas on corps recommend the development of particular private reservoirs are too often restricted to boat ramps recreation facilities. There are,. however, two mat- and launching facilities. While such facilities are ters that should be considered if public facilities necessary, they provide little for the person who are not to be inundated. wishes to swim and picnic. 1. The State of Georgia and its local subdivisions Lake zoning must be undertaken on reservoirs. should consider offering tax concessions to persons or The growing conflict between those engaged in fishing, groups interested in developing recreation facilities. swimming, boating, and water skiing can be mitigated There is precedent for this plan in the rapid depre- if steps are taken in the direction of operational ciation schedule and other concessions offered to zoning. industries willing to locate in this State. Such While not strictly within the purview of the corps, concessions are based on the principle that the this agency should undertake a cooperative program community and the State benefit appreciably more with local units looking to the establishment of by the presence of the industrial plant than is lost building codes and sanitation regulations on lands by the tax dispensation. Since one of the factors surrounding reservoirs. 22/ The lack of such sani- normally listed as attracting business firms to a tation standards can cause health problems since community is the presence of adequate recreation many of the residents use shallow wells and septic facilities, a program based on governmental aid in tanks, and the lack of building codes can result in developing private recreation resources should be dilapidated dwellings that detract from the attractive- established. Any such program should, of course, ness of the area. be based on rigorous standards to be met by the The four major reservoirs to the north and east of facility. Georgia has little need for cheap, carnival- Atlanta can, with the development of more public fa- type resorts. cilities, meet the needs of the Atlanta SMSA very well 2. The public use of private forest land has a great in those directions. To the south, the picture is not as potential in Georgia. The more than 2 million acres favorable. Since the SMSA will doubtless expand of forest land in the hands of business corporations southward in the future, it is the recommendation of this report that at least two reservoirs be estab- L3/ln order to better carry. out this recommendati on, it is further lished on the Apalachee River, Big Indian Creek, or recommended that the corps policies be changed to permit more liberal purchases of land surrounding the reservoir. L2/Private power lakes already use such standards, and while 2-1/While data to substantiate the thesis are not now available, the two (Corps of Engineers and private power companies), there is reason to believe that as a family's income increases are not in any way analogous, the experience of these private in Georgia, that family tends to turn from public facilities corporations might be used as a guide in developing codes. toward the private facility in seeking its recreation. 134 in this State represent an area larger than the corn- demAnd, it is a luxury that cannot be afforded in bined public recreation lands of the Federal and State the future. If the demand for adequate facilities is Governments. If the public statements of officials to be met, all agencies and levels of government must of industry, particularly the paper and pulp industry, cooperate. Since no mechanism at present exists to are sincere, State and local officials should cooperate perform the coordinating function, it is the recom- in agreeing to administer acreage set aside forpublic mendation of this report that a device similar to the use. This method is particularly attractive in meeting Southeastern River Basin Study Commission be es- certain local needs, and can, in some instances, fill tablished on a continuing basis to aid in making a need for county parks. It also can go a long way studies at all levels of government and to see that toward meeting the demand for additional hunting those studies are translated into action. 25/ areas. Pending the establishment of a planning and coor- It is doubtful that either of the above recommenda- dinating agency, it is recommended that there be an tions can be carried out under present State law. absolute moratorium on the disposal of any public Since this is the case, it is recommended that a lands-State, Federal, or local. study be made pursuant to enacting legislation to the Finally, there appears to be a great need for end of permitting tax concessions for the establish- training those persons who administer outdoor facili- ment of private recreation resources, and to the co- ties. The well-known conflict, sometimes smoulder- operative administration of public programs onprivate ing, sometimes active, between recreationists and forest lands. conservationists has no place in an area with as extensive a future as has outdoor recreation. Coop- NEED FOR PLANNING erative training programs initiated at the Federal level and encompasing personnel from all levels of This study cannot end without a statement concern- government should be undertaken at once. If there ing the almost total lack of coordination on planning is a sincere belief in the validity of their program among the various levels of government currently by those presently engaged in outdoor recreation, engaged in recreation activities. This fact is so then let them get together and establish standards well known that it needs no documentation. Not only and criteria badly needed by a public that will, has there been practically no coordination between increasingly in the future, seek the pleasure and levels, but interagency planning at one level has also benefits of the outdoors. been conspicuously absent. While interagency and interlevel jealousy and LS/It is probably unnecessary to note that the suggested agency bickering may have been permissible in a day when should include representation from the three levels of govern- the supply of outdoor resources was greater than ment and from private groups interested in outdoor recreation. 135 .w I APPENDiX A TABULAR DATA 136 Table B-34. Population of Georgia urban and rural: '4790-1960 [Minus sign W denotes decrease) The State Urban territory Rural territory Percent Increase over Increase over Increase over of Census date preceding Number preceding, preceding to to 1. Population census of Population census Population census Per- urban Per- Per- Number cent places Number cent Number cent Urban Rural Current urban definition: 1960 (Apr. 1) ....... 1/3,943,116 498,538 14.5 124 -?/2,180,236 620,789 39.8 1,762,880 -122,251 -6.5 55.3 44.7 1950 (Apr. 1) ........ 3,444,578 320,855 10.3 106 2/1,559,447 .... .... . 1,885,131 .... .... 43 54.7 Previous urban defi- nition: 1960 (Apr. 1) ....... 3,943,116 498,538 14.5 120 1,963,012 536,806 37.6 1-,980,104 -38,268 -1.9 49.8 50.2 1950.(Apr. I )....... 3,444,578 320,855 10.3 A/103 1/ 1,426,206 352,398 32.8 1/2,018,372 -31,543 -1.5 41.4 58.6 1940 (Apr. 1) ....... 3, 1123,723 215j217 7.4 78 1,073,808 178,316 19.9 2,049,915 36,901 1.8 34.4 65.6 1930 (Apr. 1) ....... 2,908,506 12,674 0.4 64 895,492 167,633 23.0 2,013,014 -154,959 -7.1 30.8 69.2 1920 (Jan. 1) ....... 2,895,832 286,711 11.0 59 727,859 189,209 35.1 2,167,973 97,502 4.7 25.1 74.9 1910 (Apr. 15) ....... 2,609,121 392,790 17.7 45 538,650 192,268 55.5 2,070,471 200,522 10.7 20.6 79.4 1900 (June 1) ........ 2,216,331 378,978 20.6 31 346,382 88,910 34.5 1,869,949 290,068 18.4 15.6 84.4 1890(June 1) ....... 1,837,353 295,173 19.1 22 257,472 112,382 77.5 1,579,881 182,791 13.1 14.0 86.0 188D(June 1) ....... 1,542,180 358,071 30.2 14 .145,090 45,037 45.0 1,397,090 313,034 28.9 9.4 90.6 1870.(June 1) ....... 1,184,109 126,823 12.0 10 100,053 24,587 32.6 1,084,056 102,236 10.4 8.4 91.6 1860(June 1) ....... 1,057,286 151,101 16.7 9 75,466 36,472 93.5 981,820 114,629 13.2 7.1 91.9 1850 (June 1) ....... 906,185 214,793 31.1 5 38,994 14,336 58.1 867,191 200,457 30.1 4.3 95.7 1840 (June 1) ....... 691,392 174,569 33.8 4 24,658 10,645 76.0 666,734 163,924 32.6 3.6 96.4 .1830 (June 1) ....... 516,823 175,834 51.6 2 14,013 6,490 86.3 502,810 169,344 50.8 2.7 97.3 1820 (Aug. 7) ....... 340,989 88,556 35.1 1 7,523 2,308 44.3 333,466 86,248 34.9 2.2 97.8 1810 (Aug. 6) ....... 252,433 89,747 55.2 1 5,215 69 1.3 247,218 89 '678 56.9 2.1 97.9 1800 (Aug. 4) ....... 1/162,686 80,138 97.1 1 5,146 5,146 .... 157,5401 74,992 90.8 3.2 96.8 1790 (Aug. 2) ...... I I @/ 82,548 1 .... I .... I .... .... I .... 1.... 1 82,548 .... . . .... 100.0. jJBcrnweII Island, Beaufort County, S.C., ceded to Chatham County, Go., by Federal action in 1958. !/includes 279,723 persons in urban territory outside urban places. 2/Includes 167,338 persons in urban territory outside urban places. @/Revised since publication of 1950 reports. J/Includes population of areas now in Alabama and Mississippi. �/No population returned for that part of Georgia now in Alabama and Mississippi. Source: 1960. Census of Population, PC (1) 12-A 137 Table B-35. Georgia population, by color and sex, for the State, urban and rural: 1930-1960 [Minus sign denotes decrease] White Nonwhite Toto I Increase over Percent distribution Year and area all preceding census White Nonwhite Total Male Female Male Female clas ber I Percent a11 classes ses Num 1930 State total.. 920,81q 916,202 513,708 557,777 2,908,506 12,674 0.4 100.0 100.0 100.0 Urban .................. 277,732 300,830 140,784 176,146 895,492 167,633 23.0 31.5 29.6 30.8 Rural .................. 643,087 615,372 372,924 381,631 2,013,014, -154,959 -7.1 68.5 70.4 69.2 Rural nonfarm ......... 200,184 200,341 97,122 101,648 599,295 111,933 23.0 21.8 18.6 20.6 .Rural form ............ 412,903 415,031 275,802 279,983 1,413,719 -266,892 -15.9 46.7 51.9 48.6 1940 State total .......... 1,016,688 1,021,590 518,070 567,375 3,123,723 215,217 7.4 100.0 100.0 Urban .................. 330,062 363,591 168,863 211,292 1,073,808 178,316 19.9 34.0 35.0 34.4 Rural .................. 686,626 657,999 349,207 3.56,083 2,049,915, 36,901 1.8 66.0 65.0 65.6 Rural nonfarm. .. .- .. . 245,193 243,810 95,268 101,678 685,949 86,654 14.5 24.0 18.1 22.0 Rural farm ............. "11,433 414,1891 253,939 254,405 1,363,966 -49,753 -3.5 42.0 46.8 43.7 19502/ State total ........... 1,182,717 1,197,860 505,950 558,051 3,444,578 320,855 10.3 100.0 100.0 100.0 Urban .................. 509,002 558,909 223,382 268,154 1,559,447 485,639 45.2 44.9 46.2 45.3 Rural .................. 673,715 638,951 282,568 289,897 1,885,1311 -164,784 -8.01 55.1 53.8 Rural nonfarm ......... 346,838 334,023 117,532 124,303 922,696 236,747. 34.5 28.6 22.7 26.8 Rural form ............ 326,877 304,928, 165,036 165,594 962,435 -401,531 -29.4 26.5 31.1 27.9 1960 State total .......... 1,391,735 1,425,488 534,178 591,715 3,943,116 498,538 14.5 100.0 100.0 100.0 Urban .................. 736,983 796,435 297,959 348,859 2,180,236 620,789 39.8 54.4 57.4 55.3 Rura 1 -9 ...... :.......... 654,752 629,053 236,219 242,856 1,762,8801 -122,251 -6.5 45.6 42.6 ".7 -!/Data for 1930 and 1940 based on old urban definition. Effective 1950 data based on new urban definition. 2/Rural nonfarm and rural form breakdown not available. Source: 1940, 1950, and 1960 U.S. Census of Population. Table B-36. Percent distribution of Georgia population by color and.sex for the State, urban and rural: 1930-60 1930 1946 1950 1960 Area and sex All White Non- AlI White Non- All White Non- All ite Non- classes white classes white classes white classes white State ................. 100.0 63.2 36.8 100.0 65.3 34.7 100.0 69.1 30.9 100.0 71.4 28.6 Male ............... 100.0 64.2 35.8 100.0 66.2 33.7 100.0 70.1 29.9 100.0 72.2 27.8 Female .............. 100.0 62.2 37.8 100.0 64.3 35.7 100.0 68.2 31.8 100.0 70.7 29.3 Urban ................. 100.0 64.6 35.3 100.0 64.6 35.4 100.0 68.5 31.5 100.0 70.3 29.6 Male ................ 100.0 66.3 33.6 100.0 66.2 33.8 100.0 69.5 30.4 100.0 71.2 28.8 Female .............. 100.0 63.1 36.9 100.0 63.2 36.8 100.0 67.6 32.4 100.0 69.5 30.5 Rural ................. 100.0 62.5 37.5 100.0 65.6 34.4 100.0 69.6 30.4 100.0 72.8 27.2 Male ................ 100.0 63.3 36.7 100.0 66.3 33.7 100.0 70.5 29.5 100.0 73.5 26.5 Female ............. 100.0 61.7 38.3 100.0 64.9 35.1 100.0 68.8 31.2 100.0 72.1 27.9 Rural nonfarm ..... 100.0 66.8 33.2 100.0 71.2 28.8 100.0 73.7 26.2 100.0 6@0 Male ............ 100.0 67.3 32.7 100.0 72.0 28.0 100.0 74.7 25.2 100.0 Female ......... 100.0 66.3 33.7 100.0 70.6 29.4 100.0 72.8 27.1 100.0 (1) Rural form ......... 100.0 60.7 39.3 100.0 62.7 37.3 100.0 65.6 34.3 100.0 P@ 01 Male ............ 100.0 61.6 38.4 100.0 63.5 36.5 100.0 66.4 33.5 100.0 01 Female ......... 100.0, 59.7, 40.31 100.01 61.91 38.1 1 100.01 64.81 35.2 1 100.01 j/No data available. Source: 1940, 1950, and 1960 Census of Population. 138 Table B-37. Age, by color, for'Georgia: 1930-1960 [Percent not shown where less than 0.1 1930 1940 1950 1960 Age (years) All White Non- All White Non A] I White Non- All White Non- classes white classes white classes white classes white Total, all ages .... 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Under 5 ............... 10.9 10.9 10.8 10.0 9.5 11.0 12.3 11.6 13.7 12.0 11.0 14.5 5 to 9............... 12.2 12.0 12.5 10.2 9.7 11.3 10.3 9.8 11.6 11.2 10.3 13.4 10 to 14 ............... 11.7 11.3 12.3 10.4 101 11.1 9.0 8.4 10.5 10.4 9.9 11.8 15 to 19 ............... 11.5 10.9 12.5 10.5 10.3 10.9 8.5 8.1 9.3 8.4 8.1 9.1 20 to 24 ............... 9.9 9.6 10.5 9.8 9.5 10.2 8.0 8.1 7.9 6.9 7.0 6.5 J@ 25 to 29 ............... 7.7 7.7 7.7 8.9 8.8 9.1 8.0 8.4 7.2 6.4 6.7 5.6 30 to 34 ............... 6.3 6.6 5.7 7.6 7.9 6.9 7.4 7.8 6.5 6.5 6.9 5.5 35 to 39 ............... 6.4 6.5 6.2 6.7 6.8 6.5 7.4 7.5 7.1 6.6 7.1 5.4 40 to 44 ............... 5.2 5.4 4.8 5.6 5.8 5.2 6.4 6.6 5.8 6.2 6.6 5.4 45 to 49 ............... 4.6 4.8 4.3 5.0 5.3 4.5 5.3 5.4 5.0 5.8 6.0 5.3 50 to 54 ............... 4.5 4.5 4.6 4.3 4.5 3.8 4.4 4.6 4.1 5.0 5.2 4.4 55 to 59 ............... 2.9 3.2 2.5 3.3 3.7 2.6 3.7 4.0 3.0 4.1 4.3 60 to 64 ...*-'*''***'''* 2.3 2.4 2.2 2.7 3.0 2.1 2.9 3.2 2.3 3.2 3.4 2.7 65 to 69 ............... 1.6 1.7 1.4 2.4 2.4 2.4 2.8 2.7 2.9 2.9 2.9 2.7 70 to 74 ............... 1.2 1:3 .9 1.4 1.4 1.3 1.8 1.9 1.5 2.1 2.2 1.9 75 and over. 1 2 1.3 1.1 1.3 1.3 1.2 1.8 1.9 1.7 2.4 2.6 2.1 - .1 ' - .... .... .... - - - '-- .... .... .... Not reported 22.6 ;9 25.6 22.8 26.2 27.4 23.1 25.9 27.8 20.9 Median age ........ 2 T Source: 1950 and 1960 U.S. Census of Population. Table B-38. Georgia: Years of school completed by persons 25 years old and over, by color and sex, 1940 and 1950 [Data for the year 1950 based on 20-percent sample] Tota I Years of school completed Median Area, census year, 25 years Elementary school High school- College school color and sex old and None 4 or Not years over I to 4 5 and 6 7 8 1 to 3 4 1 to 3. more reported cam- pleted 1940 State total ......... 1,533,488 99,917 361,954 279,681 190,822 109,104 210,517 140,821 73,099 50,512 17,061 7.1 Male .................. 744,820 55,483 195,233 129,161 91,143 52,310 96,263 58,330 30,119 27,037 9,741 6.8 Female ............... 788,668 44,434 166,721 150,520 99,679 56,794 114,254 82,491 42,980 23,475 7,320 7.3 White ................. 1,039,087 30,238 141,931 173,404 156,765 91,101 188,731 131,988 67,215 47,308 10,406 8.1 Nonwhite .............. 494,401 69,679 220,0231106,277 34,057 1 18,003 21,786 8,833 5,884 3,204 6,-655 4.2 1950 State tota I......... 1,778,475 76,320 354,100 281,450 195,040 167,165 303,460 176,390 106,365 79,275 38,910 7.8 Male .................. 848,170 43,540 191,670 130,575 89,785 78,705 131,065 72,485 45,920 41,825 2Z600 7.5 Female ............... 930,305 32,780 162,430 150,875 105,255 88,460 172,395 103,905 60,"5 37,450 16,310 8.1 White ................. 1,275,150 25,305 152,930 177,150 152,375 138,920 268,465 162,985 97,275 72,340 27,405 8.8 Nonwhite ............. 503,325 51,015, 201,170 104,300 42,665 28,245 34,995 13,405 9,090 6,935 11,505 4.9 PERCENT DISTRIBUTION 1940 State total ......... 100.0 6.5 23.5 18.2 12.4 7.1 1 13.7 9.2 4.8 3.3 1.1 .... Male .................. 100.0 7.4 26.2 17.3 12.2 7.0 12.9 7.8 4.0 3.6 1.3 .... Female .... 100.0 5.6 21.1 19.1 12.6 7.2 14.5 10.5 5.4 3.0 .9 .... White .....* 100.0 2.9 13.7 16.7 15.1 8.8 18.2 12.7 6.5 4.6 1.0 .... Nonwhite .............. 100.0 14.1 ".5 21.5 6.9 3.6 4.4 __1.8. 1.2 .6 1.3 .... 139 Table B-38. Georgia: Years of school completed by persons 25 years old and over, by color and sex, 1940 and 1950-Con. Total Years of school completed Median Area, census year, 25 years Elementary schooll High school College school color and sex old and None 4 or Not years over I to 4 5 and 6 7 8 1 to 3 4 1 to 3 reported com- more pleted PERCENT DISTRIBUTION-Con- 1950 State tota I.. . I..... 100.0 4.31 19.9 15.8 11.0 9.4 17.1 9.91 6.0 4.51 2.2 Male .................. 100.0 5.1 22.6 15.4 10.6 9.3 15.5 8.5 5.4 4.9 2.7 Female ............... 100.0 3.5 17.5 16.2 11.3 9.5 1 &.'5. 11.2 6.5 4.0 1.8 .... White ................. 100.0 2.0 12.0 13.9 11.9 10.9 21.1 12.8 7.6 5.7 2.1 .... Nonwhite .............. 100.0 10.1 40.0 20.7 8.5 5.6 7.0 2.7 1.8 1.4 2.3 .... Source: 1950 U.S. Census of Population. Table B-39. Births, deaths, and infant deaths, by color, for Georgia: 1930-1959 [Live birth and death rates are per 1,000 population; infant death rates per 1,000 live births3 Number Rate Year and color Live Infant Live Infant Deaths Deaths births deaths births deaths 1930 Total .......................................... 60,318 35,188 4,713 20.7 12.1 78.1 White. ........... ... 37,064 18,-036 2,468 20.1 9.8 66.6 Nonwhite .......................................... 23,254 17,152 2,245 21.7 16.0 96.5 1940 Total ........................................... 64,695 32,296 3,737 20.7 10.3 57.8 White .......... 38,911 17,324 1,851 19.1 8.5 47.6 Nonwhite .................. !........................ 25,784 14,972 1,886 23.8 13.8 73.1 1950 Tota I ................ I.......................... 92,099 30,416 3,081 26.7 8.8 1 33.5 White ............................................. 57,003 18,005 1,518 24.3 7.7 26.6 Nonwhite .................. 0......... ....... 35,096 12,411 1,563 31.6 11.2 44.5 1959 Tota I .......................................... 99,458 33,376 3,233 25.0 8.4 32.5 White .................... ......................... 64,040 21,047 1,555 22.6 7.4 24.3 Nonwhite .......................................... 35,418 12,329 1,678 30.7 @[email protected] Source: Georgia vital statistics, 1959. 140 Table B-40. Labor force, 1950 and 1940, and gainful workers, 1930 and 1920, by color and sex, for the State of Georgia. [Figures for persons and gainful workers 14 years old and over for 1920 and 1930 include unknown age] Population Persons in the lo6or force or gainful workers, 14 years old and over Census year and color Percent Percent of Total 14 years old Number of total population all ages and over population 14 years and over TOTAL Al 1, classes: 1920 ........................................... 2,895,832 1,856,936 1,084,160 37.4 58.4 1930. ....................................... 2,908,506 1,967,402 1,138,311 39.1 57.9 1940 ........................................... 3,123,723 2,232,132 1,225,705 39.2 54.9 1950 ........................................... 3,444,578 2,415,701 1,336,924 38.8 55.3 White 1920 ........................................... 1,689,114 1,088,404 570,441 33.8 52.4 1930 ....... .................................... 1,837,021 1,250,161 656,834 35.8 52.5 1940 .................................... ...... . 2,038,278 1,484,287 772,870 37.9 52.1 1950 ........................................... 2,380,577 1,710,813 927,211 38.9 54.2 Nonwhite 1920 ........................................... 1,206,M 768,532 513,719 42.6 66.8 1930 ........................... ; ............... 1,071,485 717,241 481,477 ".9 67.1 1940 ........................................... 1,085,445 747,845 452,835 41.7 60.6 1950 ........................................... 1,064,001 704,888 409,713 38.5 58.1 MALE All classes: 1920 ........................................... l,"4,823 921,301 810,954 56.1 88.0 1930 ............................... ............ 1,434,527 961,270 833,516 .58.1 86.7 1940 ........................................... 1,534,758 1,084,971 889,789 58.0 82.0 1950 ........................................... 1,688,667 1,168,086 941,003 55.7 80.6 White: 1920 ........................................... 854,109 548,a49 474,857 55.6 86.5 1930 ........................................... 920,819 623,501 530,595 57.6 85.1 1940 ........................................... 1,016,688 735,026 597,987 58.8 81.4 1950 ........................................... 1,182,717 841,547 678,857 57.4 80.7 Nonwhite: 1920 ........................................... 590,714 372,452 336,097 56.9 90.2 1930 ........................................... 513,708 337,769 302,921 59.0 89.7 1940 .............................. 518,070 349,945 291,802 56.3 83.4 1950 .............................. 505,950 326,539 262,146 51.8 80.3 FEMALE Allclasses: 1920 ........................................... 1,451,009 935,635 273,206 18.8 29.2 1930 ........................................... 1,473,979 1,006,132 304,795 20.7 30.3 1940 ........................................... 1,588,965 1,147,161 335,916 21.1 29.3 1950 ........................................... 1,755,911 1,247,615 395,921 22.5 31.7 White: 1920 ........................................... 835,005 539,555 95,584 11.4 17.7 1930 ........................................... 916,202 626,660 126,239 13.8 20.1 1940 ........................................... 1,021,590 749,261 174,883 17.1 23.3 1950 ........................................... 1,197,860 869,266 20.7 28.6 Nonwhite: 1920 .......................... I ................. 616,004 396,080, 177,622 28.8 44.8 1930 ........................................... 557,777 379,472 178,556 32.0 47.1 1940 ........................................... 567,375 397,900 161,033 28.4 40.5 1950 ........................................... 558,051 378,349 147,567 26.4 39.0 Source:, 1950 U.S. Census of Population. 141 Table B-41. Industry group of employed persons, by sex, for the State of Georgia, 1940 and 1950 [Original 1940 figures revised where necessary to conform to 1950 classification. Percent not shown where less than 0. 1 or where base is less than 1001 Percent distribution Industry group Total Male Female Total Male Female 1950 1940 1950 1940 1950 1 1940 1950 1940 1950 1940 1950 1940 Total employed ................... 1,254,935 1,092,612 877,207 791,894 377,728 300,718 100.0 100.0 100.0 100.0 '100.0 100.0 Agriculture, Forestry, and fisheries 277,204 390,853 244,652 349,824 32,552 41,029 22.1 35.8 27.9 44.2 8.6 13.6 Agriculture ........I ................ 265,865 377,263 233,560 336,447 32,305 40,816 21.2 34.5 26.6 42.5 8.6 13.6 Forestry and Fisheries ...... ........ 11,339 13,590 11,092 13,377 247 213 .9 1.2 1.3 1.7 .1 .1 Mining .......... 5,047 4,078 4,848 4,031 199 47 .4 .4 .6 .5 .1 .... Construction ....................... 71,865 41,994 70,038 41,402 1,827 592 5.7 3.8 8.0 5.2 .5 .2 Manufacturing ....................... 288,198 204,269 204,615 147,867 83,583 56,402 23.0 18.7 23.3 18.7 22.1 18.8 Durable goods ..................... 99,206 57,434 92,463 54,879 6,743 2,555 7.9 5.3 10.5 6.9 1.8 .8 Furniture, lumber and wood products 64,462 36,384 61,473 35,420 2,989 964 5.1 3.3 7.10 4.5 .8 .3 Fabricated metal ind. (incl. spec. metal) ...................... 9,789 6,414 9,022 6,094 767 320 .8 .6 1.0 .8 .2 .1 Machinery, except electrical ......... 5,678 3,358 5,135 3,122 543 236 .5 .3 .6 .4 .1 .1 Elec. machinery, equipment and supplies ......................... 1,820 923 1,496 829 324 94 .1 .1 .2 .1 ..1 .... Motor vehicles and motor vehicle equipment ........................ . 6,663 2,691 6,163 2,540 500 151 .5 .2 .7 .3 .1 .1 Transportation equip., exc. motor vehicle .......................... 538 342 500 328 38 14 .... .... .1 .... .... .... Other durable goods ................ 10,256 7,322 8,674 6,546 1,582 776 .8 .7 1.0 .8 .4 .3 Nondurable goods ................... 187,429 145,617 111,185 92,140 76,244 53,477 14.9 13.3 12.7 11.6 20.2 17.8 Food and kindred products .......... 25,925 17,208 19,109 13,606 6,816 3,602 2; 1 1.6 2.2 1.7 1.8 1.2 Textile mill products ............... 102,283 84,899 58,423 51,935 43,860 32,964 8.2 7.8 6.7 6.6 11.6 11.0 Apparel and other fabricated textile prod ............................. 24,227 16,376 5,411 3,718 18,816 12,658 1.9 1.5 .6 .5 5.0 4.2 Printing, publishing and allied ind ... 9,375 6,508 7,419 5,313 1,956 1,195 .7 .6 1.8 .7 .5 .4 Chemicals and allied products ....... 10,697 11,838 9,375 10,630 1,322 1,208 .9 1.1 1.1 1.3 .3 .4 Other nondurable goods ............. 14,922 8,788 11,"8 6,938 3,474 1,850 1.2 .8 1.3 ' .9 .9 .6 Not specified manufacturing industries 1,563 1,218 967 848 596 370 1 1 1 1 .2 1 Transportation, commun., and other pub. uti I .......................... 75,955 51,984 64,095 46,371 11,860 5,613 6.1 4.8 7.3 5.9 3.1 1.9 Transportation ..................... 51,700 37,757 47,940 X254 3,760 1,503 4.1 3.5 5.5 4.6 1.0 .5 Railroads and railway express service 27,535 23,566 25,742 22,581 1,793 985 2,2 2.2 2.9 2.9 .5 .3 Trucking service and warehousing .... 11,163 6,901 10,"9 6,604 714 297 .9 .6 1.2 .8 .2 1 Other transportation ................ 13,002 7,290 11,749 7,069 1,253 221 1.9 .7 1.3 .9 .3 1 Telecommunications ................ 10,971 6,467 4,442 3,049 6,529 3,418 .9 .6 .5 .4 1.7 1.1 Utilities and sanitary services ....... 13,284 7,760 11,713 7,068 1,571 692 1.1 .7 1.3 .9 .4 .2 Wholesale and re tai I trade ............ 201,754 129,844 136,699 98,300 65,055 31,544 16.1 11.9 15.6 12.4 17.2 10.5 Wholesale trade .................... 35,770 19,215 29,018 17,001 6,752 2,214 2.9 1.8 3.3 2.1 1.8 .7 Retail trade ....................... 165,984 110,629 107,681 81,299 58,303 29,330 13.2 10.1 12.3 10.3 15.4 9.8 Food and dairy prod., stores and milk retailing ......................... 36,339 26,834 27,000 22,547 9,339 4,287 2.9 2.5 3.1 2.8 2.5 1.4 Eating and drinking places .......... 24,893 14,443 9,386 7,030 15,507 7,413 2.0 1.3 1.1 .9 4.1 2.5 Other retail trade .................. 104,752 69,352 71,295 51,722 33,457 17,630 8.3 6.3 8.1 6.5 8.9 5.9 Finance, ins Iurance and real estate .... 30,192 19,369 18,593 13,811 11,599 5,558 2.4 1.8 2.1 1.7 3.1 1.8 Business and repair services ........ 23,135 13,304 20,964 12,399 2,171 905 1.8 1.2 2.4 1.6 .6 .3 Business services .................. 5,234 2,593 3,698 1,961 1,536 632 .4 .2 .4 .2 .4 .2 Repair services .................... 17,901 10,711 17,266 10,438 635 273 1.4 1.0 2.0 1.3 .2 1 Personal services .................... 122,764 141,880. 26,966 26,127 95,798 115,753 9.8 13.0 3.1 3.3 25.4 38.5 Private households ................. 82,627 108,998 8,153 9,916 74,474 99,082 6.6 10.0 .9 1.3 19.7 32.9 Hotels and lodging places ........... 8,621 9,760 4,080 4,575 4,541 5,185 .7 .9 .5 .6 1.2 1.7 Other personal services ............. 31,516 23,122 14,733 11,636 16,783 11,486 2.5 11 1.7 1.5 4.4 3.8 Entertainment and recreation services ...................... .... 9,255 5,740 6,803 4,594 2,452 1,146 .7 .5 .8 .6 .6 .4 Professional and related services ..... 82,125 54,236 31,444 21,391 50,681 32,845 6.5 5.0 3.6 2.7 13.4 10.9 Medical and other health services .... 25,992 13,605 9,866 5,703 16,126 7,902 2.1 1.2 1.1 .7 4.3 2.6 142 Table B-41. Industry group of employed persons, by sex, for. the State-- 1940 and 1950-Con. Percent distribution Industry group Total Male Female, Total Male Female 1950 1940 1950 1940 1950 1940 1950 1940 1950 1940 1950 1940 Educational services ............... 41,690 30,766 11,497 8,229 30,193 22,537 3.3 2.8 1.3 1.0 8.0 7.5 Educational services, government .... 34,856 26,834 9,146 6,647 25,710 20,187 2.8 2.5 1.0 .8 6.8 6.7 Educational services, private ....... 6,834 3,932 2,351 1,582 4,483 2,350 .5 .4 .3 .2 1.2 .8 Other professional and related services 14,"3 9,865 10,081 7,459 4,362 2,406 1.2 .9 1.1 .9 1.2 .8 Public administration ................ 48,450 22,094 36,041 17,"3 12,409 4,651 3.9 -2.0 4.1 2.2 3.3 1.5 Industry not reported ................. 18,991. 12,967. 11,"91 8,334. 7,542. 4,633. 1.5. 1.2. 1.3. 1. 1. 2.0. 1.5 Source: 1950 U.S.. Censu s of Population. Table 3-42. Income in 1949 of families and unrelated individuals, for the State of Georgia, urban and rural, 19 50 3ased on 20-percent sample. Percent not shown where less than 0.1; median and percent not shown where base is less than 5001 Families and unrelated individuals Total White Nonwhite Income level The Rural Rural TheI Rural Rural The ' Rura 1Rural State Total Urban non- fo rm State Total Urban non- form State Total Urban non- farm farm form form Number reporting 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 IDO.D. 100.0 Less than $500 21.0 16.8 14.5 20.9 35.8 16.4 12.9 10.8 16.6 28.9 32.0 26.2 22.7. 34.5 52.2 $500 to $999 . ; .. 13.7 11.9 10.2 15.1 19.9 10.3 8.2 6.0 11.9 17.8 22.0 21.1 19.5 24.9 '25.0 $1,00 to $1,499. 12.2 11.7 10.7 13.8 14.0 10.1 8.8 7.0 12.0 14.8 17.4 18.9 18.8 19.3 12.2 $1,500 to $1,999. 10.8 11.3 11.3 11.4 8.9 9.7 9.5 8.5 11.4 10.5 13.3 15.7 17.5 11.5 5.1 $2,000 to $2,499. 9.7 10.4 10.7 .9.9 7.3 10.7 11.1 11.0 11.4 9.1 7.5 8.8 10.2 5.2 3.0 $2,500 to $2,999. 6.9 7.8 8.1 7.2 19 8.5 9.4 9.7 8.8 5.2 3,2 3.8 4.5 2.2 1.0 $3,000 to $3,499. 6.3 7.1 7.6 6.3 3.3 8.1 9.1 9.8 7.9 4.4 119 2.2 2.7 1.1 .8 $3,500 to $3,999. 4.5 5.2 5.7 4.2 1.9 5.9 6.8 7.7 5.4 2.6 1'@o 1.2 1.5 .5 .2 $4,000 to $4,499. 3.6 4.2 4.7 3.2 1.5 4.8 5.6 6.4 4.2 2.0 ',6 .8 .9 .4 .2 $4,500 to $4,999. 2.4 2.9 3.4 1.9 .7 3.3 3.9 4.8 2.5 1.0 3 .4 .5 .1 ...... $5,000 to $5,999. 3.6 4.3 5.1 2.8 1.0 4.8 5.8 7.1 3.6 1.4 A .5 .6 .2 .2 $6,000 to $6,999. 1.9 2.2 2.7 1.3 .6 2.6 3.0 3.9 1.6 .8 .2 .2 .2 ..... .1 $7,000 to $9,999. 2.0 2.4 3.0 1.1 .6 2.7 3.2 4..3 1.5 .8. .1 .2 .2 .1 .1 $10,000 and over. 1.5 1.7 2.2 .9 .5 2.0 2.4 3.1 1.2 .7 .1 1 Median income ... $1,644 $1,924 $2,154 $1,509 $857 $2,159 $2,473 $2,849 $1,9.17 $1,113 $909 $1,073 $1,207 $812 $479 Source: 1950 U.S. Census of Popu lotion. 143 Table B-43. Income in 1949 of persons, by color and sex, for the State of Georgia, form and nonfarm (Based on 20-percent sample. Median not shown where base is less than 5001 Total Persons Persons with income Area, farm residence, color, 14 years without $1 to $500 $1,000 $1,500 $2,000 $2,500 and sex old and income Total $499 or to to to to to over less $999 $1,499 $1,999 $2,499 $2,999 State total .................... 2,404,270 800,245 1,450,735 424,105 249,420 199,645 167,920 132,775 79,720 Male ........................... 1,157,390 162,955 912,415 183,030 145,880 135,280 112,860 95,230 63,505 Female ........................ 1,246,880 637,290 538,320 241,075 103,540 64,365 55,060 37,545 16,215 White .......................... 1,699,950 587,170 1,003,560 224,115 142,090 131,865 124,845 115,055 74,450 Nonwhite ....................... 704,320 213,075 447,175 199,9901 107,330 67,7801 43,075 17,720 5,270 Urban and rural nonfarm ............ 1,780,310 535,315 1,126,565 274,140 183,890 158,250 141,740 115,080 71,765 Male ........................... 836,240 92,545 679,585 92,695 93,225 101,800 92,850 80,305 56,470 Female ........................ 944,070 442,770 446,980 181*5 90,665 56,450 48,890 34,775 15,295 White ....................... I... 1,270,115 399,695 783,875 142,610 98,390 99,055 101,775 98,795 66,825 Nonwhite ....................... 510,195 135,620 342,690 131,530 85,500 59,195 39,965 16,285 4,940 Rural form... ...................... 1623,960 264,930 324,170 149,965 65,530 41,395 26,180 17,695 7,955 Male ........................... 321,150 70,410 232,830 90,335 52,655 33,480 20,010 14,925 7,035 Female ........................ 302,810 194,520 91,340 59,63D 12,875 7,915 6,176 2,770 920 White .................... ....... 429,835 187,475 219,685 81,505 43,700 32,810 23,070 16,260 7,625 Nonwhite ....................... 1194,125 77,455 1 104,485 68,460 21,830 8,585 3,110 1 1,435 330 Persons with income - Income Area, form residence, $3,000 $3,500 $4,000 $4,500 $5,000 $6,000 $7,000 $10,000 Median not color, and sex to to to to to to to and income reported $3,499 $3,999 $4,499 $4,999 .$5,999 $6,999 $9,999 over (do 1.) State total .......... 64,880 36,970 25,170 14,625 20,905 10,370 11,390 IZ840 1,130 153,290 Male ................. 55,795 33,380 23,070 13,520 19,335 9,540 10,390 11,600 1,470 82,020 Female .............. 9,085 3,590 2,100 1,105 1,570 830 1,000 1,240 636 71,270 White ................ 62,110 35,905 24,435 14,330 20,490 10,185 11,105 12,580 1,515 109,220 Nonwhite ............. 2,770 1,065.1 735 295 4151 185 2851 260 610 44,070 Urban and rural nonfarm . . 58,720 34,330 23,055 13,870 19,530 9,690 10,640 11,865 1,333 118,430 Male ................ 50,055 30,960 21,065 12,815 18,015 8,940 9,700 10,690 1,780 64,110 Female .............. 8,665 3,370 1,990 1,055 1,515 750 940 1,175 732 54,320 White ................ 56,335 33,340 22,395 13,615 19,175 9,535 10,390 11,640 1,755 86,545 Nonwhite ............. Z385 990 660 255 355 155 250 225 732 31,885 Rural farm .............. 6,160 2,640 1 2,115 755 1,3751 680 7501 975 592 34,860 Male ................ 5,740 2,420 2,005 705 1,320 600 690 910 748 17,910 Female .............. 420 220 110 50 55 80 60 65 383 16,950 White ................ 5,775 2,565 2,040 715 1,315 650 715 940 824 22,675 Nonwhite ............. 385 75 751 40 60 30 35 35 1 382 12,185 Source: 1950 U.S. Census of Population. 144, Table B-44. Vehicular registration for. Georgia and the Atlanta standard metropolitan statistical. area, 1960 [For Atlanta SMSA definition see table B-46] Number Percent distribution Percent of total Area Total Passenger Trucks and Total Passenger Trucks and To -tal Passenger Trucks and cars trailers cars trailers cars trailers State total ............. 1,512,976 1,199,584 , 313,392 100.0 79.3 20.7 100.0 100.0 100.0 Atlanta SMSA ............. 432,268 363,865 68,403 100.0 84.2 15.8 28.6 30.3 21.8 Clayton County ......... 21,236 17,590 3,646 100.0 82.8 17.2 1.4 1.5 1.2 Cobb County ............ 50,911 42,562 8,349 100.0 83.6 16.4 3.4 3.5 2.7 DeKolb County .......... 113,578 100,392 13,186 100.0 88.4 11.6 7.5 8.4 4.2 Fulton County .... ;...... 227,674 188,629 39,045 100.0 82.9 17,11 15.0 15.7 12.5 Gwinnett County ......... 18,869 14,692 4,177 100.0 77.9 22,11 1.2 1.2 1.3 Source: State of Georgia Department of Revenue-Motor Vehicle License Unit.., Table B-45. Farm acreage for Georgia and Atlanta standard metropolitan statistical area: 1930-1954 [For Atlanta SMSA definition see table B-46] 1930 1940 1950 1954 Subject The Atlanta The Atlanta The The Atlanta Stc, Atlanta State SMSA State SMSA te SMSA State SMSA Forms ............ number . . 255,598 14,705 216,033 12,067 198,191 9,311 165,523 8,625 Approximate land area .............. acres . . 37,584,000 (n.a.) 37,451,520 1,104,640 37,429,120 1,103,360 37,429,120 1,103,360 Proportion in forms. -percent . . 58.7 (n.a.) 63.2 66.7 68.8 55.4 64.2 52.1 Land in forms ....... acres . . 22,078,830 789,144 23,683,631 736,475 25,751,055 610,885 24,018,773 575,065 Average size of forms ............. acres.. 86.4 53.7 109.6 61.0 129.9 65.6 145.1 66.7 'Wooded area both posture and nonposture: - Farms reporting .......... (n. a.) (n.o.) 149,159 8,753 132,205 6,873 112,791 6,339 Acreage reported ......... 8,372,937 253,105 10,174,775 254,099 13,280,149 247,576 12,686,331 255,039 Wooded area as percent of total land area ............ 22.3 (n. a.) 27.2 23.0 35.5 22.4 33.9 23.1 Wooded area as percent of land in forms ............. 37.9 32.1 43.0 34.5 51.6 40.5 52.8 44.3 Source: 1940, 1950, and 1954 U.S. Census of Agriculture. 145 Table B-46. Population, by color, of Atlanta standard metropolitan statistical area, urban and rural, 1930-1960 In 1950 the Atlanta SMSA included only Cobb, DeKalb, and Fulton Counties. Clayton County was added in 1956 and Gwinnett County in 1958. The figures below, from 1930 to 1960, include all five of these counties, and, in addition, figures for 1930 include old Milton and Campbell Counties which were annexed to Fulton in 1932. Minus sign (-) denotes decrease] Increase over Percent distribution Percent of total Total all Year and area White Nonwhite classes preceding census White Non- Total all White No . Total all Number Percent white classes white classes 1930 Atlanta SMSA ........... 348,815 130,204 479,019 .... .... 100.0 100.0 100.0 72.8 27.2 -100.0 Urban .................. 216,066 98,911 .314,977 .... 61.9 76.0 65.8 68.6 31.4 100.0 Rural .................. 132,749 31,293 164,042 .... 38.1 241.0 34,2 80.9 19.1 100.0 Rural nonfarm ......... 72,957 16,753 89,710 .... .... 20.9 12.9 18.7 81.3 18.7 100.0 ik Rural form ............ 59,792 14,540 74,332 17.1 11.2 15.5 80.4 19.6 100.0 1940 Atlanta SMSA ........... 409,128 149,714 558,842 79,823 16.7 100.0 100.0 100.0 73.2 26.8 100.0 Urban .................. 251,106 118,431 369,537 54,560 17.3 61.4 79.1 66.1 68.0 32.0 100.0 Rural .................. 158,022 31,283 189,305 25,263 15.4 38.6 20.9 33.9 83.5 16.5 100.0 Rural nonfarm .......... 100,480 20,962 121,442 .31,732 35.4 24.6 14.0 21.7 82.7 17.3 100.0 Rural form ............ 57,542 10, 321 67,863 -6,469 -8.7 1 14.0 6.9 12.1 84-81 15.2 100.0 1950 -!/ Atlanta SMSA ........... 554,328 172,661 726,989 168,147 30.1 100.0 100.0 100.0 76.2 23.8 100.0 Urban .................. 393,837 147,265 541,102 171,565 46.4 71.0 85.3 74.4 72.9 27.1 100.0 Rural .................. 160,491 25,396 185,887 -3,418 -1.8 29.0 14.7 25.6 86.3 13.7 100.0 Rural nonfarm ......... 120,411 20,067 140,478 19,036 15.7 21.7 11.6 19.3 85.7 14.3 100. Rural form ............ 40,080 5,329 45,409 .22,454 -33.1 1 7.2 3.1 6.2 88.3 11.7 100.0 1960 Atlanta SMSA ............ 785,019 232,169 1,017,188, 290,199 39.9 100.0 100.0 100.0 77.2 22.8 100.0 Urban .................. 622,563 214,884 837,"7 296,345 54.8 79.3 92.5 82.3 74.3 25.7 100.0 Rural 21 ................ 162,456. 17,285 . 179,741 -6,146 -3.3 20.7 7.5 17.7 90.4. 9.6 10(LO J/Data for 1930 and 1940 based on old urban definition; effective 1950 data based on new urban definition. 2/Rural nonfarm and rural form breakdown not available. Source: 1930, 1940, 1950, and 1060 U.S. Census of Population. Table B-47. Age, by color, of Atlanta standard metropolitan statistical area: 1930-1960 [For Atlanta SMSA definition see table B-46] 1930 1940 1950 1960 Age (years) All White Non- AlI White Non- clAlI Non- 11 Whi te Non- classes white classes white asses White white classes white Total, all ages ...... 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Under 5 ................ 8.9 9.0 8.6 7.9 7.8 8.1 11.3 11.2 11.6 12.1 11.4 14.1 5to 9 ................ 10.1 10.1 10.0 8.0 7.8 8.7 8A 8.4 8.7 10.8 10.4 12.3 10 to 14 ................ 9.5 9.3 10.3 8.6 8.4 9.0 7.0 6.7 8.0 9.3 9.3 9.6 15 to 19 ................ 10.0 9.5 11.2 9.3 9.2 9.7 7.2 6.8 8.1 7.1 7.0 7.5 20 to 24 ................ 10.6 10.3 11.6 9.6 9.3 10.6 8.8 8.8 8.7 7.2 7.1 7.4 25 to 29 ................ 9.6 9.3 10.4 9.9 9.4 11.2 9.4 9.6 8.8 7.3 7.4 7.1 30 to 34 ................ 8.2 8.3 7.9 9.2 9.2 9.0 8.4 8.5 8.2 7.5 7.7 6.8 35 to 44 ............ ... 14.1 14.1 14.0 15.3 15.2 15.7 15.5 15.2 16.2 14.1 14.5 12.5 45 to 54 ................ 9.8 10.1 9.2 10.7 11.2 9.4 11.1 11.1 10.9 10.9 11.0 10.5 55 to 64 ................ 5.3 5.8 4.0 6.6 7.2 4.6 6.9 7.4 5.6 7.2 7.4 6.7 65 to 74 ................ 2.6 2.9 1.8 3.6 3.9 3.0 4.3 4.5 3.8 4.4 4.5 3.9 75 and over ............. 1 1.1 1 1.21 .8 1 1.3 1 1.4 L 7.01 1.7 1 1.81 1.41 2.1 1 2.3 1 1.7 Source: 1930, 1940, 1950, and 1960 U.S. Census of Population. 146 Table B-48. Births, deaths, and infant deaths, by color, for Atlanta standard metropolitan statistical area: 1930-1959 [For Atlanta SMSA definition see table B-46; the year 1930 does not include Milton and Campbell Counties] 1930 1940 1950 1959 Total Non- Total Non' Total Non Total Non- all White all White all White all White classes white cl asses white classes white classes white Live births ............. 8,466 6,059 2,407 10,343 7,280 3,063 19,132 13,686 5,446 25,708 18,514 7,194 Deaths, all causes ...... 6,152 3,438 2,714 5,966 3,422 2,544 6,203 3,924 2,279 7,799 5,339 2,450 Infant deaths ........... 726 396 330 538 294 2" 540 294 246 686 389 297 RATE Live births (per 1,000 population) ............ 18.3 18.0 18.9 18.5 17.8 20.4 26.3 24.7 31.5 -!/27.1 -1/25.3 1/33.1 Deaths, all causes (per 1,000 population) ....... 13.3 10.2 21.4 10.7 8.4 17.0 8.5 7.1 13.2 j/8.2 -1/7-3 -1/11.3 Infant deaths (per 1,000 live births) 85.7 65.3 137.1 52.0 40.4 79.7 28.2 21.5 45.2 26.6 21.0 41.3 -!/Based on estimated population as of July 1. Source: Biostatistics Service of Georgia Department of Public Health. Table B-49. Percent distribution of major occupational groups, by color and sex, for Atlanta standard metropolitan statistical area, 1940 and 1950 [For Atlanta SMSA definition see table B-13. Percent not shown where less than 0.11 1940 1950 Major occupation group Total all White Nonwhite Total all White Nonwhite classes Male Female Male Female classes - Male Female Male Female Persons 14 years old and over ... 431,566 153,110 164,656 50,604 63,196 542,243 199,420 216,344 56,863 69,616 In labor force ........ I ......... 246,079 123,973 48,509 40,497 33,100 305,061 158,494 71,2Bl 43,880 31,406 Employed .................... . 1/215,488 1/111,111 -1/42,510 -1/32,686 1/29,181 291,899 150,637 69,428 41,882 29,952 PERCENT DISTRIBUTION Employed .................... 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Professional, technical and kindred workers ............. 2/6.9 217.1 2/12.7 211.9 2/3.4 8.9 10.1 12.3 2.2 4.7 Formers and farm managers ..... 4.2 7.0 .4 3.6 .1 1.8 3.0 .2 1.4 ..... Managers, officials and props., except farm ................. 8.6 14.4 4.4 1.6 .6 9.5 15.5 4.5 2.0 1.0 Clerical, sales and kindred workers .................... 22.8 24.7 47.7 3.1 1.3 -2/26.2 23.3 -?/ 55. 02/5.0 21 3.2 Craftsmen, foremen, and kindred workers ............. 10.5 17.6 1.2 7.8 .2 13.3 22.1 1.9 9.8 .4 Operatives and kindred workers. . 16.7 16.5 20.1 20.1 8.4 17.2 16.5 16.7 23.4 13.6 Private household workers ...... 1/11.3 J/. I -@J 2.4 -1/7.1 71.6 5.7 1.0 1.5 51.3 Service workers exc. private household .................. 9.5 5.1 8.4 23.4 12.6 8.9 3.9 5.8 22.1 23.0 Farm laborers, unpaid family workers .................... 1.3 1.6 .9 1.3 .6 .3 .4 .2 .3 .2 Form laborers, exc. unpaid, and farm foremen ............ 1.5 1.6 .1 4.0 .2 .5 .5 .1 1.2 .2 Laborers, except farm .......... 6.0 3.7 .7 25.6 .7 6.2 3.2 .4 1/ 29.9 1.4 Occupation not reported ...... .6 .9 1 .5 1 .4 1.5 1 1.4 11.91 1.2 1.0 !/Except on public emergency work. 2/includes "semiprofessional workers" listed as a separate item in 1940 census. 2/includes "sales workers" listed as a separate item in 1950 census. A/Listed as "domestic workers" in 1940 census. -@/Mine laborers not included. Source: 1940 and 1950 U.S. Census of Population. 147 Table B-50. Atlanta nonagricultural employment, annual averages, 1949-1958 ,[All employees wage and salary, except domestics] Industry 1949 1950 1951 1952 1953 1954 1 1955 1956VI 1957 1958 Total .............................. 249,900 258,300 276,950 290,250 304,150 304,900 323,550 344,650 1349,350 343,500 Contract construction ...................... 13,850 16,350 18,350 14,950 15,250 16,050 18,550 18,950 18,150 20,050 Manufacturing ............................. 58,100 60,500 66,750 73,400 79,700 79,500 87,800 91,550 89,800 -82,100 Durable goods ........................ 22,400 24,750 30,450 36,350 41,200 41,600 49,350 51,050 48,700 41,550 Lumber and wood products, except furniture ....................... 2,850 2,900 3,200 3,000 .2,900 2,850 2,900 3,100 2,450 2,050 Furniture and fixtures .............. 3,500 4,250 3,950 3,950 4,450 4,250 4,600 4,650 4,050 3,700 Stone, clay, and glass products ..... 850 950 1,000 950 800 1,050 1,350 1,500 1,700 2,400 Primary metal industries ........... 2,150 2,400 2,700 2,900 3,150 2,700 2,900 2,750 2,750 2,150 Fabricated metal products .......... 1,850 2,150 2,450 2,400 2,600 2,450 2,650 2,800 2,550 2,350 Machinery (except electrical) ....... 2,350 2,600 2,950 2,800 2,800 2,550 2,650 3,100 3,250 3,150 Transportation equipment ........... 5,800 6,400 10,500 16,600 20,800 22,050 28,100 28,650 27,200 21,150 Other durable goods2/ .............. 3,050 3,100 3,700 3,750 3,700 3,700 4,200 4,500 4,750 4,600 Nondurable goods ..................... 35,700 35,750 36,300 37,050 38,500 37,900 38,450 40,500 41,100 40,550 Food and kindred products .......... 10,400 10,050 9,950 10,700 10,750 10,900 11,350 11,850 12,000 12,300 Textile mill products ........ I ..... 9,050 9,450 9,700 9,400 9,100 8,300 7,900 .7,600 7,450 6,650 Apparel and other finished textile products ........................... 6,250 6,250 6,300 6,400 7,500 7,350 7,400 7,500 7,150 7,000 Paper and allied products .............. 2,350 2,550 2,650 2,750 2,950 3,000 3,250 3,550 4,000 4,100 Printing, publishing and allied industries .......................... 4,500 4,400 4,600 41650 4,650 4,800 4,900 5,150 5,500 5,700 Chemicals and allied products .......... 2,500 2,500 2,650 2,550 2,950 2,900 2,950 2,800 2,750 2,750 Leather and leather products ............ 500 400 350 400 350 450 500 1,800 1,850 1,800 Other nondurable goods2/ ............... 150 150 100 200 250 200 200 250 400 250 Transportation, communication, electric, gas and sanitary services .................... 28,750 29,300 31,600 32,300 32,700 32,050 33,400 34,750 35,400 34,000 Trade .................................... 71,550 72,050 75,300 78,000 80,750 81,050 83,300 89,100 91,300 90,500 Finance, insurance, and real estate .......... 15,400 , 16,400 17,400 19,850 21,500 21,400 22,850 24,700 24,950 25,350 Service and miscellaneous .................. 31,800 32,250 32,750 35,050 36,750 37,800 38,800 42,950 45,000 44,800 Government ................................ 30,450 31,450 34,800 36,700 37,500 37,050 38,850 42,650 44,750 46,700 j/Data for 1949-55 include Cobb, DeKalb and Fulton Counties. Effective January 1956, Clayton and Gwinnett Counties were included. 2/includes electrical machinery, equipment and supplies; professional, scientific and controlling instruments; and miscellaneous manufac- turing industries. ,3/lncludes ordnance, petroleum refining and related industries, andrub6er and miscellaneous plastic products. Source: Georgia Departmentof Labor-Employment Security Agency. 148 Table B-51. Income in 1949 of families and unrelated individuals, by color, for Atlanta standard metropolitan statistical area, 1950 [For Atlanta SMSA definition see table B-46. Statistics based on 20-percent sample] Persons with income Percent distribution Income Total all classes White Nonwhite Total all classes White Nonwhite Families and unrelated individuals ........... 239,500 184,325 55,175 100.0 100.0 100.0 Less than $500 ..... 28,880 19,225 9,655 12.0 io.@ 17.5 $500 to $999 ........ 18,615 9,650 8,965 7.8 5.2 16.2 $1,000 to $1,499 .... 19,860 10,360 9,500 8.3 5.6 17.2 $1,500 to $1,999 .... 22,760 12,715 10,045 9.5 6.9 18.2 $2,000 to $2,499 .... 23,265 16,980 6,285 9.7 9.2 11.4 $2,500 to $2,999 .... 18,545 15,365 3,180 7.7 8.3 5.8 $3,000 to $3,499 .... 18,470 16,590 1,880 7.7 9.0 3.4 $3,500 to $3,999 .... 14,345 13,155 1,190 6.0 7.1 2.2 $4,000 to $4,499 .... 11,370 10,645 725 4.7 5.8 1.3 $4,500 to $4,999 .... 8,725 8,370 355 3.6 4.3 .6 $5,000 to $5,999 .... 13,980 13,540 440 5.8 7.3 .8 $6,000 to $6,999 .... 7,760 7,620 140 3.2 4.1 .3 $7,000 to $9,999 .... 9,080 8,905 175 3.8 4.8 .3 $10,000 and over .... 6,425 6,345 80 2.7 3.4 . I Income not reported. . 17,420 14,860 1 2,560 1 .7.3 1 81 4.6 Source: 1950 U.S. Census of Population. Table 13-52. Age and sex, by color, of in-migrants and out-migrants for Georgia economic area of Cobb, DeKalb, and Fulton counties, 1950 'In-migrants Out-migrants Age and sex Total] Non Total Non- all Percent White Percent w' Percent all Percent White Percent Percent classes hite classes white Male ............... 18,345 .... 16,500 .... 1,845 .... 16,645 14,780 .... 1,865 Female ............ 17,455 .... 15,500 .... 1,955 .... 16,250 .... 14,550 .... 1,700 .... Total, I year old and over ........ 35,800 100.0 32,000 100.0 3,8001 100.01 32,895 100.0 29,3301 100.0 3,5651 100.0 1 to 5 years .......... 4,510 12.6 4,175 13.0 335 8.8 4,405 13.4 4,030 13.7 375 10.5 6 to 13 years .......... 3,630 10.1 3,295 10.3 335 8.8 3,045 9.3 2,765 9.4 280 7.9 14 to 17 years .......... 1,700 4.7 1,470 4.6 230 6.1 1,365 4.1 1,190 4.1 175 4.9 18 and 19 years ......... Z335 6.5 1,955 6.1 380 10.0 1,710 5.2 1,485 5.1 225 6.3 20 to 24 years .......... 5,745 16.0 5,035 15.7 710 18.7 5,150 15.7 4,400 15.0 750 21.0 25 to 29 years .......... 5,260 14.7 4,700 14.7 560 14.7 4,940 15.0 4,445 15.2 495 13.9 30 to 34 years .......... 3,445 9.6 3,120 9.7 325 8.6 3,495 10.6 3,140 10.7 355 9.9 35 to 39 years .......... 2;685 7.5 2,445 7.6 240 6.3 2,550 7.7 2,275 7.8 275 7.7 40 to 44 years .......... 1,925 5.4 1,750 5.5 175 4.6 1,695 5.2 1,535 5.2 160 4.5 45 to 54 years .......... 2,135 6.0 1,880 5.9 255 6.7 2,260 6.9 2,005 6.8 255 7.2 55 to 64 years .......... 1,215 3.4 1,120 3.5 95 2.5 1,245 3.8 1,120 3.8 125 3.5 65 years and over ....... 1 1,215 3.41 1,0551 3.3 1601 4.2 1,0351 3.1 940 3.21 951 2.7 Source: 1950 U.S. Census of Population, Special Report P-E No. 4B. 09T '9V 'ON 3-d ;iodaN lo!oodS luo!4DInd0d jo snsue:) -s-n ow :oojnoS PawjV a44 jo sjeqLuaw sapnioul/-L CL 91 Z,l 96 E'l oil 9*c OC Z'L 90L V'L 9C L ........... popodoi 4ou uo!4Ddn:oDo 6'OZ 99L E*lr see 0*9 ON ITC 98Z Z*g GIrk WL 'OfL .......... al" PUB Wjoj 4d*oxa 'sjojoqD-1 Z'O L 06 C*z SLL IT 99Z CL 9 L IF* 0 c 9' GV .......................... 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SJDGk G opun 1 :AjD4uowG13 WOOL OWL O-OOL 09t"S L 0*00 L 06Z'LL 0'00 1 OWL WOOL OLO'91 WOOL OWL L .................. JOAO PUB plo siDeA gZ suosjGd 04!qm sassolo 414m SQSSDID 4ugnijacl -uoN 4uQ:)JQd 84!4M #uQ3JGd 110 4uO3JGd GU`ON tuQ3JOd OPM 4uQ3jGd 110 pG4GIdwoa I D4G.L -IL ID40.L 1004-Is jo SIDOX s4uDAB!w-4no S4UDJB!uj-ul @ 0'00 4u--ILOd MIL 'sai4uno:) uo4ln:A puo 191o)1aa lqgo:) jo i3ai.a aiwouo3a oi6joaq i0f SJUDJBIW-4no PUD s4uDjBlw-ui Ag pG491dwo3 10042S J0 Sjl)ek 'ES-9 8191).L Table B-55. Population, by counties and Table 13-55. Population, by counties and senatorial districts for Georgia, 1960 senatorial districts for Georgia, 1960-Con. symbol denotes the 8 largest counties M symbol denotes the 30 next largest counties Senatorial Population Population Senatorial Population P.opulation District County each each District County each each Number County Senatorial Number County Senatorial District District 20 Hancock ............. 9,979 62,946 I Effingham ............ 10,144 198,443 Washington ........... 18,903 *Chatham ............. 188,299 tBoldwin ............. 34,064 2 Bryan ................ 6,226 27,077 21 Wilkinson ............ 9,250 25,766 Liberty .............. 14,487 Johnson .............. 8,048 McIntosh ............. 6,364 Jones ................ 8,468 3 Long ................ 3,874 27,686 22 Lamar ............... 10,240 29,711 Wayne ............... 17,921 Monroe ............... 10,495 Brantley ............. 5,891 Butts ................ 8,976 4 tGlynti ............... 41,954 57,242 23 Crawford ............. 5,816 27,973 Camden .............. 9,975 Peach ............... 13,846 Charlton .@ ............ 5,313 Taylor ............... 8,311 5 tWore ................ 34,219 46,952 24 *Muscogee ............ 158,623 177,111 Clinch ............... 6,545 Chattahoochee ........ 13,011 Atkinson ............. 6,188 Marion ............... 5,477 6 Echols .............. 1,876 56,243 25 Harris ............... il,167 42,094 tLowndes ............. 49,270 Talbot ........ 7,127 Lanier ................ 5,097 tUpson ...... 23.800 7 fThomas .............. 34,319 , 71,986 26 Fayette ..... 8,199 89,968 Grady ................ 18,015 tClayton .............. 46,365 Mitchell .............. 19,652 tSpolding .... '-*'- 35,464 8 Miller ................ 6,908 38,913 27 Jackson .............. 18,499 39,288 Seminole ............. 6,802 Borrow .............. 14,485 tDocatur .............. 25,203 Oconee .............. 6,304 9 Early ................ 13,151 25,035 28 Putnam .............. 7,798 24,213 Calhoun ............. 7,341 Jasper ............... 6,135 Baker ................ 4,543 Morgan ............... 10,280 10 *Dougherty ............ 75,680 98,566 29 Lincoln .............. 5,906 31,956 Worth ................ 16,682 McDuf ,fie ............. 12,627 Lee ................. 6,204 Columbia .......... * .. 13,423 11 Clay ...... '*--- 4,551 28,371 30 Hart ................. 15,229 44,310 Randolph ............. 11,078 Madison .............. 11,246 Terrell ............... 12,742 Elbert ............... 17,835- 12 Quitman .............. 2,432 13,050 31 Franklin ............. 13,274 49,781 Stewart .............. 7j371 Stephens ............. 18,391 Webster .............. 3,247 Habershom ........... 18,116 13 tSumter ............... 24,652 41,078 32 Lumpkin ............. 17,766 Schley ............... 3,256 White ................ 6,935 Macon ............... 13,170 Dawson .............. 3,590 14 Dooley ............... 11,474 29,320 33 tHall ................. 49,739 68,406 Pulaski .............. 8,204 Forsyth .............. 12,170 Bleckley ............. 9,642 Banks ............... 6,497 15 Toombs .............. 16,837 28,463 34 tGwinnett ............. 43,541 310,895 Montgomery ........... 6,284 *DeKolb .............. 256,782 Wheeler .............. 5,342 Rockdale ............. 10,572 16 Emanuel ............. 17,815 56,002 35 Walton ............... 20,481 59,099 Treutlen ............. 5,874 tNewton .............. 20,999 tLaurens ............. 32,313 Henry ................ 17,619 17 Burke ................ 20,596 44,663 36 Meriwether ........... 19,756 55,787 Jenkins .............. 9,148 tCoweta .............. 28,893 Screven .............. 14,919 Pike ................ 7,138 18 Jefferson ............. 17,468 155,741 37 tCarroil '**"*"*"*"* 36,451 88,973 Glascock ............. 2,672 Heard ................ 5,333 *Richmond ............ 135,601 tTroup ................ 47,189 19 Warren ................ 7,360 21,923 38 tPolk ................ 28,015 55,659 Greene. 11,193 Haralson ............. 14,543 3,370 Paulding ............. 13,101 151 Table B-55. Population, by coun ties and Table B-55. Population, by cantles and senatorial districts for Georgia, 1960-Con. senatorial districts for Georgia, 1960-Con. Senatorial Population Population Senatorial Population Population District County each each District County each each Number County Senatorial Number County Senatorial District District 39 Douglas .............. 16,741 153,916 47 tColquitt ............. 34,048 65,974 *Cobb ................ 114,174 tTift ................. 23,467 tCherokee ............ 23,001 Turner ............... 8,439 40 Union ............... 6,510 18,504 48 Crisp ................ 17,768 42,156 Towns ............... 4,538 Wi Icox ............... 7,905 Rabun ............... 7,456 Dodge ............... 16,483 41 Fannin .............. 13,620 31,445 49 tBulloch .............. 24,263 37,887 Gilmer ............... 8,922 Candler .............. 6,672 Pickens ............. 8,903 Evans ............... 6,952 42 Chattoogo ............ 19,954 117,351 50 tClarke ............... 45,363 64,250 tFtoyd ............... 69,130 Oglethorpe ........... 7,926 tBartow .............. 28,267 Wilkes ............... 10,961 43 tWhitfield ............ 42,109 71,784 51 *Bibb ................. 141,249 1 B8, 338 Murray ............... 10,447 tHouston .............. 39,154 Gordon ............... 19,228 Twiggs .............. 7,935 tWolker ............... 45,264 75,031 53 Berrien .............. 12,038 39,152 52 *Fulton ............... 556,326 556,326 tcatooso .............. 21,101 Cook ................ 11,822 Dade ................ 8,666 Brooks .............. 15,292 .45 Irwin ................ 9,211 34,559 54 Appling .............. 13,246 37,997 Ben Hill ............. 13,633 Jeff Davis ........... 8,914 Telfair .............. 11,715 Tattnall .............. 1 15,8371 46 tCoffee ............... 21,953 39,990 Bacon ............... 8,359 Source- 1960 U.S. Census of Population and Georgia Pierce ............... 9,678 statistical abstract. 152 Table B-56. Budget allotments from treasury receipts for recreation purposes, State of Georgia, 1950-1961 Year ended Year ended Year ended Year ended Year ended Year ended June 10, 1950 June 30, 1951 June 30, 1952 June 30, 1953 June 30, 1954 June 30, 1955 Parks division ........ $169,741-16 $293,000.00 $280,000.00 $280,ODO.00 $335,822.53 $370,049.15 Parks expansion and improvement-!@ ...... 261,500.00 302,080.50 850,084.35 1,285,671.73 .00 349,222.01 Game and F i sh Commission ........ 669,000.00 607,000.00 625,000.00 645,568.77 799,000.00 814,028.74 Historical Commission Go ................. .00 .00 13,226.76 82,160.94 94,000.00 119,000.00 Recreation, Georgia Committee ........... .00 .00 .00 .00 .00 Stone Mountain Memorial Committee. . .00 .00 .00 .00 .00 .00 Authority rents ...... .00 .00 .00 .00 .00 .00 Worm Springs (F.D.R.) Memorial ........... .00 .00 .00 .00 .00 .00 Budget for Year ended Year ended Year ended Year ended Year ended year ended June 30, 1956 June 30, 1957 June 30, 1958 June 30, 7959 June 30, 1960 June 30, 196 1 - subject to change Parks division ........ $522,016.69 $375,000.00 $468,000.00 $557,775.72 $682,000.00 $682,000.00 Parks expansion and improvementl@ ...... 397,731.00 713,926.64 990,746.40 1,628,852.16 768,000.00 1,118,000.00 Game and Fish Commission ........ 928,795.94 1,176,667.36 1,329,955.02 1,145,333.77 1,295,000.00 1,295,000.00 Historical Commission Go .............. .. 94,000.00 238,000.00 200,000.00 154,225.50 90,770.74 100,000.00 Recreation, Georgia Committee ......... .00 .00 .00 23,622.46 .00 .00 Stone Mountain Memorial Committee. . .00 .00 100,000.00 1,576,689.88, 434,717.50 378,100.DO Authority rents ...... .00 .00 .00 .00 350,DOO.00 350,000.00 Worm Springs (F.D.R.) Memorial ........... 1 2,000.00 1 .001 .00.1 DO 1 .00 1 50,000.00 1'Including Jekyll Island. Source: Stetementof financial condition andreceiptsond allotments of the State auditor of Georgia, June 30, 1960. 153 I p I APPENDIX 8 CASE STUDIES OF SELECTED AREAS 154 JEKYLL ISLAND $0.50 for children), yet it is the only fresh water pool on the island that is available to noninotel visitors. The Recreation Area The main attraction on Jekyll is the beach located on the ocean side of the island. Consisting of closely Location packed white sand, the entire beach area is main- tained in immaculate condition at all times. Using Jekyll Island is located in southeast Georgia along convict labor, the authority cleans the beach of all the Atlantic coast. It lies approximately 280 miles debris immediately after high tide daily. Life guards from Atlanta and may be reached by car, via U.S. 341, are on duty during daylight hours, the surf is medium, which traverses the State in a southeast-northwest the bottom slopes gently toward the sea; all in all a direction. The island may be reached by rail via the most attractive beach area. Seaboard Railway; by air via Eastern, Delta, or Golden Isles Airlines, via the St. Simon's Airport. Accommodations Jekyll Island has an airstrip, but its use is limited to light, privately owned planes. Motels The physical area and facilities There are, at present, six motels in Jekyll-five reserved for whites, and one for colored visitors. The Jekyll Island land mass is 11,000 acres, and These motels are privately owned, but are located on has 11 miles of beach. The entire shoreline is ac- land leased from the Jekyll Island Authority. Each cessible to the visitor if he wishes to drive around motel has its own dining room and its own lounge the Island. One attraction fbr visitors is the group of providing entertainment and dancing. houses, now museums, wnich once belonged to the The n2otels, with one exception, are located on the wealthy families of the UnitE%d States who used Jekyll beach. In addition to the usual bedroom accommo- Island as a vacation hideaway. For a fee, visitors dations, each motel has efficiency apartments for may walk through the summir homes of the Rocke- rent that include kitchen and dining space. All motels fellers, the DuPonts, the Cranes, and the Morgans, are new and are tastefully furnished. Rates run from to name a few. This "historical" attraction is one $12 to $18 for bedrooms, and from $18 to $25 per day activity which may be pursued during a visit to the for efficiency apartments. These are summer rates; island. There are other historical sights such as winter rates are 10-15 percent lower. remnants of the old slave trade mart of the 17th and 18th centuries, a fort built during the Revolutionary Hotels days, and the remains of one of Jekyll Island's fir .st Within the island, removed from the beach, there homes built in the 18th century. Jekyll Island is also a wildlife sanctuary, its forest are several hotels. These hotels are converted containing wild deer, turkey, and quail. The hunting summer homes of the wealthy families who used season extends from November through February, Jekyll as a vacation spot. The hotels are in relatively with bird hunting leading the way as the principal poor condition; the old frame homes are in need of sport. The other land activities available to visitors paint; the grounds are ill-kept; and the overall ap- are the two golf courses, one 18 holes and one 9, pearance is one of dilapidation. Room rates, however, tennis courts, and paths for hiking. are much less expensive than are motel rooms. Jekyll has two large picnic areas with atotal of 600 picnic tables and benches. There are eight smaller Cottages picnic areas scattered along the shore, each contain- ing six picnic tables. Pressure on picnic facilities is There are many cottages on the island; some on the light to very light. Only on Sunday is there any beach, others some 75 to 100 yards inland. Many of appreciable number of picnickers, and these are pri- the cottages are individually owned and are located on marily residents of nearby Brunswick. lots leased from the authority. There are, in addi- A small shopping center is located at the entrance tion, a substantial number of cottages available for to the beach area of the island. Here the visitor may rent, by the day or week, from local realtors. Rents purchase drugs and supplies at the island drugstore; for these cottages range from $65 to $200 a week food is available at the supermarket; and laundry may during the summer, and from $50 to $175 during the be done at the laundramat. A cafeteria with relatively off season. The typical cottage features three bed- inexpensive meals is also located in the shopping rooms, bath, living room, dining room, and kitchen, center, as is a branch post office. and rents for $100-$125 a week. Other concessions to be found on the shoreline in- elude two snack bars, an ice cream stand, and a Campgrounds playground with rides for children. The latest facility to be opened on Jekyll is the There is presently only one campground on the Aquarama. This facility, obviously constructed to island. Established on a 20- acre plot on the mainland attract conventions, features a tremendous indoor, side of the island, facilities include a small store, heated swimming pool, a large auditorium, and many bathhouse, and laundramat. Campsites are rough and small conference rooms. The swimming pool, while are spaced alternately along a dirt road leadinginto a attractive, is extremely expensive ($1 for adults, forested area. While picnic facilities are located 155 nearby, campers must go to the other side of the The recreation facilities are scarce, and the ocean is island for swimming, since the mainland side has the basic source of recreation activity, 'with swimming only a rocky and marshy shoreline. No fresh water as the chief activity. There is little boating, no water pools are available to the camper except the expen- skiing, and relatively little deep-sea fishing. sive pool in the Aquarama. All in all, one would have If comparisons are helpful in assessing the value to state that camping on Jekyll Island is unattractive, and quality of the Island, the best comparison would yet this is the only facility that is within the financial be with the resort areas to be found in the Catskill means of a large portion of Georgia's population. Mountains of New York. For those who like to lie on the beach and swim during the day, enjoy an expensive The Visitors meal in the evening, and dance and nightclub at night, Jekyll Island seems to be the perfect spot. For those During 1960, 253,410 people visited Jekyll.Island. who are seeking an atmosphere less sophisticated, This was a 50 percent increase over 1959, and it has less flashy,. it does not seem that Jekyll Island is the been estimated that the number of visitors will in- place to go. crease by 50 percent each successive year. It is . In assessing the future of Jekyll, one would conclude difficult to assess how many visitors were local that it doubtless will become a favorite site for hold- residents (within a 70-mile radius) who use the beach ing large conventions during the spring, summer, and and its bathing facilities free of charge. Moreover, fall, and will be a delightful vacation spot for those many of the visitors were from out-of-State, as Georgians and non-Georgians who can afford its Jekyll Island is a nationwide tourist attraction. rather expensive accommodations. It is not now, and A check at the motel parking lots indicated that of probably will not become, a vacation area for the the automobiles from the Atlanta area, Fulton and great majority of the residents of Georgia. DeKalb Counties far outnumbered those from Cobb, Clayton, and Gwinnett Counties. Of a total of 115 IDA CASON CALLAWAY GARDENS automobiles with Atlanta license plates: 40 werefrom Fulton County; 50 were from Dekalb County; 12 were Location from Cobb County; two were from Clayton County; and there was only 1 from Gwinnett County. It is .7he.1da Cason Callaway Gardens are located on the assumed there were more cars from the Atlanta area northwes ,t slope of Pine Mountain in the southernmost on Jekyll Island during the period of visitation, but foothills of the Appalachians, and 4 miles south of -the these were the only ones found parked in large enough west Georgia town of Pine Mountain in Troup County. numbers to be significant. Atlanta lies 85 miles to the northeast. A check with the motels showed that of the total A network of highways connects the capital city to number of visitors at each motel, approximately 30 -Callaway Gardens. The trip begins with a 10-mile percent were from Atlanta. The average length of a drive on the south expressway to Georgia 54. Making visit was estimated at 3 days. The 30 percent figure this junction, the traveler rides to Fayetteville at needs to be qualified with the statement from all which time he turns on Georgia 85. From Georgia 85, motel owners, I 'that approximately 75 percent of their the route continues on Georgia 109 leading to a visitors were paying, or did pay, repeatvisits.11 This junction with Georgia 18. After traveling on this high- makes it more difficult to assess how many people way, the traveler turns on United States 27, the main from the Atlanta area visited the island. U.S. artery from the midwest to Florida. Of the total number of campers at the Cherokee There are more direct routes from Atlanta to campgrounds, 50 percent were from Atlanta. The Callaway Gardens. The above-mentioned route, how- manager of the campsite indicated that this was a ever, has been designed to allow the traveler to drive. very rough estimate. in the main, on highways that are.not cluttered with Almost all visitors are families. Jekyll Island is heavy traffic. The roads, some of them county roads, definitely a family resort area with facilities for are well paved and well maintained. children, and such features as rooms with kitchenettes The traveler is guided by 12 highway signs which to service families. indicate that he is on the correct route. The signs Almost all visitors are from the middle and upper are large and the printing is easy to read while income groups. The price for motel rooms and driving. The following figures represent the mileage cottages would preclude most people from the lower between the location of the signs and the gardens: economic groups. The atmosphere is one of sophis- sign 1-65 miles; sign 2-58 miles; sign 3-50 miles; tioation and style, and it may be assumed that most sign 4-35 miles; sign 5-34 7/10 miles; sign 6-34 visitors were from large cities, either in Georgia or miles; sign 7-31 miles; sign 8-19 miles; sign 9-14 out- of- State. miles; sign 10-9 miles; sign 11-4 miles; sign 12- 1 mile. The traveler also finds billboards that Conclusions advertise the Gardens Motel so that he is aided further in keeping to the route. This is an extremely attractive, verywell managed, It should be pointed out that these billboards indi- immaculate recreation area. To the local residents cate the kind of place Callaway Gardens is. They are of the area, those within the 70- mile radius mentioned not "loud" in tone; they do not clash with the beauty earlier, Jekyll Island is a fine day-use facility. For of the countryside; on the contrary, they are subdued those residents of Atlanta and from out-of-State, in color. The lettering is white and in a style of Jekyll Island should be considered a resort area. The script used in all the signs and markers located in most attractive sights on the Island are the motels. the recreation area itself. It is indicative of the 156 standards of excellence maintained at Callaway Gar- is excellent, and the prices are reasonable; $2.75 for dens that even the highway posters suggest the dinner, and $1.75 for a full-course lunch including atmosphere of the area and are designed in a manner appetizer, main dish, vegetables, salad, and dessert. befitting its dignity and beauty. 'The overlook picnic area is a pavilion which can hold 320 people, and is used for group parties and The area proper and facilifies large group barbecues. The boathouse accommodates 80 fishing boats, and Callaway Gardens is a spot unto'itself. None of the is the center for fishing on Mountain Creek Lake. areas visited during this project compare to its Sightseeing boats, such as "Cleopatra's Barge" and natural beauty. For the gardens is not only a rec- smaller vessels are available from the boathouse. reation area-it was not designed to be-it is a The nine-hole golf course (nine additional holes are sanctuary for native plants and wildflowers, to which under construction) has been designed for the "av- 15-20,000 new shrubs are added annually. Within an erage' I golfer. Rather than being filled with traps and amazing variety of forests, shrubbery, and flowers encumbrances to test the skill of the golfer, it is a are 10 mountain, spring-fed lakes, the 2 largest of sweeping picturesque green lawn, bordered by the which, Mountain Creek Lake and Robin Lake, are the lake and the thick forests of the area. fishing and swimming areas, respectively. This whole magnificent area is encircled by a winding, Meadow fork flower area hardtop road 5 miles in length, known as the Five- Mile Drive. In discussing Callaway Gardens, we will The meadow lark flower area is the principal describe each of the recreation areas encountered on concentration of planned flower trails in the gardens. the Five-Mile Drive. While flowers and flowering shrubs are found through- The admission to the Five-Mile Drive, $0.75 for out'the gardens, bordering every building and pathway, adults and $0.35 for children, allows the visitor to this area is designed especially for those who wish to enter into a naturally created and man-made "Garden walk through paths containing a multiplicity of famil- of Eden," as it has been called. It is an area of iar and exotic varieties of shrubs and flowers. The breathtaking lovliness. There is not a spot in the area ave.rage walking time through each trail is 15 minutes that has not been landscaped by man or nature. Ever The five trails are the azalea falls trail, the holl' y y building is bordered by bright-colored flowers or trail, the rhodode@dron trail, the magnolia trail, and flowering shrubs. Pathways to buil 'dings are lined the bird study trail. While the walk throughthe trails with flowers, shrubs, or trees. The road winds its does not serve as an activity for hikers, it presents way through a forest of pines, maples, beeches, and the visitor with a retreat, a place to commune with gums. Shrubbery and flowers border the road. One nature, and allows him respite from the tempo of example of the lovIiness to befoundinthe 5-mile area metropolitan living. is the last part of the drive from the cottagp area to the beach. This area is bordered by tall, stately pine trees. Several feet from the pine trees is a garden Robin Lake beach area of magnolia trees growing in the same line as the pines. This pattern is repeated several feet from the The beach is the main attraction of Callaway magnolias by a line of tall and full- growing shrubbery. Gardens. The facilities are designed to accommodate Away from the shrubs and close to the road the, 15,000 persons at one time. The parking area will semicircular pattern is repeated by rows of flowers. accommodate 2,000 automobiles with extra space re- One large semicircle of pines, magnolias, shrubs, and served for another 2,000 automobiles in overflow flowers tells the visitor that this is a spot where he parking areas. The beach is open for swimming and can find solace, serenity, and beauty. It is this natural water , sports from April 15 through Labor Day. beauty which makes Callaway Gardens a unique: Water skiing, however, is a year-round activity. The recreation area. beach hours are from 9 a.m. to 7 p.m. On Saturdays the beach is open until 10 p.m. for night swimming. The clubhouse area Robin Lake comprises 65 acres. It is used for water skiing, speedboat rides, canoeing, and pedal The clubhouse area is encountered early on the boating. The last three activities take place not on Five-Mile Drive. Within this first area are the club- Robin Lake, but on two smaller lakes that adjoin it. house itself, the overlook picnic area, the boathouse, The pedal boats at Callaway Gardens are large the golf course and "Cleopatra's Barge," a huge enough to seat more than two people, and have an at- sightseeing boat that tours the 5-.mile shoreline of tached bicycle that older children may ride while the Mountain Creek Lake, and which may be used for parents and younger children are in the pedal boat special parties and luncheons afloat. proper. Each of the above-mentioned boats contains The buildings in the area are of 17th century life preservers. Children are not allowed in the English Provincial design withr hand-hewn oak beams canoes, with or without parents. and hand-rived shingles. The two dining rooms inthe A feature of the water activities is the ski pavilion gardens are found in the clubhouse area. One which located on the west beach. The beach is of horseshoe caters especially to the golfers serves sandwiches shape and extends half a mile around the shoreline of and snacks, while the main dining room has a capacity: the lake. The sand extends 50 feet above the shore- of 150 people with an adjoining terrace that can serve line and 120 -feet beneath the surface of the water. 60 additional people. During the summer, breakfast The pavilion can seat 800 persons. It is used for the and dinner are served smorgasbord style. The food master's water ski tournament held annually at Robin 1@7 Lake, but it may also be used as an area for private shrubs provide, a relaxation not encountered at any parties and banquets'. of the other recreation areas surveyed for these reports. Facilities of the beach Accommodations and services The west beach is the smaller of the two. There is one bathhouse on this side of Robin Lake with On June 4 of this year, 50 cottages were con- parking facilities for about 400 cars. The bathhouse structed on the outskirts of Robin Lake. If they prove is in the center of a pine grove, and bordered by to be popular, as it is thought they will be, 200 addi- flowering shrubs and flowers. Like the east bath- tional cabins will be constructed for next year. This house, there are indoor flower gardens in the center action by the gardens' officials was encouraged by a of the dressing room. The price for use of the bath- demand from visitors for a longer period of stay at house is $0.25 for adults and $0.10 for children. A the gardens; for vacations rather than 3-4 day periods, public telephone and soft drink machine are found at which is the average duration of a visit at this time. the west bathhouse. Perhaps a strong indication that the gardens is a Adjoining the west bathhouse is the west picnic family recreation area is the criterion that no one area. Automobiles may enter the area for unloading, can rent a cottage during the summer season unless but must be parked in the parking lot. there is at least one child present. Aside from this picnic area and the east picnic The cottages may be rented for 1 week at a time. area, there are smaller areas with picnic tables sur- The rental is $68 per week for two adults and up to rounding the lake. six children. The rental includes -admission into the The east beach has four bathhouses, each of which gardens and the beach, participation in the adult can accommodate 1,000 persons at a single time. An recreation program, supervised play and study pro- outstanding feature of the east beach is the pavilion, grams for children, and supervised babysitting. The a mushroom-structured futuristicly designed area adult recreation program referred to is a night ac- containing ultramodern tables and chairs, and deco- tivity; one activity for each night of the week.. rated by abstract mobiles. The mushroom structur- The regulationiq covering the use of the cottages ing is a result of juxtaposing 21 giant shells which change, during the fall, winter, and spring. During tower 19 feet into the air. The pavilion is one-half these seasons cottages are rented on a daily or weekly the size of a football field. basis to convention oups, individuals, or families. The rates are has Y The pavilion is used as a restaurant where lunch e on a nightly schedule: $6 for or dinner may be obtained. It also contains two ice one person; $8 for two; and $1 for additional persons. cream stands, and is surrounded by two small pien *ic It cannot be determined how the cottages will be areas. Within the pavilion are public telephones, water maintained once their newness wears off. It can be fountains, and two restrooms. On Saturday nights the said, however, that if they meet the criteria estab- pavilion is used for dancing with music furnished by an lished for other facilities in the area, they will be orchestra that occupies the small band shell at the well maintained. The cottages are of wood, redwood north side of the structure. and pine stained. Each cottage consists of a combi- For the bathers and picnickers on the east beach, nation living room-bedrooni, a kitchenette, a bath- four concession stands have been erected from which room, and a small room serving as an extra bedroom. hamburgers, frankfurters, soft drinks, and ice cream One style of cottage, tepee shaped in design, contains may be purchased. There is also a gift shop which an attic with severalbitnk beds for extra children or sells beach toys and accessories, cameras and guests. camera supplies, and drugs. Showers and drinking The Gardens Motel contains 50 units. With modern fountains are conveniently located through the east conveniences and facilities, it is used, in the main, for beach. visits of 3 days. It has facilities for groups with an The east beach is the location of the children's deexecutive suite" adjacent to a conference room for playground. This supervised play area contains a meetings. There are studio rooms and parlor suites sandbox, swings, climbing bars, and a slide. This is for small groups. Ile motel does not have kitchen a play area, but is not a carnival-type area. facilities. A guest of the motel may use the beach The safety and welfare of visitors are rigidly and other recreation activities without charge. guarded at the beach. The water is periodically There are several small motels in the immediate tested by the Department of Health. The beach has a vicinity. of Callaway Gardens. One of these motels smooth, gentle slope to prevent a swimmer from gives its guests free admission passes to the gardens suddenly finding himself in water over his head, and and the beach. The motel, of course, must recom- there are several lifeguard stands ringing the enclosed pense the Gardens Corporation for this privilege. swimming area. The privilege was offered the other motels in the When the visitor enters the east beach, he is greeted area, but they.refused to accept it. As a result, when. by the sounds of music from the public address sys- the Gardens Motel is filled, it recommends the tem. The music is not from a jukebox, not from a motel with which it has the free pass agreement to radio station, but is similar to the music service those who did not find vacancies in the Gardens where the music has been taped and plays continually Motel. These smaller motels are very modest throughout the day. The music played is semi- (8-12 units), not very attractive, but are simple and classical and pop "standards." The combination of clean. Their main source of income occurs during pleasant musical sounds, the beauty of the lake, and the summer months in supplying rooms to those who the natural beauty of the grounds with the flowers and are unable to acquire space in the Gardens Motel. 168 One final service offered visitors is the Gardens tripled, if not during this next year, within the im- Airport, a 3,000-foot turf airstrip with tiedown and mediate future. In other words, most of the future refueling facilities, and several hangers. Visitors plans are concerned not with recreation facilities, who fly to the gardens are supplied with free trans- but with accommodations and services for the visitors. portation to the area's facilities. Flying lessons are given for those visitors who are interested at a rate Conclusion., of $14 for solo lessons and $18 for dual lessons. The Callaway Gardens is operated by the Ida The visitors Cason Callaway Foundation, a nonprofit corporation, established by Callaway Textile Mills. Motel and In 1960, 350,892 people visited Callaway Gardens. food concessions are operated for profit by the This represented an increase of only 477 people over Callaway Corporation, an entity separate from the 1959. So far in 1961, 15,000 more people have visited foundation. While the facility is not yet on a self- the area than in the same period in 1960. The 1960 sustaining basis, there is every expectation that it e and 1959 figures are decreases over 1957 and 1958. will reach such a basis some time in the near future. One factor which might account for the higher at- "The Ida Cason Callaway Gardens have beenestab- tendance in IL957 and 1958 is that the gardens was lished for the inspiration, education, and benefit of written up in a September 1956 issue of the Saturday the people of the South and of the Nation." This Evening Post. But whether this played a significant statement of purpose has served and will continue to role in drawing visitors is only conjecture. In 1959, serve as a guide for the growth and development of the gardens attempted an intensive advertising cam- Callaway Gardens. Opened in 1952, Callaway Gardens paign, but there was no noticeable reaction to the is that spot where a man and his family may find campaign and it was terminated at the end of the year. solace and respite from the hurly-burly environment The advertising was aimed not only at Atlanta, but of life in the. metropolitan area.- It is an area to also at residents of such cities as LaGrange and which a man may retreat in order to find relaxation Columbus in west Georgia. and recreation provided by nature herself. As com- Of the 350,892 people who visited the gardens in pared to Lake Spivey and other areas surveyed by 1960, approximately 65,992, or 20 percent, were from this reporter, this natural beauty is what makes the Atlanta SMSA. This figure- was arrived at by Callaway Gardens unique: it is not manufactured; it multiplying the number of automobiles from Atlanta is. by the average number of people in an automobile. A breakdown of automobiles by county indicates that KENNESAW MOUNTAIN NATIONAL, most of the Atlanta visitors were from Fulton and BATTLEFIELD PARK DeKalb Counties. There were 9,960 automobiles from Fulton County; 4,753 from DeKalb County; Location 1,041 from Cobb County; 509 from Clayton County; and 235 from Gwinnett County. Kennesaw Mountain National Battlefield Park, ad- During 1960, 2,536 room days were used by Atlantans ministered by the National Park Service, U.S. Depart- in the Gardens Motel. There are. 18,250 possible ment of the Interior, lies 2 miles north of the city of room days in the Gardens Motel for 1 year. Aver- Marietta in Cobb County, one of the five counties aging three people to a room (which is the nationally which constitutes the Atlanta SMSA. -The park is accepted figure), the Gardens Motel serviced 7,608 20 miles from downtown Atlanta in Fulton County; it Atlantans out of a possible 54,750 guests. Thus, is farthest removed from the three remaining coun- Atlantans accounted. for approximately one-seventh ties: DeKalb, Clayton, and Gwinnett. to one-eighth of the motel's visitors. The park is most accessible to residents of Cobb The motels operating in the vicinity of the gardens and Fulton Counties, since it may be reached by U.S. estimate that the number of Atlantans they accom- Highway 41 which traverses the two counties. More- modate total about 25 percent of their total business over, residents of Cobb County have access to the during the summer. park by two Georgia highways, 3 and 120. Residents Business groups from Atlanta use the gardens for of DeKalb, Clayton, and Gwinnett Counties, while outings and meetings. One Atlanta bank, for instance, having to travel further, have no difficulty in traveling purchased 2,389 season memberships for their em- to the park since U.S. 41 may be. reached easily by ployees for 1960 and 1961. the Atlanta expressway system which has an inter- Most of the visitors to Callaway Gardens could be change with U.S. 41. classified as being in the upper income category. A visitor to this recreation area will be delighted Based on an observation of automobiles, clothing, and by the ease with which the park may be found. the amount of money needed for a weekend or a week- Beginning 15 miles from the park, there are three long stay, it can be said that the area is not fre- large billboard signs, one every 5 miles, which quented by low income groups. clearly indicate the distance to the park. Within the last mile to the park entrance, there are two warning Future plans signs, one of which indicates the mileage in tenths of a mile, while the other indicates the highway The future plans have been discussed above. An turnoff. Within the park itself, there are numerous additional nine holes will be added to the golf course; and well-distributed guideposts. 200 more cottages will be constructed; and accom- The fact that the park is accessible by a major modations of. the Gardens Motel will be doubled or U.S. highway and State highways insures good road 159 conditions to the park. Within the area, automobile The visitors travel is facilitated and made comfortable by well- maintained hardtop roads. The visitor need not During 1960, 203,480 people visited Kennesaw travel on dirt roads, nor does Y.'s sightseeing need Mountain.. This was an increase in vis,itors from to be interrupted by scanning for ruts or holes in the previ .ous year. Of these 203,480, approximately the road. 100,000 were from the Atlanta SMSA. Of this num- ber, approximately 400 paid repeat visits to the park. The natural beauty of the park is excellently The peak period of visitation is evenly distributed maintained. There is a noticeable absence of large, from June-August with no single month significantly gaudy signs advertising souvenir shops or hot dog outweighing another in number of visits. ,stands; the highways and grass enclosures are free Out-of State tourists predominate in the visitations from refuse and litter. The park is well policed during the week, while Atlantans comprise the largest and extremely attractive and neat. number of visitors on the.weekend. On the reporter's first visitation day, only three cars from Metropolitan Recreation activities Atlanta were noted, these being from Cobb County. The registration book showed that on the preceding Admittance to the park is quite inexpensive: $0.50 weekend (June 3 and 4), 37 out of 80 visitors were Per car; $1.00 for a season pass. These fees allow from the Atlanta metropolitan area. The Atlantans the visitor to participate in the three recreational were mainly from Cobb and Fulton Counties, with activities offered: viewing btLttlefield sites, hiking, several visitors from the city of Decatur in DeKalb and picnicking. These offerings are listed in accord County. It should be pointed out that of the visitors with their popularity, although it should be noted that from Cobb County, those from Marietta, the city in viewing battlefield sites and hiking are often com- which the park is located, far outnumbered those bined into one activity. There are two small picnic from other cities in that county. The city of Smyrna areas, each containing six wooden tables. It has been in Cobb County, however, usually contributed a estimated that the length of a visit ranges from 1 to goodly number of visitors. Smyrna is only 10 miles 1/2 hour a day, the latter duration being a rarity. from Kennesaw Mountain. Of the 'residents of Fulton It is probably due to this fact, and also the fact that County, those from Atlanta proper far outweighed the visitor is continually on the move, either walking those from other cities in the county. or driving, that there are very few and very small It was difficult for park officials to distinguish parking areas. There is one at the base of the the types of people who visited the park. However, mountain from which visitors may hike up the moun- certain observations were made by them and by the tain; there is a parking area at the top, of the mountain reporter who interviewed several visitors. The out- for those who wish to drive up the winding roads and of-State tourists whose visitations are chiefly cen- do their hiking only at the top; there is a parking tered during the week were mostly white-collar area at Cheatham Hill from which visitors may hike workers. They were well-dressed in the latest through the forests., viewing battle markers. styles; they were able to communicate well and were at ease while being interviewed. Families and young As indicated above, the visitor has two choices. married couples predominated. The residents of He may ride to the top of the mountain, enjoying the metropolitan Atlanta were also mainly family groups view of the surrounding countryside which is afforded and married couples. him. Once at the top of the mountain, hemay follow Park officials reported that during the early sum- a short path which contains historical markers mer months, school parties with adult supervisors describing the Battle - of Kennesaw Mountain, rem- constituted the largest number of local visitors, and ,nants of Confederate artillery, gun turrets, trenches, that the individual family groupings were to be found and other appurtenances of this battle of 1864. If he in larger number during the middle and toward the is so inclined, the visitor may park at the base of end of the summer. The author also noted that many the mountain and hike through the woods to the top. of the local -residents who visited the park brought Once reaching the top of the mountain, the visitor relatives and friends from out-of-State who were has a panoramic view of the countryside. The visiting in metropolitan Atlanta. trenches, artillery pieces, etc., may also be viewed at Cheatham Hill, a 5-minute drive from the moun- Conclusion tain and another battle site in the park. The pattern of visitation reported previously indi- tither before or after his visit to the mountain, cates that approximately one-half of the visitors to the visitor may stop at the museum at the visitor Kennesaw Mountain National Battlefield Park are center. There he will find relics from the battle of from the Atlanta SMSA. The largest contingent of Kennesaw Mountain including arms, flags, uniforms, area visitors occurs on the weekends, and these papers, and maps. visitors are mainly from the cities of Marietta in Cobb County, Atlanta in Fulton County, and Decatur According to Park authorities and visitors inter- in DeKalb County. The park is a family recreation viewed, the main attraction of this recreation area area, an attraction because of its historical signifi- is historical interest. For instance, a brochure cance in the Civil War, and because it allows the states, "The panorama below makes this area a individual to get away from his daily metropolitan vivid map on which you may readily imagine the environment for a pleasant drive in the mountains scenes of engagement that took place .... and forests which constitute this park. 160 LAKE SPIVEY tains a map describing the trip to the beach from downtown Atlanta. There is a telephone. listing in Location Atlanta for Atlantans to receive information and make reservations. It seems fairly obvious that Lake Spivey is located 3 miles east of Jonesboro, Lake Spivey truly serves the Greater Atlanta area. Ga., in Clayton County. It is 20 miles from down- A pattern is exhibited here as it was at Jekyll town Atlanta, and may easily be reached by the Island, and Callaway Gardens. This pattern may be south expressway. DeKalb County lies approximately due to the population pattern in the five county area. 24 miles from the area. Residents of this county At any rate, at Lake Spivey the term Atlanta refers have access to Lake Spivey from two highway sys- to Fulton County. There were twice as many visitors tems. They may (1) travel on the northeast express- from Fulton County as from DeKalb which had the way to downtown Atlantaj and' make a connection with ."next largest nurilberof visitors@ These -two counties, the south expressway, or -(2) travel on G Ie.orgia 138 Fulton and DeKalb, ,are the most populated of the five directly tq Lake Spivey. ; Cobb County lies 38 miles county. area. Automobiles from these two counties from the area that may be reached,,byT.S. 41 which predominated at all the recreation areas surveyed, becomes the north expressway in- downtown Atlanta. with the exception of Kennesaw Mountain National Of the five county SMSA, Gwinnett lies farthest from Battlefield Park which is located in the heart of Cobb Lake Spivey. Residents, however, have an easy, County. On one visitation day at Lake Spivey, there traffic-firee ride on the northeast expressway into were five times as many automobiles from Fulton downtown Atlanta where the south expressway begins. County as from Clayton County, the county in which Downtown Atlanta is the hub into which the surround- the park is located. There were no automobiles ing. county's residents can come together, and from from Cobb County and one automobile from Gwinnett which the south expressway leads to Lake Spivey.' County. The park is easily found by drivers on the south In 1960, approximately 300,000 visitors paid to expressway. The first highway sign is 10 miles out enter Lake Spivey. This was a great increase over of downtown Atlanta and 10 miles from the park. the number of visitors in 1959, and it has been esti- The second sign is 6 miles from the Jonesboro exit mated that 1961 will show at least an increase of 50 of the expressway; the third sign, 3 miles from the percent over 1960. Of the 300,000 visitors in 1960, exist. There is a fourth sign at the turnoff. During approxim 'ately 85 percent were from Atlanta. It was the 3- mile drive from the expres sway on Georgia 13 8, further estimated that of the total number of visitors there are four signs marking the route. in 1960 and in 1961, 80 percent were and would be Lake Spivey, comprising 2,450 acres, provides an repeating visits. open, spacious area to the visitor. Facilities are The function of Lake Spivey is to provide recreation well distributed, each facility located in a specific facilities for families. It was observed that on area of the park, and each area well separated from weekdays, teenagers and young adults, both married another. The area is neat, attractive, well policed. and single, predominated in the morning. There The grass is well maintained. The main buildings were families present in the morning, but more of are enhanced by borders of shrubbery. In an attempt them appeared in the afternoon. The proximity of perhaps to imitate Callaway Gardens, the bathhouses the park to downtown Atlanta, the expressway sys- contain shrubs and flowers. tem, and the number of daylight hours during the The road to the ticket window at the entrance to summer, combine to make a -pleasant invitation to the park is bordered by picnic areas. To the left is families to plan a picnic-style evening meal and a an area for pony rides and a softball diamond. before-dinner swim. The weekend, of course, is the Proceeding from the ticket window to the parking time when families predominate. lot, the bright colors of the play-land rides are Lake Spivey has proved to be an attraction to observed, and then the two beaches of white, glisten- large groups. It was estimated that 45-50 groups ing sand which yields to the clear waters of the lake. hold parties at the park every weekend. Business On the lake, the visitor may notice the starched firms such as Fulton Federal Savings and Loan sails of the several sailboats available for boating, Association, Gulf Oil Corp. of Atlanta, and the or see groups of water skiers. Rising out of the Coca-Cola Co. bring in as many as 600 to 1,000 of water are several lifeguard stands, designed in their employees. Although school and church groups futuristic style with bright pastel-colored roofs. also have outings at Lake Spivey, the park officials The bright colors covering triangular shaped roofs emphasize their ability to accommodate large busi- are noticed throughout the park since -the architec- ness groups. The fact that they are able to draw tural styling is unified in the construction of most of business firms to the park has resulted in special the buildings. The moment he enters the park, the building plans for the future. These will be discussed visitor finds himself shrouded by an atmosphere of in a later section of the report.- freshness, cleanliness, and brightness which con- The statement was made that "our park is geared tributes to a feeling of relaxation and the anticipation to the non-country club member and to the person of a good time. or family who cannot afford to spend I or 2 weeks and $400 and up for a summer vacation." The park The visitors attracts families from the middle income groups, mostly white-collar employees. Those people inter- Lake Spivey is advertised as "Atlanta's Most viewed seemed articulate; automobiles were mainly Fabulous Playground." Each brochure distributed new and late models; clothing exhibited by the visi- by the Public Relations Department of the park con- tors indicated that, they were sufficiently well-off 161 to invest in clothes of the latest style. In spite of employment of a park policeman and the maintaining seeming financially self-sufficient, the majority of the of a park first aid station under the supervision of a people interviewed said they would be unwilling to park health director. pay an increased admittance fee. Recreation activities Future plans Lake Spivey is 3 years old. From 1958 to 1961, The admittance fee to Lake Spivey is $0.75 for it has continually increased the number of paid visi- adults and $0.35 for children. The fee includes use tors 'and the facilities to accommodate them. For of the bathhouse and picnic facilities. many visitors, the chief attractions of the park were The @park lives up to its boast of having "some- its cleanliness and the proximity to Atlanta. Those thing for every member of the family." The main in charge at Lake Spivey consider the park in direct attraction is the beach, and of all the activities competition with Callaway Gardens, and plan to take afforded, water sports are the most popular, and business from this recreation area. water facilities the most utilized. One-third of the One of the plans by which they hope to attract total acreage is water which allows for a diversity of water activities. Aside from swimming, the visi- visitors who would normally goto Callaway Gardens tor may enjoy fishing, speedboat rides, water skiing, is the building of a.motel, which, it is hoped, would sailing, and a riverboat tour of the lake. The latter extend the present 1-day duration of a visit to week- attraction is designed for family enjoyment. Water end length. Another plan is to build cabins which' would allow families to use the park as a vacation skiing attracts teenagers and.young adults, as does sailing and speedboat riding,, Fishing is enjoyed by area, extending the duration to 3 to 4 days or a week., In order to provide recreation facilities for those young adults and older visitors. 'Other attractions for teenagers. are ;the putt-putt golf course and the wh6 would stay at the park several days, an 18-hole dance pavilion. golf course is included in the plans. Moreover, it is Especially@ designed for children is an area called, intended to increase the 14 miles of shoreline by.3 or 4 miles, enlarging the present water facilities. Playland which.contains such rides as merry-go- round, kiddie boats, a miniature roller coaster, a These plans -are for 1he immediate future-The miniature ferris wheel, and helicopter ,s. The park cabins and -the motels a 're to be. constructed by. next has an area set aside for pony rides. year. It was thought that. an increase in fees would There are three large picnic areas with a total of be necessary for this expansion. Since many visi- 800 concrete picnic tables. The fishing area, which tors to the park indicated, they would be unwilling to is located 1 1/2 miles west of the recreation area pay an increase in fees, it will be interesting to note proper, secluded from the crowded beach area, also whether 'the number of weekend and vacationing visi- contains several picnic tables and outdoor fireplaces. tors will compensate for any reduction in daily For those who do not wish to picnic, there is a visitors. cafeteria capable of -serving 700 people. The food is typical of restaurant, catering services, and the aver- Conclusion. age cost of a: meal is $1.35. The cafeteria also supplies catering for groups who utilize the park's Lake Spivey is a spacious and attractive recreation buffet terrace. area for residents of Greater Atlanta, especially The number and diversity of recreational activities those from Fulton County. It provides recreation provide enjoyment for people of all ages. The water facilities for the entire family on a day-to-day basis. activities for teenagers provide a healthy counterpart It hopes to extend its operation to attract visitors for to the less strenuous activities of dancing and minia- weekends and vacations and thus compete with such ture golf. established vacation areas as Callaway Gardens. As a final point, it should be indicated that the Lake Spivey will be a significant recreation area in health and welfare of the visitors is protected by the the future. 162 0 Part III THE FUTURE OF. OUTDOOR RECREATION IN. THE GREATER ST LOUIS METROPOLITA REGION A Report to the Outdoor Recreation Resources Review Commission by GREGORY P. STONE ROBERT P. SCHUERELL ETHAN Z. KAPLAN 163 Acknowledgments ably beyond the provision of the early. study. He met with our staff on numerous occasions, placed his staff at our disposal, and otherwise gave assistance at It is impossible in a study of this sort which has every opportunity. Finally, Donald J. Volk, also of required the pulling together of a vast number of the Meramed Basin project at Washington University materials from many widely divergent sources to (St. Louis), worked closely with the staff of this express adequate appreciation for the assistance so project throughout the difficult stage of analysis and generously given by so many persons and agencies. supervised the preparation of the maps which appear Particular persons and agencies, however, proved in the appendix of this report. His generous coopera- especially helpful and deserve to be singled out for tion was essential to the completion of this project. our gratitude. Needless to say, they are in no way Other persons who proVided.invaluable assistance responsible for the interpretations that have been at various stages of this research include: James F. made in this report, nor for the misinterpretations Keefe, Information Officer, Missouri Conservation that have undoubtedly occurred. Yet, whatever is of Commission; Edward L. Kozicky, Director of Con- value here would not have been forthcoming without servation, Olin Mathieson Chemical Corp.; and Dr. their assistance. Richard O'Brien of the Missouri Resources and Laurence I. Hewes, Chief, Forecasts and Eco- Development Commission. It is impossible to enu- nomics Group, Outdoor Recreation Resources Review merate here the 130 county agents who provided esti- Commission, has been responsible for the overall mates of St. Louis pressure on outdoor recreation administration and coordination of the urban studies. resources in the counties within a 150-mile radius of In performing this very difficult task, he has re- the central.city to our staff, but their correspondence sponsibly and promptly provided the St. Louis project with us considerably facilitated the difficult task of with a host of relevant materials gathered in other determining the spatial distribution of St. Louis out- places. Without these materials, the prosecution of door recreation. the study would literally have been impossible. A number of agencies and officers of agencies also Edward L. Ullman, former director of the Meramee provided crucial information, Supervisors of the Basin Project at Washington University (St. Louis), national forests in the area of study assembled sig- now of the Department of Geography at the University nificant trend data on attendance and recreational of Washington, made the results of onsite studies con- activities. The Corps of Engineers provided similarly ducted at Missouri State Parks in 1960 available in important materials on outdoor recreation at the locks their entirety to the staff of this project. Without and dams, navigation pools, and water impoundments those materials, estimates of the distribution of the under their jurisdiction. The Department of Conserva- outdoor recreation activities of St. Louisans could tion and its Division of Parks and Memorials of the never have been made, trend analyses would have State of Illinois were extremely helpful, as were the been impossible, and there would have been no basis Division of Highways, Department of Public Works and for making projections to 1976 and 2000 of St. Louis Buildings, of that State and the Missouri State Highway outdoor recreation demand. Ullman's materials, sup- Department. plemented by an invaluable early study of Missouri In any enumeration of assistance on a scale as vast State Park attendance, provided by Joseph Jaeger, Jr., as the scale of this project, some important sources Director of State Parks, Missouri State Park Board, will have been omitted. We hope that they will under- constitute the empirical heart of this study. More- stand that the omissions are the fault of human over, Director Jaeger made contributions consider- memory. and n6t the result of -human intent. 164 CHAPTER ONE INTRODUCTION There is no doubt that the ever-increasing metro- Yet, if there are similarities, there are also politanization of the -Nation will exert continuing dramatic differences. Suppose we consider the dif- changing influences on patterns of outdoor recreation ferential rate of increase in the proportion'of non- in the United States. Such large-scale trends as sub- whites for the population of the SMSA. In general, it uAanization, the massification of leisure pursuitsi the is a familiar pattern as we have said, and, were we professionalization of -labor, the accelerating rate of to examine merely the relative rank of St. Louis with physical movement in the population, automation and reference to proportion of nonwhites in the population the declining work week, and the continuing spread of for 1950 and 1960, we would not discern the unique metropolitan functions in disregard of.politically es- character of the situation. Specifically, among the tablished limits, exert pressures on the use of land 25 largest cities in the United States, the St. Louis and water recreation facilities which stand in dire SMSA population in 1960 was composed of 14.3 per- need of social scientific analysis to insure adequate cent nonwhites compared to 12.6 percent in 1950. outdoor recreation for future generations of Ameri- This seemingly represents only a modest increase in cans. However, any nationwide policy which can be proportion which one would expect not to require any formulated to take these influences into account must sharp readjustment in race relations. Moreover, in be informed concerning regional variations inoutdoor terms of the rank ordering of the 25 largest SMSA's, recreation demand, facilities to meet that demand, and this change in proportion actually represented a the means of making such facilities available to dis- downward trend for St. Louis which ranked 9th in the tinct metropolitan regions. St. Louis is one of five country in 1950 as far as proportion of nonwhites in metropolitan regions selected to highlight such -re- the population is concerned, but tied for 10th in 1960. gional variations. Of course, proportions of nonwhites for the central . As the ninth largest SMSA in the United States, St. city considerably exceed those for the SMSA as a whole. Louis presents a number of broad similarities to Nonwhites comprised 28.6 percent of the central city other metropolitan areas. Its central city.has de- in 1960 and 18.0 percent in 1950. Although this clined from almost 857,000 in 1950 to about 750,000 represents a much sharper increase in proportions in 1960. However, suburban growth has enabled it to than was the case for the SMSA, this increase re- hold its regional rank in the decade. Proportions of sulted in only a slight upward shift in the rank order the population which,are nonwhite have increased in of St. Louis from ninth in 1950 to a tie for eighth the central city and decreased in the suburban in 1960. counties over the last decade-a phenomenon that is This cursory kind of scrutiny does little to point up familiar to any student of urban growth in the United the uniqueness of the St. Louis region as far as shift- States. I/ Indeed, some sociologists predict a white suburb-and a nonwhite metropolis for the not too ing balances between white and nonwhite populations distant future of the St. Louis region. The functions and, in particular, the implications for outdoor rec- of the metropolis long ago spilled over State and local reation are concerned. However, if we examine a boundaries. For example, in 1957, the central city crude index of the rate of increase in the proportion provided about 507,000 jobs for 360,000 resident of the population that is nonwhite, quite a different workers. In each of the two Illinois and three picture emerges. By subtracting 1950 proportions Missouri counties comprising the SMSA in 1960, from 1960 proportions and dividing by the 1950 pro- resident workers exceeded available jobs. Thus, the portion, we are provided with a rough estimate Of central city provides work for both Illinois and Mis- the proportionate increase in nonwhite population over souri residents outside the city limits. Undoubtedly the decade. Among the 12 SMSA's ranking St. Louis some of the work provided by East St. Louis in in 1960 or 1950, the proportionate increase in the Illinois is taken up by Missouri residents, although not nonwhite population of the St. Louis SMSA.was 13.5 nearly on as large a scale. At any rate, the old percent of the 1950 proportion, placing St. Louis fifth problem of the disparity between sources of revenue among these SMSA's in rate of increase of nonwhites and necessary provision of services, including rec- during that decade. Using the same technique to reation, faced by so many American ci Ities clearly indicate the change for the central city, we find St. confronts the city of St. Louis. Louis ranked only by Detroit and Cleveland, with the St. Louis increase in proportions ofnonwhite com- prising 58.9 percent of the 1950 proportion. The !/These data and the subsequent discussion of changes in non- comparable figure for Washington, D.C. with the white proportions in the St. Louis SMSA between 1950 and highest proportion of nonwhites in the central city 1960 are taken from Henry S. Shryock, Sr., "Some Results of population in 1960 (53.9 percent) is 57.Opercent. the 1960 Census of the United States," dittoed paper presented Now this rapid rate of change has at least two at the annual meetings of the National Population Association important implications for outdoor recreation. First, of America, New York City, May 5, 6, 1960. outdoor recreation areas such as public parks and 165 swimming pools are often sites of racial disorders which tempers the progress of the city, further and focal points for minority group pressure to gain inhibiting its growth, while other cities of the Midwest equality of access and participation for the members change, if frenetically, at least rapidly. 'In contrast, of such groups. Second, once such access is gained the city supports one of the most liberal newspapers by minority groups, such as Negroes, the sites may in the United States, while the,press of most other by abandoned by white recreationists who shift their thriving metropolises of the Midwest is usually con- leisure pursuits elsewhere and change the spatial servative. These are merely examples of the kinds configuration of pressures on recreation facilities of considerations which sociologists take into account in the area. Such problems and processes would when. they attempt to forecast changes in any kind seem to be aggravated in St. Louis more than in many of behavior occuring in a community context. other metropolitan areas in the United States, particu- Sociologists are concerned with the ways in which larly southern metropolises which show smaller rates the changing (including persisting) social relations, of increase for or actual decreases in the proportions which give, people their character as persons, bear of nonwhites, e.g., Memphis and Atlanta. upon and affect the behavior of those persons. The There are other unique characteristics of St. Louis behavior we have- been: concerned with in this report that set it apart from other metropolitan regions. is participation 'in@ recreation outside the sidewalk@ Although located near the confluence of three great area of a metropolis by persons who ordinarily.use rivers, St. Louis has little desirable open water the sidewalks.. The relations we have looked: at'in available for swimming, one of the forms of outdoor detail are relations in space and physical @ mobility,. recreation most frequently engaged in by Americans. race relations, community relations, institutionsand. The central city is choked off byafantastic prolifera- associations, and relations among socioeconomic tion of autonomous communities in St. Louis County, strata, as they affect recreation carried on in the making the development of coordinated planning in outdoors. As sociologists,. we will have slighted, the region a nightmare rather than a pleasant dream but not ignored, other dimensions that indeed bear Which might eventuate in coordinated regional activi- on the problem such as administrative, budgetary, ties. There are 98 politically autonomous communi- other, more purely economic, and physiographical in- ties in St. Louis County alone ranging in population fluences. However, that is the fate of any science size from 51,000 to 50. Even police coordination is discipline. It can only single out aspects of a problem, difficult, not to speak of planning for outdoor recrea- offering only special explanations. The "whole" truth tion to serve the region. In the winter of 1960, for must always escape every science and scientist. -example, county police raided bookmaking establish- IThis report is presented in five -interrelated sec- me,nts in a county community only to find themselves tions: (1) a description of the area under investiga- temporarily under arrest by community police, while tion; (2) a description of the present state of outdoor the operators of the illegal establishment escaped recreation in that area; (3) :a presentation of trends arrest and disappeared. Political decisions in in outdoor recreation. for the area; (4) forecasts St. Louis seem often to be highly conservative reflect- for 1976 and 2000; and (5) recommendations for ing perhaps the influence of an old established elite planning and implementation of planning. 166 CHAPTER TWO ST. LOUIS AND ITS RECREATIONAL ENVIRONS Great cities usually form at breaks in transporta- since. In that year, St. L 'ouis seceded from St. Louis tion, and St. Louis is no exception. Located near the County to escape the influence of rural senators. This confluence of the Illinois" Mississippi, and Missouri had the acutal effect of "liberating" the county and Rivers, St. Louis, Missouri, was established in 1764 confining the growth of the city. For over the course as a trading post and a main point of embarkation of more than three-quarters of a century, autonomous northwest for French fur traders. Early French names communities developed in the county until they have persist today in the designations of streets, sections, now reached 98 in number, each jealous of its political and industries of the city, but the prime effect of this autonomy and integrity. The result has been an early history of St. Louis has been to establish the impasse as far as achieving city-county coordination city at once as a co mmercial center. Consequently, is concerned, and the situation seems to beworsening from its inception, St. Louis has attracted urbanites rather than improving. Thus, a merger plan voted and cosmopolitan merchants. There was no period of on in 1926, although defeated at the polls, was more pioneer farm settlement to imbue the population at favorably received by the voters than a limited district any phase of its history with rural values. , plan proposed in 1959. 'Again both proposals were St. Louis has also been termed a "talking town." strongly supported by the press and other communica- Laclede, the city's founder, was a graduate of the tion media. Univer.sity,of Toulous 'e and brought a library with Cognizance must also be taken of another thread in .him into the. wilderness. The French Revolution also the historical and cultural fabric of the city.' Although brought many, intellectual migrants to the city. This the first small band of settlers who settled the city intellectualism was reemphasized during the period of were quite probably not slave owners, Negro slaves Gernian and. Bohemian settlement from. 1833 to 1882 were brought into St. Louis the year after its founding prompted by European unrest an d revolution. In by incoming families from New Orleans and Illinois. 1878, the St. Louis "Post-Dispat6h" was founded by Negroes have been an important segment of the St. Joseph Pulitzer. Louis population ever since. : - ' . Cosmopolitanism, commercialism, Catholicism, Quite probably the influx of European intellectuals, and intellectualism have been wove n together in a especially following the 1848 revolutions in Germany, curious amalgam that makes the temper of St. Louis had a great initial impact on the character of the Negr o, what it is today-outspoken advocacy'ofpr6gressive population. For, after that time, the proportion, of planning in a part of the press and other communica- slaves to. freemen began to decline dramatically, tion media mixed with conservatism and a typically Located in a slave, State, St. Louis developed an anti- bIase-urban attitude that. inhibits the implementation slavery temper very early and was an important of proposed designs.', In this regard, one might guess station of the "Underground Railway" expediting the or hope that the spur towards urban redevelopment flight of the southern Negro to freedom in the north. has upset the balance in favor of implementing Pro- There is considerable evidence to indicate that this posed plans and policies, although the Present re- function of the city persists today as it continues development operation has precipitated a vast newset to be a way station on the northward @road of the of problems which may discourage St.,Louisans and southern Negro. For example, in 1957 a survey con@- reawaken earlier tendencies toward conservatism and ducted by the Health and Welfare Council of St. Louis sophisticated indifference. disclosed that about 82 percent of the Negro popula- There are'two obvious implications of this thread tion was born outside the metropolitan area. Sixty- of St.' Louis history for' outdoor recreation. First, nine percent was born in southern States with Missis- St. Louis recreation patterns have a typically urban sippi contributing the largest share. A large portion flavor. Parks, gardens, . and playgrounds abound of these migrants are traveling to and not through .,in and around the city. The St. Louis Zoo is among the city and represent a significant part of the general the best in the world. Such facilities cater to day or farm to city movement of the national population. fialf-day visitors, and the use of, the State Parks, by Fifty-eight percent of the St. Louis nonwhite popula- St. Louisans reflects this', as we shall see. Casual tion in 1957 has lived on farms, and 43 percent.was and brief visits to State parks.by St. Loulsans pro- born on farms. vide an important source of attendance. Second, There are mixed consequences of the rural origins any reasonable proposal to plan outdoor recreation of such a large segment of the Negro population in for future generations of St. Louisans is practically St Louis for outdoor recreation. On the one hand, assured of Vigorous support by the. communication rural patterns such as bank-fishing may persist. media. Whether this support can sway citizenry and Negro families may be seen fishing for rough fish decision-makers is another question. along river banks and at less desirable fishing spots The question is confounded, when We consider how in municipal and county parks. Fishing data are the very urban temper of St. Louis initiated a decision seldom assembled for such areas with the result in 1875 that has, throttled the growth of the city ever that some undisclosed amount of Negro outdoor 167 recreation never appears in the relevant statistics. tions Ordinance established machinery for persuading On the other hand, a move from farm to city is also all owners of public accommodations to desegregate often consolidated by an intense rejection of rural their facilities under the threat of ultimate punitive values. This may have some effect on outdoor sanctions in the event that they fail to end racial recreation patterns, although it is difficult to assess discrimination. This ordinance has already precipi- with any precision. Thus, when one Negro migrant tated a wave of test cases in the city, but these tests was questioned informally about his reluctance to have been made without noticeable violence or dis- visit Missouri State parks,. he replied, I 'Why should order. I go out in those woods? If I never see a snake again, Unfortunately the effects of desegregation do have it'll be too soon." In their rejection of rural origins, some negative consequences for outdoor recreation. some Negro in-migrantsmayremove themselves from The presence of Negroes in a facility typically reduces the St. Louis "market" for outdoor recreation. the desirability of the facility in the eyes of many white However, a small proportion of St. Louis Negroes recreationists. Myths arise to support the stereotyped are not migrants, and many families have as long a undesirability of the facility. There is no doubt that history of residence in the city as the older estab- these myths discourage white attendance at such lished white families. For most of the history of the facilities so that a kind of segregation-desegregation- city, Negro recreation has been segregated from resegregation cycle emerges. white recreation. An account written in 1903 recog- This pattern has not yet developed in most of,the nizes the early racial insulation of.recreation patterns: State parks which serve the St. Louis region, pri- The recreations and amusements vary in the marily because such parks are. very rarely visited four classes of Negro society. For the lowest by Negroes. In 1960, an onsite study of visitors to classes there are only the sal6ons, gambling dens, 5 Missouri State parks located at or near water im- houses of ill,fame, low danceha .Ils, and the streets. poundments disclosed that, of 724 residents of the The upper class has its social and literary clubs, St. Louis SMSA interviewed in those parks, only church entertainments, and pleasant homes. For 6 were Negroes. One State park, however, does clearly the mass of the people there are steamboat excur- show this pattern. In 1946, a municipal park, located sions, barbecues, cakewalks, picnics, balls, and within the city limits of East St. Louis, was given church "sociables," all of them ranging from to the State of Illinois and has been operated as respectable, well-conducted functions down to orgies Grand Marais State Park since that time. At the of vice and sensuality. I think that it is only in present, Negroes comprise the great majority of the very lowest sort of amusements that there is visitors to that park. Although there are other reasons, this fact is frequently used to explain the any contazt with the whites. A Negro is rarely large decrease in attendance over the last decade, seen at k theatre, or even at any of the. summer gardens, @Which are resorts unrivaled in popularity a loss, of more than 1 million visits to the park. among all classes of white society.j/ Difficulty has also been encountered in inducing concessionaires to lease commercial facilities in The public parks of St. Louis were among the first the park with the result that facilities have probably recreation facilities to break the longstanding pattern declined. in quality as Negro attendance has increased. of segregation. By 1938, only a trace of discrimina- At the same time, white recreationists have moved tion remained in those facilities: to other outdoor recreation areas at, 9. greater distance from the city increasing the heavy pressure The public parks of St. Louis are open to whites that is already exerted upon those areas. and Negroes with no racial discrimination or This general problem will undoubtedly be intensi- segregation except alleged discrimination on the fied in the future, as the population of the central lagoons on Sundays in some of the parks and in city of the St. Louis metropolitan region becomes .permitting Negro children to ride the elephant on increasingly nonwhite in character. The effects will days when there are a lot of white children waiting be to "push" white recreationists farther and farther for rides. The best example of the uses and from the central city, to increase the impetus toward facilities of public parks is Forest Park where the art gallery, the lagoons, the baseball grounds, the the development of exclusive and private. recreation picnic grounds, the golf links, the zoological garden, sites, and possibly to precipitate occasional race the tennis courts, the municipal theatre, etc., are incidents and disorders. These effects may be all open to white and black, rich and poor. The exacerbated as the economic lot of St. Louis Negroes public parks of St. Louis are the most noteworthy continues to improve. features of the recreational setup of the city.j/ St. Louis is a metropolis with great diversification of industry. In 1950, for example, 63,percent of the Desegregation of recreation facilities has continued 446 industry classifications used by the U.S. Census until the present, and in 1961 a Public Accommoda- were represented in the St. Louis economy. Negroes were employed in all major industrial groupings at that time but were disproportionately employed in 1/1-illian Brandt, "The Negroes of St. Louis," "Quarterly those groupings in comparison with white employ- Publications Of The American Statistical Association," Vill ment. Specifically, both Negro men and Negrowomen (March 1903) 264 pp. were greatly overrepresented in personal services, 2/C. B. Broussard and Bostic Franklin, "Survey of Recreational entertainment and recreation, and public administra- Facilities and Needs For Negroes" (St. Louis, Interfraternal tion. The largest imbalance was inpersonal services, Council of St. Louis, Missouri, April 1938 Mimeograph) pp. where only 2 percent of the while male labor force 27-28. was employed, compared to 32 percent of the Negro 168 malelaborforce. Personal services accounted for the Missouri and 60 percent of the State of Illinois. This employment of half the Negro female workers com- area consists of 59 Missouri counties and 71 Illinois pared to 7 percent of white female workers. Negro counties. Immediately south of St. Louis the Ozark workers were grossly underrepresented in the manu- Highland begins, and its plateaus and rugged'hills facturing industries of -St. Louis and the wholesale spread westward and to the southeast. This rugged and retail trades. These disproportions are, of terrain levels off into lowland plains and prairies to course, reflected in the racial differentiation of the north and east of St. Louis above the Missouri occupational groups, where Negro men and women were River. The territory west and northwest of the city overrepresented in service occupations and under- consists of lowland hills formed by the dual process represented in clerical and sales occupations. In of erosion and glaciation. In the remote southern addition, only 7 percent of the Negro maleworkers sector of our region of study, the Mississippi Alluvial were engaged as craftsmen, compared with 22 per- Plain begins. This is only a small portion of the total cent of the white male workers, while 34 percent of area and is confined to the extreme southern part of the Negro workingmen were employed as unskilled Missouri-the "bootheel"-and the extreme southern laborers, compared to 7 percent of the white working- corner of Illinois. men. Among the women, the greatest disparity was in There are, then, three major physiographic areas private, household workers which inciuded 32 percent in our region of study: (1) the Ozark Highland; (2) the of the Negro working women, but only 3 percent of the Central Lowland; and (3). the Mississippi Alluvial white working women. Plain. The predominant rock in all three areas is A survey conducted by the Urban League in 1954, sedimentary, but the underlying igneous rock is closer however, showed considerable gains for the Negro to the surface in the Ozark Highland and reaches the in the St. Louis economy. Hi s income had increased surface in the St. Francis Mountains of the highland in that 4- year period, as had his occupational opportun- about 100 miles due south of St. Louis. This feature ity and industrial participation. These favorable of the region has.important implications for outdoor changes were probably due in part to the Korean recreation. Specifically, water impoundments must war, but the survey anticipated some permanency be constructed on nonporous rock that can resist the for such changes and a continuing improvement in force of erosion. This means that the provision of the economic lot of the St. Louis Negro. Undoubtedly, adequate open water for outdoor recreation in the this improvement will affect the status of the younger region is confined to the southern sectors, with the Negroes who are still mobile rather than older Negroes exception of the alluvial plain. Water impoundments who have reached a position of relative economic are feasible for the central lowland, but the agricultural stability in the economy. As a matter -of fact, the value of this sector offers an imposing obstacleto the survey demonstrated conclusively that Negroes in use of such land for recreation. In contrast, the high- the 20- 29-year bracket held higher status occupations land is much less amenable to cultivation because of in much greater proportions than older Negroes. its poor soil and rugged topography. Given the economic improvement of this younger age group which the Survey Research Center study has Ordinarily, geographers speak of two types of shown to be most active in outdoor recreation, 3/ we climate in this region of study, a humid continental anticipate considerable pressure to be plac@d on climate north of St. Louis and a humid subtropical outdoor recreation facilities near the city by St. Louis climate south of the city. This distinction seems Negroes, adding to the present movement of white more academic than usefuli and the brute fact of high recreationists to more distant facilities. Thus, the humidity is the relevant datum in this regard,. The study of the demand for outdoor recreation by St. summers are long, hot, and humid throughout the Louisans must consider facilities available to these region, undoubtedly creating an extensive and in- people at a considerable distance from the city tensive demand for water recreation which would grant center. residents frequent, though temporary, relief from the oppressive climate. Relatively mild winters (with THE AREA OF STUDY local deviations) extend the amount of time in which residents may enjoy the out-of-doors by participating in fair-weather recreation activities. At the same We have. arbitrarily demarcated as our area of time, winter sports are obviously limited, although study all the space within a 150-mile radius of the the winter of 1960 saw skiing Introduced to the region, St. Louis city center, in the assumption that such and, in the future, snow-making machines will be an area would include almost all the weekend recrea- used to offset this climatic limitation to some extent. tion facilities used by St. Louisans. More extended recreation outings quite certainly carry the residents In sum, the region of study is characterized by of St. Louis all over the nation, and the limitations a relatively extended period of time in which fair- of our study preclude any careful investigation of such weather outdoor recreation activities are feasible. widely dispersed patterns of outdoor recreation. The highland area is most frequently used and has The region we conceive as supplying outdoor the greatest potential for outdoor recreation. Con- recreation facilities to the metropolitan residents sequently, the pressure of outdoor recreation demand of St. Louis includes 45 percent of the State of is exerted primarily on the highland southwest of St. Louis. This raises important problems for the future of outdoor recreation in the region which can 2"Eva Mueller and Gerald Gurin, "Participation in Outdoor only be treated with reference to a thorough investi- Recreation: Factors Affecting Demand Among American gation of the present state of outdoor recreation Adults," ORRRC Study Report 20, ch. 2, table 17. activity engaged in by St. Louisans. 169 CHAPTER THREE. THE PRESENT STATE OF OUTDOOR RECREATION IN THE ST. LOWS METROPOLITAN REGION. To facilitate the description of the present.state of or controlled land available for outdoor recreation. outdoor recreation in the St. Louis region, we.have National forests provide 2i331,000 acres of.recrea@ divided the area into three concentric zones. Zone I tion space; national wildlife refuges, approximately consists of the area within a 50-mile radius of the 110,900 acres; . and @ the Corps of Engineers controls city center; zone II, 50-100-mile radius; and zone III, approximately 127,200 . acres. This space is unequally 100-150 miles from the city. The main rationale for distributed, over the three zones. @ No national forests this division rests upon the assumptions that outdoor or wildlife refuges are located in zone I which includes recreationists will not ordinarily travel further than 11 percent of the total area with which w-e-are con- 50 miles for a 1-day or part-day visit to a facility cerned; a third of the national forest land and 43 per- and that travel exceeding 100 miles will frequently cent of the land given over to wildlife refuges is located involve overnight visits to facilities. thus, we ex- in zone II which includes 33 percent of the total area; pected the use of facilities to differ in the different and two-thirds of the national forest land and 57 per- zones. Moreover, a crude division of the area of cent of the land employed as wildlife refuges :are study in this manner permits a more facile treatment located in zone III which includes 56 percent of the of the recreation sites available to St. Louisans. total area. - Although 68 percent of the space con- trolled by the Corps of. Engineers is located in- zone 04JTDOOR RECREATION RESOURCES III, only 6 percent is located in zone II, and 25 per- cent in zone I.: Thus, most Federal land available Our area includes close to 46,970,000 acres of -for outdoor recreation is located more than 100 miles land and water. Of this acreage, at least 11 million from the city center, and only the Corps of Engineers acres of land and water may be used in'one way or controls land within 50 miles of the city. another' for outdoor recreation. Somewhat more Students of outdoor recreation have emphasized than a fourth of this acreage is directly available to repeatedly the importance of gearing facilities to outdoor recreationists; almost three-fourths consists demand in planning the future of outdoor recreation 'of stocked i farm ponds and wooded farmland, the use in the nation., The pressure, on the space controlled of which depends, upon the consent of landowners. by the Corps of Engineers and located in zone I offers At least. 300,000 acres of this recreation space is vivid corroboration for this suggestion. This space water, consisting, for themost part, of lakes and water contains two pools operated by the CorTs. One pool, .impoundments. formed about 35 miles north of the city by the Alton IThese figures, it must be remembered, are under- locks and dam on the Mississippi River, is known estimates, as far as recreation space is concerned. locally as Alton Lake and includes two-thirds of the Although.our inventory of space has been very care- federal acreage located in zone I. This facility is fully compiled, it is technically impossible to itemize used by more recreationists during the year than recreation space in its entirety. For example, we any other single facility within 150 miles of St. Louis. .have made a count of 81,521 stocked farm ponds in In 1960, it was estimated that 2,700,000 visits were the area of study, but new ponds are always being made to the area for the,p4rpose of yachting, other ladded, and older ponds are continually falling into boating, fishing, picnicking, 'camping, or hunting, to disuse. Similarly, new commercial recreation sites mention only the major outdoor recreation activities are continuously added to the recreation space avail- for which facilities are available. It has been esti- able i while other commercial sites are being abandoned mated 'that the access points for boating, the picnic by their. operators. Probably the addition of recrea- grounds, and camping facilities, , including private tion,space. exceeds its loss, particularly becausezof lodges,, handled 25 percent more visitors than they the increasing commercialization of outdoor recrea- were equipped to handle on weekends in the spring, tion and the growth of private organizations in this summer, and fall of 1960. field. State-owned facilities' in the region'include parks, Of the recreation space directly available for the forests, conservation areas, firetowers, and roadside use of all outdoor recreationists, the Federal Govern- parks. These facilities account for about 418,400 ment owns or controls the greatest share. As of this acre's or@ 3.8 percent of the total recreation space in date, there is only one national monument in our the region. State forest makes up 'more than half of area of study, the Jefferson National Expansion this acreage; conservation areas almost a fourth; Memorial, which, because it is located in the center State parks, a fifth; and fireto;ers and roadside of St. Louis, is not considered an outdoor recreation parks, slightly more than I percent. As was the facility' National forests, national wildlife refuges, case with Federal lands, these State facilities are and navigational waters controlled by the U.S. Corps concentrated in zone III, and decrease in acreage with of Engineers exhaust the variety of federally owned proximity to the city. However, the imbalance is not 170 as extreme. Each type of facility is represented by Municipal and private swimming pools may also some space within 50 miles of the city, and State divert some pressure away from larger outdoor parks, the facilities receiving the greatest pressure recreation sites,@, especially in a city where theIden and from outdoor recreationists, are somewhat over- for swimming is so highly aggravated by 6 short- represented in zone 1. A fifth of the acreage of all age of desirable water sites coupled with hot humid State parks in the region is located in zone I which summers. There are 19 municipal and 47 private includes only somewhat more than a tenth of the commercial pools located within a 50-mile radius of region's area. In spite of this, as we shall see, St. Louis-a very small number, given the great these close-in facilities are already overtaxed, demand for swimming facilities. Beyond this dis- especially on weekends during fair-weather season. tance, there are at least 21 additional municipal For example, the most heavily attended State park in pools. Recently the construction of backyard and 1959 was Pere Marquette State Park located about private group pools seems to have increased notice- 30 miles north of St. Louis on the Illinois River. ably in, St. Louis and its suburbs, but there are no It is more difficult, of course, to develop an ade- trend data to'indicate the magnitude of thi sincrease. quate enumeration of county and municipal areas '-City and county parks do provide facilities for such used for outdoor recreation. However, available data outdoor recreational activities as' day camping, de illustrate,. as might be expected, that the distribution fined by the American Camping Association as a of county and municipal facilities for outdoor recrea- "daytime experience in the out-of-doors which may tion is much more tightly, geared into the spatial include an occasional overnight." Seventy-four city distribution of the "market." In assembling data parks in the region and three county parks offer their for such facilities, we have omitted any consideration facilities to organized groups for day camping pro- of sites located within the central. city of St. Louis. grams. Three state parks and one national forest Acreage data are difficult to compile for such areas, also provide such facilities to organized groups.@ and we have such data for only 29 of the 242 county Recently, however, St. Louis organizations have begun and municipal sites located outside the St. Louis city to acquire their own day camps, although not yet,in boundaries. Of these, 23 sites arelocatedinSt. Louis significant numbers. The Church of God, the Roman County. Although the St. Louis County parks include Catholic Church, the Jewish Community CenterAsso-. only 1,510 acres in their totality, attendance figures ciation, and the YMCA each operate one., day camp for 1960 disclose that three parks attracted more than in the region. Future Farmers of America also a million visitors, and only two State parks, Pere operates a day camp, as does the:@Boy. Scoutsof Marquette and Lake of the Ozarks, attracted more America. The Girl Scouts operate five day camps. visitors than Creve Coeur Park operated by St. Louis In addition, there are 10 commercial., day camps, County and located 15 miles west of the city limits. all within 50 miles of St. Louis., -' 11 1 .. This comparison is not quite accurate, since it.was Since 1936i the State of Missouri has built facili- made by contrasting 1959 State figures_w -ith 1960 ties for resident camping in State parks, and leased county data. State statistics for 1960 are not yet those facilities to organizations. Of at least 109 available for Illinois, but 1960 Missouri figures show resident camps in the region, 17 are'locatbd in State a decline in attendance for Lake of the Ozarks State parks. The largest proportionj however, is owned Park such that attendance at Creve Coeur may well and operated by religious organizations-a third have been exceeded in 1960 only by attendance at of the total number. About a fourth js operated by Pere Marquette State -Park. However, facilities at scouting organizations, and about a sixth-18 of the Creve Coeur include playground equipment which 109-operated by such organizations a:s the YMCA, suggests some recreation activity there that falls 4-H Clubs, FFA, and other boys' clubs. There are outside the scope of ORRRC's concern. also eight commercial resident camps in the region. Municipal parks are also characterized by mixed These camps are'distributed evenly throughout the activities, in the sense that some fall within the area of study with about a third located in each zone. purview of ORRRC, such as fishing in the lagoons of In response to th6 increasing pressure on outdoor Forest Park at the extreme west end of St. Louis, recreation space in the St. Louis region, some seg7 and some do not, e.g.,. the municipal opera, art ments of the population have formed organizations to museum, and zoo also located in Forest Park. Such acqui re land for exclusive hunting, shooting and parks undoubtedly do divert some pressure awayfrom. fishing. Shooting preserves and conservation clubs other outdoor recreation facilities, and recognition have also been developed privately for a multiplicity should be made of the 143 municipal parks in the of purposes, ranging from research, through dem' on-, region outside the St. Louis city limits. This is a stration, 'to occasional @public fee-tise, in controlled .minimal figure and includes 28 parks in zone 1, 34 in hunting and fishing: programs. Although spatial dis- zone H, and 81 in zone III. Thirty-six municipal tribution of this type of facility is more tightly linked tocked mdtE fish and, 26 publi - ffihing to the population distribution of the region,disparities reservoirs s c lakes are located in the region. These facilities arise when the organization is fundamentally con- include 65,220 acres of water in Illinois and an cerned with the, provision of fish and game to its indeterminate additional acreage in -Missouri. Again, membership, rather than demonstrating conservation their spatial distribution in the region places most of practices to a public clientele, or simply providing them at some distance from the market. Only 6 of inanimate target shooting for its membership. Spebif- these fishing sites are located within 50 miles of ically, gun clubs organized for hunting require rela@ St. Louis, an additional 30 within 100 miles, and the tively large areas and are concentrated in zone III, remaining 26 between 100 and 150 miles from,'the where' 32 of the 51 clubs we have tabulated are city. found. Yet, nine of those' clubs (18 percent) are 171 found in zone I which includes only' 11 percent of the in the region because of their sheer number. We have total area of study. On the other hand, rifle and gun located 81,521 stocked farm ponds within 150 miles clubs which are organized to provide shooting at of St. Louis. Of these, 16 percent may be found less inanimate targets for their membership are.much than 50 miles of the city, 48 percent between 50 and more frequently accessible to metropolitan residents. 100 miles and 36 percent between 100 and 150 miles. We have located 129 such clubs. Almost half, 43 per- Two major obstacles make doubtful the possibility cent, of these clubs, are found -in zone 1, a fourth in of widespread metropolitan use of these facilities in zone II, and three-tenths in-zone III. . Conservation. the future: (1) the legal liability of the owner for the clubs, many of which own private lakes and shooting welfare of those invited to use his land; (2) the preserves, stand in between the hunt clubs and shoot- worsening farmer- city-dweller relations in the region- ing clubs as far as their spatial distribution is con- but these are matters to which we shall return. cerned. Somewhat more than a fourth of the 305 conservation clubs and 15 shooting preserves may be As far as outdoor recreation sites in the St. Louis region are concerned, then, there is no present crisis found in zone I, a similar proportion in zone II, and less than half in zone 111. in the sheer qt@antity and extent of such sites. Instead, the critical aspect is found in the spatial distribution Of cou7se, entrepreneurs have sought to capitalize of these areas or their general accessibility to metro- on the increasing demand for outdoor recreation politan residents. Federal, State, and local govern- space by developing commercial facilities. There -m.ents all-, contribute to the outdoor recreation re- are at least 128 fee-fishing lakes in the area of sources in the region ., but the "lower' I the level of study. Almost half of these (44 percent) are located government the smaller the acreage that is set aside in zone I, a third in zone II, and less than a fourth in for outdoor recreation, even though that acreage is zone III. Resorts tend to be facility-based rather than more closely aligned with the distribution of popu- "market-based," and this is demonstrated by a tabu- lation in the region. Moreover, the I'lower"the level lation of 485 resorts in the region, only a tenth of of government, the greater the difficulty confronting which are located within 50 miles of St. Louis, with government in the maintenance and acquisition of out- more than three-fourths located between 100 and 150 door recreation sites because of competing demands miles from the city. Motels perform a mixed service. for space and the consequent heightening of land value. Some accommodate transient travelers; others take These competing demands impinge upon recreation care of resort overflow or provide less expensive areas themselves so that, at the local level, mixed quasi-resbrt @ facilities. The latter seem to be more resources are provided to include many facilities, typical of Missouri motels located outside the city. such as playground equipment, that are not of interest Of 518 for which we have information, almost half to ORRRC. The largest acreage for which there is a are located in zone III; and about a fourth each in high outdoor recreation potential is privately owned zone I and II. land not specifically designated for outdoor rec- reation, but this land is not readily accessible to Privately owned lands on which outdoor recreation metropolitan residents, because owners either do not may take place, but which are not specifically set wish to assume the legal risks that such use entails -aside for that purtiose, comprise the greatest poten- or, correctly or not, believe that the outdoor rec- tial acreage for outdoor recreation use of all the reation use of their land by city-dwellers results in categories we have discussed. Moreover I most damage to crops, livestock, and farm equipment. of these lands are physically accessible to metro- politan residents. Large tracts of land owned by Many city-dwellers have tried to cope with problems mining and lumbering enterprises account for at least of access by forming organizations to acquire land for 378,000 acres. These are almost evenly distributed outdoor recreation. However, the acquisition of in the three zones surrounding the city. At least hunting and Plishing lands is expensive near the city, 110,250 acres of forested land, with little or no and fish and game clubs are forced to concentrate agricultural, mineral, or lumber potential, are held most of their landpurchases in zone Ill. This probably by in dividu als and private clubs. These lands are means that membership in such organizations is con- concentrated in zone III where about three-fourths of fined to the upper and upper-middle socioeconomic their acreage is found. None of this acreage is strata of the metropolitan population. Clubs formed located on farms and much of it is held for such non- for target and skeet shooting, are more accessible to recreational reasons as land speculation. Incontrast, city residents, probably because they do not require by far the largest amount of privately owned land in the space that is necessary forhunting. Privategroup the region potentially available for outdoor recrea- camps are also more favorably distributed throughout tion use is located on farms. Wooded farm land, the region. The most favorably distributed type of reported as 7,249,239 acres in 1954, constituted a resource from the standpoint of population distri- fifth of all reported farm acreage in the area of bution in the region is the commercial recreation study. Of course, the more distant the land is from enterprise. Yet these facilities often slight the out- the city, the greater the proportion of farm land. door recreationist's welfare in the interest of profit. Specifically, 16 percent of the reported farm acreage One commercial duck-hunting area for example, in the region is located in zone 1, 31 percent in zone crowds its swamplands each year with duck hunters II, and 52. percent.in zone M. Yet, the proportions located about 10 yards from.one another so that the of farm acreage in woodland reported in 1954 are not possibility of any hunter securing a: limit or even markedly different: 22 percent in zone, 1, 25 percent bagging a single duck is remote, indeed. This state in zone, III and 17 percent in zone Ell. Stocked farm of affairs is carefully concealed from the hunter until ponds are also significant outdoor recreation facilities he has paid his fee. 172 Difficulty of access to available land, difficulty of size at all for the outdoor recreation facilities we acquisition and maintenance of close-in land, and dif- have tabulated are provided by resident camps and ficulty of obtaining gratification through the use of one commercial scenic site. Sixty-eight of one- commercial facilities is characteristic of the outdoor hundred and nine resident camps accommodated recreation scene in St. Louis. This is much more 260,836 campers in 1960, and they were distributed than a crisis in space. Moreover, theseproblems are about equally throughout the zones. Meramec Springs, aggravated by the uneven pressure exerted upon located in zone II about 80 miles southwest of St. -Available facilities. To illustrate the point, we turn Louis, reported 217,000 visitors in 1960. Other to a consideration of the use St. Louis residents facilities, such as conservation clubs, shooting pre- make of the outdoor recreation resources we have serves, gardens, etc., either show very small at- discussed. tendance figures or provide such incomplete infor- mation that they are not reported here. THE USE OF OUTDOOR RECREATION. It is worth noting, however, how the use of the RESOURCES major outdoor recreation facilities is distributed in the region of study. If we examine only State and Attendance figures for the resources we'have dis- National data, we find 35 percent of the use in zone I, cussed are both incomplete and suspect. Data for and 42 percent in zone III. The addition of St. Louis national areas are most complete, followed by State County park data balances the attendance figures in areas. For all other resources, however, the data these zones, with 39 percent in each. This is Sig- ar@@ very spotty indeed. Moreover, available figures nificant, indeed, since it permits us to anticipate must be interpreted very cautiously, especially for now'what will be shown later, namely, that St. Louis National, State, county, and municipal areas. There residents exert a pressure on nearby outdoor fec- are essentially two reasons for this: (1) government reation facilities as great (or greater, given the officials are often constrained to show heavy use of comparative size of such facilities) as the pressure the facilities for which they are responsible, just exerted on more remote facilities which appeal to a as the corporate executive must "show a profit"; much wider "market," e.g., the Ozark Highlands. (2) many of these figures consist of car counts Moreover, the great bulk of attendance in zone I for (multiplied by 3 or 3 1/2 to estimate visitors, and these resources is concentrated in two pools con- some areas are located along main routes of trans- trolled by the Corps of Engineers north of St. Louis portation so that transient vehicles may well be on -the Mississippi and Illinois Rivers. The traffic counted as visiting vehicles. Nevertheless, the in- has become so heavy, particularly on Alton Lake, complete nature of the data undoubtedly results in an which we have previously discussed, that a Missouri underestimate of total use of these resources when Water Patrol was established and commenced oper- All figures are pooled. ation August 21, 1961 . The demand for additional Our data show that at least 17 million visits were facilities for water sports in the region is dramatically made in 1960 by individual persons to all the outdoor established by these data. recreation facilities we have inventoried in the St. With one exception, visits to these outdoor rec- Louis region. Visits to national areas account for reation resources are primarily dominated by Mis- almost half of this (47,0 percent), to State areas, souri residents and secondarily by Illinois residents. almost - 4,0 percent (39.1' percent), and 6 of 23 St. Several bits of evidence point to this conclusion. A Louis County parks, an additional 7 percent (6.7 per- count. of license plates on automobiles visiting Mis- cent).. In -short, national@ State, and St. Louis County souri state parks in 1958, 1959, and 1960 showed that resources account for 93 percent of the visits we have between 20 and 25 percent of all visiting vehicles enumerated. originated out of the State in each of those years. All other resources report only 7 percent of the Quite probably the largest proportion of these con- visits or use for which data are available. Of this sisted of Illinois vehicles. Thus, a survey of out-of- percentage, swimming'pools account for the greatest State passenger cars visiting Missouri in 1950 checked proportion. The pools for which we have information about 5 million out-of-State cars. Of these, a third are all located close to St. Louis in zone 1, and this traveled in the Missouri section of our area of study, information is incomplete. Three categories of pools- and Illinois -cars made up 45 percent of all out-of- municipal, pools run by private organizations and State cars in the area. 1/ A study of requests for restricted to membership - use, and commercial tourist literature made bi the Missouri Resources and pools-handle at least 660,500 visits annually during Development Commission in 1959 showed that Mis- a 4-month season, 4 percent of the total number of souri residents generated 11 percent of those requests visits to all outdoor recreation facilities for whichwe while Illinois originated 10 percent. 2/ Finally, an have data. However, only 15 of 40 municipal pools on-site survey of five Missouri State parks conducted provided information on attendance, while organi- in 1960 by the Meramec Basic Research Project at zation pools and commercial pools provided more Washington University revealed that Missouri at- complete information (38 of 47 organization pools and tendance was highest in all parks studied. Illinois 17 of 22 commercial pools). Probably the fact that attendance figures are most complete for pools run by private organizations accounts more than anything !/Missouri State Highway Department, Department of Highway else for our finding that the largest number of Planning, "Out-of-State Passenger Car Traffic Survey, swimming pool visits (297,000) is recorded by orgami- Missouri 1950" (Missouri, 1950), passim. zation pools, followed by commercial and municipal -?/Missouri Resources and Development Commission, "Tourist pools in that order. The only other usefigures of any Survey for 1959" (Missouri, 1959), p. 7. 173, attendance, was second in three of the five, each lo- by St. Louisans, although in the more -distant parks cated.in our areaof study. Intheremaining two parks, St. Louis attendance is somewhat less than the total Illinois attendance ranked third. and fourth, but these pressure metropolitan residents exert on all facili- parks are located more than 150 miles west and south- ties in the vicinity of those parks. This is undoubtedly west of St. Louis.' We may assume that other facili- due to the fact that the parks attract visitors froM ties are even more closely dependent upon local the nation at large, while other facilities are used visitors for their use. It follows that the outdoor more by knowledgable residents of the region. At recreation resources of the S.t. Louis metropolitan any rate, these data point up the heavy demand for region cater overwhelmingly to local demand origi- more close-in facilities and suggest the necessity nating in Missou .ri and Illinois. The one exception for develop -ing additional facilities in the eastern half might. be Lake of the Ozarks State Park, where more of the region to achieve a better distribution of than a third of the attendance in 1960 originated from pressure. States other than Illinois , and Missouri. Even here, however,. the majority of visitors .(65 percent ) origi- OUTDOOR RECREATION ACTIVITIES nated from the two States that make up. our area of study. M,*s discussion of the use St. Louisans make of the How much of this use is accounted for by residents outdoor recreation resources in their region has not of the St. Louis, SMSA, is difficult to deiermine"with even touched upon the mos ItIprevalent activity, pleasure precision. However, four sets of data permit some driving. -there are essentially three reasons Why it estimate: (1) estimates made in'1961 by county, agri-' is very difficult to estimate the amount of pleasure cultural agents of St. Louis pressure on outdoor reC7 driving done by St. Louisans. First, pleasure driving reational resources; (2) on-site studi Ies of five Mis- is often combined with.visits to specific outdoor rec- souri State parks and one Illinois State park made in reation facilities*. The desire for a pleasant drive 1960; (3) reports of Missouri visitorsto-two Illinois in the countryside may take people to such facilities State parks in 1960; and (4) a creel census con- as State parks as often as -the desire to visit thepark ducted in, 1960 at various fishing sites in Illinois. may bring about the drive. Indeed, outdoorrecreation Ta king all these data-together, checkingth em against is, seld om a highly focused activity. Thus, much one another for logical compatibility, and directly pleasure driving is not recorded in the enumeration of applying*, the. result to ihe.various resources we have attendance figures for outdoor recreation facilities. inventoried permits the conservative estimate that Second, although "sightseeing" is usually the most residents of the St. Louis SMSA in 1960 accounted frequent activity mentioned, whenever and no matter for 46 percent of-the use of all outdoor recreation how outdoor recreation is studied, that activity-may facilities located within 150 miles from the central never require the use of any specific facility and, city. In other words, St. Louisans accounted, for consequently, may not be recorded. Third, traffic almost 8, million of the 17 million visits to , the studies that do analyze trips into categories, per- facilities we have inventoried. mitting a count of recreation trips, usually subsume. This pressure is very unevenly distributed over all types of recreaiion-from visiting friends to view- the region we have studied. Over 7 '0 percent of. the ing the scenic countryside-under a single rubric. outdoor recreation of St. Louisans which required Yet some crude estimates of the amount of pleasure the use of specific. recreational resources occurred in travel entered into by St. Louisans can be made. zone I, less than 50 miles from the city center. A study made in 1961-52 by the Missouri Highway About 18 percent occurred in zone II, and 11 percent Department disclosed,that 8 percent of Missouri's in zone III. Yet, this pressure is not evenly exerted population took trips of 1,000 miles or more oneway, in all directions from the central city. Imagine our while a fifth of the. State,-S, -populati7on took trips- region of study as a large circle. Now demarcate a lasting 8 days or more. Vacations represented more quadrant by drawingradii due west and south of the than 70 percent of these long duration trips. More- center. This quadrant, containing the Ozark High- over, of 242,265 long vacation and llsociall@ trips, lands , with its forests, parkso float streams, and half were made by residents of places with more than large water impoundments, is rightfully called the 100,000 population, although only 30 percent of the playground of St. Louis. Even in the remote edges Missouri population lives in such heavily populated of the quadrant, as figure C-1 shows, St. Louisans places. 3/ Therefore, pie asure trips of long duration exert over 30 percent of the pressure on outdoor seem to be an urban phenomenon. Sightseeing and recreation facilities. A great deal of the outdoor pleasure travel in Missouri is also a frequent ac- recreation of St. Louisans, however, occurs im- tivity entered into by residents of the Midwest. A mediately north and west of,-the city along the study of people requesting tourist information about Mississippi River, particularly at Alton Lake, and Missouri in 1959, showed that a fourth of those re- along, the major east-west interstate highway linking quests. registered by people. diving, in Missouri, and St. Louis to Kansas City, but the pressure exerted eight nearby States were made to facilitate visits there does not extend as far from the city as does with friends and relatives and almost half for, the the pressure in the southwest quadrant. St. Louisans purpose of maximizing "general pleasure and re- exert practically no pressure on the facilities located laxation." Thirty percent of these same people in- northwest of the city, and, with the exception of the dicated that their principal activity in Missouri National Wildlife Refuge, Crab Orchard Lake, they make little use of facilities in the southeast. I 2IRichard F. 0'3rien, "Socioeconomic'Forces and Family Park attendance data, shown in figure C-2, reflect Pleasure Travel" (Missouri: Industrial Section, Missouri the same spatial flow of outdoor recreation undertaken Division of Resources and Development, n.d.), p. 31. M ST. is S SA 50 100 150 Miles Miles Miles FIGURE C4. AREA OF ST. LOUIS METROPOLITAN REGION WHERE OUTDOOR RECR IEATION RES .OURCES. RECEIVE AT LEAST 30 PERCENT OF THEIR USE BY RESIDENTS OF ST. LOUIS SMSA. would be "general sightseeing,9f the activity most plete survey 'was made at 18 stations surrounding frequently 1 mentioned. 4/ These data, however, do St. Louis County and the city of St. Louis in 1957. not take into account size or place of residence of Trips were broken down into local and through trips those requesting tourist information. and classified by trip purpose. Through trips were To assess the frequency of pleasure travel by "halved" to adjust for duplication (leaving and re- St. Louisans, two traffic studies have been used., A turning to the area). Adjusted in this manner, the study in 1948 of 140,000 drivers in the St. Clair- Missouri State Highway Department classified 196,317 Madison County urban area (the Illinois section of trips also made during the summer months. Of this the St. Louis SMSA) showed that 30.8 percent of the total, 34 percent were "social or recreational" trips; trips were "pleasure trips," compared to 30.9 per- 40. percent trips to or from work; and 17 percent, cent of the trips given over to "business" and 29.2 business trips. 6/ One important implication of these percent to "work." 5/ These interviews were taken data,- compared-with the 1948 data, is that the per- in the summer months of that year and the category, cent of pleasure trips has not increased in any great 19pleasure,11 undoubtedly included outdoor recreation, degree over the last 9 years. As a matter of fact, although such "pleasures" as theater attendance and sampling error,could account for the difference. It sociability were also included. A much mpre com- may well be that the proportion of travel given over to pleasure driving by St. Louis metropolitan resi- -@/Wssouri Resources and Pevefopment Commission, op. cit., -dents approaches some constant figure in the neigh- pp. 15-18. borhood of'30 percent. J/Personal correspondence with R. R. Bartelsmeyer, Chief Highway Engineer for the State of Illinois, dated Feb. 27, @/From tabulations provided by the Missouri State Highway 1961. Department. 175 Of this "social and recreational" or "pleasure" underestimate, since the "persons per car' category driving, how much can we estimate is outdoor rec- includes all ages while the National Recreation Survey, reation? Any estimate is precarious. However, the data includes persons 12 years of age andover. Ten- National Recreation Survey data provided by ORRRC tatively, then, we will use that ft gure to estimate the show that 52 percent of the persons over 12 years percentage of all St. Louis traffic devoted to outdoor of age residing in urban SMA's of more than 1 mil- recreation pleasure driving during the summer lion population drove for pleasure one or more times months. This seems a reasonable figure. Specifically, during the months of June, July, and August in 1960. the great bulk of through traffic devoted to "social or The St. Louis traffic survey reveals that therewas an recreational' I trips in 1957 was quite probably engaged .average of 2.84 persons per car classified as engaged i'@ outdoor recreation. This traffic comprised 3.2 per- in a trip for social and recreation purposes during the cent of all passenger cars interviewed in 1957 and summer months of 1957. If we assume that the first would constitute a bottom limit on travel given over percentage is "outdoor recreation" and divide that. to outdoor recreation. On the other hand, the upper percentage by the average number of persons per car limit would be 34 percent, assuming all "social or disclosed in the St. Louis study, we arrive at a figure recreational" trips were devoted to outdoor rec- of 18.2 percent. Eighteeen percent of all vehicles reation. Note that the figure, 18.2 percent lies carrying residents of large SMA's over 12 years of midway between these extremes. age were possibly used for outdoor recreation during IAn alternative estimate of outdoor recreation the summer months of 1960, and this figure. is an pleasure driving by St. Louisans would rely completely THOUSAND HILLS 4.9 DICKS ION MOUNDS* 0.3. LINCOLN NEW SALEM* 2.3 PERE MARQUETTE 32.3 LAKE OF THE OZARKS. S T. LOUIS 20.9 1 50 100 150 M MERAMEC 1 1 1 11 Miles Miles Miles 57.3 1 CRAB ORCHARD LAKE 21.0 TABLE ROCK LAKE WAPPAPELLO 18.1 21.1 FIGURE C-2. PERCENT OF ATTENDANCE COMPRISED BY ST. LOUIS METROPOLITAN RESIDENTSU AT EIGHT STATE PARKS AND U 0 Lj@ @4 '9 32. 3 LOUIS ST. E@ @57 ONE FEDERAL WILDLIFEAREA. L"Shows percent of Missouri visits at two Illinois State parks. 176 on materials provided by -the National Recreation pleasure drivers (and walkers), outdoor gamesmen, Survey. 7/ In 1960, 72 percent of the St. Louis SMSA and swimmers. So it is with.the 800 St. Louisans population was 12 years of age or more. This amounts interviewed in the six parks that were studied in 1960. to 1,483,274 of the 2,060,103 persons living in the The most popular activities were sightse 'eing (59.1 per- metropolitan area. The National Recreation Survey cent), followed closely by "relaxation" (58.9 percent), reported that 60 percent of the persons 12 years of swimming (57.6 percent), and picnicking (46.6 percent). age or more--, living in SMSA's larger than I million Still, 42.3 percent of-theSt. Louisans visiting the parks in the-north-cen'tral region of the United States, engaged did camp and 41.3.percent fished. Other activities en- in pleasure driving in the summer of 1960. The gaged a sixth or less of the St. Louisans interviewed. 10/ average number of days per participant was reported The picture changes slightly, when we consider re- as 15. Sixty percent of 1,483,274 is 889,964 which is sponses to a question asking which activities were Vie number of St. Louisans 12 years of age or over most important to the visiting St. Louisans (or most who probably participated in pleasure driving during "enjoyable to the group," in the case of Pere Mar- the summer of 1960. Multiplying this figure by the quette visitors), . "Relaxation" was ranked most average number of days per participant (15), yields important by a fourth of the St. Louisans; sightseeing, an estimate of 13,349,460 days spent by St. Louisans by somewhat less than a fifth (18.2 percent); and pleasure driving in. the summer of 1960, or about 9 swimming, by about 15 percent (14.7 percent). Fishing days per person 12 years of age or older. This figure, and camping move up to fourth and fifth places, how- however, is not based on any data specifically drawn ever, and picnicking runs a poor sixth, mentioned by from St. Louis observations. about a tenth (9.2 percent) of those responding to the It is also difficult to derive valid data on other out- question. However-, the factre m a-ins that t Ihe activities door recreation activities of St. Louisans, particularly of St. Louisans in the six parks studied, when those those activities in the center of ORRRCPs interests. activities are considered grossly, are not the ac- While we do have data derived from onsite studies tivities valued highly by most outdoor recreationists. made of five Missouri State parks by the Meramec Now, if we group the - parks according, to distance Basin project, and of one additional park, Pere from the city center, a sharper picture emerges. Marquette State Park, by Michigan State University,.@/ Although Meramec State Park is located in zone II these data can only tell us how those residents of St. of our region of study, it is barely in that zone, Louis who engaged in outdoor recreation spend their 55 miles from the city center. Consequently, we recreation time. They cannot tell us the proportions have treated the activities of St. Louisans in that of St. Louisans engaged in the various forms of outdoor park with their activities at Pere Marquette State recreation. Moreover, four of the five Missouri parks Park, about 35 miles distant from the city. It should studied were selected because of their location at or be noted that there are no water impoundments at near water impoundments,' and, consequently, the full either of these parks, both being located on rivers. range of outdoor 'recreation facilities we have dis- With the exception of Meramec State Park, no other cussed is not represented by these data. Nevertheless, parks studied were located in zone II, and we have the data are worth considering, first, because there considered the recreation of metropolitans in zone are little other data available and,'second,-because the III parks-Lake of the Ozarks State Park and findings disclosed are logically coherent withfindings Wappapello State Park-in a unitary fashion. Finally, of the National Recreation Survey and local studies, two parks, Table Rock and Thousand Hills, have been giving an air of plausibility to the findings and, at least grouped together. Both of these parks are located some ratio 'nale for generalization.. be yond the 150-mile limit we have used to define In an *unpublished paper *dealing with the relation- our region of study. ll/ We have, then, three pairs ship between mental health and outdoor recreation, of parks, each pair located at an increasing distance Herbert Gans frequently refers to the antiurban middle from St. Louis. class bias of outdoor recreationists which is revealed . In the most accessible pair, the "urban pattern" by their tendency to construe outdoor recreation as dominates whether we consider all activities under- leisure activities not typically entered into by urban taken by St. Louisans in the two nearest parks or the dwellers-fishing, hunting, camping, etc. 9/ While the activities rated most important. "Relaxation" is re- National Recreation Survey provides da7ta which call ferred to by most. respondents, 11sightseeing" ranks for some qualification of his charge, e.g., by showing second, and swimming third. Note that swimming that relatively more metropolitan residents take ranks relatively high, even though the Illinois River nature walks than do farmers and small town.dwel- on which Pere Marquette State Park is located is a lers and that relatively more metropolitan residents most undesirable swimming site, and the Meramec- hike with packs during the summer months than do River is generally regarded as a treacherous stream. nonmetropolitan residents, the criticism is essentially Picnicking, incidentally, ranks fourth of the activities correct. Fishing, hunting, and camping show a pro- engaged in by St. Louisans at these two parks and, portional preponderance of small town and rural participants. Metropolitan residents. are sightseers, LI/Compiled from data provided by Michigan State University. See ORRRC Study Report 5, "The Quality of Outdoor Recreation: As Evidenced by User Satisfaction," prepared Z/Suggested by Laurence 1. Hewes, Chief, Forecasts and by Department of Resource Development, Michigan State Economics Group, ORRRC staff, in personal correspondence, University, also from,dato provided by the Meramec Basin dated April 2, 1962. Project, Washington University, St. Louis; in 1961. . �/Part of ORRRC Study Report 5. U/The reader is referred back to figure C-2 for a general picture ,2/Prepared for ORRPC, 1961. of the location of these parks., 177 four.th among the activities considered most important capacity. Yet none of the resources in the more or enjoyable to the urbanites. ' distant zones are yet operating at full capacity. In the zone M parks, .1 'relaxation' I moves from first Nevertheless, it must be remembered that this is to *fourth place among the activities engaged in by the the present situation., Whether it will prevail is a urban dwellers of our region and is a poor sixth among niatter we shall treat subsequently. the activities rated most important, mentioned by only In still another way the urban pattern of outdoor 6 percent of the respondents who rated their ac- recreation is revealed by the on-site materials. tivities,for importance. Sightseeing remains in second All St. Louisans interviewed were asked the length place for activities mentioned and assumes first rank of the trip of which their park visit was a part. 12/ as far as its importance is concerned. Although swim- One-day trips were made by 47.9 percent of the-St. ming is mentioned most frequently among all the ac- Louis visitors to the two close-in parks, but only tivities of St. Louisaniq in the zone III parks, it ranks by 16.7 percent of the visitors to the remote parks. only fourth in importance. What is significant is that Overnight and weekend trips were made by between camping and fishing move up to third place in ac- a fifth and a fourth of the St. Louis visitors to all tivities for those parks and stand in second and third parks. Trips between 3 and 6 days in duration in- place, respectively, among those activities 'rated creased with distance from the city with 18.7 percent most important. of the St. Louisans making such trips to close- in parks In the most remote parks, swimming remains as the and 38.4 percent to distant parks. Finally, almost activity mentioned by most St. Louisans, fishing is three times -as many St. Louisans visiting distant second, sightseeing third, and camping fourth. How- parks were traveling for a week or more (21.8 per- ever, fishing is most important to most St. Louigans cent) as those St. Louisans visiting nearby parks (7.4 visiting those distant parks. This is followed by percent). These data are what one would obviously swimming and camping. expect-the greater the distance, the longer the trip- Two conclusions may be drawn from these data., but, when they are interpreted in the light of ,the fact First, swimming is generally an important outdoor that "relaxing," sightseeing, and swimming are recreation activity to, St. Louisans. Second, the. usually 1-@day affairs while hunting or fishing are not greater the distance-St. Louisans go to engage in and camping cannot be a 1-day affair, coupled with outdoor recreation the less the frequency and im- the fact that most St. Louisans are found in the near- portance of six6h "urban" activities *as relaxation, by parks, the data offer further confirmation of the sightseeing, and picnicking, and the ' greater the point vie are attempting to make: the bulk of St. frequency and importance of those activities valued Louis outdoor recreation manifests what we have by'outdoor recreationists, viz., fishing and camping. called the "urban pattern." Furthermore, we might Yet, this trend must be viewed with caution and is note that St. Louis visitors to Pere Marquette State subject to qualification. In the first place, as figure Park, when asked the kind of visit the park was best C-2 showed, the proportion of attendance by St. suited for, overwhelmingly responded in terms of day Louisans at State parks declines with distance from the or weekend visits. Only 13.2 percent mentioned longer city center. Thus, the number of St. Louisans inter- visits and half of these people also mentioned day or viewed at the more remote parks is small, so that weekend visits. sampling errorsincrease. In the-second place, we have A consideration of the sale of 1958, hunting and estimated earlier that 70 percent of the pressure ex-@ fishing -licenses in the Missouri portion of the St. erted by St. Louisans on outdoor recreation facilities in Louis SMSA and of 1956 fishing licenses in the Il- our region of study is exerted on those facilities located linois portion f urther documents the prevalence of within 50 miles of the city, 18 percent between 50 what we have called the urban pattern of outdoor and 100 miles,@ and 11 percent beyond 100. Thus, recreation. Of the Missouri units in the SMSA, 15.3 even though the "urban pattern' I of outdoor recreation percent of the eligible hunters 'and- fishermen in may not characterize the recreation of St. Louisans 1958 13/ purchased hunting-or fishing licenses. This, mlid visit facilities at a relatively great distance figure compares 'with 28.5 percent of the eligible from- the city, this trend does no ,t encompass the State population. If we place these Missouri units outdoor recreation of the great majority of metro- along a gradient of urbanization, we find a continuing politan residents. We are forced, then, in the face decrease in proportions as urbanization increases. of these conflicting possibilities, to conclude that the Specifically, in St. Charles'County, the least urbanized outdoor recreation of St. Louisans at the present time of -the units, 37.3 percent of the eligible population is largely taken up by such activities as swiniming, purchased licenses in 1958; in Jefferson County, next ."relaxation," sightseeing, and picnicking. "This @point most urbanized, 35.8 percent of the eligibles pur- As underscored when we consider our estimates of the chased licenses; in St. Louis County, the most highly pressures exerted on various resources in our region, inventoried by ORRRC. None of these resources are 2 used to their full capacity on week-days. However, LIFigures for Pere Wirquette represent days actually stayed the resources in zone I are on the average already at the park. We estimate less than 10 percent of the visitors taxed to or beyond their capacity for handling outdoor to close-in parks undertake such visits as part of longer recreationists on weekends during the appropriate trips. seasons. Specifically, all camping sites in zone I are ILI/Computed for the population 16 years of age and over in used to full capacity on weekends. Picnic grounds are .1960. Because we have used 1960 census data as a base handling 3 percent more weekend picnickers than they for computing the proportion of eligibles who purchased are equipped to handle, and boating facilities and hunting or fishing licenses in 1958, these percentages are access points to water are taxed 10 percent beyond slightly lower than the actual percentages. 178 urbanized of the Missouri counties in the SMSA, the pleasure trips in 1954, the largest share, for any in- proportion was 20.5 percent; and in St. Louis City, come category. only 11.0 percent of the eligibles, less than half the . These data are, borne out in part by the 1960 Nat- proportion for the entire State, purchased hunting or ional Recreation Survey. Skilled workers were over- fishing licenses. The Illinois portion of the SMSA is, represented among pleasure drivers during both the of . course, less urbanized than, the Missouri portion, fall and summer months, but semiskilled workers and although Illinofis is a' more highly .urVEinized- State, laborers were underrepresented. There is no way to and this is, undoubtedly reflected'in the fact that eli- know from the National Recreation Surveywhether the gible residents of the Illinois portion purchased more inclusion of laborers with semiskilled workers in a than their share of fishing licenses in 1956 when that single. category can account for the underrepre- share is contrasted with figures for the State as a sentation of that category of worker in the nation, but whole. Specifically, between 11.7 percent and 12.4 the possibility is raised. When the occupation of percent (depending upon the use of 1950 or 1960 census pleasure drivers residing in the SMAls of greater as a base) of the residents of Illinois 16 years of than 1 millionpopulation is examined, the same general age, or over, purchased fishing licenses in 1956, distribution appears. Skilled workers in large metro- while between 18.1 percent and 20.4 percent of the polises were overrepresented amongpleasure drivers; eligible residents of the Illinois portion of the St. semiskilled workers and laborers were underrepre-@ Louis SMSA purchased fishing licenses. Moreover, sented during the fall months and did precisely their, of the two counties comprising the. Illinois portion, share of pleasure driving in the summer. Again, this Madison County is least urbanized, and between 19.0 lower rate of pleasure driving may well be due to the percent and 21.5 percent of its eligible residents pur- heterogeneity of workers in the latter category. Where chased licenses, while the percentage for L St. Clair the national survey differs from the earlier Alissouri County containing the city of East St. Louis, lies be- study is in the finding that clerical and sales workers tween ;7.3 percent and 19.4 percent. Trends in these living in metropolitan areas with more than 1 million data are most significant, but will be discussed in the population are also consistently overrepresented next section of this report. In the meanwhilewe shall among pleasure drivers, and, with the skilledworkers, turn to a consideration of the socioeconomic charac- conkitute, the model percentage for an occupational teristics of St. Louis outdoor recreationists. categories.. Income data gathered by the national survey are at SOCIOECONOMIC CHARACTERISTICS OF greater variance with the Missouri study, since they ST. LOUIS OUTDOOR RECREATIONISTS show an underrepresentation of pleasure drivers at both extremes of the income distribution for resi- According to the National Recreation Survey, half dents of large SMA's rather than an inverse relation- the population of the United States 12 years of age ship with income as disclosed by tfie Wissouri study. and over did some pleasure driving in the fall of This is due in part to the finer low income categories 1960, and an additional 2 percent took pleasure drives of the national survey, but that survey shows an during the summer months. Pleasure driving for overrepresentation of fall pleasure drivers in all each period was rather evenly distributed over the large metropolitan income groups between 3 and 15 population from the standpoint of place of residence, thousand dollars, and of summer pleasure drivers in showing some concentration among residents of SMAI s all income groups between 4 and 15 thousand dollars. under 1 million. This would lead us to believe that It seems possible to infer from these studies that 9t. pleasure driving is not particularly an urban form of Louisans may drive for pleasure somewhat more outdoor recreation. Yet, when we examine the number frequently than other residents of the larger region of days each participant spent in pleasure driving, we of study and that these pleasure drivers are concen- find the smallest number characterizing rural - resi- trated in, the middle-income range of the city's white dents for both periods, and, in the fall, participants collar, skilled, and possibly semiskilled workers. residing in SMA's greater than 1 million in pbpu- In addition, the national survey suggests that there may lation spent more days pleasure driving than any be some overrepresentation of professionals and other residential grouping. Similarly, as we have technical workers among St. Louis pleasure drivers. mentioned earlier, a study of pleasure trips by the An examination of the onsite studies will give con- Missouri Highway Commission, disclosed that resi- siderably more substance to these inferences. dents of populated places greater than 100,000 were Because the 1960 census data on the characteristics overrepresented anion pleasure drivers in Missouri. .9 of the St. Louis SMSA population arenotyet complete, Further analysis of these data foi a 12-month period no direct contrast of St. Louis park visitors with the in 1951-52 established that skilled and semiskilled larger metropolitan population is possible, as far as operatives, "representing only 13.5 percent of the occupation and income are concerned. Consequently. Missouri population accounted.for more than 30 per- to derive some picture, no matter how inadequate, of cent of the long trip mileage" i4/ in the pleasure the distinctive socioeconomic characteristics of the travel of Missourians. The anafysis also suggested park visitors, we have been forced to use 1950 census that much of this pleas ure driving was taken by data. persons with annual incomes of less than $3,000, In 1950, eight-tenths of the families and unrelated since a national survey conducted by Crowell-Collier individuals residing in the St. Louis SMSA received showed that 65 percent of this -income group took incomes of less than $5,000. Yet two-thirds of the St. Louisans interviewed at the six State parks selected L4/Richard E. O'Brien, "Socio-Econornic Forces and Pleasure for study in .1960 reported annual incomes ranging Travel," op. cit., p. 34. between 5 and 10 thousand dollars. Slightly less than 179 a fifth reported lower incomes; less thanan eighth, viewed in the remote parks of Table Rock and higher incomes. The general rise in income over the Thousand Hills. Proportions of clerical and sales intervening decade is not sufficient to explain this workers, as well as operatives, show this same vast difference. At least two other factors must be tendency to decrease with the increasing distance of taken into account. First, St. Louis Negroes un- the parks that were studied. Aside from professionals doubtedly account for a very large share of the low and technicians, only skilled workers increased pro- incomes reported for the region, and we have already portionately among these park visitors as distance seen that they account for an infinitesimally small of the park from the city center increased. share of St. Louis visitors to the parks studied in These tendencies may be partially reflected in data 1960. Second, probably adolescents and young un- used to examine residential characteristics of the married adults also contribute a relatively large parkvisitors. In 1960, 40.1 percent of th 'e residents of proportion of the low-income residents of St. Louis. the St. Louis SMSA lived in the cities of St. Louis These youngpeople were undoubtedly underrepresented and East St. Louis; 41.1 percent in the urbanized in the onsite studies. Only about 10 percent of the suburbs; and 18.6 percent in the nonurban areas of the St Louisans interviewed consisted of unrelated indi- SMSA. Both urbanites and suburbanites were over- viduals, and many of these were probably older men represented among the St. Louisans interviewed at engaged in fishing expeditions. Park visiting, as re- five of the State parks studied. 15/ Residents of the vealed by these onsite studies, was overwhelmingly nonurbanized areas contributed Tess than one-eighth a family affair. * Nevertheless, the differences between of their "share" of visitors to these parks. Park the income distribution of the St.Louis SMSA in 1950 attendance in St. Louis, therefore, seems to be an and the St. Louis park visitors in 1960 are so great urban or suburban affair. Moreover, the distance these that they do permit the inference that most St. Louis people traveled to parks is greatly differentiated by outdoor recreationists are middle income residents urban or suburban residence. The more distant the with incomes ranging between 5 and 7 thousand dollars park, the greater the proportion of St. Louis urban annually. In second place, are those with higher in- dwellers in attendance; the closer the park, the greater comes, while the lowest frequency of park visiting is the proportion of suburbanites. Forty percent of the accomplished by St. Louisans with annual incomes of St. Louis park visitors at Meramec State Park lived in less than $5,000. This relationship seems to hold the city limits of St. Louis or East St. Louis, and this no matter how far the park visited is located from figure increased to 67 percent at the distant parks. In the city center. In this respect, there may be a dif- contrast, almost 60 percent of the Meramec visitors ference between St. Louis pleasure drivers and park were St. Louis suburbanites, and this figure decreased visitors. Both are concentrated in the middle income to less than 30 percent for the distant parks. These category, but pleasure drivers are more frequently figures suggest that the clerical and sales workers representative of low income groups than are park among these St. Louis park visitors may, in fact, visitors. be chiefly suburban white collar workers, while the When the occupational characteristics of these St. craftsmen and semiskilled workers at the parks are Louis park visitors are compared to those of the SMSA predominantly city dwellers. labor force in 1950, the discrepancies are not nearly These income, occupation, and residential differ- as great as was the case for income. As a matter of ences do not discriminate sharply among the activities fact, noteworthy discrepancies are only found at the in which St. Louisans engag2, once they arrive at extremes of the occupational range. St. Louis park _�ia_te__parks.-There'is some indication, however, that visitors contained twice the proportion of professional a "more and more principle' I is operating here. Thus, and semiprofessional workers (17.7 -percent) as made the more income the St. Louisan reports, the more r- oe activities he engages in. Similarly, for reasons that up the SMSA labor fo in 1956 (8.8 percent), while the proportion of laborers among park visitors (1.7 escape us here, serniprofessionals (a very hetero- percent) was less than a fourth the proportion for the geneous category), seem to be comprised by outdoor SMSA in 1950 (7.2 percent). These discrepancies can- recreationists who undertake an extensive range of ac-. not be explained in terms of shifts in the occupational tivities at State parks. There are indications that characteristics of the labor force over the last decade. fishing is more often engaged in by park visitors in. Although the bulk of park visitors is comprised by lower status occupations, while "relaxation't is more persons engaged in the same occupation as the bulk of often a higher status activity, but these differences are the labor force-clerical and sales workers, crafts- not striking. men, and operatives-only professionals and tech- When the activities thought most important bythese nicians contribute more than their "share" to park park visitors are examined, the picture is still not attendance, and laborers are considerably under- clarified. Yet, the data do suggest that the greatest represented. Again, the latter difference may be ex- involvement in outdoor recreation is found in high plained in large part by the current lack of Negro income high occupational status segments of the attendance in the state parks studied. St. Louis population that visits State parks. This may Another tendency in this regard should be noted. be more a matter of this group's greater articulate- Professionals and technicians concentrate their at- ness in the interview situation than any "real" dif- tendance at close-in and remote parks, showing the ference in involvement. smallest frequency of attendance at the two medium Socioeconomic status, as measured by income and distant parks-Lake of the Ozarks and Lake Wap- occupation group, may differentiate activities of park papello. Laborers, however, decrease proportionately visitors, depending upon the distance traveled for the among St. Louis park visitors with increasing distance from the city center, so that no laborers were inter- L5JThese data were not avoila6le for Pere Marquette State Park. 180 park visit. Specifically, at the medium distant parks, Meramec River is clear and present. However, the Lake of the Ozarks and Lake Wappapello, the ac- region within 150 miles of St. Louis undoubtedly tivities held important by higher status St. Louis possesses adequate land to meet the outdoor recreation visitors seem to be more focused than those of lower needs of metropolitan residents. The problem here is status visitors. The former most often mention fish- twofold, centering on the. distribution and accessi- ing, swimming, and picnicking, while the latter more bility of the land. By and large, land resources are frequently mention sightseeing. The picture changes not distributed in any close relationship to the distri- when the socioeconomic status ofthe St. Louis visitors bution of the market. Close- in sites are overcrowded, to the most distant parks, Table Rock and Thousand with many already handling more weekend visitors than Hills, is examined in relation to the activities deemed they are equipped to handle, while distant sites have most important. As we have seen earlier, activities not as yet received anywhere near the pressure on do become more focused (less I 'urban"). in the distant their facilities as have those near the city center. parks, but fishing is the prime activity of lower There are some exceptions to this general picture. status visitors to those parks while the important Thus, clubs formed for inanimate shooting, private activities of higher status visitors are more diversi- group camps, and commercial enterprises are more fied. This may mean that the outdoor recreation favorably distributed, but, in the latter case, there is activities of higher status St. Louisans are generally some evidence to indicate that the operators' quest more highly focused or specialized than those of for profit may detract considerably from the rec- lower status strata, but that the activities of the latter reationists' satisfactory use of the commercial facil- group become more highly focused the greater the ity. Privately owned land not specifically designated distance they travel for their outdoor recreation. for outdoor recreation use constitutes the largest These differences, however, are not great. potential recreation space. In this case, however, In all this discussion, the relevant characteristics most St. Louisans are denied access or have dif- have possibly not been brought to bear in the inter-m ficulty gaining access, either because of antiurban pretation of outdoor recreation activities. We have stereotypes held by landowners, particularly farmers, omitted age and sex from the analysis because of the or by the very real legal risks the landowner assumes peculiarities of the study designs. However, it should when he invites others on his land for' recreation be recalled that, with sex held constant, socioeconomic purposes. variables-income, education, occupation, length-of Our data have accounted for at least 17 million paid vacation, race, age, life cycle stage, region, and visits to the sites and facilities we have inventoried, place of residence- accounted for less than 30 percent but there is no way to know how accurate this figure of the variance in the scores of the respondents on the is. We have some evidence that National and State "activity scale" constructed by the Survey Research figures are somewhat inflated for particular facili- Center. 16/ Either relevant variables are missing, ties. On the other hand, no attendance data are e.g., the early childhood and adolescent recreation available for many local, municipal, private, and patterns of the subject, or outdoor recreation in the commercial facilities. Our best guess is that the parks of the St. Louis region is genuinely a mass incompleteness of attendance data outweighs their aciivity',-such that there is little social differentiation exaggeration so that the 17 million figure is un- in the activities of park visitors, once they visit such doubtedly an underestimate. Over 90 percent of this facilities, although@park visitors, themselves, do -differ attendance was at National, State, and 6 of 23 St. from the metropolitan population in general. Louis County areas.' An examination of the spatial distribution of this attendance shows that as much SUMMARY pressure is exerted on facilities within 50 miles of St. Louis, where St. Louisans account for the great We have examined the present state of outdoor bulk of the visitors, as on facilities located between recreation in the St. Louis metropolitan region with 100-150 miles of the city, where visitors are at- respect to five major categories: (1) sites andfacili- tracted from the nation at large. Throughout the entire ties; (2) attendance at those facilities; (3) pressures region, we estimate conservatively that in 1960 St. exerted by St. Louisans on those facilities; (4) outdoor Louisans accounted for 46 percent of the visits we recreation activities; and (5) social and economic have tabulated. In other words, St. Louisans made at characteristics of St. Louis outdoor recreationists. least 8 million visits in 1960 to outdoor recreation Before moving on to a consideration of trends in out- facilities located within 150 miles of the central city. door recreation, it is appropriate to provide.a brief 'On the average, each St. Louisan made about four summary of the extensive foregoing discussion. visits to outdoor recreation sites in the larger region As- fa r - as the facilities and sites for. outdoor rec-- during the 1960 season. reation are concerned, there is certainly a severe This pressure i .s.very Iunevenly distributed over shortage of water facilities, particularly for swim- theregion. Over' 70 percent of the outdoor recreation ming and the more casual. water recreation of urban of St. Louisans occurred at sites less than 50 miles. dwellers. The necessity for the provision of additional from the city center, 18 percent between 50 and 100 water for the outdoor recreation of St. Louisans by miles, and 11 percent between 100 and 150 miles. both increasing the number of swimming pools availa- Nor was this pressure exerted evenly in all directions ble and developing a large water impoundment on the from the central city. Most pressure was exerted on the Ozark Highlands southwest of the city and extended L6-'Eva Mueller and Gerald Gurin, op. cit., ch. 11; 'tocioeconomic in foibce to the most distant facilities in that area. Factors Associated With Outdoor Recreation: 4 Multivariate Almost as much pressure was exerted at Alton L@ke Analysis." immediately north of the city and for a short distance 181 westward along the east-west interstate highway the greater the proportion o' Ili e chased such linking St. Louis to Kansas City. St. Louisans make licenses. Only 11 percent of the"e Meresidents of very little use of f acilities in the northwest, northeast, St. Louis City purchased hunting an@, ishi:g enses c or southeast areas of the larger region. I!b it f@ li in 1958, compared to 37.3 percei e igi les in Several accounts of outdoor recreation suggest that the least urbanized county of St. Charles @@4 8 *5,p%; 10 _w such recreation, when undertaken by metropolitan cent of the eligiple State population. I er residents, is largely an unfocused affair, consisting of extent to which the outdoor recreation activi s of such activities as pleasure driving, sightseeing, and St. Louisans follow the "urban pattern is, a least relaxation, while activities like fishing, hunting, and in part, a function of the distance they are willing to camping attract small town and rural people in numbers travel for their outdoor recreation. Although swim- exceeding their share of the total population. Un- ming is the most popular activity engaged in by St. doubtedly, the number of outdoor, recreationists living Louis, visitors at the two most distant parks studied, in metropolitan areas is absolutely greater for almost fishing takes second place, and camping moves up to every activity, but proportionately their activities are fourth place. It should be remembered, however, that typically of this unfocused kind. This is true of St. we have estimated only 11 percent of the total outdoor Louisans. Probably 18 percent of all their passenger recreation of St. Louisans occurs at such distant sites. car driving in the summer months is outdoor rec- Sev 'enty percent occurs near the central city where reation pleasure driving. Moreover, the 800 St. the popular activities follow the urban pattern of sight- Louisans interviewed in 1960 at six State parks, five seeing, relaxation, swimming, and picnicking. in Missouri and one in Illinois, indicated that their iinally, we have made some additional very tenuous most popular activities in those parks were slightseeing estimates of the present day characteristics of St. and relaxation. Of the relatively more focused ac- Louis outdoor recreationists. Pleasure drivers are tivities, swimming and picnicking are popular with probably, in the middle income range of the metro- St. Louis park visitors. Yet, 40 percent of these politan white collar, skilled, and semiskilled workers. St. Louisans did camp or fish at the parks studied. Park visitors are also mostly middle income resi- These activities, of course, are those most highly dents, although they are somewhat. overrepresented valued by people in the outdoor recreation movement among professional and semiprofessional occupa- in this country, but they are not the activities most tional groupings. St. Louis laborers, incidentally, frequently engaged in by St. Louisans when they visit contribute less than a fourth of their "share" to outdoor recreation facilities , those metropolitan residents interviewed in the, six As a matter of fact the "nonurban" character of parks studied. There is little social differentiation in such activities as fishing and hunting is nicely docu- the activities of St. Louis park visitors, once they mented by an analysis of hunting and fishing licenses arrive at parks, although the park visitors, them- sold to Missouri residents of the St. Louis SMSA in selves, are different from the metropolitan population 1958. The less urbanized their county of residence, taken as a whole. 182 CHAPTER FOUR TRENDS IN OUTDOOR RECREATION A consideration of changes in the opportunities for ment was certainly the greatest single factor in the and patterns, of outdoor recreation in the St. Louis development of State park lands: region over the past several years is hindered by An estimate of the State and Federal funds even greater obstacles to analysis than was the expended on the solution of conservation and case in assessing the present state of outdoor recrea- recreational problems from the summer of 1933 tion. Gaps in the data available are multiplied when to January 1, 1937 was placed at over $29 million the analysis of change is attempted. Even the ofIwhich perhaps 95 percent 'was supplied from treatment of changes in acreage of land and water Federal sources. l/ available for outdoor recreation presents insoluble problems. This kind of stimulation to State park development There are several reasons for this. First,.the tends to obscure changes in Federal lands, per se, lower the level of government, the less complete the over the past several years by masking real changes available information. Second, trend data for private, in outdoor recreation acreage in the interim. facilities are practically unavailable. This :is the Be these things as they may, most of the national case, not only because commercial facilities are re- forest acreage. in our area of study had been estab- luctant to release such datai particularly when they' lished by the end of the 19301s, with little or no are caught up in -highly competitive situations, but increase since that time. National Wildlife Refuges also much recreational use of private facilities, in the area were also established by the late thirties, such as wooded farmland or stocked farm ponds, is although they have shown a more recent internal simply not recorded. Third, many facilities, like development. For example, the largest refuge, Crab those administered by the Corps of Engineers, were Orchard, consisting of 44,000 acres about 100 miles not originally instituted as recreation facilities, and southeast of St. Louis, was begun prior to World it has not been until very recently, as recreation War II, but the 810-acre Devil's Kitchen Lake, the pressures on such water impoundments as Alton last of three lakes established in the refuge, was Lake have been extensively publicized, that systematic only recently opened to fishermen in January, 1962. attention has been given to their recreationuse. Even This reflects a pattern in the Federal development now, recreation use is not a primary justification for of many water facilities in the region-the institution the operation of those facilities, though that maybe of impoundment projects in the late thirties -or early the major use made of the facility. Fourth-many forties, the wartime interruption of project develop- changes in outdoor recreation lands and waters over ments, and the resumption of those projects after the past several years have been administrative the close of World War II. Another example is,pro- changes rather than increases or decreases iii the vided by the Clearwater Dam and Reservoir Project, facilities available to the people of St. Louis. Spe- about 100 miles south of St. Loui .s. The project was cifically, when Grand Marais municipal park was begun in 1940, but the dam was not completed until given to the State of Illinois in 1946, this would show 1948. Consequently, though acreage useable for up in trend analysis as an. increase in State park outdoor recreation has been set aside by the Federal acreage and a decrease in municipal park acreage, Government for 25 or 30 years, the full benefits but would, of course, have resulted in- no change as of that acreage have only recently been enjoyed. by far as total acreage available for outdoor recreation residents of the St. Louis region. in the,area of study is concerned. Now, however, the recreational development of Federal lands seems to be in full swing. Not only are TRENDS IN OUTDOOR RECREATION RESOURCES new facilities being made available by various agen0es of the Federal Government, particularly by adding to This latter difficulty is particularly evident when the supply of water acreage, e.g., the recently estab7. trends in acreage administered by the Federal lished Table Rock Reservoir, just outside our region Government are assessed. Relatively large tracts of study on the southwest, but smaller lands within of recreation land have been made available in various the larger tracts are being made available to the States, ways to State park systems by the Federal Governinent considerably expediting the overall recreational de- over the past several years. The largest of the velopment of the larger tracts. Missouri State Parks, Lake of the Ozarks, consisting When all Federal plans for the acquisition and of 16,335 acres, was granted to Missouri in 1934 by development of future recreation areas in the region the Federal Government. The Corps of Engineers licensed 1,854 acres of an area known as the Allison !/Missouri State Planning Board, Cooperating with Missouri Peninsula on Lake Wappapello to the Missouri State State Park Board, United States Deportment of Interior, Park Board in the late fifties. As a matter of fact, National Park Service, Works Progress Administration, in the early development of the Missouri State Park "A State Plan for Missouri: Missouri State Parks Board, the stimulus provided by the Federal Govern- Attendance and Use Data" (typescript, 1938), p. 13. 183 are considered together, they show the greatest There are very few instances of recreation lands projected acreage and proportionate increase of any and waters reverting from State control in the government or private agency. The various arms of St. Louis region, and this is particularly true of the Federal Government plan to add about 419,000 State parks. As a result the pattern of State park acres of land and water to their present holdings of development in the region is less subject toqualifica- over 2-1/2 million acres, a projected increase of tion and ambiguity than the pattern of development for 16 percent. This planned increase is well distributed, Federal holdings.@ We have been able to secure dates when interpreted from the standpoint of existing of establishment for more than 90 percent of the recreation pressures or demand. Were Federal plans Illinois and Missouri State park acreage in the St. Louis to materialize, there would be a 30 percent increase region included in 42 of the 44 State parks. As tables of federally controlled land and water in zone I of the C-1 and C-2 show, about 20 percent of the State parks region, the area receiving greatest recreation use by in both the Illinois and Missouri sections of the met- St. Louisans, a 27 percent increase in zone II, and a ropolitan region were established by the end of the 10 percent increase in Federally controlled lands and twenties, and these accounted for about the same waters in zone III, where the bulk of Federal holdings proportion of the present acreage. By the end of the is presently located. The likelihood of such plans thirties, about 55 percent of the State parks and State materializing, however, seems to increase with dis- park acreage had been established, the largest single tance from the metropolitan center due to increasing addition during that decade being Lake of the Ozarks competition for land near the metropolitan center. State Park in Missouri, accounting for almost 40pef- For example, Federal plans propose acreage in- cent of the acreage added in that decade. After'the creases about equally divided between national monu- decade of the thirties, the number of parksites in the ments (113,000 acres), the development of a watershed region increased more rapidly than acreage, indicating in Montgomery County, Ill., by the Soil Conservation a trend toward more, but smaller, State parks. Service (193,000 acres), and nine water impoundment Spatially, the distribution of these trends is not proposals by the Corps of Engineers (112,625 acres). well geared into the metropolitan demand for outdoor All the proposed increase in zone I acreage is con- recreation space. Ninety percent of the State park tained in proposals for the development of the Meramec acreage in zone 1.'had been established by the end of Basin by the Corps of Engineers. This proposal, the thirties, as had 6 of the 10park sites in that zone. authorized in the Flood Control Act of June 28, 1938, In the last 20 years, the addition of 4 of the 10 State was developed when the Water Resources Committee parks in zone I hasmeant an a@ddition of only 10 per- of the National Resources Planning Board selectedthe cent more area. Moreover, at least in the case of one Meramec Basin as a subject of cooperative study in added site, Grand Marais, the actual addition of rec- December, 1942. Over the years the proposal has reational acreage was nil, amounting only to a change been subjected to much discussion and criticism, and, from municipal to State administration of an existing as a result of public hearings in December 1949, the park site. Otherwise, the trends have been more Governor of Missouri concluded that the State could favorable to the distribution of metropolitan demand. not approve the proposed reservoirs. Since then, no The greatest growth in parksites and park acreage further funds have been expended by the Corps of since the thirties has taken place in zone 11, between Engineers on the project, although the authorizedplan 50 and 100 miles from St. Louis, where more than a has been retained. It now seems likely that, although fourth of all State park acreage was added in the the Meramec Basin must be developed in the future, decade of the fifties. Increases in sites and acreage theplan of the Corps of Engineers will not beadopted.2/ in zone III have occurred at a less rapid rate since Similar difficulties confront a plan of the Corps'R the thirties, when almost 85 percent of the existing Engineers for a Water Valley Damon the Eleven Point acreage and 13 of 22 sites had been established. Yet, River which would create an impoundment about 150 in the last decade, more than 10 percent of the present miles south of St. Louis in Missouri and northern acreage in zone III was added. This figurl is more Arkansas. That plan is seen as conflicting with the than three times the proportion of acreage added in proposed Ozark Rivers National Monument and is the fifties to State park lands in zone I. subject to much dispute. However, the Water Valley In all, 418,400 acres of recreation lands a d waters proposal probably iias a somewhat better chance of controlled by the States of Illinois and Mis ouri are realization than thi Meramec Basin proposal, since located in the St. Louis region. Present p ans con- fewer competing interest groups are involved. At any template an addition of 46,812 acres in the future, a rate, what at first seems to be competition for space proposed increase of approximately 11 pere nt " With often turns out, as in the case of the Meramec Basin one exception, these plans consist of prop sed State and the Water Valley proposal, to be a competition park sites. The exception is a projected 30 000-acre for control of space rather than a competition among area in Calloway County, Mo., about 100 iles west different possibilities of land use. If the Federalplans of St. Louis. Here the issu 'e is one of c ntrol and do not materialize, it does not necessarily mean that administration-whether by the State Parki Board or the proposed outdoor recreation facilitie,- -rill befor- the State Conservation Commission. If the decision ever denied the residents of the St. Louis @egion. goes to the State Park Board, then all the �,tate plans for increased recreational space in the !St. Louis -?/"Digest of Preliminary Information Meramec Basin region for which we have information are projected Reservoirs Missouri," (Mimeographed by the Corps ol State park sites which, if the plans materialize, will Engineers, Office of the District Engineer, U.S. Army represent a 57 percent increase in State park area, e 3 Engineer District, St. Louis, 420 Locust St., St. Louis 2, increasing the State park share in State-owned rec- Mo., September 1958), passim. reation space from one-fifth to one-fourth. 184 Table C-1. Establishment of 42 Illinois and Missouri State park sites in the St. Louis metropolitan region, by decades 1920-29 1930-39 940-49 1950-59 Totals Per- Per- Per- Per- Distance from St. Louis Number centof Number cent Num 11. centof Number centof en '-umu- aCumu- a 11 Cumu- of sites all Cumu- City c ter (in miles) of sites oil of sites all of sit Total Per- estab- exist- I ati Ve estah- exist- lative esto -exi st- lative estab- exist- lative sites cent r. shed ing percent lished ing percent lish ing percent lished ing pe rceni sites sites sites sites Zone 1 (0-50) ........... ...... ...... ...... 6 60 60 2 20 80 2 20 100 10 24 Zone 11 (50-100) ......... 2 20 20 2 20 40 3 30 70 3 30 100 10 24 Zone 111000-150) ....... 6 27 27 7 32, 59 5 23 82 4 1 100 22, 52 Totals ........... 8 15 361 55 10 24 79 9. 21 100 421 100 Table C-2. Establishment of acreage on 42 Illinois and Missouri State park sites in the St. Louis metropolitan region, by decades 1920-29 1930-39 1940-49 1.950-59 Totals Per- State Per- State P or- State Per- State centof entof park centof park centof Distance :rom St. Louis park all Cumu- park ca I I Cumu- all Cumu- all Cumu- I acre- , st_ I at, Ve acre- ex, st_ lat,ve acre- exist_ lat,,,e cr, Total P or- City center (in miles) ex exist- lat've acre- cent agees- ing percent age as- ing percent age es- ing percent age es- ing percent age tab- cre- to6- acre- tob- acre- t06- acre- lished aage lished age Ilished age lished age I Zone 1 (0-50) ........... ...... ...... ...... 14,668 89 89 1,326 8 97 473. 3 100 16,467 21 Zone 11 (50-700) ......... 8,345 30 30 8,752 32 62 2,969 11 73 7,449 27 100 27,515 37 Zone 111 (100-150) ....... 7,950 25 25 18,487 59 841 1,707. 5 90 3,184 10 100 31,328 42 Totals ........... rl 6, 2-9 5 @2 1 22141,907 56 7716,002 1 -8 85111,106 1 -15-F 1-00 75,310 100 These plans will alter present trends only slightly. about future county and municipal recreation space in State parks in zone II would record a 125 percent the St. Louis region become underestimates as soon increase in acreage with the addition of 5 new sites to as they are expressed in terms of increased acreage. the present 10, while acreage in zones I and III would There is a recent and perhaps significant tendency increase only 25 percent with the addition of 4 sites to for private citizens in the St. Louis region to join the present 10 in zone I, and 10 sites to the present together in corporations to develop outdoor recreation 24 sites in zone Ill. facilities, particularly water facilities. We have Data are so incomplete for trends in county and secured information on five such corporations, two in municipal recreation sites that they cannot be pre- zone Il and three in zone 111. Acreage data for four of sented in any meaningful manner here. However, a the five proposals have been secured. These four number of county and municipal proposals have been corporations propose to add at least 32,560 acres of compiled, and these, although undoubtedly very in- land and water to the outdoor recreation facilities in complete, indicate a somewhat greater relative in- the region. The largest of these is the Rend Lake crease over present estimates of recreation acreage Association, which expects to establish a 24,800- than is the case for State park plans. We have shown earlier that at least 66,730 acres usable for outdoor acre lake in addition to an unspecified amount of land recreation are presently controlled by county and open to public hunting about 75 miles southeast of municipal governments in the St. Louis region. These St. Louis. Whether these plans will materialize is lands are expected to be supplemented by at least perhaps again dependent upon Federal action, for the 0,500 acres in the future, a propose&gain of about Rend Lake Association has recently applied f or Federal 13 percent. About six-tenths of this increase will be funds to expedite the project. near the metropolis in zone I. The remainder will be These Federal, State, county, municipal, andprivate in zone Ili east of the central city. Nine county or corporation proposals will add somewhat more than municipal parks,. park expansions, wildlife refuges, half a million acres of land and waters to the present and stocked reservoirs are proposed for zone I. outdoor recreation facilities in the St. Louis region, Acreage figures are available for only five of these if they materialize. While this figure seems impres- proposals. There is acreage information for each of sive at first, it represents less than a 5 percent over- the three county and municipal proposals we were all increase in such lands and waters. Moreover, able to locate in zone II, but a proposed site in zone from the standpoint of the spatial distribution of these be es b ed III, about 125 miles east of St. Louis, does not include proposed areas with reference to metropolitan pres- acreage information. Consequently, any estimates sures and demand, these proposed increases are 185 quite inadequate. Only 7 percent of the planned in- reflect some increase, at least in intensive demand, creases are located in zone I, which comprises some- for fishing facilities in the Missouri portion of the what more than 10 percent of the total region of study study area. The smallest decline in number of farms and is, of course, the focal point of outdoor recreation between 1940 and IL954 occurred in zone II (an 18.5 pressure. More than half the planned acreage, how- percent decline), while farm acreage remained about ever, will be located in zone II, not too distant from the same, decreasing less than I percent, and'this the central ci city- can hardly account for the 77 percent increase in pond 'Most of the potential recreation acreage available stocking over the deca .de, 1950 to 1959. Moreover, to St. Louisans is, as we have shown, comprised by the greatest decline in numbers of farms and farm wooded farmland and stocked farm ponds, and it is acreage took place, obviously, in zone I, where the very difficult to assess changes over time in the number of farms decreased 27 percent, and farm extent of these facilities. The agricultural census acreage decreased 11 percent. Yet, farm pond stock- does provide data on farm acres inwoodland for 1930, ing rose 8 percent in the face of these rather drastic 1940, and 1954, but the percentage of farms in the declines in farm acreage and farm numbers. Again, St. Louis region reporting in those censuses is quite in zone III, farm acreage decreased less than I per- low, ranging between 48 percent in 1930 and 52 per- cent between 1940 and 1954, and the number of farms cent in 1954. Nevertheless, the data are presented in, decreased at the same rate as for the entire Missouri table C-3. That table shows surprisingly littlechange portion of the region. Here, however, there was no in wooded farm land over the 24-year period that is significant change in farm pond stocking between 1950 summarized. If the data are at all representative, we and. 1959. It is not unlikely, then, that the data on may expect very little change in this kind of facility farm pond stocking reflect, at least in part, an in- in the future. creasing metropolitan demand for close-in fishing There are no overall trend data available for facilities, where, in fact, such facilities are in short stocked farm ponds in the region of study. However, supply. the Missouri, Conservation Commission has provided As far as trends in facilities @ are concerned, information on the. number of -farm ponds stocked with therefore,.it seems that privately owned and operated game fish in - 1950, and 1959 for all 59 counties in the facilities have been quite sensitive to the pressures Missouri sector of the study area. Though the. com- of metropolitan demand. - Yet, it is precisely on this mission warns that these figures may be misleading level that coordination and planning are most.difficult due to the influence of 11droughtsand other factors," to achieve. Does Ahis necessarily imply-,that future they may provide some clues for discerning changing outdoor recreation planning on the part of Federal and demand for this kind of outdoor recreation in the State agencies must evolve into a joint enterpris 0 with St. Louis region. Within 150 miles of St. Louis 1,350 overriding responsiveness and sensitivity to metro- ponds on Missouri farms were stocked with gamefish politan needs and pressures? Shall the higher echelons in 1950; 1,550, in 1959. This represents a gross in- of government embark on some sort of crash program crease of about 15 percent. The increase in farm in the immediate future which would concentrate on pond stocking is concentrated in zone II, where 256 supplying 'facilities near the metropolit .an center at ponds were stocked in 1950 and 453 in 1959, a 75 per- the expense of providing new more distant facilities? cent increase. In contrast, pond stockings in zone I The analysis of trends in the use of Federal and State increased by about 8 percent during that decade and facilities does not seem to have this implication. remained practically the same in zone III, where 963 farm ponds were Atocked in 1950 and 955 in 1959., RECREATION GROWTH AREAS I For the period during which the,most comparable data are available (1940-54), farm acreage for these Missouri counties decreased only, sliglitly-by about In general, the greatest growth in the Use of Federal 2 percent-but the number of farms in those counties and State outdoor recreation resources has not oc- decreased somewhat more than a fifth (21.8 percent). curred near the city center,'but at a distance greater This contrast between decreasing numbers of farms than 50 miles from the central city. Where St. Louis and increasing numbers of farm pond stockings may attendance has been estimated, it seems (with the lable C-3. 11'arm acreage in woodland in the St. Louis metropolitan region for the years 1930, 1940, and 19541" 1930 1940 1954 Reported P:rcent Reported Percent Reported PeIrcent Distance from St. Louis City acreage fall Percent acreage of all Percent of all Percent c.enter (in miles) reported of farms in reported of forms cri 9, reported of forms in farm reporting woo form reporting w 'n form reporting woodland diand Land acreage acreage acreage Zone 1 (0-50) ....................... 1,256,191 21 1,128,136 18 53 1,303,999 22, 60 Zone 11 (50-100) .................... 2,424,300 21 48 2,158,026 18 53 2,763,525 25 60 Zone 111 (100-150) ................... 3,255,843 17 49 2,920,884 .15 48 3,181,715 17 47 Totals ....................... i6,936,3341 191 48 6,207,046 17 51 7,249,B4_[_ 20 52 !/Source: U.S. Census of AgricultUie for the years 1930, 1940, and 1954. 186 exception of one estimate) that St. Louisans are in- St. Amant, has written, "We believe a greater per- creasingly making use of more distant resources for centage of Illinois visitors are of local (same county) their outdoor recreation. In the case of State park origins than the visitors in the Missouri portion of attendance, the greatest increase in visits by St. the forests." 5/ Over the 9-year period for which Louisans over the last decade occurs, as a matter of Mr. St,. Amanf-has provided data, visits to the Illinois fact, in zone III, between 100 and 150 miles from the portion of the forest, located in zones II and III, in- central city. creased about a fifth,' from 273,830 in 1952 to 327,000 Attendance data for all national forests in the re- in 1960, while visits to the Missouri portion, located gion are available, only for the 6-year period from entirely in zone III, quadrupled, from 54,500 in 1952 1955 to 1660. During that time, overall visits in- to 220,600 in 1960. ;This may well indicate a growing creased 44 percent. There were 1,013,530 visits metropolitan pressure on more distant forest facili- recorded in 1955; 1,462,846, in 1960. This rise oc- ties, since, if Mr. St. Amant's observations are cor- curred at an average annual rate of 10 percent, with rect, it is highly probable that St. Louisans comprise the greatest increase taking place between 1955 and a larger percentage of visitors to the Missouri portion 1966 and the greatest decrease taking place between of the Shawnee .,Forest than -of visitors to the Illinois 1956.arid 1957_whena:ttendancefell@off about 20 percent., portion. There is no statistically 4eferisible-way -to dstimate. Trend! data for visits at national -wildlife refuges how, much of:this increasewas providedby,St. Louisan Is. are - available. for only one site, Crab Orchard Lake@ However if onsite.data availableJor LakeWappapello Attendance@;.at@-that. refuge;., located,..abbut,, 90 miles. State, @ P@,@ iti@ on, @ III @ and the', Crab:.,Orchard , Lake, southeast of St. Louis, quadrupled,'between 1947 and Wildlife [email protected],z ,one - II (the sites most proximate - 1959 * Again on the -assumption@of no proportional to the national forests) pertain at all toforests visits, change over the years, St. Louis visits are -estimated then St. Louisans account f or about a fifth of the visits at - 21 percent 'of the total, yielding an estimated reported. If it is assumed that there was no change increase of 189,000 visits from 63,000 in 1947 to in the proportion of St. Louis visits over the 6-year 252,000 in 1959. This increase has witnessed a slight period, 3/ this would represent an increase of about decline in recent years. The data show a high of 90,000 St.. Louis visits in the 6-year period, from 1,360,000 in total attendance at the refuge in 1957. 12112,600 visits in 1955 to 307,200 visits in 1960. This figure fell off in 1958 to 1,160,000 and had not There are' as we have shown, no national forests recovered its former high by 1959, when a total in zone I of !he St. Louis region, and the distribution attendance of 1,200,000 was reported. of increases in visits to these facilities between 1955 In the St. Louis region, the Corps of Engineers is and 1960 is not notably differentiated by the forests' responsible for the operation of five locks and dams, distance from thecitycenter. Visits to national forests two reservoirs, and five navigation pools on principal in zone 11, assuming they are evenly distributed waterways. The Corps has provided @omplete data on throughout the forest areas, 4/ are estimated as having attendance at the reservoirs and locks and dams for increased 40 percent over the 6-year period, while the decade, 1951 to 1960, and on attendance at two visits to forests in zone III have increased about 48 navigation p2!@ls northwest of St. Louis for the 5-yeir percent. On the other hand, growth rates are clearly per-iod-,1955-59. All these facilities are locatedmore ,differentiated by distance from the metropolis. As than 100 miles from the central city@ in zone III. shown in table C-4, the changes in visits from year Trend data on attendance at the navigation pools to year in forests located in zone II are very erratic, immediately north and west of St. Loui s in zones I but show afiaverage annual growth rate of 15 percent, and Il are not available. This is unfortunate, since while changes in zone III fluctuate much less over the these pools include Alton Lake, used by more rec- same period, showing an average annual rate of growth reationists in 1960 than any other single facility in the of only 8 percent. It is, of course,'diffibult to interpret region of study. The establishment of a water patrol such discrepant data. Even though the average annual by the State of Missouri at Alton Lake in 1961 indi- rate of increase in visits to forests in zone III is cates that pressure on the facility has increased so lower than the rate for visits to forests in zone 11, it rapidly over the years that serious control problems is perhaps more realistic to suggest that future visits have been posed. Certainly the bulk of this pressure to forests in zone III ban be more reliably'predicted is and has been exerted by St. Louisans. than future visits to forests iri zone II, since the Even the more remote pools on the Mississippi former trend is less erratic. River above St. Louis have shown a marked increase This may very well reflect the nature of use pro- in attendance in the last few years. Although annual vided by St. Louis residents. Shawnee National Forest, data are available only for Vie period 1955-59, attend- located between 75 and 150 miles southeast of the ance has almost *doubled in that brief period, rising central city, has recorded visits for a 9-year period from 103,900 in 1955 to 202,100 in 1959, The average from 1952 to 1960. These records are broken down annual rate of increase for the period is 19.5 percent. for Illinois and Missouri segments. In commenting Comparisions have been made for 1952 and 1960 data, upon these records, the forests supervisor, Paul J. and these show that the 5-year trend is not merely a short-term fluctuation. 6/ Moreover, the increasing assumption is defende, Id in the discussion of State use of those pools for recreation is dramatically pa rk attendance. See pp. 188-189. 1/lt is necessary to make this assumption, since the 1/Personal correspondence, dated March 3, 1961. Illinois portion of the Shawnee National Forest overlaps �/U.S. Army Engineer District, Rock Island, Corps of zones 11 and III, and visiting data are recorded for the Engineers, "Mississippi River ReFrea.tion-1960" (Mimeo- entire Illinois segment of the forest. graphed News Release, 1961). 187 Table C-4. Changes in attendance at national forests 1955 1956 1957 Distance from St. Louis Percent Percent Attend- Percent Attend- Percent increase Attend- Percent increase once once over 1955 once over 1956 Zone 11, 50-100 miles ............... 478,541 47.2 764,372 56.9 59.7 417,513 39.1 -45.4 Zone 111, 100-150 miles .............. 534,986 1 52.8, 578,7231 43.1 649,647 60.9 12-21 Totals ...................... 11,013,530 1 100. 0.0 documented. Specifically, the number of pleasure from the preceding years of 24.3 percent and 14.4 craft locked through the 12 locks in the Rock Island percent, respectively. These changes are significantly District, which includes the pools in our area of study, differentiated by State park location. Actually, all more than quadrupled over the 9-year period, rising visits to State parks located in zone I have decreased from 10,954 in 1952 to 47,435 in 1960. In 1952, 38 per- 44.8 percent over the decade for which comparable cent of the lockage operations were madeforpleasure data are available for Illinois and Missouri parks. craft; in 1960, 55 percent. In 1952, 30,861 fishermen In 1950, 2,606,614 visits to State parks located within were counted; in 1960, based on figures up to October, 50 miles of the central city were counted; in 1959, 57,000 fishermen were expected, an increase of about 1,439,255. 85 percent. The Corps of Engineers has no informa- This--- seems, at first glance, to suggest the total tion on the contribution St. Louisans have made to lack of urgency for any outdoor recreation plan that these increases. However, they undoubtedly account would gear future facilities to close-in metropolitan for at least half of this use, since the only city of any requirements. However, much of the decrease in size on that stretch ofthe Mississippi within 150 miles visits to State parks located in zone I is accounted for of St. Louis is Quincy, Ill., located in Adams County, by decreases in attendan 'ce at Illinois State parks, which reported a population of 68,467 in 1960. particularly Grand Marais State Park, referred to Attendance at the five locks and dams southeast of earlier in this report. 8/ That park showed a de- St. Louis at the junction of Illinois, Kentucky, Missouri, crease in visits from 1,212,324 in 1950 to.101,689 in and Tennessee does not show as dramatic an in- 1959, a loss of 1,110,635 visits, more than 10 times crease. From 1951 to 1960, attendance increased the total visits. recorded in 1959. All Illinois State 34.6 percent, from 86,100 to 115,900, at an averagi@_ parks in zone I show decreasing attendance over the annual rate of 6 percent. For a period comparable to decade. Total visits to those parks, including Grand that provided by the Corps of Engineers for the Rock Marais, was 2,386,396 in 1950; 886,503, in 1959. Of Island District, 1955 to 1959, the increase at these this total loss in visits, Grand Marais contributed five locks and dams was slightly less than 4 percent. almost 75 percent. Illinois State park visits inzone I, St. Louisans may account for about a tenth of these then, decreased 63. percent over the decade at an attendance figures. A casual inspection of motel average annual rate of loss of 8.7 percent. This registrations at Kentucky, lakes, not far from the locks may well reflect the segregation-desegregation-re- and dams in question, was made in 1961 and disclosed segregation cycle commented.upon earlier, although a St. Louis representation of about 10 percent. 7/ an informed source who does not wish to be identified In the decade, 1951-60, attendance at the Wappapelio maintains that more accurate recent' estimates of and Clearwater Reservoirs has more than doubled, State park attendance in Illinois are also reflected in increasing 117 percent from 40,959 in 1951 to these decreases. His observation, however, does not 891,944 in 1960, at an average annual rate of 10.8 seem logically compatible with the fact that visits to percent. The most rapid increase over the 10-year Illinois State parks in zone Il have more than doubled period has occurred at Wappapello, where, if State during the decade, and visits to Illinois State parks park attendance figures are at all relevant for the in zone III have increasedalmost 2 1/2 times. interpretation of the attendance data provided by the In contrast to attendance trends for Illinois State corps, St. Louisans acco-inted for at least a fifth of parks, visits to all Missouri parks for the same the visits tallied in 1960. Attendance at Wappapello period of time have tripled. In zone I parks, visits increased more than 21/2 times in the 10-year increased 21/2 times between 1950 and 1959; in .period; at Clearwater, attendance did not quite double. zone II, almost five times; and in zone III, almost Visits at the State parks inthe St. Louis region have three times. At the present time, there is no evi- increased from 4,756,507 in 1950 to 7,139,297 in -1959, dence to suggest that Negroes visit Missouri State a , overall growth of almost exactly one-half. 'this parks in the St. Louis region in any significant increase has occurred at an average annual rate of numbers. 6.1 percent. The greatest fluctuations in this trend It is possible to estimate with some precision the occurred in 1953 and 1958 with drops in attendance contribution St. Louisans have made to these trends in State park attendance. There is, first of all, some evidence to indicate that this contribution has shown !/Verbal report by Edward L. Ullman, then director of the Meromec Basin Project at Washington University (St. Louis). 2/Cf. p. 168. U8 in the St. Louis region for the period 1955-1960 1958 1959 1960 Summary Percent Percent Percent Percent Average Attend- Attend- Attend- annual ance Percent increase once Percent increase once Percent , increase increase percent over1957 over 1958 over 1959 1955-60 increase 663,858 48.2 59.0 783,571 49.9 18.0 672,424 46.0 -14.2 40.5 15.4 1 714,2421 51.81 9.9, 785,6951 50.1 10.0, 790,422, 54.0 0.61 47.7, 8.2 1 1,378,1001 100.01 29.1 1 1,462,846 1 100.0 1 -6.81 44-31 9.6 no marked proportional shift over a considerable peri- 1959, providing an estimate of shifts in the atten& od of time. In 1938, an intensive study of Missouri ance by St. Louisans at State parks over that decade. State parks was undertaken by the Missouri State In this estimation procedure it is assumed that such Planning Board in cooperation with the Missouri State proportions have remained constant over the decade Park Board, the National Park Service, andtheWorks for which data are available. Ar-ogress mministratfom. 4mon_____ g the parks studied at If Grand Marais State Park is included in this that time was Meramec State Park, also studied & trend analysis, then St. Louis visits to State parks years later as part of the onsite studies conducted by have decreased 27.1 percent between 1950 and 1959, the Meramee Basin project at Washington University the overall decrease being completely attributable to (St. Louis). Visitors in 1938 were tallied by Missouri the loss of St. Louis visitors to State parks located county of residence, and residents of the Missouri in zone I. St. Louis visits to parks in zone II have segment of the St. Louis SMSA from St. Louis City, increased almost 2 1/2 times in the 10-year period, St. Louis County, St. Charles County, and Jefferson and visits to State parks in zone III have almost County comprised 51.6 percent of all Meramee Park tripled. If the Grand Marais figures are eliminated visitors. Twenty-two years later, in 1960, visitors from the analysis, then St. Louis visits to State from the St. Louis SMSA, including the Illinois- parks have more than doubled over the decade, counties, Madison and St. Clair, comprised 57.3 per- although the increase in such visits to zone I parks cent of all Meramec Park visitors. The lack of in- is only 72 percent, less than half the proportional formation on Madison and St. Clair county residents increases in zones Il and III. Consequently, future in the 1938 study of Meramec Park attendance quite estimates of St. Louisdemand for such outdoor probably accounts for the 5.7 percent discrepancy recreation facilities as State parks are very much between the two figures. This is remarkable con- contingent on future trends in race relations at sistency for data collected in periods separated by such sites. Table C-5 shows the relevant data for a 22-year interval and constitutes the basis for our these trends. general assumption in considering these trends that It has been possible to assemble trend data for the proportion of outdoor recreationists at various St. Louis visits to Missouri State parks in the region facilities has remained relatively unchanged over for a longer period of timei 1938-1960, than was the years for which attendance data are available. possible for St. Louis visits to all State parks in the Using the same materials employed earlier to region. In this case, only those State parks in exist- estimate the St. Louis contribution to the total use of ence since 1938 were selected for analysis. Both outdoor recreation facilities in the region of study in --the 1938 and 1960 onsite studies made possini- 1960, we have made conservative estimates of St. relatively accurate estimates of St. Louis attendance. Louis proportions for visits to State parks by quad- Over this period, St. Louis visits increased ninefold, rants and zones. 9/ Where onsite studies are avail- with the greatest growth in attendance occurring at able, the proporGons of St. Louisans reported have Missouri parks in zone I, from'39,106 in 1938 to been directly applied to attendance data for those 478,632 in 1960, and the smallest growth in zone III, sites. Otherwise, we have divided the area of study from 30,365 in 1938 to 187,111 in 1960. In 1938, into quadrants and zones. For each segment so St. Louis visits to Missouri State parks in zone I demarcated, estimates provided by county agents, comprised 37 percent of all St. Louis visits to reports of Missouri - visitors to 'two Illinois State Missouri State parks in the area of study; in 1960, parks in 1960, and a creel census conducted in 1960 49.3 percent. St. Louis visits to zone 11 Missouri at various fishing sites, in, Illinois were reconciled to State parks have shown relatively constant pro- arrive at an estimate for the proportion of use of portions over the 22-year interim, declining slightly outdoor recreation resources in each demarcated from 34.3 percent of all St. Louis visits in 1938 to area provided by St. Louisans. Parks were then 31.4 percent in 1960. It obviously follows that St. located in the areas demarcated by quadrants and Louis visits revealed a proportional decline at zones, and the proportions of use estimated for St. Missouri State parks in zone 111-in this cas .e, from Louisans in each area were recorded for each park 28.7 percent.in 1938 to 19.3 percent in 1960. located in that area. I These proportions have been , Although trend data for such a 22-year period seern implemented as' "multipliers" applied to gross more desirable as a basis for trend analysis than attendance data at state parks for the decade, 1950- the. trend data presented above in detail, two short- comings raise serious objections to such a con- NSee p. 174. tention. First, depression data are contrasted with Table C-S. Changes in estimat--d annual attendance at State parks in the St. Louis region by residents of the .St. Louis SMSA for the period 1950-19591/ 1950 1951 1952 1953 Per- Per- Per- cent cent cent Distance from St. Louis Attend- Per- Attend- Per- in- Attend- Per- in- Attend- Per- in- once cent once cent crease once cent crease once cent crease over over over 19501 1951 1 1952 Zone 1, 0-50 miles ................ 1,539,143 86.6 1,738,825 87.1 13.0 108,313 78.3 -2.9 1,143,943 78.3 -32.2 Zone 1, excluding Grand Marais 326,819 57.9 337,684 56.7 3.3 542,535 60.9 60.6 287,344 47.5, -47.0 Zone. 11, 50- 100 in i les * ........ 117,382 6.6 141,291 7.1 20.4 171,428 8.4 20.8 132,998 9.1 -22A Zone 111, 100-150 mil.esN .... 120,1951 @6.8 116,123 5-8 -3.4 .176,311 1 8.6 51.8 184,180 12.61 4.5 Totals, indii;dingi Grand Marais 11,776,720 1100.0 1,996,239' 100.0 12.4 2;036,052 99.9 f 2.0 1,461,121 100.'0 -2t2 Totals, excluding Grand,Marais. 564,3961,100.0 99.91 7.2 890,274 99 949.6 - 604,522: 10 '1954 1955 1956. ;Per- Per- Pin. cent cent cent Distance from St. Louis Atte nd- Per- in- Attend- Per- in- Attend- Per- in- once cent, creasl once cent crease once , cent crease over over over 1953 1954 1955 Zone 1, 0-50 miles ................................ 1,140,767 70.1 -0.3 870,247 65.4 -23.7 687,403 56.0 -21.0 Zone I, excluding,Grand Marais .................... 326,689 40.1 117 389,852 45.9 19.3 525,021 49.3 34.7 Zone 11,, 50-100 miles-2J ........................... 245,726 15.1 84.8 236,756 17.8 -3, 6305' 927 24.9 29.2 Zone 1,11, 100-150 mi.lesN ......................... 241,582 14.8 31.2 223 1210 16-81 -7.6 233,022 19.0, 4.4 Totals, including Grand Marais .................. 11,628,075 100.0 11.4 1,330,213 100.01 -18.3 1,226,352 99.91 -7._8 Totals, excluding Grand Marais ............. 1 813,997 100.0 34.6, 849,818 100.01 4.4 1,063,970 100.01 25.2 1957 1958 1959 Summary Aver- Per- age Percent Percent Percent cent annu- Distance from St. Louis Attend- Per- increase Attend- Per- increase Attend- 'Per- increase in- a[ once cent over once cent over once cent over crease per- 1956 1957 1958 1950- cent 59 in- crease Zone 1, 0-50 miles ................ 775,026 58.7 12.7 702,91.1 60.6 -9.3 665,698 51.4 -5.3 -56.7 -7.7 Zone 1, excluding'Grand Marais .... 599,902 52.4 14.3 592,629 56.4 -1.2 564,009 47.3 -4.8 72.6 10.3 Zone 11, 50-100 miles-2J ........... 313,405 27.4 2.4 219,353 20.9 -30.0 290,626 24.4 32,5 147.6 14.9 Zon S2/ ......... 231,025 2D.2 -0.8 237,762 22'.6 2.9 338,392 28.4 42.3 181.5 13.9 ,e 111, 100-150 mile Totals, including Grand Marais 1,319,456 100.0 7.6 11160,026 1000 -12.1 1,294,716 99.9 11.6 -27.1 -2.4 1 -8.3 1,193,027, 100.1 13.@@ 11.2 Totals, excluding Grand Marais 1 100.01 7.61 '049,744 999 1 1 -!/Data provided by the Department of Conservation, Division of Parks and Memorials, State of Illinois, and the Missouri State Park Board. 2/Percentages of attendance in any given year contri ,buted by State parks in zones 11 and III are computed from a base which includes Grand Marais State Park attendance. data on visits made in a period of relative prosperity. 2 percent. Moreover, the absolute St. Louis attend- Consequently, growth rates between 1938 and 1960 are ance estimates, were only slightly more than doubled seriously inflated. This contention is clearly estab- in the case of. zone. I parks since 1948, increasing lished by the observation that the greatest increases from 238,890 in . 1948 to 478,632 in 1960. In the in St. Louis visits to Missouri State parks in exist- other zones,, attendance estimates increased lessthan ence since 1938 occurred in the decade 1938-48. twofold. In the second place, although a State park Thereafter, the proportions of St. Louis visits made system had been established in Missouri as early as to parks in each of the three zones have remained 1917, lands were not acquired until 1924, and in 1928 relatively constant, in no case varying-by as much as more than 90 percent -of the acreage set aside for 190 Missouri State parks was devoted to game ref .uge trends. . When the attendance trends discussed above work. Not until 1933, with the impetus of a Federal are reviewed, it seems, at first, asthoughthe fdunda- Government improvement program, were park facili- tion they have provided is made up of shifting sand ties recognizeably improved, and an independent rather than, hard rock. Attend"@e data, in many State Park Board was not established until 1937, only cases were suspect, as, attested by those who pro- a year earlier than the year for which our earliest vided them.. Jn other cases data were incomplete, attendance data have been compiled. Consequently, and, in still others, totally absent. Moreover, in contrasts between attendance at unimproved or only some instances where seemingly reliable attendance recently improved State parks and attendance at trends were provided, it proved impossible to make highly developed State parks also provide mislead- any statistically defensible estimates of the contri- ingly high rates of growth. Our data on attendance bution St. Louis residents made to such trends. Con- at, State parks by St. Louisans strongly suggest that fronted with these shortcomings, the analyst can only' trends were not stabilized until the end of the forties do, the best he can with what he has by immersing with the consequence that trend data for the decade himself in the materials I at hand and using such 1950-60 are more revealing of "true" increases techniques as have been dignified by the terms, than trend data for a longer time interval. "inspection," "discernment," or, more frankly, Finally, The Missouri Conservation Commission has "reasoned guessing." . , provided attendance figures for some areas in its It is not, however, as though the trend data that control -'for the years 1950, 1955, and, 1959. These have been processed permitted no conclusions to data are of mixed, reliability, as acknowledged by temper future conjecture. Seven important findings the information officer of the commission, James F. in this respect have been disclosed: Keefe. 10/ Yet, where so few data are available, 1. Attendance at outdoor recreation facilities in some iii-aterials may be more preferable than none. the St. Louis region before 1950 was. seriously de- Attendance trends were compiled by the commis- flated by the combined effects of: (a), the Great -sion, for five wildlife areas in our region of study, ..Depression; . (b) World War H; (c) the generally two .reservations.,- and five.. fire towers. Of these, undeveloped state of the facilities; before 1940; and one wildlife area, one reservation, and, three towers. @(d)..the interruption of developments during World 'are located within 50 miles of St. Louis; one reser- :War II. vation and %two towers,- -between and 100 miles 2. Consequently, attendance trends 'at the facili- from the city; and the remainder, between 100 and ties studied were.quite probably noV*sItabilized until 150 miles away from St. Louis. Attendanceat these 1950. sites has increased almost 3 1/2 times between 1950 3. One onsite study at Meramec State Park sug@- and 1959, from 83,532 in 1950 to 280,441 in 196.0. gests that the proportion.of attendance contributed This rise in attendance is inflated in part by the by St. Louisans has remained remarkably constant fact that figures are not. available for zone III con- over a 22-year interval. servation. facilities in '1950, and one wildlife area 4. Probably there is a tendency over the years in that zone shows no figures until 1959, since the for St. Louis,.outdoor recreationists to range farther area was only recently established. Yet, if we and farther from the city center in their quest for. eliminate, the attendance figu es for the facilities facilities. However, close-in facilities-Missouri located in zone III,* the remaining attendance data State parks, Missouri conservation areas, and navi- do show an increase of almost three times over the gation pools on the Mississippi- are already taxed 10@year period. This. increase is @ almost evenly beyond capacity. As a consequence, themeremainte divided between zones I and . II. Because of the lack nan6e in the future of present attendance at- such of onsite studies, it is difficult, indeed, to estimate facilities poses serious problems for St. Louis out- the St. Louis contribution to these figures ,, but at door recreation. least 80 percent of the visits to the zone 1 facilities 5. The future state of race relations among out- were made by. St. Louisans. It is impossible to make door recreationists in the St. Louis region is an estimates 'for the facilities located in zone II. important contingency affecting futurepredictions. . There are absolutely no trend data available for 6. Only attendance figures for State parks, because attendance at. the other outdoor recreation facilities of the availability of onsite studies, provide adequate in the St. Louis region. What has occurred over the materials fdr statistical treatment in prediction years as far as the. use St. Louisans have made of eff orts. such State-controlled facilities as forests, fire 7. In general.,. water facilities will receive the- towers, wayside parks, etc., must remain a mystery greatest increases in pressure exerted by St. Louis at this, time. The case 'is similar for county and outdoor recreationists in-the future. municipal facilities, and this is particularly to be On, the, basis of these findings, then, State park deplored given the very intensive use St. Louisans attendance by St., Louisans is most amenable.to have made of such outdoor recreation sites as Creve conventional extrapolation. This has been done, Coeur Park, operated by St. Louis County. Finally, first, assuming no improvement in race relations no annual trend data for the use made of the many in the region over the years; second, assuming the commercial and private outdoor recreation resources ultimate, canc'ellation of the race contingency, For in theregion have been located at all. other attendance data, only the average annual growth The basic purpose of trend analyses is, of course, rates lend themselves to use in extrapolation. A to lay a firm foundation for the "prediction" of future f6reasoned guess" dictates that an average annual growth rate of 10 percent for attendance at other LO/Personal correspondence, dated June 15, 1961. facilities is defensible. A "high" guess would put 191 the rate at 20 percent, based on attendance increases which lessens the comparability of the data and at the more remote northwest na-,igation pools on necessarily tempers the analysis is the fact. that the Mississippi between 1955 and 1959. A "low" four of the six sites-the more distant parks-are guess would fix the rate at 6 percent, based on the located on or near water *impoundments. This was increased use of locks and dams in the extreme not true for any of the Missouri State parks we southeast of the study region over the decade, 1951-60, have analyzed in the 1938 study. Table C-6 brings Sheer attendance extrapolations, however, may together the 1938 and 1960 studies, contrasting the also convey incorrect impressions. Trends in the activities of all visitors to State parks in the St. use of facilities are quite obviously affected by the Louis region in 1938 with the activities of all visitors kind of use that 'is made of them, by trends in out- contacted in the 1960 studies, as Well as the St. Louis door recreation activities. In this case, of course, visitors contacted in those studies. data are even more sparse. Yet, what data are First of all, the fact that the activities of St. Louis available suggest highly interesting qualifications for visitors to the parks studied in 1960 do not vary the extrapolations that havebeen made of the attend-L greatly from the activities of all visitors to those ance figures analyzed above. parks should be noted. At the two close-in parks, Meramec and Pere Marquette, the proportions do not VWORS vary by as much as 2 percent for any activity. In the more distant parks, St. Louis visitors relax, Trends in outdoor recreation activities are avail- sightsee, and picnic less 'than all visitors, while able for visitors to Missouri State parks, but we have they fish and camp more frequently. In short, as been fortunate, indeed, to locate any trend informa- we have mentioned earlier and as we would expect, tion at all on changes in the character of outdoor the more distant the park visited by St. Louisans, recreation over the years. The 1938 study of Missouri the more focussed their outdoor recreation becomes. State park 'attendance recorded the activities of all The differences in activities at the more distant park visitors at each park in existence at the time. parks are probably differences between the activi- These activities were differentiated only by park ties of visitors who live in the park vicinities and site. No data are available on the social and eco- those, like the St. Louisans, who travel a greater nomic characteristics of the park visitors for whom distance to visit the parks in question. We will, the activities were recorded. Moreover, the early, consequently, focus this phase of the analysis on study reported only the, proportion contributed by differences in the activities of all visitors over the each activity to the total activities recorded, and 22-year period. we have used these proportions in our analysis. Interestingly, the so-called I 'urban patterns of out- To facilitate the trend analysis, the frequencies of door recreation ha@,e declined in fr equency over the activities were tabulated for all parks studied in years. At the park's closest to the central city, 1938 by the three concentric zones radiating out more than half of the activities reported in 1938 was from the central city of St. Louis. The results were comprised by sightseeing or auto riding, and this contrasted with the activities reported by samples of compares with about 40 percent of the activities visitors taken at five Missouri State parks and one recorded as relaxation or sightseeing in 1,960. The Illinois State park in 1960. To enable comparison, proportions are about the same in the two time periods the six parks studied in 1960 were arranged in three for activities recorded at the parks in the middle sets of two parks each at increasing distances from range of distance from the central city, while at the the central city. Thus, activities reported by visitors most distant parks sightseeing and relaxation in 1960 at Pere Marquette and Meramee State Parks in 1960 comprised 35 percent of the activities reported have been contrasted with activities recorded in 1938 compared to 52 percent for sightseeing in 1938. at all Missouri State parks in zone 1, within 50 miles This finding is rather remarkable in view of the of St. Louis. This contrast is not quite appropriate, tendency for many contemporary moralists to con- since Meramec State Park is located just inside zone strue the main shift in American recreation as a 11, 55 miles from St. Louis. Similarly, activities at shift from dignified participation to irresponsible Lake of the Ozarks and Wappapello State Parks re- spectatorship, e.g., sightseeing andrelaxation. These ported by visitors in 1960 have been contrasted with data certainly do not bear out such contentions. activities recorded in all zone II Missouri State parks Picnicking also shows a decline over the years in 1938, though the two parks studied in 1960 are in all but the most distant parks, perhaps reflecting actually located in zone III. Finally, activities at something of the inroad the backyard barbecue has Table Rock and Thousand Hills State Parks in 1960, made on this form of outdoor recreation at park both parks located just beyond the 150-mile distance sites. At the close-in parks, picnicking made up a which has been arbitrarily employed to demarcate f ourth of the activities reported in 1938 and only our region of study, have been compared with activi- about a seventh of the activities reported in 1960. ties recorded in all zone III Missouri State parks in At the parks located in the middle range of distance 1938. The nature of the available data dictated this from St. Louis, the decline is quite striking. There, kind of contrast. The decision may be defended, at picnicking made up 35 percent of the activities re- least in part, by the fact that all parks were more corded in 1938, but only 14 percent in 1960. Picnick- readily and directly accessible in 1960 than in 1938 ing at the most distant parks, however, has not so that somewhat shorter trips in 1938 may easily changed drastically over the years, and, in fact, have demanded as much time and eff ort from park shows a slight relative increase in the interim. visitors as somewhat longer trips undertaken in As opposed to these generally decreasing fre- 1960. Another feature of the 1960 onsite studies quencies for activities in the so-called "urban style," In all water sports are reported in .. increasing fre- at least in some degree. For example, at the most quencies over the 22-year period at all parks in distant parks, the proportion of St. Louis campers in each sector studied. The percentages for swimming 1960 exceeded the proportion of all campers in 1938, have quintupled at the close-in parks, almost tripled and was only slightly less than the 1938 percentage at the parks in the middle distance, and doubled at for the parks located at a middle distance from the the most remote parks. Percentages for fishing are central city. Nevertheless, the use of cabins and doubled in each sector, while boating shows a very motels for extended outdoor recreation travel has marked relative increase at the close-in and middle undoubtedly burgeoned. In 1938, almost 98 percent distant parks and has more than doubled at the most of the use made of State parks in the region was day distant parks. Undoubtedly this relative growth in use (98.6 percent). This ratio was practically un- water sports is, in part, a function of the data which affected by the distance between the park site for contrast activities in parks located at or near water which such use was reported and St. Louis. In 1960, impoundments in 1960 with parks not located at such of all visitors contacted at the six parks observed, impoundments in 1938. Howeveit, neither of the close- the proportion of those who remained for more than in parks studied in 1960-js locatedat-an impoundment, 1 day ranged between 40 -and 20 percent. This in- although both @rie located on rivers. At those parks, crease in overnight use is certainly not reflected in relative increases in water sports were as great as the camping trends that hEive been reported here, or greater than increases in the more distant parks, suggesting a very great increase, indeed, in the use where all parks studied in 1960 were located on of cabins, motels, and other commercial accommoda- impoundments.. A -more intensive analysis of these tions by outdoor recreationists in the St. Louis region. data reveals,. as we shall see, that these increases It has been explicitly recognized in this discussion -in water recreation are not merely artifacts of the that the time comparisons made are not the most kind of parks for which comparisons have been made. desirable. Ideally, activities in 1938 would be com- Trends in camping are more difficult to comp@e- pared with activities in 1960 only for the same out- hend because of their inconsistencies. Camping has door recreation sites. This has been possible for increased at the close-in parks over the years, but one site, Meramec State Park. Table C-7 shows the decreased at the more distant parks. Thismaysignal frequencies of all activities recorded for all visitors a rise in the popularity of such accommodations as at the park in 1938, all visitors sampled in the 1960 park cabins or motels at more distant sites. Perhaps, study, and St. Louis visitors contacted in that study. in the St. Louis region, when camping is embarked upon Facilities at the park have been considerably im- as a specific outdoor recreation, the activity takes proved over the 22-year interim, but the opportunity the path of least resistance. People who camp, camp for water sports at the site has not markedly changed. at the most accessible sites. When they depart for At Meramec, there is some evidence that the "urban more distant sites with such activities in mind as pattern' I of recreation has increased. Only 18 percent fishing or boating, they may well make use of more of the activities recorded in 1938 was given over to comfortable accommodations for their overnight stays. sightseeing, while sightseeing and relaxation made up Still, camping may facilitate those more distant trips almost 40 percent of the activiti6s reported in 1960 by 193 Table C-6. Outdoor recreation activities undertaken by visitors to Missouri State parks in the St. Louis Frequency of_activities recorded at State parks within 60 miles of St. Louis in 1938 and 1960 All visitors in All visitors St. Louis visitors Outdo6r recreation activities 1938 at Missouri contacted in 1960 canto *cted in 1960 State parks at 2 State parks at 2 State parks within 50 miles within 60 miles within 60 miles of St. Louis of St. Louis of St. Louis Number Percent Number Percent Number Percent Relaxing .............................................. .... .... 499 19.0 839 18.9 Sightseeing_2/ .......................................... 21,971 51.6 533 20.3 337 18.8 Swimming.2/ ........................................... 1,324 3.1 443 16.9 2�1 16.2 Picnicking .............................................. 10,941 25.7 380 14.5 261 14.6 Camping .............................................. 748 1.8 2134 10.8 200 11.2 Fishing ........ :........................................ 1,787 4. 262 10.0 182 10.2 Booting@/ ............................................. 206 0.5 111 4.2 72 4.0 OtherJ/ ................................... ............ 5563 13.1 113 4.3 1 1081 6.0 '@O 100.0 2,62.5 100.0 1,7901 99.9 Totals ............................................. 4 @2, i/Miss'ouri State Planning Board, "A State Plan for Missouri: Missouri State Parks Attendance and Use Data" (Missouri, Typescript, 1938), data provided by Michigan State University on Pere Marquette State park onsite study conducted for.ORRRC in-1960, and-data provided by Meramec Basin project at Washington University (St. Louis) on Meramec, Lake of the Ozarks, Wappapello, Thousand Hills, and Table Rock State Park onsite studies in 1960. 2ITallied, as "auto-riding" in 1938 study, but interpreted as "sightseeing" in that study. -2/Includes "wading" and "sun"thing" in 1938 study; "wading," "sunbathing," "water skiing," "skin diving," and "surf boarding" in studies., 194 region in 1938 and samples of visitors to 5 Aissouri State parks and I Illinois State park in 19601/ Frequency of activities recorded (it State parks 50-150 miles Frequency of activities recorded at State parks over 100 miles from St. Louis in 1938 and 1960 from St. Louis in 1938 and 1960 All visitors in All visitors St. Louis visitors All visitors in All visitors St. Louis visitors 1938 at Missouri contacted in 1960 contacted in 1960 1938 at Missouri contacted in 1960 contacted in 1960 State parks at 2 State parks at 2 State parks State parks at 2 State parks at 2 State parks 50_1 00 miles 100-150 miles 100-150 miles 100-750 miles over 150 miles over 150 miles from St. Louis from St. Louis from St. Louis from St. Louis from St. Louis from St. Louis Number Percent Number Percent Number Percent Number Percent Number Percent Number Percent .... 405 12.8 87 11.8 .... .... 328 12.8 29 11.9 .18,605 29.3 564 17.9 120 16.3 122,214 52.2 565 22.0 37 15.2 5,755 9.0 800 25.3 188 25.5 19,747 8.4 479 18.6 52 21.3 22,296 35.1 454 14.4 82 11.1 26,848 11.5 390 15.2 17 7.0 10,404 16.4 304 9.6 91 12.4 17,867 7.6 142 5.5 36 14.8 2,430 3.8 287 9:1 91 12.4 11,617 5.0 336 13.1 42 17.2 356 0.6 320 10.1 73 9.9 10,522 4.5 294 11.4 27 11.1 3,708 5.9 23 0.7 4@ 0.5 25, OV 10.8 36 1.4 4 1.6 63,554 100.1 3,157 99.9 9.9 233,892 100.0 100.0 244 100.1 @/lncludes "canoeing" and "rowing" in 1938 study; "motorboating "and "other boating" in 1960 studies, J/Includes "hiking," "horseback riding," and "softball" in 1938 study; "nature study," "games," "hiking ... .. horseboc'k riding," "mountain climbing," "listening to ranger talks," "visiting museums," "photography," and "other" in 1960 study at Pere Marquette State Park. all visitors and 36 percent of the activities reported of outdoor recreation, and its disappearance is quite by St. Louisans. Picnicking, in contrast, still shows probably not confined to the St. Louis region. a marked decline over the years between 1938, when AlthoujiCh_Sfate @ark -camping Itrends show marked it comprised 41 percent of the activities recorded, inconsistencies, trends on carnping* in the national and 1960, when it comprised only 15 percent. forests of Missouri, inferred from data provided only More significant -iIs the fact that all water sports for the forests in the Rolla District which begins about show an increased play in 1960 as compared to 1988, 60 miles southwest of the central city, show a probable for this contrast is focussed at the same site in the continued increase in both the frequency of campers two time periods. Swimming, fishing, and boating and the proportion of visitors who camp for the each show relative increases over the years, and the period, 1955-60. Table C-8 shows that the number of increases for fishing and boating are marked. St. campers and picnickers in these forests has doubled Louis water recreation 'is not different in these re- over the 6-year period at an average annual rate of spects from the water recreation of all Meramec increase of 21.9 percent. The proportion of all visitors contacted in 1960. visitors who camped and picnicked in these forests has risen over the interim from 9.7 percent in 1955 The one interesting decrease shown in table C-7 to 15.3 percent in 1960. Most of this increase has is the decreasing relative frequency of camping. occurred at the fore@@ts closest to St. Louis, where Camping at Meramec State Park comprised a fifth the number of campers and picnickers has risen 143.5 of all activities recorded in 1938 and about an eighth percent over the 6-year period at an average annual in 1960. Apparently the increases in camping at parks rate of 33.4 percent. In contrast, the rateof increase near St. Louis between 1938 and 1960 discussed earlier in campers -and picnickers at the distant forests is are accounted for by the relatively little camping 16.3 percent per year, although the number of campers recorded at the zone I parks in 1938, indicating that and picnickers at those forests has also doubled over the general trend may well be an artifact of the par- the time interval for which data are available. ticular, parks that were contrasted. We are inclined to There is no way to determine how much of this conclude that the relative frequency of camping at increase in camping and picnicking has been contrib- park sites in the St. Louis region is on the decline. uted by St. Louisans. Moreover, the lumping together This, of course, may not be reflected in absolute of the two activities makes it ver difficult, indeed, figures for campers at these parks. 7 to estimate whether the increases shown are genuirib A final observation seems in order; One activity, increa'ses in camping at the forests. However, if the hiking, has virtually disappeared over the 22-year decline in picnicking shown by the State park analysis period studied. No onsite study made in 1960 re- is a general decline, then, the rise in the popularity ported any noteworthy proportion or number of hikers. of camping at the national forests may be partially However, at Meramec: State Park in 193 8, the propor- obscured . by the data provided. At any rate these tion of hikers (2.6 percent) exceeded the proportion trends are much more consistent than the trends of boaters and almost equalled the proportion of revealed in the State park analysis. There are, of fishermen. Hiking may well be disappearing as a mode course, fluctuati -ons in the grow -th.rate of campers A5 Table C-7. Outdoor recreation activities undertaken by visitors to Meramec State Park in 1938 compared with a sample of visitors in 19601J All visitors All visitors St. Louis visitors in 1938 at contacted in 1960 contacted in 1960 Outdoor recreation activities Meramec at Meramec at Meramec State Park State Park State Park Number Percent Number Percent Number Percent Relaxing ............................ ......... ....... 4.52 19.7 292 20.0 Sightseelryl/ 7,698 17.8 436 19.0 240 16.4 y ........................ Swimming ............................ 5,039 11.6 426 18.6 274 18.8 Picnicking ............................ 17,751 41.0 332 14.5 213 14.6 Camping .............................. 8,967 20.7 277 12.1 193 13.2 Fishing ............................... 1,466 3.4 247 10.8 167 11.4 Boatin 356 0.8 98 4.3 59 4.0 Othe7/.' 1,992 4.7 26 1.1 21 1.4 Totals .......................... 43,269, -100.0 2,294 100.1 1,459, 99.8 -!/Missouri State Planning Board, op. cit. and data provided-by Meramec Basin project at Washington University (St. Louis) in 1960. -3/Tallied as "auto riding" in 1938, but interpreted as "sightseeing" in that study. -@/Includes "wading" (144 or.0.3 percent) and "sun-bathing" (35 or 0.1 percent) in the 1938 study; "water skiing" (24 or 1.0 percent for all visitors and 16 or 1.1 percent for St. Louis visitors) in the 1960 study. J/Includes "canoeing" (234 or 0.5 percent) and "rowing" (122 or 0.3 percent) in the 1938 study; "motorboating" (48 or 2.1 percent for all visitors and 26 or 1.1 percent for St. Louis visitors) and "other boating" (50 or 2.2 percent for all visitors and 33 or 2.0 percent for St. Louis visitors) in the 1960 study. J/Includes "hiking" (1,109 or 2.6 percent), "horseback riding" (682 or 1.6 perceht), and "softball" (201 or 0.5 percent) in the 1938 study. and picnickers at the forests. For example, in 1957 in State park, Meramec State Park, it was found that camping and picnicking fell off 26 percent at the forests camping had decreased proportionately between 1938 in question. Yet, the reasons for such fluctuations and 1960, while sightseeing and relaxation had in- are difficult to discern. They may be found in forest creased. These incongruous data may mean at least management practices as well as in trends in the three things. First, the character of Meramec State larger economy. As the forest supervisor, C.L. Park has changed in the* 22-year interim, as it has Harrison, has put it: become less of an "outdoor" recreation area and Some statistics tend to vary from what might more of a milieu for the realization of urban recrea- be expected. For example, the drop in camp and tion patterns. Second, St. Louis campers seek to escape such I 'urban milieux' I and visit less developed picnic use -on the Gasconade unit (zone III) in sites, such as national forests or the less developed 1957 resulted in our abandonment of facilities on -State parks. , Third, St. Louis campers do camp Highway '66. "Some rather steep increases on relatively close to home, when relatively undeveloped other units were the result of our opening new sites are available. On the whole, however, camping areas or expanding facilities. 11/ at parks and forests seems to have experienced a. Even so, the drop in camp and picnic use in the zone relative decline over the past several years as an 11 forests was greater in 1957 than the drop in zone outdoor recreation activity engaged inbySt. Louisans. III forests, suggesting that forest management deci- Trends in group camping for the St. Louis region, sions certainly do not constitute any total explanation in. contrast, indicate an overall consistent growth. of the fluctuations. Nevertheless, Supervisor Harrison There are 109 resident group camps in the area of has put his finger on one of the overriding difficulties study. Sixty-seven of these were described to us in in the assessment of outdoor recreation demand: the some detail by their operating agents or agencies, and, problem of determining the extent to which the in- of these, 45 provided information on date of establish- stitution of a facility creates a demand for its use. ment. Seven were established in the decade of the These divergent trends in camping activities need twenties; 11, in the thirties; 7, in the forties; and 20, to be brought together in one place so that the feasi- in the fifties. In other words, slightly less than half bility of speculations about the future of camping in of the group resident camps for which information is the St. Louis region can be assessed. We found that available have been established in the St. Louis region camping has increased at the close-in Missouri State within the last 10 years, although the date. of earliest parks since 1938, but has decreased at the more establishment for such camps goes back at least 40 distantparks. This same trend was found for camping years with the construction in 1920 of Camp Irondale, (and picnicking) at national forests between 1955 and a Boy Scout camp, about 60 miles southwest of St. 1960. Yet, when trends were examined at one close- Louis. Group camps for which information Is available on U/Personal correspondence, dated Mar. 30, 1961. date of establishment have been classified in five 196 categories: (1) State camps; (2) sectarian religious in St. Louis County, west of the central city. Also camps; (3) Scout camps; (4) private camps; and (5) a included were the St. Louis Public School system miscellaneous category micluding YMCA camps, a and, significantly, a Lutheran Parochial School. Only union health camp, and other assorted public health two schools in the St. Louis city system were partic- and municipal and county camps. Sectarian religious ipating in 1957, however, and these did not include camps comprised the greatest number (17) in these the pioneering Wyman School. . categories In 1960, followed by State camps (13). Students who participate in the camping programs Seven camps were included in the miscellaneous cate- are ordinarily expected to finance their own participa- gory, and dates of establishment were available for tion, although, in some cases, local PTA's may assist Y five Scout camps and three private camps in 1960. needystudents. Apparently this assistance is provided Table C-9 shows the distribution of group camps in only in subuiban communities and not in the central these categories by decade of establishment. city.L5/ Consequently, the growth in school camping Only State camps are marked by decreasing num- seems to be focussed in the suburban communities of bers of camps added over the 40-year period. They the SMSA, where increasing population growth con- had their greatest frequency of establishment in the trasts with the decreasing population of the central thirties, quite probably as a result of the impetus city. A further factor which may inhibit the growth provided by the Federal Government to State projects of school camping in the central city is the relatively which could offset the adverse effects of the Great high fee. In 1957, the fee at Jackson School in St. Depression. As a matter of fact, the State camps Louis was $23 for the week, equalled only by the fee established in the thirties obscure the characteristic in the relatively well-to-do suburban community of rise of group camping over the years. Nine of the 11 Webster Groves. Nevertheless, four ofthefiveschool camps established in the thirties were State camps. systems with school camping programs in 1957 en- The other two were introduced by sectarian religions. visaged future expansion, and, in 1958, eight school No camps in the remaining categories were established systems in the SMSA had established camping during the depression decade. If State camps are programs. 16/ eliminated from these considerations, the effects of At this fi-m- e there is no empirically founded knowl- the depression and World War 11, together with the edge about the ways in which recreation patterns are rapid rise in the establishment of group camps during established in personal life, although there has been the fifties, are clarified. For those remaining camps, speculation that they are established early, at least 7 were established in the twenties; only 2 in the among American men, perhaps in late childhood or thirties; 4 in the forties; and 19 in the fifties-well early adolescence. 17/ If this is the case, then the over twice the number developed in the comparable possible relative Tecline in family and personal decade of the twenties and more than were initiated in camping which can be inferred from the analysis of the entire preceding 30-year period. In an assessment trends in State park activities could mean that larger of these trends, particular attention must be given to and larger propor-tioms oif st.- Louis -children will be the development of group camps by sectarian religions, --deprived of the opportunity to learn outdo6r-r-ecreation for the church is still one of the principal "secondary" patterns such as camping. The growth of group agencies of socialization for American children. camping in the "secondary" socialization agencies of Sociologists are in almost unanimous agreement the church and the school could temper this possible that the functions of the family are increasingly being eventuality, but this will be the case only if the camping preempted by other institutions as the society becomes sponsored by those agencies is interpreted as a urbanized.12/ One of the main preempting institutions genuine outdoor experience by the children who in this reggid is the school. Of no small import, then, participate rather than as a mere shift in the context is the emerging program. of the schools in the St. of religious and educational routine. Louis SMSA which builds camping into the regular If the data on camping in the St. Louis region are school curricula. In 1948, school camping in the St. fraught with inconsistency and contradictory tenden- Louis Public Schools was instituted as a pilot project cies, trends in water sports, as we have shown, by two eighth grade classes in the Wyman School. stand in sharp contrast. Materials provided by the Each class spent I week in the spring of the regular Corps of Engineers support the conclusion drawn from school year at She -rwood Forest Camp in Troy, Miss., the State park analysis. The fact that the number of _&b6ut_45 miles west of St. Loul ISJS/ _h @1957, @five_ pleasure craft locked through the 12 locks in the school systems in the SMSA participated in the camping Rock Island District of the corps more than quad- program, indicating a I I slow but steady growth. 11 14/ rupled between 1952 and 1960 has already been noted. These systems included Clayton, University City, Tnd Data are available to pinpoint this general trend in Webster Groves, the largest autonomous communities the St. Louis region. The looks include two navigation pools on the Mississippi River in the area of study more than 100 miles north and west of St. Loui@. L2/One of the earliest statements of this tendency is found in Between 1952 and 1960, the number of pleasure boats William F. Ogburn, "The Family and its Functions," ch. 13 passing through the locks and dams at both of those in "Recent Social Trends in the United States" (New York: McGraw-Hill Book Co., Inc., 1933). U/Sherwood Forest Camping Association, "Material for School U/Sherwood Forest Camping Association, op. cit., passim. Camp Manual," (Typescript, no date), p. 1. L6/Social Planning Council of St. Louis and St. Louis County, M/Socicl Planning Council of St. Louis and St. Louis County, a . cit., p. 20. "Camping Needs in the St. Louis Area," (St. Louis: Mimeo- 17/S:e, for example, Gregory P. Stone, "American Sports: Play graphed, April 1958), p. 19. and Display," "Chicago Review," IX (fall, 1955), p. 90. 197 Table C-8. frequencies of campers and picnickers at national forests 1955 1956 1957 Distance from St. Louis Attend- Percent Attend- Percent Percent Attend- Percent Percent of all of all increase of al I increase once visitors once visitors over 1955 once visitors over1956 Zone 11, 50-100 miles ............... 28,550 7.8 29,300 4.6 2.6 17,600 6.6 -39.9 Zone I I 1,@ 100- 150 mi les ............. 33,900 12.1 31,850 9.9 -6.0 27,340 9.0 -14.2 Total campers and picnickers . . 62,450. 9.7, 6,11,150. 6.4 -2.1 44,940 7.9 -26.5 .!/Data provided by forest supervisor, Missouri National Forests, Rollo, Missouri. pools-more than doubled, increasing 108 percent I over "land counterpart") hunting licenses in the St. Louis the 9-year period at an average annual rate of increase SMSA. These data can shed light on the perplexing of 12.2 percent. The peak year in this period was question of the proportion of residents in the St. Louis 1957, when 8,454 pleasure boats passed through the SMSA who participate in at least the outdoor recrea- pools, representing more than three times the number tion activities of hunting and fishing. Data were of pleasure boats passing through the pools in 1952. also provided by the Illinois Department of Conser- Also included in the growth of water sports in the vation, but time series were not available for the two St. Louis region is fishing. It has. been shown that Illinois counties in the St. Louis SMSA. the ,increasing frequency of fishing at the Missouri We are quite sure, then, that the number of fishermen State parks in the area of study riot only holds for in the St. Louis region has shown an increase over park visitors generally, but is somewhat greater when the last decade. Fewer data are available onhunters. St. Louis visitors in 1960 are contrasted with all Specifically,, only one count is available, but that visitors in 1938 at those parks. The trend was does, suggest an increase in hunters for the region. clearly established in the analysis of the activities At the Duck Creek Wildlife Area, located about of visitors at Meramec State Park in the two time 115 miles south of St. Louis, 5,740 hunters were periods. Data provided by the Corps of Engineers counted in 1955; 13,369 in. 1959. At least at that on the two navigation pools north and west of, St. area, hunters more than doubled in a 5-year period. Louis within the area of study do not show a startling Perhaps this also reflects a general trend, and increase in the number of fishermen at those points moreover, a trend in the outdoor recreation of between 1950 and 1960. As a matter of fact the number St. Louisans. of fishermen Lnoted at the two pools in 1960 was Table C-10 shows that the sale of hunting and 13.6 percent less than the number noted in 1950. fishing licenses in the Missouri portion of the St. However, this decrease is misleading, since there Louis SMSA increased almost 2 1/2 times between was a sharp dropoff of fishermen at the two,pools 1938 and 1958. A more realistic contrast, avoiding in 1960. Actually, the number of fishermen at the the effects of the depression, shows a 17 percent two pools has grown steadilk, but slowly, over the increase in the sale of hunting and fishing licenses 11-year period at an average annual rate of increase in the Missouri portion of the St. Louis SMSA of 3.6 p ercent. Moreover, if the data on fishermen between 1948 and 1958. However, this increase are examined for a comparable period to that for is almost completely a function of population growth which the data on pleasure boating have been compiled over the interim. When the proportions of eligibles- 4952-60), an -increase of 38.7 percent is shown for persons, 16 years of age or older-who purchased the interim. Between 1952 and the peak year of hunting and fishing. licenses in 1948 and 1958 are recreation activity at the two pools, 1957, the number contrasted, we find that the relative increase is of fishermen increased more than 2 1/2 times. very slight,. indeed. Fifteen percent of those eligible Thus, there is further confirmation for the general to purchase hunting and fishing licenses in the growth of the popularity of this water sport in the Missouri portion of the St. Louis SMSA did so in 1948; St. Louis region. 17 percent did so in 1958. Of course, the depression A prime obstacle to the interpretation of this year, 1938, shows a lower proportion of eligibles growth in the popularity of water sports is provided (8.2 percent) purchasing hunting and fishing licenses by the fact that the data tell us very little about in the Missouri portion, of the SMSA than the the contribution St. Louisans have made to the change. proportions for 1948 and 1958. At best, as in the analysis of the State park materials, Of more interest to the sociologist than the fact they tell us that St. Louis visitors to selecte 'd that population growth may well account, for increases Missouri State parks in 1960 devoted more of their in hunting and fishing by St. Louisans- between 1948 activities to water sports than did all the visitors and 1958 is the effect of urbanization that can be to somewhat comparable State parks existing in discerned in table C-10. The Missouri units of the 1938. Moreover, the data provide no indication at St. Louis. SMSA are arranged in terms of increasing all of the proportion of St., Louisans engaged In such urbanization, with St. Charles County as the least sports. Fortunately, the Missouri Conservation Com- urbanized unit, and, of course, St. Louis City, the mission, exerting considerable effort, has turned up most urbanized. At each time period for which' some time series data on fishing licenses and (their data are available, the more urbanized the unit, the 198@. (Rolla District) in the St. Louis region for the period 1955-19601/ 1958 1959 1960 Summary Percent Percent Percent Percent Percent Average Attend- Percent , Percent Attend- Attend- annual ance of al I increase once of all increase once of all increase increase percent visitors over 1957 visitors over 1958 visitors over 1959 1955-60 increase 43,300 8.4 146.0 66,610 10.4 53.8 69,515 13.0 4.4 143.5 33.4 34,900 9.5 27.6 50,040 13.2 43.4 70,362 40.6 107.61 .16.3 1 78,2001 8.81 74.01 116,16501 11.51 49.21 139,877 15.3 19.91 .108.01 21.9 less the proportion of eligibles purchasing hunting Table C-9. Establishment of 45 group camps in the and fishing licenses, the only exception being the St. Louis region between 1920 and 1959 proportions for St. Charles and Jefferson County in 1938, where the latter proportion only slightly Type.of Decades exceeded the former by less than 1 percent. Thus, group camp Totals urbanization, seems definitely to have the consequence 1920-29 1930-39TI940-49 1950-59 . of producing a re lative decrease in the, proportion State .... 9 3 1 13 of people who engage in such forms of outdoor Sectarian religious. 3 2 1 11 17 recreation as hunting and fishing. This effect is Scout ............ 2 ... ... 3 5 underscored when the proportions of eligibles in the Private ........... I ... 1 1 3 Missouri portion of the SMSA are contrasted with Miscellaneous .... 1 2 4 7 the proportions for the State as a whole. Again, in each time period, the former proportions are less Totals ...... 7 11 7 20 45 than the latter, and the contrast would be even sharper, had the computations for the State as a whole omitted the license sales for . the St. Louis activities as hunting and fishing and move more in SMSA. Thus, the proportion of eligibles in the the direction of what we have called the "urban Missouri portion of the St.. Louis SMSA who purchase style" of outdoor recreation. hunting and fishing licenses is markedly lower'than In this regard, the results of the State park trend the proportion of eligibles purchasing licenses in the analysis may be misleading. consider the rise of remainingless urbanized segment of the State. boating as a popular sport in the last two decades. Ignoring the depression year, 1938, we are even What does it mean? For one thing boating has more interested in the trends taken in the proportions become at many sites merely a si;@ulation of the of eligible St. Louisans who have purchased licerises American "highway culture." The boat is symbol- for the different units of the Missouri segment of ically an automobile. We need not even defendthis the St. Louis SMSA. Between 1948 and 1958, the assertion: many motorboats have tailfins! Moreover, proportion of eligiblespurchasing hunting and fishing drive-ins have arisen at many lakes in the St. Louis licenses in the State as a whole rose 4.8 percent. region. We have observed that motorboatingfor many In St. Louis City, the proportion decreased from of its adherents in the area of study consists merely 13.1 percent in 1948 to 11.0 percent in 1958. In of burning up gasoline (one is reminded of drag- St. Louis County, the proportion increased only racing), stopping momentarily at a lakeside dock, 3.8 percent, less than the increase for the entire where hamburgers and malteds can be'purchased state; in Jefferson County, the increase was, again, from "boat-hops," stuffing the snacks into receptive slightly less than that for the entire State, an increase salivating mouths, and resuming the 11dragracell of 4.2 percent; and, in St. Charles County, the until the gasoline supply has been exhausted. The proportion actually decreased 5.8 percent. Signifi- reader is invited to compare canoeing. Note also cantly, for the latter two counties, increases between that "auto-riding" was interpreted as 11sightseeing" 1938 and 1948 were greater than the increase in in the 1938 study. An extreme view might well proportion of eligibles for the state as a 'whole. interpret the inotorboating of the sixties as merely This is of fundamental theoretical significance, for it a new variety of I sightseeing or spectatorship rather may mean that outdoor recreation patterns in the than "active" outdoor recreation. future will be affected more by the urbanization Of The reports of hunting and fishing license sales in suburbia rather than the suburbanization of the Illinois, including the Illinois portion of the St. Louis metropolis. In short, as the suburb becomes large, SMSA shed some additional. light on our previous dense, and socially heterogeneous, 18/ its population interpretations. Table C-11 shows, as, we have ,Adll engage less and less in such 6u--tdoor- recreation stated 'before, 19/ that the proportion of eligibles purchasing fisRiiiig licenses was less in the more L'/Lou .is Wirth's classic defin .ition of the city singles out size, urbanized St. Clair County than i n the less urbanized density, and social heterogeneity as the crucial definitive Madison County in the year 1956. The.. greater characteristics. See his "Urbanism as a Way of Life," American Journal of Sociology, XLIV (July, 1938), pp. 1-24. 19/See pp. 178-179. 199 Table C-10. Hunting and fishing license sales for the State of Aissouri and Aissauri units of the St. Louis SMSA in various years between 1938 and 19601" 1938 1948 1950 1958 1960 Population Percent of Percentof Percentof Percentof Percentof unit Number eligibles Number eligibles Number eligibles Number eligibles Number eligibles (1940base) (1950 base) (1950 base) 10960base) (1960 base) State as a whole (Missouri) ........ 283,742 10.0 691,401 23.7 ....... . ...... 853,454 28.5 ....... Missouri units of St. Louis SMSA: St. Charles County ....... 2,967 15.8 9,282 43.1 ....... ...... 12,335 37.3 ....... ..... Jefferson County ...... 3,776 16.3 8,366 31.6 ....... ...... 14,854 35.8 ....... ..... St. Louis County ....... 23,208 11.3 48,714 16.7 61,947 21.2 93,853 20.5 99,480 21.7 St. Louis City 43,229 6.7 87,415 13.1 90,3661 13.6 59,3981 11.0 57,211 10.6 Total Missouri portion of St. Louis SMSA ............ 73,180 8.2 1 753,M 15.3 ....... ...... 180,440 76.8 ........ ..... j/Data, reported as combined hunting and fishing license sales, were provided by the Missouri Conservation Commission. Table C-11. Hunting and fishing license sales for the State of Illinois and Illinois units of the St. Louis SASA in various years between 1940 and 19591/ 19402/ 1950 1956 1958 19592/ Percent Percent Percent Percent Percent Percent Population unit and of of of of' of of type of license 'Number eligibles Number eligibles Number eligibles eligibles Number eligibles Number eligibles (1940 (1950 (1950 (1960 (1960 (1960 base) base) base) base) base) base) State as a whole (Illinois): Hunting ......... 326,182 5.4 493,641 7.6 553,039 8.5 7.9 501,619 7.2 497,142 7.2 Fishing ......... 411,143 6.8 735,305 11.3 811,583 12.4 11.7 729,096 10.5 678,455 9.8 Hunting and fishing com- bined ......... 737,325 12.2 1,228,946 18.9 1,364,622 21.0 19.6 1,230,715 17.7 1,175,597 16.9 Illinois units of St. Louis SMSA: Madison County fishing ........ ...... .... ........ .... 28,412 21.5 19.0 ........ .... ........ .... St. Clair County fishing ........ ...... .... ........ .... 29,560 19.4 17.3 1 ......... .... ........ .... Total Illinois portion of St. Louis SMSA: Fishing. ...... ..... ......... . ..... 58,002] 20.4. 18.1 ........ .... ......... .... Data provided by Departmentof Conservation, Division of Parks and Memorials, State of Illinois. 21 Nonresidence license sales included in 1940 and 1959 figures. 200 urbanization of the State of Illinois, compared to acreage. Even so, when future plans were considered, Missouri, is probably reflected in the lower proportion it was found that Federal plans, taken together, of eligibles purchasing hunting and fishing licenses project the largest proportionate acreage increase in the State as a whole.. Moreover, between 1950 of any government or private agency. In an unspecified and 1958, the proportion in the State as a whole future, the various arms of the Federal Government has declined in contrast to the Increasing proportion contemplate increasing their present holdings by in Missouri between 1948 and 1958. This again 16 percent. Should these plans materialize, Federal may be a consequence of the more rapid rate of lands and waters available for outdoor recreation urbanization in Illinois. would be increased by about 30 percent within 50 These materials on hunting and fishing license sales miles of the central city; by 27 percent between complete our analysis of trends in outdoor recreation. 50 and 100 miles of the city; and by about 10 percent Beyond them, there are no additional adequate data. at a greater distance up to 150 miles from St. Louis. A rounded picture of trends in outdoor recreation However, competition within the Federal Government would, of course, include additional information. In and outside for control of some proposed facilities particular, time comparisons of the social and eco- will certainly affect the chances that these plans nomic characteristics of outdoor recreationists in the have for materializing. This need not work to the St. Louis region are desirable to detect shiftsi if any, detriment of St. Louis recreationists. For example, in the racial and occupational composition of the an area will almost certainly be established on the outdoor recreation "market." What informationdoes Current and Eleven Point Rivers in the Ozarks. exist on these matters, however, is highly suspect. Whether that area is administered by the Park For example, the 1938 study of Missouri State park Service or the U.S. Forest Service will not affect attendance did inquire into the race and occupation its availability. of Missouri residents, along with their outdoor More than three-fourths of the State park acreage recreation practices, by means of a mailed question- in the St. Louis region was established by the end naire. The result was a self- selected sample, showing of the thirties, but only somewhat more than half of the usual bias of overrepresentation in the higher the park sites. The trend, consequently, has been in reaches of occupational status and an infinitesimally the direction of more smaller parks since the thirties. low Negro return. No parametric estimates can be An increase of about 11 percent in State park acre- made from this ]kind of sample, nor do the results age is contemplated for the future, with the greatest permit any quantitative comparison with the 1960 increases between fifty and one-hundred miles from onsite materials. It probably is the case that the the central city. proportion of Negro visitors to Missouri State parks in 1938 was very low, as it was In 1960, but confidence Other trends in facilities were more difficult to limits for this kind of estimate cannot be established. discern, revealed in many instances only by inference It makes patent sociological sense, however, and the from future proposals. These showed that county fact that this small proportion of Negro visitors and municipal governments will augment their present to Missouri State parks has persisted from the outdoor recreation acreage in the future by at least inception of the park system is an added barrier 13 percent. Private citizens in the region are beginning to extrapolation and future forecasts, since the use to form coroporations for the development of outdoor Negroes make of outdoor recreation facilities h-.ts had recreation areas, and this may be a significant a serious effect on their overall use. phenomenon, for these corporations are focussing their efforts, for the most part, on the development SUMMARY of water facilities. Water facilities, as we have shown time and time again, are in great undersupply in the Because this discussion of trends in outdoor recrea- region. Farm acreage in woodland was relatively tion has been so extensive, it is advisable to provide unchanged between 1930 and 1954 in the St. -Louis a condensed review as a context for our forecasts to region, and there is no reason to expect any drastic 1976 and 2000. Trends have been treated with respect change in the future. Figures on Missouri farm to: (1) outdoor recreation facilities; '(2) attendance at ponds stocked with game fish in 1950 and 1959 Federal and State sites; (3) St. Louis attendance at recorded their greatest' increases in the counties State Parks in the area of study; (4) activities at located less than 50 miles,from St. Louis, probably Missouri State parks; (5) camping and picnicking reflecting an increasing metropolitan demand for at national forests in Missouri; (6) group camping; 6lose-in fishing sites. In general, privately owned (7) water sports; and (8) hunting and fishing license facilities have increased close to the central city, sales. while Federal and State co -ntrolled facilities have It was shown that most Federal lands available experienced their greatest growth beyond 50 miles to outdoor recreationists in the St. Louis region from St. Louis. were established in the thirties, and many water sites This pattern does not necessarily require future were under development by the Corps of Engineers alteration or reshaping, in view of the fact that at the end of that decade or just prior to World War II. estimates of St. Louis attendance trends at National Subsequently, the development of those facilities was and State sites show their greatest growth at the more interrupted by the war and did not move into full distant areas. A single exception is provided by swing until the fifties. Since World War II, there- the greatly increasing pressure on water facilities fore, the trend in Federal facilities takes the form on the Mississippi River close to St. Louis. In fact, of intensive development in areas existing since the entire analysis underscores the great need for the thirties rather than the addition of recreation additional water facilities close to the city. As far 201 as land sites are concerned, the need for close-in in park campers, as a consequence, may mislead facilities is not at all as urgent. observers in their, interpretations of changes in the IAttendance trend data were available only for relative popularity of park camping. Furthermore, Federal And State sites, and ', in some cases, the small changes in the relative popularity of camping data were incomplete. However, for those sites at At State parks probably indicate that some activities, which attendance had been recorded, increases have like camping, are more completely geared into occurred across the board. Between 1955 and 1960, population trends than is the case for other activities, attendance at the national forests in the region rose like water sports. 44 percent. At the Crab Orchard National Wildlife A more focussed analysis of trends in recreational Refuge, Attendance quadrupled between 1947 and activities, comparing the activities of all visitors 1959. Between 1951 and 1960, attendance at five to Meramec State Park in 1938 with the activities locks and dams and two reservoirs operated by the of St. Louis visitors in 1960 confirmed the results Corps of Engineers increased 35 percent and 117 of the more extensive survey with one exception: percent, respectively, while attendance at two navi- only 17.8 percent of the activities recorded in 1938 gation pools doubled between 1955 and 1959. State was comprised by "sightseeing," while 16.4 percent park attendance in the region rose 50 percentbetween of the activities reported by St. Louisans at the 1950 and 1959 and more than tripled in the same park in 1960 was I'sightseeing" and 20.0 percent, period at selected Missouri Conservation Commission 9'relaxation.11 Otherwise, swimming, fishing, and sites. boating increased proportionately over the period, St. Louis residents, of course, accounted for while picnicking and camping declined. varying proportions of these increases, and their The overall trend in camping is rendered even more contribution has been estimated. In all, 4,529,000 difficult to grasp when other data are considered. visits were added to the attendance at various sites For example, information on activities in national in the different periods studied up to 1960. If we forests of Missouri, permit the inference that camping omit St. Louis attendance trends at Grand Marais doubled in popularity between 1955 and 1960. How- State Park, because they show a dramatic and rapid ever, this possibility cannot be nailed down, since decline, then St. Louisans probably accounted for at campingwas combined with picnicking in the tabulations least a fourth'of the gross increase- 1,135,000 visits. provided by the forest supervisor. The national forest A more intensive analysis of these attendance materials on activities also precluded estimates of trends established the obviously negative influence the contribution made by St.. Louis residents to the of war and depression on outdoor recreation in.the upswing in camping and picnicking. region, suggesting that such trends were probably Trends in group camping in the St. Louis region not stabilized until 1950. The intensive. analysis showed a consistent growth with a marked increase also provided some reason for suspecting that the in the fifties. The rise was most apparent inthe case proportion of St. Louisans to total park visitors of group camps established by sectarian religions. at any given facility has not changed markedly over That growth, coupled with the emergence of a camping a 22-year period. Although St. Louis residents have program in the school systems of the St. Louis tended over the years to range further and further SMSA is very i .mportant, since the "secondary" from the central city in their pursuit of outdoor socialization agencies of the church and school fill recreation, close-in facilities are already severely the gap left by the possible decline of familyand taxed, and the mere maintenance of pressure on personal camping shown by the State park materials. facilities near the city-particularly on water Although the "primary" socialization agency, the facilities -poses serious problems for the future. family, may less and less -frequently provide a milieu Finally, the intensive analysis showed that the state for the training of young outdoor recreations in of race relations is an important factor in the the skills and pleasures of camping, churches and assessment of changes in outdoor recreation demand schools show increasing attention directed precisely in the St. Louis region. to the provision of this learning context. Outdoor recreation activities among urbanites are relatively more frequently devoted to "relaxation," As far as trends in outdoor recreation activities "sightseeing," and "swimming" than is the case are concerned, then, shifts in camping popularity for residents of small towns and rural areas. With and styles are difficult to comprehend as a whole the exception of swimming, this "urban pattern" and their interpretation is fraught with qualification has diminished somewhat between 1938 and 1960 and contingencies. In contrast, trends inwater sports at the State parks of Missouri. Swimming, along show a clear, consistent, and impressive growth. with the other water sports of fishing and boating, This is true not only at State parks in the region, but has increased at these State parks. Trends in camping at other sites. Pleasure boating doubled at two at the parks are more irregular, but indicate that navigation pools above St. Louis on the Mississippi more luxurious accommodations, such as cabins and between 1952 and 1960. Over the same period, the motels, may be experiencing a more rapidly increasing number of fishermen counted at the pools increased use by outdoor recreationists in the St. Louis region more than a third. than camping accommodations, since increases in State None of these trend data permitted any consideration park camping have not kept pace with increases in of the proportion of St. Louis residents in attendance overnight stays at State parks between 1938 and 1960. at a site or engag ing in any particular outdoor Of course, small changes in proportions over a 22-year recreation activity. Materials on hunting and fishing interim may easily signify sizeable absolute changes, license sales in various political units of the Missouri and contemporary concern about absolute increases portion of the St. Louis SMSA, on the other-hand, 202 helped considerably to overcome these shortcomings. licenses decreased with increasing urbanization in The Missouri Conservation Commission provided each of the 3 years examined. Trends over time figures on hunting and fishing license sales for are of more theoretical significance. They permit St. Charles County, Jefferson County, St. Louis the inference that outdoor recreation patterns in the County, and St. Louis City in 1938, 1948, and 1958, future may be more affected by the urbanization of enabling the discernment of trends in the proportions suburbia than by the suburbanization of the metropolis. of eligible St. Louis hunters and fishermen over a Changes in the proportion of eligibles purchasing 20-year period. Since 1938 was a depression year, hunting and fishing licenses over the time period an overall increase was expected between that year studied were clearly decelerated as the suburban and 1.958. This was the case, but the rate of increase unit became more dense, large, and socially heter- in the SMSA-from 8.2 percent of the eligibles in ogenous. Less complete data for the Illinois portion 1938 to 16.8 percent in 1958-was less than that of the SMSA substantiated the inference. for the State as a whole. Between 1948 and 1958, In sum, the demand for outdoor recreation in the the proportions increased very slightly in the SMSA- St. Louis region has been increasing steadily since from 15.3 percent to 16.8 percent-while State pro- 1950, as measured by attendance trends at various portions rose from 23.7 percent to 28.5percent. facilities. This rising demand is manifestly focussed These materials also established that urbanization on water sports. The demand for the more "woodsy" has a depressing effect on hunting and fishing. type of outdoor recreation, in contrast, 'may be Arranging the units in order of increasing urbanization, severely constricted by urbanization, although this with St. Charles County least urbanized and St. Louis may be obscured by absolute increases in attendance' City most highly urbanized, it was found that the as well as in numbers of hunters and campers due proportion of eligibles purchasing hunting and fishing to increases in population. 203 CHAPTER FIVE FORECASTS FOR 1976 AND 2000 Hindsight is notably more accurate than foresight as three or four visits in that year. We turn now to in the social sciences, and spectacular failures in the extrapolation of visits by St. Louisans to State prediction efforts-the failure of the Literary Digest parks in 1976 and 2000. poll to predict the 1936 landslide election, the failure Estimates of such visits from 1950 to 1959 were of demographers to predict the post-World War II presented earlier in table C-5. Inspection of the table baby boom, the failure of many economists to predict reveals that the inclusion of visits at Grand Marais a postwar economy devoid of a large-scale and devas- State Park results in an exponentially decreasing tating depression, all these-continue to haunt the curve for visits to parks within 50 miles of St. Louis social scientist's envisionment of the future. When which would approach zero by 1976. The top trend he attempts to forecast the future from an empirical line.infigure C-3 presents these materials graphically. base that is, itself, suspect, his task is no longer Although the curve is obviously exponential, a straight merely unnerving. It is frankly impossible, even. line extrapolation would show that attendance at all inconceivable. Consequently, our forecasts for 1976 State parks within 50 miles of the central city would and 2000 of the demand for outdoor recreation In the reach zero in 1972. This seems obviously unrealistic. St. Louis region are perhaps best described as in- As a consequence, the attendance figures for zone I conceivable estimates firmly anchored inindefensible State parks were recomputed, omitting Grand Marais data. We have done more than we can with what little State Park. The bottom trend line in figure C-3 we have. presents those results graphically. Although there are Many and varied assumptions condition the predic- considerable fluctuations around the regression line, tions of social scientists. Seldom are they totally the interpretation of the trend as a straight line trend explicated, and often they cannotbe. Whenpredictions seems reasonable. If this is the case, and, if the of the type undertaken here are made, the assumptions trend continues in the future (i.e., assuming, in fact, cannot be fully explicated for many are not even that attendance trends were stabilized in the decade known. The social science study of leisure and, in of the fifties), then we can predict that attendance by particular, of outdoor recreation is in its infancy, St. Louisans at zone I parks will rise to 1,099,000 in and, like all infants, will learn from mistakes. 1976 and to 1,824,000 in 2000, compared to an ob- However, three assumptions are paramount and seem served attendance of 564,000 at those parks in 1959, or obvious. First, we must assume that the United States a predicted attendance of 595,000 in 1959. In other will not become embroiled in a nuclear war. Second, words, attendance at zone I parks by St. Louisans will we assume that the major depression of the thirties almost double (increase 1.9 times) by 1976 and more was, in fact, the last depression. Finally, we assume than triple (increase 3.2 times) by 2000. that the work ethic in the United States will be in- Use of the standard error of estimate (SY, in figure creasingly displaced by consumption concerns. C-3) can lend more confidence to the forecast. We We have shown in our discussion of attendance can be pretty sure, if our earlier assumptions hold, trends that only attendance figures for State parks in and, if observed values are normally distributed around the St. Louis region provide adequate materials for the regression line, that St. Louis attendance at these statistical treatment in prediction efforts. Even here, parks in 1976 will fall between the predicted value as we have said, there are limitations. Some esti- plus or minus 2 times the standard error of estimate, mates were suspect because of inappropriate tech- or between 1,267,000 and 931,000. In 2000, the upper niques. For example, traffic counts as a basis for limit of estimate is set, in this way, at 1,992,000, and attendance estimation may be very unrealistic. They the lower limit at 1,656,000. These limits, however, will be inflated by the tendency for some visitors to do not substantially alter the rates of increase an- go back and forth between the park and other locations ticipated: attendance at zone I parks will about double and by those who merely pass through the park on by 1976 and about triple by 2000. their way to other destinations. Some estimates were What could totally negate these predictions is the suspect because they were made out of political or possibility that the situation at Grand Marais State budgetary considerations. Finally, the severe drop- Park is, in fact, prototypical for all zone I parks. off in attendance at Grand Marais State Park between This is unlikely for at least three reasons. First, the 1950 and 1959 affects the entire pattern of change in decline is not totally due to the desegregation of the the figures. park. A reliable source, preferring to remain anony- The reader should also be reminded that visits to mous, has indicated that the decline in attendance at State parks constitute our measure of demand. Visits the park is in some part a result of a changing will always exceed outdoor recreationists. Our esti- political administration and consequent changes in mate of 8 million visits made by St. Louisans to park personnel (stemming from the political integ- various outdoor recreation sites and facilities within umentation of much of the park administration in the 150 miles of the central city in 1960, for example, State of Illinois) which made for "more realistic" means that each St. Louisan might have made as many reporting of attendance figures at the park. Second, 204 ATTENDANCE UN THOUSANDS) Y=4525.6215 - 63.1273X 1,800 SY Not Computed Predicted Values: 1950=1369 1959-- 8C[L 1,700 1976-- 0 2000= 0 1,6oo 1,500 - 1,400 - 1,300 - 1,200 - 1,100 - 1,000- 900 - .800 - 700 - 6oo woo 500 - too* 00 4oo - 300 - Y= -1197.2594 + 30.2121X Sy--84 260 - Predicted Values: 1950=313 1959=595 19?6--1,099 2000=1,824 100 1950 1951 1952 '1953 1954 1955 1956 1957 1958 1959 FIGURE C-@. REGRESSION LINES FITTED TO ESTABLISHED ATTENDANCE BY ST. LOUISANS AT STATE. PARKS WITHIN 50 MILES OF THE CENTRAL CITY IN -THE PERIOD 1950-1959. DECREASING ATTENDANCE CURVE INCLUDES GRAND MARAIS; INCREASING CURVE DOES NOT. 205 the park is symbolically an "urban park." Parks in would seem advisable to recommend forecasts in the cities or very close to cities seem to receive more direction of the upper limits of these intervals. Negro pressure, for a variety of reasons, than parks at greater distances. Moreover, as has been stated Trends in St. Louis visits to zone III parks, parks earlier, I/ the rural origins of a sizeable percentage between 100 and 150 miles from the central city, of St. Louis Negroes may conduce to a rejection of most nearly approximate the conditions desirable for leisure patterns that require participation in many this kind of linear extrapolation. The linear character outdoor recreation activities. Third, the history of of growth may be seen clearly in figure C-5. Devi- race relation in East St. Louis, the site of the park ations around the fitted regression line are not at all in question, has been characterized by much more extreme, and the standard error of estimate is the conflict than the history of race relations in St. lowest for all the trends we have assessed in this Louis, Mo. 2/ manner. Again, if all the relevant assumptions Neverthelless, given the economic advances of obtain, an attendance by St. Louisans at parks in zone younger Negroes in St. Louis, 3/ they will make in- III in 1976 would number 630,000; in 2000, 1,098,000. creasing use of State parks in the future, and, if race These figures compare with an observed attendance relations are unimproved, this may depress the use in 1959 of 338,000 or a predicted attendance of of State parks in the vicinage of the metropolitan 298,00 *0.. This represents the same rate of increase center. Moreover, there is the tendency for St. as was discerned for zone I parks. Attendance will Louisans to range further afield, at least as far as increase 1.9 times over the 1959 observed attendance their patronage of State parks is concerned, to the in 1976 and 3.2 times in 2000. The interval within more distant sites in pursuit of outdoor recreation which we can have confidence about our forecasts is, opportunities. These contingencies incline us to re- of course, smaller for these estimates. In 1976 the gard the more conservative forecasts as more realis- range is between 578,000 and 682,000; in 2000, between tic than the upper limits of forecasting for 1976 and 1,046,000 and 1,150,000. Nevertheless, we are in- 2000 with reference to State parks within 50 miles of clined to favor the upper limits of these interval the city. Even so, these conservative estimates do estimates for the same reasons that they are favored not differ dramatically from the higher estimates, in the forecasts of St. Louis visits at zone II parks. and, it must be remembered that they are estimates Furthermore, note has been made of the lesser de- for attendance at sites whose facilities are already cline in St. Louis visits at zone III parks during the severely taxed, particularly on weekends. 1958 recession, compared to the zone Il parks, as I Forecasts for visits by St. Louisans to zone Il well as the greater relative increase from 1958 to State parks and zone III parks seem to require fewer 1959. It may well be that our forecasts in this case qualifications. Deviations from the regression line are underestimates, and that the increase in St. Louis are less extreme for these parks than for zone I visits in 1959 over 1958 represents a departure from parks, omitting Grand Marais State Park. Conse- the linear growth in St. Louis attendance at these quently, we may have more confidence in the assump- parks. The reasons for this possibility would ob- tion of a linear increase in visits. Figure C-4 is a viously point to increases in travel, plus the tendency graphic representation of trends in estimated St. of St. Louisans to carry on their outdoor recreation Louis visits to State parks located between 50 and at greater distances from the city center over the 100 miles of the central city between 1950 and 1959. passage of the years since 1950, when such trends Fitting a regression line to these data permits esti- became stabilized. mates of attendance in 1976 of 651,000; in 2000, of If all these materials are combined, the picture of 1,136,000. These figures compare with an observed St. Louis State Park attendance in the future emerges. attendance of 291,000 in 1959 and a predicted attend- Figure C-6 depicts the totals graphically. Again, the ance in that year of 308,000. In short, we expect St. upper trend line in Figure C-6 includes the figures for Louis visits to zone II parks to somewfiat more than Grand Marais State Park and takes on the character of double in 1976 (increase by 2.2 times the 1959 figure) an exponentially decreasing curve for St. Louis visits and to increase almost four times (3.9 times the to all State parks within 150 miles from the central 1959 figure) by 2000. Use of the standard error of city., Visits would approach zero by 1976, given the estimate, once again, does not alter the expected rates exponential decrease, and, were the trend inter- of incre"e in any large way. We may be quite con- preted in a linear manner, would reach@ zero by fident that St. Louis visits to zone. II parks in 1976 1972. This is wholly unrealistic. St. Louisans are will range between 573,006 and 729,000; in 2000, the not likely to abandon all State parks within 150 miles limits will be 1,058,000 and 1,214,000. Given the from their city within a single decade! Instead, the contingencies already set forth in the discussion of lower trend line, omitting the Grand Marais figures, forecasts for St. Louis attendance at zone I parks, it is obviously better suited to forecasting require- ments. Thei derivation of a regression equation from- that trend suggests that St. Louis attendance at State parks in the area of study will double by 1976 and !/See page 168. more than triple by 2000. In 1959, the observed at- 2/Between June 30 and July 2, 1919 in East St..Louis, a race tendance was 1,193,027, compared to a predicted riot, stemming from the importation of 8,000 southern Negro attendance of. 1,191,000 from the regression equation. workers by industry to combat indigenous labor organization, Assuming a continuation of the 1950-59 trend, St. took over .100 lives. St. Louis, Mo. newspapers expressed Louis attendance will reach 2,379,000 by 1976 and shock and dismay, and the riot did not spread across the river. 4,057,000 by 2000. Seeking more confidence in the -@/See page 169. overall gross estimate, we would place the 1976 206 ATTENDANCE (IN THOUSANDS) 350 300 - 10*0100 logo 250 - 10000,010,0010 200 - 01,0010*0 0010*000 150 - "001010 - Y= -883.1676 + 20-1939 100 - Sy = 39 Predicted Values: 1950 = 126 1959 = 308 1976 = 651 50 - 2000 = 1,136 1950 1951 1952 1953 1954 1955 1956 1957 1958 1959 FIGURE C-4. REGRESSION LINE FITTED TO ESTIMATED ATTENDANCE BY STJOUISANS AT STATE PARKS BETWEEN 50 AND 100 MILES FROM CENTRAL CITY FOR THE PERIOD 1950-1959. Source: Table C-5. 207 Attendance (In thousands) 350 - 300 - solo%* 10101010 250 - %0 to 10 to solo 200 - 10,0000010 150 - 01.0 1010 101001 y -853-1460 + 19-509IX 100 - S 26 PYedicted Values: 1950 = 122 1959 = 298 1976 = 630 50 - 2000 = 1,098 1950 1951 1952 1953 1954 1955 1956 1957 1958 1959 FIGURE C-5. REGRESSION LINES FITTED TO ESTIMATED ATTENDANCE BY ST. LOUISANS AT STATE PARKS BETWEEN 100 AND 150 MILES FROM THE CENTRAL CITY FOR THE PERIOD 19504959. Source: Table C-5 figure at between 2,189,OfOO and 2,569,000; the 2000 1976 and triple by 2000, using 1959 figures as a base. figure at between 3,867,000 and 4,247,000. Given the unreliability of the particular statistics, it These figures are very close to the figures that is preferable to focus on rates of increase rather would result from a pooling of individual estimates than absolute estimates. for St. Louis attendance in 1976 and 2000 at the parks These forecasts, however, account for only about located in the three zones. Were we to pool the three a seventh of all St. Louis attendance at outdoor recre- estimates at the parks in the three zones, we would ation sites in 1960. How can forecasts be made for arrive at a figure of 2,380,000 for 1976 and 4,058,000 the remainder? Earlier it was proposed that attend- for 2000. If the "reasoned estimates" were com- ance at various outdoor recreation sites, excluding bined, using the lower confidence limit for St. Louis State parks, had grown at an annual average rate of visits to zone I parks and the upper limits for zone 11 increase of between 20 and 6 percent, with the probable and III parks, the result is a forecast of 2,342,000 for rate set at 10 percent. 4/ If these average rates are 1976 and 4,020,000 for 2000. Both of these figures lie mechanically employed to estimate. attendance at all within the confidence limits established by a joint other facilities, except State parks, in 1976 and 2000 ' consideration of all estimated St. Louis visits to State it becomes readily apparent that the upper limit of a parks within the area of study. In sum, then, we ,do so expect St. Louis visits to State parks to double by �/See page 191. 208 ATTENDANCE (IN THOUSANDS) 21000 - Y 6404.0162 89-5636X 1,900 - -Sy Not Computed Predicted Values: 1950 = 1926 1959 = 1120 .1,800 - 1976 = o 2000 = 0 4@# 11700 - 1,6oo - 4@ 4,k* 1,500 - 4*#* 4V* 1,400 - 1,300 - 1,200 - ft# 1,100 - 10 1,000 - lo 100 goo - 10 10 Boo - to Y -2932.2540 + 69.8909X 700 - 95 iyredicted Values: 1950 = 562 1959 = 11191 600 - 10 19?6 = 2,379 2000 = 4,057 Soo t I 1950 1951 1952 1953 1954 1955 1956 1957 1958 1939 FIGURE C-6. REGRESSION LINES FITTED TO ESTIMATED ATTENDANCE BY ST. LOUISANS AT ALL STATE PARKS WITHIN 150 MILES OF, CENTRAL CITY FOR THE PERIOD 1950-1959. DECREASING ATTENDANCE INCLUDES GRAND MARAIS STATE PARK; INCREASING ATTENDANCE DOES,NOT. Sa.urce: Table C-5 209 20 percent average annual increase is unrealistic. inconceivable at all, then, that, with 3 months addi- Even the assumption of a 10 percent average annual tional leisure in 2000, the St. Louis. employee would rate of increase confounds sensibility, showing visits make on the average, 50 times his visits in 1960 to at other facilities than State parks at 34 million by outdoor recreation sites such as swimming pools, 1976 and 334,300,000 by 2000. The low estimate is fishing sites, boating areas, and various other com-. more readily contemplated. That estimate predicts mercial sites. St. Louis visits at-other sites at 16,600,000 by 1976 In interpreting these forecasts, the reader should and 66,600,000 by 2000. Nevertheless, it should'be not let the figures overwhelm his imagination. The recalled that these other facilities include such re- contemplation of sucli iarge increases focusses on sources as swimming pools and other heavily attended outdoor recreation activities mat can be carried on in sites. It may not be unreasonable at all to consider a day or a fraction of a day. For example, a visit to 34 million visits by St. Louisans made to such outdoor a swimming pool can be undertaken in a matter of a recreation sites in 1976, almost a sixfold increase couple of hours. It is for this kind of outdoor recre- over estimates and 334 million*visits in 2000, an in- ation that the BLS projections of increased leisure crease of more than 50 times the 1960 estimate. The time. are relevant. For other kinds of outdoor recre7 conservative estimate shows such visits not quite ation, such as visits to State parks and national tripling by 1976, but increasing tenfold by 2000. This forests, other projections must be adduced. For the is certainly feasible, given Marion Clawson's esti- most part these kinds of outdoor recreation require mates of growth in national park attendance. 5/ ' I extended periods of time on the part of the recrea- Projections of the St. Louis SMSA population by the; tionist, and we have been much more conservative in Bureau of Labor Statistics for 1976 and 2000 show our.forecasts of increasing demand for this kind of that the population will increase by about a third in outdoor recreation, suggesting that State park visits 1976 over 1960 and that the population in 20 '00 will be will double by 1976 and triple by 2000. Even here, the about 2.1 times the 1960 figure. 6/ Consequently, BLS projections bear out our own forecasts. These our forecasts for increases in Stafe park attendance projections contemplate an added 1 week of paid vaca- by residents of the St. Louis SMSA are not too far out tion time for St. Louis workers in 1976 and an addi- of line with projected population increases. Our tional week by 2000. Such projections seem quite forecasts for uses of other facilities, however, seem commensurate with our own forecasts of increasing grossly inflated. The Bureau of Labor Statistics demand for outdoor recreation at facilities that foresees little change in the composition of the labor ordinarily require extended visits. force in the St. Louis SMSA in the future, at least up .In sum, we have estimated about 8 million visits until 1976, with the largest proportionate increases made to all kinds of outdoor recreation facilities in anticipated among professional, semiprofessional, and the St. Louis region by residents of the St. Louis technical workers who composed 8.8 percent of the labor force in 1950, but are expected to compose SMSA in 1960. By 1976, this could rise to 36 million 12.9 percent in 1976. Operatives, as might be antici- visits, an increase of 4 1/2 times; by 2000, the figure pated, are expected to decrease from 22.2 percent Of could reach 338 million, almost 50 times the 1960 ,the 1950 labor force to .18.4 percent in 1976. These figure. A low estimate would forecast a threefold are the most extreme changes envisioned by the increase,in demand by 1976 and about a tenfold in- Bureau of Labor Statistics. They seem to provide crease by 2000. Again, the rates are in the center of little justification, indeed. for the increases we have our attention, not the absolute numbers. Finally, these anticipated in St. Louis use of facilities other than rates seem not to be differentiated greatlyby distance State parks in 1976 and 2000. from the central city within the 150-mile radius de- Of more significance, and more surprising, are the marcated as the area of study. BLS estimates of gains in leisure time for the average - 'A further question needs to be raised: what kinds person employed in the St. Louis SMSA labor force in of facilities will receive the greatest impact in this 1976 and 2000 compared with estimates for 1960. burgeoning pressure? There seems to be little doubt From 1960 to 1976 an average gain of 4.4 weeks of that the main brunt of the rising demand will be exerted leisure is envisaged for the average St. Louis em- upon water facilities, since water sports show con- ployee, but his average gain from 1960 to 2000 is sistent increases in every trend analysis. These are, ipptimated at 13.2 weeks or about 3 months. It is not of course, the facilities that are already in shortest supply in the St. Louis region. !/Warren C. Robinson, memorandum to Laurence 1. Hewes, Jr. Nor do future pians tor adding outdoor recreation on "Techniques for Projecting Recreation Visits"' (dittoed, facilities seem realistically to take into account this Aug. 30, 1961), pp. 2-3. Although the projections for national rising demand. Increasing outdoor recreation acreage parks may be unrealistic, I am inclined to think that they are by less than 20 percent will hardly compensate for an quite realistic for more commercialized sites catering to-urban outdoor recreation demand that threatens to increase recreation preferences. ten times in the next four decades and could increase J/References here are to U.S. Department of Labor, Bureau of many times that figure. Moreover, afurther dilemma Labor Statistics, "Estimates of the Decrease in Hours Worked, is posed whenever facilities are increased or new 1960-2000," (Mimeographed for the Outdoor Recreation Re- facilities added: the addition of the facility may give a sources Review Commission, June, 1961), possim. These data further impetus to demand. Thus, just outside our own are more detailed than similar projections prepared by the region of study, Table Rock State Park, about 200 miles National Planning Association, but an examination of both southwest of St. Louis, was recently instituted to drain projections discloses very little significant difference between some of the pressure off neighboring Roaring River comparable projections. State Park. What has eventuated is the maintenance 210 of high attendance at Roaring River and a rapid in- quired large open spaces will be enjoyed by compacted crease in attendance at the newly instituted park. masses in constricted spaces. Open spaces which There are many examples of this tendency. Jim Keefe, permit a romanticized kind of outdoor recreation will editor of the "Missouri Conservationist," put the perhaps become a kind of "third channel" of the out- matter this way: door recreation network, necessarily held available to the few esthetes who are so important in maintaining On top of the entire problem are yet more the myth and image of the great American outdoors. questions that someone sometime has to face. New recreation areas appear to create new users, rather than take the pressure off old areas. Where SUMMARY is the levelling off point for this sort of thing? For example: in 1957 the Conservation -Commission The demand for outdoor recreation among St. opened two new intensive trout management areas, Louisans will increase considerably in the future. at Shepherd- of the Hills and Meramec Spring. In- Resources such as State parks will experience a stead of relieving angler pressure on the three doubling of 1959 use by 1976 and a tripling of that State trout parks it was found that the new areas use by 2000 on the part of St. Louis metropolitan rapidly gained in popularity while the old areas residents. Other facilities will probably experience continued to boom. The only conclusion was that a greater increase in metropolitan demand. 1959 we had created new trout anglers by creating new demand will probably triple by 1976 and increase areas. 7/ tenfold by 2000. It is conceivable that the 1959 pressures on these other raore commercialized facil- .It may well be that the addition of new facilities Will ities will quadruple by 1976 and increase 50 times by not reduce existing outdoor recreation demand, but 2000. This would seem to suggest the necessity for will provide additional spurs. adding considerably more outdoor recreation acreage However, a dampening effect may be provided by to what is presently available in the St. Louis region. the very processes of urbanization. As suburbs be- However, with the exception of sorely needed incre- come cities, and small towns are more and more ments in water acreage, the forces of urbanization enmeshed in the metropolitan web by the physical temper the implication. growth of the metropolis, the increasing physical mo- In the future, metropolitan residents will, probably bility of the population, and the dissemination of carry on their outdoor recreation in the company of metropolitan culture via the mass media of communi- more and more people in relatively. small spaces. ,cation, outdoor recreation may take on a pattern Activities which are individualized and require large that requires less open . space. Urban fishermen, open spaces-hunting, hiking, wilderness canoeing, observed by members of this project,seem quite con- etc.-will attract smaller and small .er proportions of tent to stand shoulder, to shoulder for short periods of urban persons. In the St. Iouis region, water sports time in a small stream, lifting, hatchery trout out of will be most attractive tD metropolitan residents who unresisting puddles of trampled water. Urban motor seem to enjoy swimming, boating, and fishing in large boatmen have few complaints as they cue up at lake- numbers, but in relatively constricted areas. Yet, and river-side drive-ins, waiting fpr.the boat hop to new demands will undoubtedly emerge with techno- fetch the hamburger and malted. Few urban swimmers logical innovations and the addition of new facilities. engage in the sport to avoid crowds. So the density No one could have predicted the development of skiing of the city may be carried irresistibly beyond the city in the St. Louis vicinity 'prior to recent technical sidewalks to the outdoors, where recreational'ac- developments in snow-making machinery. Nor could tivities that were at one time individualized and re- the popularity of sailing in the Kansas City area have been foreseen prior to its actual initiation following .Z/Jim Keefe, "A New Look at the Merarnec River," "Missouri the construction of a large artificial lake by the Conservationist," XXI(August 1960), p. 4. metropolitan.county. 211 CHAPTER SIX RECOMMENDATIONS FOR PLANNING AND IMPLEMENTATIONS OF PLANNING Implications for future planning may be clearly ordinated in the region. Much unnecessary hard drawn from this report, and they have been expli- feeling has been generated across State lines about. cated in the form of seven guiding criteria for the the lack of coordination in the past of duck hunting on development of future outdoor recreation resources the Mississippi, and well intentioned people have had and the shaping of future outdoor recreation demand. their attentions and energies diverted from important In addition, concrete suggestions are offered for the duties by th6 hostilities engendered. Regional licens- implementation of the guidelines. ing would seem also to be a simple, concrete way in which bistate cooperation could be initiated. Ile GUIDELINES FOR PLANNING FUTURE excessive exploitation of St., Louis outdoor recrea- ST. LOUIS OUTDOOR RECREATION tionists by some commercial facilities which sell hunting space but provide no hunting opportunity No future consideration of outdoor recreation can might well be policed by personnel drawn from both begin without being couched in a regional perspective. the Illinois and Missouri portions of the St. Louis This is true, not only for the St. Louis metropolitan metropolitan area. Water pollution, another serious area, but for many other metropolitan areas through-. problem in a region where recreational waters are out the Nation. Cities tend to develop along lines of In short supply, obviously can be attacked only on a transportation such as rivers, but such lines of trans- regional basis. With the initiation of these concrete portation frequently are employed as political bound- joint activities, the region would be preparing itself aries with the result that urbanites suffer the con- to meet larger problems with reference to which such sequences. The provision of all kinds of services to planning usually begins but very seldom materializes. metropolitan residents is forestalled by the conflicting These are problems having to do with the location, loyalties of governmental agencies, administrations, development, and choice of outdoor recreation re- and representatives. In another city of the Midwest, sources. As we have mentioned, sorne development, it happens that the'most accessible site for outdoor particularly in the northeastern quadrant of the larger recreation is a lake located across the river in a St. Louis region, might drain off some of the pressure different State. The area around that lake is very exerted by St. Louisans on the Ozarks, and, in- poorly maintained. It is dusty. Recreation equipment terestingly, facilitate the further devel'opment of that is in disrepair or unattractively presented. Yet, area by reducing local hostility toward outsiders who crowds frequent the site in the summer. Apparently, have preempted (in the view of the local residents) the relevant State agency is unconcerned about the too much of. the Ozark lands already. general upkeep of the site, and we would guess that no small source of the lack of concern rests in the Perhaps even more important, or at least more pressing, than the initiation of regional planning for frank recognition that the lake primarily serves resi- outdoor recreation is the provision of large water dents of a different State. Thus, the State agency spaces for the outdoor recreation of St. Louisans. If tends to concentrate on the development of recreation present pressures for water facilities continue to areas in more distant areas. The case is similar for mount at the rates we have anticipated, the failure to another midwestern metropolis.. However, in that act and act quickly in this matter could be crucial. instance, the rural temper of the State legislature 17his is not merely a proposal to make life happier impedes cooperation with a more willing legislature for St. Louis water recreationists. It may well be a in the next Stat 'e, and the residents of the metropolis matter of the life or symbolic death of the city. As suffer the consequences. St. Louis suffers as far as amenities become more and more important in the the provision of services is concerned, not so much American's choice of a place to live, work, and play, from the antiurban temper of the Missouri legislature and, as American life becomes more fluid and mobile, as it does from political decisions in Illinois politics St. Louis may well find itself defined as an undesirable which play a considerable role in the programing of area of settlement for many of the people in the land. I / outdoor recreation policy in that State and unduly af- Since cities must recruit their populations from fh-e fect the design and execution of long-range planning, outside, St. Louis may find itself suffering severe not to speak of bistate cooperation in regional plans. economic losses without amenities to attract and A regional . approach to the solution of the outdoor maintain a growing population. Obviously, the Mera- recreation problems faced by the St. Louis region in mec Basin is the site that mustbe developed for these the future ought to be initiated at a very concrete purposes. Failure to dam the Meramec, might very level, simply to establish the fact that bistate coopera- well mean successfully daming the city. tion is a feasible action and not merely a planner's dream or an exchange of momentary speculations among citizens of high local status honorifically ap- !/Edward L. Ullman, "Amenities as a Factor in Regional pointed to a committee accorded public respect and Growth" The Geographical Review, XLIV (January 1954), deference. . Game laws, for example, ought to be co- pp. 119-132. 212 Personnel engaged in outdoor recreation activities, these guidelines. For one thing, this could take the particularly administration, must undergo extensive forr@ of financial encouragement for the re ional 91 professionalization. This is both a guideline and a planning of outdoor recreation. Encouragement could' technique of implementation, for a sense of colleague- be withheld if some of the desiderata set forth above ship rapidly develop among professionals and would were not met, e.g., the presence of professional per- foster and expedite cooperation across State lines. sonnel in the cooperative planning projects, the termi- Outdoor recreation must be conceived as providing nation of racial discrimination at outdoor recreation careers for its personnel rather than, as in certain sites in fact as well as in principle, or the inclusion unspecified instances, rewards for political effort. of wilderness or isolated sites in regional plans. This Although the pressure exerted by St. Louisans on will undoubtedly mean the eventual establishment of a wilderness areas will not increase at the same rate Federal agen@y for this purpose, an agency that can that other pressures will increas in the future, such disengage itself from direct involvement in the power areas ought to be set aside in the St. Louis region, struggles that such planning always inspires. In this if the kind of outdoor recreation that can only be respect, the President' s proposed Department of Urban accomplished at such sites is valued at all. These Affairs would be an ideal location for the agency' isolated spaces, as we have mentioned, could serve as Education is, of course, always one technique for a kind of "third channel" in the outdoor recreation the improvement of social relations, and bothgovern- network, maintaining the viability of certain values ment and lay agencies must contribute to the changing in a situation where such values are exposed to pos- of current race attitudes and farm-city hostility. St. sible destruction. The setting aside of wilderness Louis is fortunate in that it has a newspaper that areas is clearly a value decision and ought to be con- would willingly cooperate in such an educational cam- ceived frankly as such. paign. However, the farmer also requires this kind of, Finally, considerable improvement is needed in the reorientation. Many of his attitudes toward city area of social relations. Specifically, race relations recreationists are built on totally- unsubstantiated at outdoor recreation sites can only continue as they myth. The St. Louis region would be in a bad way, are at Grand Marais State Park at considerable cost indeed, if the number of cattle claimed to have been to the operating agency. - It is uneconomic to experi- shot by city hunters was the number actually shot. ence such fantastic declines in the utilization of any Here, the county agent would be an invaluable change kind of facility. The cost in urban areas is compounded agent, and many already are aware of the exaggerated by the value of land. But, the social and moral cost of char'acter of farmer attitudes toward city dwellers. this kind of race attitude outweighs the economic., Urban gun clubs are engaged in a wide-scale educa- Particularly in the world as it is, today, no part of tion --FTort in this respect. the United States can afford the social and moral repu- tation that racial discrimination provides. City"farm A more specific recommendation to ease racial relations also stand in need of improvement and a strains in the region would require that the desegre- lessening of tension. Comments from county agri- gation (de factol) of an outdoor recreation facility be cultural agents in the larger St. Louis region clearly followed immediately by a program of improvement show a direct relationship between St. Louis use of in that facility. Desegregated areas can be made so attractive that visitors would not want to al)ando!l them. _county lands for outdoor recreation and farrn hostility toward the city dweller. This hostility has the effect Finally, there is some information from the Divi- of removing a very large amount of outdoor recrea- sion of Parks and Memorials of the Department of .tion space from the space potentially available now and. Conservation of Illinois that the charging of modest in the future to the urban dweller. fees at State parks has no perceptible effect on at- tendance. Those concerned with the administration of IMPLEMENTATION OF THE GUIDELINES -outdoor recreation sites in the St. Louis region might well consider the institution of fees as a way of As it has historically, the Federal Government underwriting, in part, the increased expenditure that must play an active role -in the impIgMentation of these proposals imply. 213 APPENDIX MAPS SHOWING THE SPATIAL DISTRIBUTION OF POPULATION, OUTDOOR RECREATION RESOURCES, ST. LOUIS PRESSURE ON THOSE RESOURCES, AND POTENTIAL RECREATION AREAS .FOR THE LARGER ST. LOUIS REGION IN 1960 Technical difficulties and unforeseen delays have region in 1960. They supplement the third section of precluded the inclusion of the following 10 figs. in the report, "The Present State of Outdoor.Recreation the main body of this report. For the reader's in the St. Louis Metropolitan Region." Fig. C-15 guidance, references are made here to the sectionsof showing St. Louis pressure on outdoor recreation the report for which the maps are appropriate. Fig. resources in the larger region of study, also supple- C-7, showing population by counties for the St. Louis ments the third section of the report. Finally,,Fig. region should be referred to the second section of C-16, showing potential outdoor recreation areas in the report, I 'St. Louis and its Recreational Environs. I I the area of study, is relevant for the dis6ussion of Figs. C-1ithrough C-14present the spatial distribution acreage trends in the fourth section of the report, of various outdoor recreation resources in the St. Louis "Trends in 0@itdoor Recreation." 214 51 61 54 7 7: 7 AIGN Kentucky Wke 51 Bull Is ke Norf S ST. LOUIS TANDARD METROPOLITAN AREA RIVERS LAKES MAJOR ROADS 0 - lo,ow S T. LOUIS ORRRC STUDY AREA 10, 000 - 20, WO EM 20, OW - 30, 000 30,000 - 40,000 POPULATION BY COUNTIES, 1960 40,000 - 50,000 50, 000 & OVER Figure C-7 215 66 51 61 ---T50 MILEr- 54 67 IEr- PAI GN 36 66 40 50 LES 61 SSOURI R 50 JEFFERS Ul ke o the Oza 66 54 Orci&d Lcke RO PPOF-110 61 Kentucky Lke Bull 1, ke Norl'ork Resemair 7 ST. LOUIS STANDARD METROPOLITAN AREA RIVERS LAKES MAJOR ROADS NATIONAL FORESTS ST. LOUIS ORRRC STUDY AREA NATIONAL WILDLIFE REFUGES CORPS OF ENGINEERS FEDERAL RECREATION AREAS Figure C-8, 216 51 61 0,0 0 0 00 co 0 ol 0 0J% 0 0 PAI GN ILE, \0 0 54 90 0 C3 66 10 0; 0 4 0 L Q 0 0 61 96 40 JEFFERS CiT k. ale 03&tk# Ax 116 1./ x x mb O.i&d a 60 0 67 c 0 I."ott ko x 61 60 pppotto Kenkcky Ldko 13 Nit o ST. LOUIS SIM41>01) Rfter"Ir METROPOLITAN AREA RIVERS LAKES MAJOR MADS STATE PARKS ST. LOUIS ORRRC STUDY AREA STATE FORESTS 0 STATE CONSERVATION ARMS FIRE TOWER5 STATE RECREATIONAL AREAS 0 ftoADSIDE PAMS Figure C-19 217 66 0 0 0 51 6 61 0 0 0 00 go 001 54 4 010 00 QQ QQ a 67 000, 0 0 00 0 Q 0 0 0 00 ."Q 0 0 PAIGN' 0 00 0 36 36 54 0 oo Q 0 0 2* Q 0 0 60 0 0 0 00 40 50 0 Q RI R. 0 .00 '0 JEFFER Q CITY 0 0 $ Q ;IIIR ke of the 51 Ozarkdo 54 3 4 60 0 *O%AjO 1k. %II Clearwats k 60 ke ppapella 61 0 e Kentucky Lake Ilull Is ke Norfork RamervaIr ST. LOUIS STANDARD METROPOLITAN AREA RIVERS LAKES MAJOR ROADS 0. POOLS & PRIVATE LAKES Q PRIVATE CLUBS & FORESTS ST. LOUIS ORRRC STUDY AREA *6 ROD & GUN CLUBS RESIDENT CAMPS PR-IVATE NON-COMMER(IAL RECRECON AREAS DAY CAMPS Figure C-10 218 66 0 61 54 67 0 PAI GN 0 36 54 36 6 66 0 40 0 0 LE 6, RI R. 59 JEFFERS CIT :% 51 a of the 0 66 0 zorks 54 "","p 0 % Crob Orcla6rd 60 OX%O I!,- 67 Clea a 25 0 Lake 60 appopell.0 61 Kent'ucky Lake Bull ocit ke Norfork ST. LOUIS STANDARD Reservok METROPOLITAN AREA RIVERS LAKES MAJOR ROADS POOLS ST. LOUIS ORRRC STUDY AREA 0()25 HUNT CLUBS & PRESERVES GARDENS & SCENIC SPOTS FISHING LAKES. RESORTS & MOTELS COMMERCIAL RECREATION AREAS Figure C-4 1, 219 A 61 1-56 -WI U19- A 0 54 67 "PAIGN I E 36 36 54 36 50 LES 66 40 'Vo::X: 'VoX.:'. URI R 50 JEFFERS CIT U ke f the 66 54 A A Cmb Orcb4r 60 A Ao@klo It. 67 A A Clac@to ke 60 A Lake ppopello 61 0 Kentucky Lake Bul I Is ke Norfork Rese,cir ST. LOUIS STANDARD METROPOLITAN AREA RIVERS LAKES &WOR ROADS ST. LOUIS ORRRC STUDY AREA INDUSTRIAL RE(REATION AREAS Figure C-12 220 21 MIXT", 66 2 p 6 61 A 14. 0-1 IGN wpm,, . . . . .. . . . . 60 WX Kentucky Lake Ono 51 Bull 80012/jGko Norl'. Rose..... ST. LOUIS STANDARD METROPOLITAN AREA RIVERS LAKES "OR ROADS 90-10% ST. LOUIS ORRRC STUDY AREA 11-30% 31 - 50% PE-R(ENT OF FARMLAND IN WOODS 51 -70% Figure C-13 221 66 61 M@ 77- -61, 6( pPaP-1T 11 K"iucky Lake 9UH Is ke N-f. ST. LOUIS STANE)ARD METROPOLITAN AREA RIVERS LAKES "OR ROADS a @ 230 ST. LOUIS ORRRC STUDY AREA 250-500 5W - 750 750 - low NUMBER' OF STO(KED FARM PONDS 1,000 & OVER Figure C-14@ .222 66 54 is ............ M, loe- pppello K@tucky Lakd Bull I ke K rlr*. ST. LOUIS STANDARD, MtTROPOLITAN AREA RIVERS LAKES M"OR ROADS NONE ST. LOUIS ORRRC STUDY AREA VERY LIGHT LIGHT MEDIUM ST. LOUIS PRESSURE ON RECREATION RESOURCES 'HEAVY PROPORTION OF THE RECREATIONISTS WHO ARE FROM THE ST, LOUIS SMSA VERY HEAVY NO DATA Figure C-15 223 66 61 0 54 67 "PAI GN I El-- 36 54 36 SHELB ILLE RESE JO D I R 66 OIR 40 L ZARLYLE RESERVOIR "SOURI R JEFFERS CITY 4 REND A k of the ARLING 54 R VOIR("' /0 ..... . .......... Crab Orch6rd R11 C SHAWNEE LA 60 CORPORA RE R IR R. A. L S ov,%O It. X. . . . . . . . . . . .67 3; 0 Lake 61 pello pp- Kentucky I--, Lake Bull Is ke Norfork Resemoir r--5@j ST. LOUIS STANDARD L METROPOLITAN AREA WAT R VA t RIVERS LAKES MAJOR ROADS MAJOR WATER ST. LOUIS ORRRC STUDY AREA RECREATION AREAS OTHER AREAS POTENTIAL RECREATION AREAS Figure C-16r 224 Part IV OUTDOOR RECREATION: NEE'bs AND PREFERENCES OF THE PEOPLE, OF THE CHICAGO AREA A Report to the Outdoor Recreafion' Resources Review Commission by NORTHEASTERN ILLINOIS METROPOLITAN AREA PLANNING COMMISSION 225 Chapter One INTRODUCTION It is often said that man has yet to learn to live with THE PURPOSES OF OUTDOOR RECREATION his environment. American historians have' docu- mented in considerable detail the rapacious attitude The purpose of outdoor recreation in a highly urban- of earlier generations toward the use of natural re- ized society is asvaried and complex as the types of sources. While man is now belatedly recognizing the individuals who participate init.' Each individual tends need for strong conservation programs to safeguard to place a personal value on recreation needs, and each soil, water, trees, and other natural resources, while engages in one or more types of outdoor activity ac- he is making progress in preserving some of the cording to recreation preference. Where common remaining unique and dramatic natural features for the identity of@purp&se 'occurs (e.g.,,family, .adult or youth enjoyment of all people and for future generations, group interests), outdoor activity tends to become little attention has been given to the need for pre- institutionalized as group action, but evenhereactivi- serving some of the open space in and around the, ties of various groups reflect multiplicity of individual larger centers of population. interests. There is increasing evidence that the opportunities A twofold classification is useful in this analysis of for outdoor, recreation in and.near the large centers purpose: Recreation is either (a) participated in in of population are limitedand inadequate, overly used order to attain a specific end or goal, or (b) under- and misused. The shelf of studies on problems sur- taken as the result of circumstances in which people rounding outdoor recreation in large metropolitan... find themselves. Both, of, course, have a number of areas is beginning to grow, as more and more subcategories. authorities point to the insufficiency of existing pro- grams in meeting existing demands. Even though the Desired ends or goals include such things as physical backlog of accumulated needs is growing, the lack of well-being, mental well-being, social acceptance, integrated, comprehensive action often has encouraged group relationship, and solitary reflection. A partici- other interests to raid the larder of existing recreation pant engages in individual or collective outdoor ac- space. The search for cheap, accessible land to con- tivity in a suitable environment in order to gain re- vert to a "higher and best" urban use has failed to wards of the body, i.e., physical well-being. Similarly, take into account the. persistent needs of urbanized another person participates in outdoor --activities in people for space to move around in and to enjoy at -order to attain. rewards of the mind, i.e., mental well- leisure. being. Still another individual may participate in the recreational experience in order to attain social As in other large metropolitan areas, there is well-being, e.g., to meet new people, share in group growing awareness in the Chicago area that open space activities, seek a mate. Of increasing importance is a necessary part of the environment of daily ex- today is participation in outdoor recreation on a group istence. The desire to enjoy nature, to partake of basis, to achieve successful family relationships, to pleasurable activity in an area relatively untouched bind together adults or youths with related interests by culture is still a vital part of the aspirations of in a common experience. Conversely, other individ- people who live and work in the area. The movement uals appear to participate singly in outdoor rec- of people from Chicago to the suburbs is seen in reation in order to attain solitude, to achieve self- part as reaction against congested living conditions-and identity. as a desire to maintain contact with nature and its elements. The second classification of the purpose of outdoor There is growing acceptance that open space and recreation is also of importance to people residing in outdoor recreation are important also to the overall a large metropolitan complex such as is found in welfare of the Chicago area itself. The movement of the Chicago area. Various environmental conditions people and business firms to other parts of the Nation peculiar to urbanized areas tend to serve as primary raises questions as to whether the competitive position stimulants to recreation activity; in this context, of the economy is being imperiled by the failure to recreation is evaluated more as a resultant of sur- provide sufficient amenities for the "good life." rounding conditions. The individual's participation There is increased recognition that unless existing may be based primarily upon his belief that rec- natural features are safeguarded and stronger efforts reation activity provides an antidote for certain are made to provide for a much greater magnitude and elements of daily existence. It may represent to him variety of outdoor recreation opportunities, the upward. a momentary escape from customary urbanized sur- progress of the metropolitan area will lose momentum. roundings, or a brief reacquaintance with something The Chicago area must be a good place in which to' that is denied him in his daily routine. He evaluates live as well as to work. recreation, therefore, more. in terms of benefits to. 226 be derived from short-term'substitutions in environ- dominated by urban pursuits, it is these kinds of mental conditions rather than the achievnieni of acti vities that provide variety in experience, specific ends. THE PHYSICAL SETTING Various urbanized conditions which appear to stimu- late recreational activity include monotony of sedentary The Chicago region, when judged by national stand existence, specialization of occupations, population ards for recreation opportunity does not possess a concentration, pressures of work and excessive 'noise, wealth of awe-inspiring scenic wonders (fig. D-2). institutionalization of activity, all of which are char- There are no rugged mountains; there are no vast acteristic of the urbanized enrivonment. Totheextent tracts of coo.1, green forests, and there are no striking that people feel the need for change in environmental climatic advantages. The region characteristically is a surroundings, outdoor recreation in a natural setting continental lowland' bordering Lake Michigan. It is becomes one of the means by which life is made more crossed by an almost imperceptible midcontinental pleasant and enjoyable. divide separating drainage flows through the Great Lakes-St. Lawrence and the Illinois River-Missis- In actuality, of course, each individual or group of sippi River systems. individuals -ascribes to both purposes in varying de- The southern margin of Lake Michigan constitutes grees, * according to the times and conditions that exist. drained, portions of a larger lake of recent, glacial ,time., Beyond this @ strietches@ a gently undulating THE NATURE-OF THE STUDY Prairie -,upland surface consisting of low morainic knolls and ridges separated by saucerlike depressions Outdoor recreation as considered in this study in- and elongated valleys. The upland area broadens in cludes those activities which are carried out in areas southwestern Michigan and in the west and northern maximizing natural conditions, and in which man- portions of the region. To the south and southwest, made facilities. are provided only where necessary to the surface falls into a broad lowland traversed by increase the enjoyment 'and use of the natural environ- the westward-flowing Kankakee River. 7. ment. Attention is focused on the outdoor recreation The local relief (the difference in height between needs and preferences, of the residents of the six- hill or ridge crests and adjacent lowland) is slight to county area of northeastern Illinois which for sake of moderate. The lowland area bordering Lake Michigan brevity is called the Chicago area. Both needs and is notably flat, with major exceptions being the dunes preferences of the present and what may be expected Area and loca;ized bluffs. In the interior upland area in the sbort7-range and long-range future are the landscape is typically gently rolling with major considered. The opportunities and facilities are those exceptions found in the bluffs along the Illinois and which are found within reasonable distances of the Mississippi Rivers, in the I'driftless area" of south- homes of the residents, available and suitable for western 'Wisconsin and northwestern Illinois, in the I- and 2-day outings. For purposes of this study, the Baraboo Range and Wisconsin ' River section north- facilities considered under present conditions axe west of Madison, and in parts of the morainic bill those that ate available within a. 150-mile radius of area of southwestern Wisconsin. Rivers typically. the center of Chicago, in an area called the Chicago flow sluggishly in their banks, and those with broad region (fig. D-1). valleys have a history of flooding surrounding areas. This study,of outdoor recreation is not concerned The natural features upon which the outdoor rec- per se with the recreation facilities, programs, and reation complex has been placed are those associated opportunities usually associated with urbanized de- with lakes and water courses. Lake' Michigan pro- velopment such as playgrounds, stadia, golf courses, vides an open space view, and the shoreline of sand city parks, amusement parks, zoos, and the like. dunes, beaches and harbors, is most notable. The The relationship and impact of local and community bluffs along the Illinois River have provided anumber facilities to the need for outdoor recreation oppor- of overlooking views upon which. a series of State tunities must be given consideration, however, for parks have been created. Public hunting and fishing it is obvious that the character, of that need is areas have been established where the river broadens influenced by the nature and availability of urbanized and marshland exists. A number of drift dams across recreation facilities. Again, while attention is not preglacial valleys have provided a chain of lakes, focused on the need for recreation facilities to be among which of the more noteworthy for recreation use used on long weekends and vacation periods, the ex- is the Chain 01 Lakes in Lake County 111. Numerous tent to which suchfacilities are located within reasona- lakes and swamps are found in the morainic areas of ble distances must be considered. northeastern Illinois, southeastern Wisconsin, and Outdoor recreation activities of primary concern southwestern Michigan, with the large and more at- in this study, therefore, are those carried out essen- tractive ones serving as major centers for private tially in nonurban facilities and opportunities. We resorts. Commercial picnic-beach developments and are mostly concerned with the individual activities public hunting and fishing opportunities are also con- of driving for pleasure, sightseeing and relaxation, centrated in the areas of lakes and wetlands. Devils picnicking, outdoor swimming, fishing, boating, hunt- Lake in the Baraboo Range and the Wisconsin Dells ing, walking and hiking for pleasure, camping, nature also must be counted as being two of the most notable study, horseback riding, and winter sports. Emphasis water-oriented natural attractions providing public is given to outdoor recreation activities performed in and private recreation opportunities. ar'eas dominated by nature and readily accessible to The climatic features of the Chicago region are the metropolitan resident. For in an environment typically interior continental; Midwesterners make 227@ THE CHICAGO REGION MADISON MIL KEE Wis. -4-1 I LL. I OCK LAK KALA A 00 a COOK KANE HICAGO MICH. SOUT BEND -IND. wl" r _1 "011A LAVAYETTE NORTHEASTERN ILLINOIS METROPOLITAN AREA COMMISSION 1961 PLANNING 0 20 40 60 MILES FIGURE D4 228 TH E CH ICAGO REGION Generalized Physiography and Access Highways -7 13@ C ICAGO lb NORTHEASTERN ILLINOIS METROPOLITAN AREA PLANN114G COMMISiION 19,61 @O 4.0 610 MILES FIGURE D-2 229 frequent reference to the cold. spell, heat wave,, In spite, of the publicized extremes of seasonable thunderstorm, frontal action, midwinter thaw, fickle- weather, climatic conditions are favorable to outdoor ness of spring, Indian summer. The midwest is a activity, particularly in summer and fall. Local battleground between dry, cool or cold polar air, and thunderstorms with cloud cover usually of short moist, warm or hot subtropical air. Monthly averages duration in summer make possible many days of for Chicago serve to emphasize the monthly range of maximum sunshine (75 percent of the possible sun- winter cold and summer heat, the summer rain and shine, for example, is experienced in an average relatively dry winter. July). Gentle to fresh breezes prevail. Sultry, Chicago Jan. Feb. Mor. Apr. May June July Aug. Sept. Oct. Nov. Dec. Year Temperature!/ ................ 26 27 37 47 58 68 74 73 66 55 42 30 50 Precipitation2/ ................ 2.1 2.1 2.6 2.9 3.6 3.3 3.4 3.0 3.1 2.6 2.4 2.1 33.2 !/Degrees Fahrenheit. 2/Fall in inches of water. oppressive days are broken by cool spells and un- Like other large centers of population, the Chicago comfortably hot days and nights are the exception area has been characterized by rapid growth and rather than the rule. Summer days are long (over 15 outward movement (fig. D-3). Man has superimposed hours on June 21) and by advancing the clock, time is bn the shores of Lake Michigan an Iinfinite variety of availablefor afterwork daylight pleasures. urban features-of tall buildings in the central core, P .all weather is, particularly enjoyable, extending adjacent blighted residential and industrial areas, through November and at times early December. Well-planned and spacious neighborhoods for resi- dence, commerce and industry suburban subdi isi6ns, Winter days are short; ice skating, sledding, and skiing v conditions 'Vary from one winter to the next. Spring sparsely settled areas. i;;@ environment in which weather especially is changeable and participation in most of the people live and work is one of office and specific types of outdoor activity fluctuates accord- factory, apartment and.single family home, of store ingly.' and shop, of street and highway, of concrete, metal, Local variations in climatic conditions are slight asphalt, brick, and wood. The wage earner typically but they have a noted influence on outdoor recreation rides to and from work, spends his day before a practices. A sea -breeze effect is generated along the Machine. or behind a desk or counter in a building shores of Lake Michigan, helping to draw thousands with artificial light. A large portion of the.population engages in sedentary pursuits; modern technologyhas of people to the beaches and waters daily in late July put the worker indoors and has given him, ,as well as and August * The lake waters of the resort areas to his family, labor-saving devices to spare physical the north and east,, as well as small wooded sections, effort. draw off some of the atmospheric -heat on a hot Various transportation systems serve the area, summer . day, attracting - visitors to these areas in transporting people froi In home to work and shopping search of relief from the oppressive conditions of the center. Rail and bus lines, an elevated and subway congested urbanized. area. Fall is particularly Ae- mass-transit system, and expressways superimposed lightful along the eastern side of Lake Michigan as on a street and highway network radiate from the the summer-warm'ed waters retard the cooling of the central business district toward the suburbs, with lower atmosphere until winter finally sets in. bus, rail, highway, and plane- penetrating the regiori The rural sections of the Chicagoregion provide a and beyond. The Chicago area long has been a mid- panorama of open-field cultivated crops and pasture- west center of interconnection for all means of national land, with small woodlots tucked away almost un- and international transportation-rail, water, highway, noticed in the background or as narrow strips along and air. It supports practically every form of trade, the streams. Some of the native forest landscapes commerce, and industry. In short, it contains all the are being preserved in State forests and parks; and diverse elements that are necessary for the satisfac- in county preserves. The dunes area of Lake Mich- tion of the many demands of an integrated metropolitan igan is notable for its variety of northern, southern, society. and semiarid species of trees and grasses. While The relationship of the city to. the suburban section the region contains no large expanse of forested is of fundamental importance in understanding the areas, an attempt is being made by State and county function of the Chicago area. The city of Chicago is officials to enhance the recreation opportunities of the center of population concentration and the hub of lakes and streams by maintaining a wooded landscape. economic activity. The many suburbs are either dormitory, industrial, or balanced. Dormitory sub- THE URBAN SETTING urbs are commonly located within easy commuting distance from the centers of employment in the city The. Chicago area today is the home of over 6.2 or in the outlying area, hence they supply the labor million people engaged in centralized commercial force which employment centers require. Industrial and industrial pursuits. It has an urbanized neighbor suburbs historically have developed along a series of immediately to the south and another to the north. inner, intermediate, and outer belt rail lines which 230 ZION @ZAWiI, ou,446.de GAN POPULATibN: 1960 Ckicago Standard 'Consolidated Area CRVSTAL Co.` a LAKE ..4h iake ca. HIGHLAND PARK KIQ.@ AL. : 0. ELGIN-: Cookc 0`n" EVANSTON 'A AR 0 Kdne < HARLES. L U WREATOPI 7. 7 0 RORA c. Will Ca LEMONT . E*J POPULATION SCALE ARY' RE HAM FINT @OW i... BA@;rlf OIL J6LIE T T ow. Porter Co. 'Lake Co.* VALP.PtAISO C-116 IND-E MUNICIPAU-8 OF f OC P=N. --1A ok- lcr- I-S R-SENT FO-TION OF - OF F.- USS T- 2 500. WH D= - $00 rZOPU CM OF CHIC-0 POPUI-ON NOT 61,10-1 NORTHEASTERN ILLI NOIS METROPOLITAN AREA PLANNING COMMISSION FIGURE D-3 intersect those converging on Chicago, while new A land use map of the Chicago area, when super- ones are being created where access to modern imposed on the map of population distribution indicates expressways is also possible. Balanced suburban both central and radial arrangements. The Loop or areas exist as centers of mixed industrial, commer- central business district of Chicago represents the cial, residential development. central core around which urbanization has grown to Irrespective of physical location, size, and func- the north, west and south. The major urbanized areas tional importance of component parts, however, the in the suburbs still reflect the influence of the activities In common are urban, tied together in one steallarlike pattern of the mass transportation sys- metropolitan complex. The individual parts are tem, but the automobile, bus, and truck increasingly functionally interdependent, and people and goods blur former distributions. Interstitial areas close to move freely across the multitude of political bound- Chicago and the older ring of inner suburbs are aries. It makes little difference whether one lives in succumbing to continuous urban developments, and the city or in one of the many suburban communities; outer subdivisions are no longer restricted to loca- regardless of loyalty or choice, the forces that deter- tions adjoining the rail lines. Since 1920, the spatial mine prosperity, progress, or failure affect all who arrangement of residences, industrial and commer- @EL@ STX live and work in the area. cial locations have been affected increasingly by the 231 motor vehicle. At present, the intra- and inter-city suburbs. The outward spread of population and bus lines, elevated trains and suburban railroads urbanized economic activity, however, has not re- handle only a small portion of the total internal trips sulted in uniform growth of the entire area. The as more and more people turn to highway and express- major share of manufacturing employment and sub- way travel. urban population growth since World War H has taken The movement to the suburbs is one of the notable place in the close- in suburban areas; in fact 7 0 percent changes . taking place in the Chicago area. Today, of the suburban population is contained in the inner over 4 out of every 10 people live beyond the incor- townships. As yet, the continuous urbanized area is porated limits of Chicago, and manufacturing and semicircular from which extend sectors of urban nonmanufacturing jobs have increased steadily in the development. 232 CHAMR TWO HOW THE RECREATION NEEDS AND PREFERENCES ARE DETERMINED Recreation activities can be assumed, for purposes Outdoor Recreation Resources Review Commission. of convenience, to be generated by the interaction of A National Recreation Survey by the Bureau of two components- demand and supply. This chapter Census, U.S. Department of Commerce, provides considers the needs and preferences of people in the valuable data on the incidence and frequency of par- Chicago area as they relate to the effective demand ticipation in 20 different types of outdoor activity for outdoor recreation facilities and services; the according to the age, sex, degree of urbanization, chapter that follows deals with the supply factor. region, income, education, and white-nonwhite char- Of concern here are the overall needs and prefer- acteristics of people 12 years and over during the ences for outdoor recreation and for the various types June-August 1960 period. I/ The Survey Research of activities that are generally carried out in areas Center, Institute of Social Research, University of maximizing natural conditions. The needs and pref- Michigan, in a similar study of outdoor recreation erences are those that are capable of beingtranslated behavior and interests provides statistical informa- into recreation activity. For example, a low-income tion on a past year's performance according to cer- family may have latent recreation desires comparable tain subgroup characteristics of the population 18 to families of higher income; however, little use is years of age and older-age, sex, inconae, education, served in considering such needs since fulfillment is occupation, length of paid vacation, place of residence rarely possible. Attention will be directed to par- and region, stage in life cycle, and white-nonwhite ticipation in outdoor recreation within the limits of status. 2/ probability and the preferences for various forms of One _6f the difficulties in ascertaining the elements outdoor activity that appear capable of beingrealized. of demand is well illustrated by the latter study. A study of the present level of demand for outdoor Even though each of the characteristics tested by the recreation based on needs and preferences of resi- Survey Research Center was found to be significantly dents of the Chicago area is at the outset confronted associated with variations in activity, when inter- with a number of problems. There have been no com- correlated through multivariate analysis it was found prehensive local surveys ihat consider overall rec- that combined they "explain" less than 30 percent of reation aspirations or habits, There are no historical the total variance in outdoor recreation. Admittedly, data that record changes in interests over a period of the measurements of demand are unrefined and crude, years. There is lack of definitive data even on the and they do not include other factors of importance actual use of facilities that exist or on what kinds of such as leisure time and mobility differences, but the people use what types of services. Much of the data results serve to emphasize the problem of isolating available constitute mere estimates of attendance, the major determinants of outdoor activity for pre- recorded in piecemeal form for purposes of public dieting future demand on the basis of present knowledge. utterances and annual reports. A number of other studies have atte .mpted to assess The decisionmakers of recreation programs thus the major elements of demand, some by qualitative are without benefit of an adequate base of informa- inference and some by quantitative methods. Dr. tion on which to judge what types of facilities should Marion Clawson, probably the most widely quoted be provided, where they are needed, and by whom. writer today in the field of outdoor recreation prob- The success or failure of individual programs de- lems, points to four factors which in his opinion pends primarily upon the adequacy of the judgment of constitute the main components of total demand. 3/ those who make the ultimate decisions, and fre- The factors are those involving population, incona-e, quently in the case of publicly-provided opportunities leisure and mobility. It is his thesis that a serious upon the relative strength of special- interest groups imbalance is being created between the demand for to get what they want. and supply of @ recreation opportunities because the In order to judge local needs and preferences for supply is not keeping abreast of the demand which outdoor recreation it is necessary to examine first a arises from population increase, added buying power, number of factors that appear to have a strong bear- ing on recreation behavior. It is generally assumed by those who write on the subject that variations in j/".Notional Recreation Survey," September 1960 (ORRRC outdoor- recreation and in preferences for certain Study Report 19). Advance statistical tables only available types of activity are associated in some way with for use from ORRRC. variations in certain demographic, socioeconomic Pmueller, Eva, and Gerald Gurin, "Prospective Demand for char acteristics of people. Outdoor Recreation," (ORRRC Study Report 26). Ann Arbor: Institute of Social Research, the University of Michigan, ELEMENTS OF DEMAND April, 1961. @/Clowson, Marion, "The Crisis in Outdoor Recreation." Two national studies of the recreation behavior of Washington: Resources for the Future, Inc., 1960. Reprint the American people have been completed for the No. 13, pp. 9-10. 233 increasing leisure time and ease of travel. In assess- judgment also were solicited from leaders in recre- ing the magnitude of the future potential demand, Dr. ation programs. There was consensus, for example, Clawson gives approximate equal weight to each of the that age and income status were significant variables. four elements. It was also noted that differences in recreation activity Of particular interest to the study at hand are the and attitudes appeared to exist among people accord- conclusions reached in separate surveys of recrea- Ing fo place of residence. The matter of racial or tion activities in two of the large metropolitan areas ethnic character, While difficult to assess,' appeared of the midwest. The Detroit Metropolitan Area Re- of lesser importance than other characteristics of the gional Planning Commission in summarizing the re- population, but with relevancy in certain ways. And sults of a recent survey of daylong recreation activity, as qualitative assessment of the characteristics of selected four variables which appeared to be most local recreation behavior progressed, it became ob- closely related to variations, in the use made of vious that the distribution and quality of existing op- 1 parks by*:r@esidents of the Detroit area.. The portunities for outdoor iepreationmustbeconsidered. chosen Were income, , occupation, age, and ownership of private facil ities. 4/ In a similar study, OUTDOOR RECREATION AS LEISURE the Cleveland Regional Planning Commission con- TIME ACTIVITY, eluded that age and place of residence were the two most imPortant factors in assessing present and The Survey Research Center'Survey provides an future use of the metropolitan p ,arks in the Cleveland insight into th.e.present-day role of outdoor recreation area. 5/ as * leisure time activity. As might be anticipated, A C_Ornplerrientary approach to the Problem has been adults as well as children tend to spend in Iost of their made by probing for reasons why people are not as leisure time on activities which require less advance active in outdoor recreation as they Would like to be.' preparation or unusual expense-watching television, To those adults who did not participate or who stated listening to the radio, visiting with friends or rela- a' desire to be more ac tive in outdoor recreation,,the tives reading, Working in the.yard or gardening, and Survey Research Center in its 'survey posed the participating in social affairs o *f the community. The guestion, "What was it, mainly, that prevented you survey also provides some measure of the importance from doing them last year?' The most common of outdoor recreation as a leisure-time use. . It was answer given was lack of time, with other major found, for example, that 9 out of 10persons nationally reasons being the expense involved, old,age or,111- engage in at least some outdoor activity during a health, lack of, accessible facilities, and family. ties. period of a year, although only a little over 2 out of 5 The Detroit Regional Planning Commission also asked adults engage in 4 or more different types. Most of nonusers of Detroit regional parks essentially.. the the 'people surveyed also expressed a desire to do same question,'and after analkzing'the results con- more than they, did previously. .eluded that overcrowded facilities, heavy traffic, and The two national surveys provide a statistical meas- lack of time were the major hindrances. ure of the extent of,national and metropolitan partici- While it is obvious that a concise definition of the pation andaspirations in outdoor r Iecreation. A tabu- elements which influence recreation.behavior cannot lation of summary data is presented in tables D-1, begiven as yet, certain guidelines are availa 'ble for D-2, and D-3. Caution-must be expressed in drawing qualitative judgment. Outdoor recreation Is one form comparisons between survey findings, however-the of 'leisure-time use; hence.the. amount and character National Recreation Survey is based-on a sample of, of leisure time has an important hearing on the time, place, and amount of outdoor 'activity. Again, since outdoor' recreation requires -expenditure of money for Table D4. National participation and.desire4or reaching and using recreation facilities, and prefer- greater Participation in 17 selected outdoor activities en Ices among types of activities are shaped according to relative cost, the level of demand is shaped by'in- Percent participating Percent come characteristics. In addition, age and sex, as Activity Total Often A few wishing. measures of differences in physical energy -and times more interests, must also be given consideration. (The' Survey Research Center found, for example, thatof Driving for pleasure ....... 71 47 24 13 all the individual factors 'examined for both male . and Picnicking .............. 66 31 35 10 fernale groups, age had by far the largest and most Outdoor swimming ........ 45 26 19 14 significant relationship to differences in recreation Fishing... 38 20 18 21 d' c-o*no- activity.) Boating an eing ..... 28 12 16 11 As the exploratory stages of this study of the Chi- Hiking .................. 19 8 11 5 cago area -progressed, the various elements of demand Hunting ................. 17 9 1 10 for outdoor recreation as outlined above were con- Camping ................ 15 6 9 13 sidered on the basis of local evidence. Expressions of Nature walks ............ 14 6 8 4 Horseback riding ..... s ... 7 3 4 12 A/Staff, "Home Survey of Regional Recreational Activities." Skiing, other winter sports. 61 21 41 5 Detroit.. Detroit Metropolitan Area Regional Planning Com- mission, January 1960, pp. 7-10. Source: "Prospective Demand for Outdoor Recreation," 1/Staff, "Preliminary Report to the Cleveland Metropolitan pp. 6 and 11 (ORRRC Study Report 26). Percentages based on Park Board." Cleveland: Regional Planning Commission, a sample of 2,759 persons of age'18 and over with interviews August 3, 1960, p. 9. conducted in November 1959 and May 1960. 234 activity during the,3 summer months of 1,960 for per- The residents of the latter combined areas refleetthe sons 12 years of age and over; the Survey Research characteristics noted above of participating more in Center study provides data on persons 18 years and activities that are less strenuous and somewhat less over for a past year of outdoor activity. in activities requiring nonurban, open-space type Survey, results indicate that the overall recreation facilities. In fact, the tendency to pursue passive behavior of urban residents of large metropolitan types of outdoor activity is even more apparent among areas is not markedly different from that of all resi- residents of the large midwest metropolitan areas. dents of the Nation. The most i Im?ortant in both cases However, participation in certain of the other types of are pleasure driving and sightseeing, picnicking, and outdoor recreation is also somewhat greater in the swimming. Intermediate in position are such activi- midwest. ties as walking, outdoor games, fishing, and boating. The National Recreation Survey also provide's data The types of activity least participated'in are hunting, on preferences for certain types of outdoor recrea-@ camping, horseback rding, and winter skiing. Resi- ti,on. Table D-3 data summarizes the preferences dents of large metropolitan areas, however, do evi- stated generally and for short-term, day and weekend dence differences in participation rates among spe' trips. Some of the differences according to time of cific types of outdoor recreation (table D- ,2). Resi- recreation are quite marked. While pleasure driving, dents of highly urbanized areas, for example,'tend to pleasure walking, and playing games are preferred participate more in the less strenuous forms of most where 2-3 hours are available, sightseeing is a recreation such as sightseeing, picnicking, swimming weekend (and vacation) activity. Picnicking is M64 (ability to swim was not a-criteria), pleasure walking, preferred on day outings while swimming, fishing, and and nature study, and somewhat less in fishing, boating are preferred on day and weekend outings a Ilike. camping, horseback riding, and hunting. The latter Consistent with recreation participation results, resi- activities, it might be pointed out, however, are more dents of highly urbanized areas in themidwest tend difficult to carry out in an urbanized environment to prefer less strenuous activities such as pleasure because of practical problems in providing suitable driving andpicnicking during outings. facilities in easily accessible locations., I In summary, while the residents of the large metro- Table D-2 also provides, information on the recre- politan areas of the midwest, including the Chicago ational behavior of residents in the large standard area, are not markedly unlike people throughout the metropolitan areas of the midwest,(Chicago,@/Minne- Nation in outdoor activity, certain differences do exist. apolis, St. Paul, St., Louis, Cleveland and Detroit). A tendency to select activities that are somewhat more passive is exhibited not only iri terms of participation @/The Chicago standard metropolitan area in this case is based but also in preferences, and this tendency is particu-- on the 1950 census definition of five northeastern Illinois larly notable in the case of short-term, dayand over- @counties plus Lake County, Ind. nightoutings. Explanation of these differences maybe Table D-2. 'Participation in selected outdoor aCti vities, summer period 1960: United, States, all, large metropolitan areas; lar@e metropolitan areas in north.'Central region Percent participating Days per participant Days per person Activity United States N. C. R. United States N. C. R. United States N.C.R. Large large Large large' - Large - large Total Total S.I/ Total' SMA'sl/ SMA'sl/ SMA'si/ SMA SMA'sl/ SMA's 1/ Driving for pleasure ....... 52 52 60 12.7 12.0 115.0 6.68 6.23 9.01 Sightseeing .... : ......... I..................... 42 42 49 5.2 6.2 7.@ 2.20. 2.59 3.87 Picnicking .......................... .......... .. .53 52 54 4.0 4.6 -4.6 2.14 2.41 2.47 Swimming ...................................... 45 52 46 .1.1.5 -11.4 10.9 5.15 .5.95. 5.00 Walking for pleasure ............................. 33 45 38, 13.1 15.8 .15.5 4.34 7.13 5.88 4.11 4.85 Playing outdoor games ........... t.............. 310 33 36, 12.3 Attending outdoor -sports ........................ 24 23 26 5.5 5.3 7.4 1.32 1.- 23 1.93 Fishing ........ .............................. 29 20 .22 6.9 4.9 51 1.99 .97. 1.28 Boating 5.5 6.4 6.4 L22 1.16. 1.21 .. I..... .............................. 22 18 19 Nature walks .................... ;.............. 14 15 17 5@2, 6.1 5.2 .75 .92 .88 Camping ................. ....... ............ 9 5 6 5.7 6.0@ .46 .30, .38 Hiking on Trails .................................. 7 6 4.4 4..4 21 .26 .31, .26 Horseback riding ................................ 5 5 7.5 3.6 .42 .1 Water skiing .................................... 4 5 5.1 6.0 is 6. 2_) .30 .24 Hunting .... ................... ................ 3 1 2 5.&: (21) 2/) .19 .63 -.08 !/Data are for the urban portion of the population residing in metropolitan'areas of over I million. 2/(nsufficient sample size. Source: "National Recreation Survey" advance sheets. Data based on an adjusted sample of 4,409 persons of 12 years of age and above with fieldwork in September 1960. The "Days per participant", represent the accumulated numberof reported days of participation divided by the number who reported any participation. The "Days per person" are the accumulated number of days of participation divided by the number of persons interviewed. 235 Table D-3. Preferences for selected outdoor activities, summer period 1960: United States, all large metropolitan areas; large metropolitan areas in north-central region (percent indicating some preference) General 2-3 hours Day outings Weekend trips United States N. C. R. United States N. C. R. United States N. C. R. United States N. C. R. Activity Large large Large I arge Large large Large large Total SMA's SMA's Total SMA's SMA's Total SMA's -SMA's Total SMA's SMA's Driving for pleasure ....... 25 25 29 15 11 16 4 4 5 7 7 7 Sightseeing ............... 18 17 17 2 3 4 7 7 6 18 17 22 Picnicking ............... 33 33 33 3 2 3 31 29 30 4 4 5 .Swimming I *-*-*-*- 42 52 44 10 10 12 14 20 14 14 19 9 Walking for pleasure ....... 11 17 11 10 15 12 2 3 2 1 2 1 Fishing .................. 33 20 29 5 1 1 11 4 7 13 7 12 Boating ................... 11 9 10 1 1 1 3 2 1 3 2 2 Camping ......... ........ 10 7 7 (Y) W) W) 4 3 3 Hunting .................. 10 4 7 1 W) (.11 1 04 Playing outdoor games ..... 8 9 11 11 10 10 5 7 8 3 3 4 Attending outdoor sports . . . 11 11 12 2 2 4 1 1 1 2 1 2 No preferences ............. ... ... 22 21 20 15 15 19 25 28 28 !/Less than 0.5 percent. Source: "National Recreation Survey" advance sheets. found to be associated with certain of the character- and to that of the combined population of four other istics of urbanized people, and in the comparative large midwest metropolitan areas is provided in availability of facilities in and around large centers table D-4. As these data indicate, the Chicago area of population for outdoor recreation. has a somewhat smaller' portion of its population in the youth age groups and a slightly higher share of OUTDOOR RECREATION AND AGE AND SEX advanced middle-age adults. The differences suggest that the demand for outdoor recreation in the Chicago Both national surveys demonstrate clearly that age area is weighted somewhat more toward the interests differences have strong association with differences of adults 35 to 65 years of age. Ms overrepresenta- in the amount of outdoor activity, and that age as a tion of an older age group, therefore, would imply that life-cycle change in interests and physical ability Chicago area residents oveirall perhaps have even gives rise to changing preferences for types of out- greater preferences for the more passive forms of door recreation. Overall activity, for example, de- outdoor activity that require less specialized effort cli 'nes with advancing age, and preferences for the and physical energy than data indicate in tables D-2 less active forms of outdoor recreation become and D-3. stronger. The overall decline in participation by age is some- Table D-4. Percent of 1960 population by age groups: what gradual through the 45- 54 age group; a noticeable United States, the Chicago area, and four large drop occurs in the 55-64 class and is markedly less Midwest metropolitan areas combined for those 65 years of age and over. Not all of the activities, however, follow the general pattern of de- Four Midwest-l/ cline because preferences for certain activities re- Age group United States metropolitan Chicago area main stronger than others. For example, a sharp areas decline in participation after age 24 takes place in skiing and in horseback riding. And after age 44 some- Under 5. 11.3 12.2 11.4 what greater decline 'is noted in swimming. It is 5 to 9 ...... 10.4 10.8 9.9 noted, on the other hand, that among adults, pleasure 10 to 14 .... 9.4 8.9 8.3 walking activity shows little decline with age, and that IS to 19. 7.4 6.5 6.5 up to age 45. there is very little if any decline in 20to24 6.0 5.6 5.8 camping, picnics, pleasure driving, and hiking. 25 to 34 ... 12.7 13.3 13,3 The rates of participa .tion in outdoor activityamong 35 to 44 ... 13.4 14.1 14.4 those between the ages of 12 and 18 reflect the excess 45 to 54 ... 11.4 11.5 12.4 energy of early age. Adolescents of these ages and 55 to 64 8.7 8.8 9.4 younger children not only share in joint family en- 65 and over 1 9.21 8.31 8.6 deavors but also are active individually or in pro- grams carried out by youth-group organizations. '/The standard metropolitan statistical areas of Detroit, Cleve@ Since young children 'lack experience and maturity, land, St. Louis, and' Minneapolis-St. Paul., their 'interests and activities are more organized and protected. Source: " 1960 Census of Population, Advance Reports,'.' .A, comparison of the age composition of the Chi- Series PC (A2), BuPeou of Census, U.S. Department of.Commerce, cago area population.to that of the Nation as a whole 1961. 236 Survey data also show that men tend to engage in Table D-5. Effictive buying income estimates, 1960 outdoor recreation more than women. The overall variance is not characteristic of all types of outdoor Metropolitan area Per capita Per household activity, however, because striking differences are income income found only in the case of hunting andfishing which are still predominately "masculine activities." Furthpr Chicago ................... $2,568 $8,190 study of variations in outdoor recreation among Cleveland ................. 2,475 8,012 residents of the Chicago area does not appear to be Detroit .................... 2,327 8,101 warranted in this case. In 1960, 48.3 percent of the St. Louis .................. 2,217 7,214 Chicago area population 1:8 years of age and over were Minneapolis-St. Paul ........ 2,117 7,125 men; for the Nation it was 48.4, and for the other large United States .............. 1 119741 6,723 midwest metropolitan area it was 47.7. The varia- ti-ons, theref8re, are probably too slight to be sig- Source: "Sales Management," May 1961. The Chicago nificant in outdoor recreation attitudes. metropolitan area is the six-county northeastern Illinois area. Effective buying income is disposable income. OUTDOOR RECREATION AND INCOME Income differences, like those of age, eAibit cer- Table D-6. Distribution of household income by tain associations with the amount and kinds of outdoor income classes, 1960: large midwest metropolitan activity, although except for marked differences be- areas and United States (percent) tween the low-income and middle-income group, the ,relationship does not appear to be as strong as in the Metropolitan Under $2,500- $4,000- $7,000- $10,000 case of age. area $2,500 $3,999 $6,999 $9,999 and over The incidence of participation nationally is lowest among the low-income segment of population and 'Chicago ...... 7.8 13.8 39.9 20.1 18.4 .rises with increasing income up to the upper income Four Midwest group where participation tends to drop. Increased SMAs ...... 8.6 14.6 41.6 19.8 15.4 participation in outdoor recreation appears to be more United States. 14.91 2.0.6 37.3 1 15.5 11.7 a result of increased financial ability rather than a change in interest in specific types of outdoor recre- Source: "Sales Management," May 1961. The four ation, since the participation rates for all types of metropolitan areas are Cleveland, Detroit, St. Louis, and recreation are progressively upward. Notable excep- Minneapolis-St. Paul, combined. tions to this, however, are found infishingand hunting where the percent participating changes relatively little except between the two lowest income groups, annual cost of a city worker's family budget provid- and in horseback riding where participation continues ing a "modest but adequate" level of living for a to rise through the upper income group. four-person family. Based on autumn 1959 costs, Some of the differences between income groups, of annual budget costs among the midwest metropolitan course, reflect characteristics of other factors. areas range from a high of $6,567 (Chicago) to a low of Education and occupation differences appear to be re- $6,072 (Detroit). Hence the relative purchasing power lated to recreat .ion behavior, although both tend to be of the Chicago dollar is something less than house- reflected in income differences. . Again, low activity hold or,per capita income comparisons would indicate,.. by the lowest income group and perhaps the'dropoff in activity in the highest income class probably is attributable in part to the disproportionate number of 'OUTDOOR RECREATION AND older people in these groups. However, income is an RECREATION OPPORTUNITIES important element of demand in itself as well as re- flecting class-style interests and preferences. It was previously suggested that differences in the Chicago area residents overall enjoy a higher per relative availability* of opportunities for outdoor capita and per household effective buying income than recreation on day and overnight outings may explain do the residents throughout the Nation as well as the in part the tendency of the residents of the midwest residents in the other large midwest metropolitan metropolitan areas to participate to a somewhat areas (table D-5). More important to outdoor recre- greater degree in outdoor activities of amorepassive ation activity, compared to these metropolitan areas, nature. The question is raised, therefore, as to the the Chicago area has a consistent overrepresentation relative position of the Chicago area in the provision of households with incomes $7,000 and above with of space for outdoor activity. lesser representation of households of lower income A comparison of acreage of public recreationareas (table D-6). in or near the Chicago@ area with that of five of the The figures presented are disposable incomes and largest metropolitan areas of the United States pro- not real income or purchasing power. The U.S. De- vides a clue to the comparative availability of oppor- partment of Labor provides a meaningful comparison Aunities. The public recreation land included in t 'able of the relative cost of living in a number of cities D-7 for this comparison is that which is located over the Nation. 7/ The comparison is based on the within a 60-mile radius of the center of each central city or cities. Public hunting and shooting grounds !/U.S. Bureau of Labor Statistics, "The Interim City,Worker's and game or fish preserves are excluded in the data Family Budget," Washington: "Monthly Labor Review," presented. On.@,a per capita basis, the Chicago area August 1960, pp. 785-808. stands last on -the list withless than 12 acres per 237 Table D-7. Public recreation acreage per 1,000,persons: sion. 8/ The units are those from'which the Survey seven largest U.S. metropolitan areas Research Center drew a sample of respondents for the national study of outdoor recreational activities; hence Metropolitan area Acres Acres per it provides a measure of comparison of the Chicago 1,000 persons area to other representative areas of the Nation. Five selected raters as leaders in the field of recrea- Chicago: tion 91 were asked to independently evaluate each of 'Federal ................. .... the sampling units on the'basis of quantity and'quality State .................. 16,17C 2.2 of physical resources (regardless of ownership type), County and Mu ' nicipal .... 70,800 9.4 accessibility and development of these resources, Total ......... i....... 11.6 and the relative degree of use made of such resources. Son Franc isco-Ookland: While the ORRRC staff express reservations on the Federal .................. 493 0.1 results, suggesting that much'6f the observable differ- ence in rates given for different places could be due State ......... ......... 39,125 10.2 to errors arising, out of the subjectiveness of rating County and Municipal .... 35,940 9.3 categories and from differences in rater knowledge 75,5 19.6 of each area,, the overall findings are quite consistent Detroit: with the previous comparison. In physical resources i Federal..... 14 Log Angeles, Detroitj and Boston are inthehighest rank, followed by New York, San Francisco, and State ............. 60,912 11.9 Philadelphia. Chicago is in the lowest rank group. Metropolitan, county and In access and development, again the Chicago area, municipal ............ 33,509 6.5 by being in the lowest, group with Detroit and Los Total, ................ 18.4 Angeles in. the highest group, suffers by the compari- Boston: son. In use of resources, however, San Francisco Federal ......... ;...... 14 and Chicago are included in the second highest rank, State ...... 81,710 14.7 just below Detroit and other large metropolitan areas County and municipal .... 16,323 2.9 which are in the highest rank. A comparison of Chicago with the other large centers. Total., ................ 98,047 17.6 of the midwest provide similar results. While Chicago New York-Phi lade lphic: alone ranks.,last in physical fa 'ctors, access, and Federal ................ 1,806 0.1 development, all but St. Louis are ranked in the high- s tote .................. 273,593 12.1 est or next to highest group. In use made of the re- County and municipal .... 112,522 5.0 sources, however, Chicago ranks even with St. Louis Total ................ 387,921 17.2 in the second highest group with the other three being in the highest categories. Hence differences in use Los Angeles: made of resources are much less notable than differ- Federal ................. 1,249,657 163.4 ences in recreation opportunities. State .................. 5,493 0.7 Despite the experimental nature of the study,and its County and municipal 28,652 17 inherent shortcomings, the results are consistent with Total ................. 167.8 the comparative measure of acreage to population that the Chicago area Js deficient in the supply of Source: Sumrrtary data for metropolitan areas other than existing opportunities for day outings compared to Chicago obtained from Marshall, James, "Interim Report: other large metropolitan,.areas. It is also apparent Proposed State Parks in Fox' River Valley," Hansen, that the rating group believes that recreation facilities Schneemon & Associates, 1961. Study prepared under contract in and around -the Chicago area are intensively used with Department of Conservation, State of Illinois. despite deficiencies in overall quality. OUTDOOR RECREATION AND MOBILITY 1,000 people. The second lowest, the New York- Philadelphia complex, has over 17 acres per 1,000 In modern society, individual. or family mobility people@ The, Chicago area ranks well below other commonly, is expressed. in terms of car ownership. large metropolitan areas in existing public facilities Such a measure is particularly, significant to a study for ou Itdoor recreation, including the Detroit area, of outdoor recreation carried out on day and over- the second largest midwest metropolitan area. While night outings, because use of a car provides greater, the.'qual .ity of opportunities'for.outdoor activitycannot flexibility and personal convenience than.does mass be 'assessed on the basis of physical quantity of land transit. alone,' a c Iomparison such as this does suggest strongly that the Chicago area-by comparison is lacking in out- door iecreation opportunities. And as the data indi- NStaff, "Evaluation of Recreational Opportunity at 66 Primary -cate, the deficiency is' found in facilities provided Sampling Units." Washington: Outdoor Recreation Resources the county level of ownership and control. Review Commission, October 1960. Staff Working Paper Another evaluation of existing recreg-tion-oppor- No. 15. tunities for daylong use in 66.primary sampling units NThe U.S. Forest Service, 'The Soil Conservation Service, The National Park Service, The Bu in the United States, is provided through a study by reau of Sport Fisheries and .the Outdoor. Recreation Resources Review Commis- Wildlife, and The National Recreation Association.' 238 Examination of compiled statistics of passenger cars Table D-8. Car ownership and density, Chicago and on the road for s elected counties throughout the Nation Detroit study areas indicates that Cook County (by far the most populated Chicago (1956 Detroit (1953 county in the Chicago area). has a lower ratio of cars data) data) per person and household than for the Nation as a whole, and for any of the central counties of the four City Sub- To- City Sub- To- other large metropolitan areas of the midwest. While urbs ta,l urbsi tal the data available do not measure car ownership per household or family (taxis are included), there is Car ownership pee dwelling strong suggestion that personal mobility is less inthe place., ................ 0.68 1.14 0.81 0.85 1.11 0.94 Chicago area. Net residential density A comparison between Detroit and Chicago is help- (dwelling places per net ful in this. regard. As table 8 data show, the incidence residential acreY ......... 153.3 1 4.9114.4 21.4 4.6 -9,4 of car ownership is higher in the Detroit area (0.94 cars per dwelling place) than for the Chicago area Source: Hamburg, John R., "A Comparison of Car Owner- (0.81). Hence it appears that participation in pleas ure ship and Density-Chicago and Detroit." "C.A.T.S. Oesearch driving and sightseeing is less in the Chicago area News," vol. 2, No. 15, October 3, 1958,'table 1, p. 3.' than figures for the large metropolitan areas in the north-central region would suggest. Further, day and facilities and alternative types of activity tend,'to be- overnight outings away from home *where use is made come more important. of the automobile would tend to be less per unit, of . Notable income differences by plac Ie of residence population-boating and camping, for, example, involve within -the Chicago area are also found to exist.. Ac@ the use of the automobile to transport the personal equipment needed. cording to a consumer survey. of households in 2 1/2 counties ofthe Chicago area, the median income.re- OUTDOOR RECREATION AND PLACE ported for hous 'eholds in Chicago was $5,880 as against _--d $7,860 for those in the suburban area (table D-9). E OF REMEN, -thirdlof the Chicago households have In fact, about one incomes of less than $5,000 as compared to one-ninth Even more significant to our study is the compari- of the suburban households. It was pointed out previ- son. between the incidence of car ownership according to place of residence in the Detroit and Chicago areas. ously,that survey.data indicate that the low-income segnient of the national population participates less The overall difference,-.in car ownership previously in outdoor recreation than all other income classes;. noted is almost entirely the result of differences be- for the Chicago area partial ex m tween the .two central cities themselves. The number @ pI nation of lower of cars per dwelling unit for the city of. Chicago is participation by the low-income, group may be that a high proportion of the population with lower incomes 20 percent below that for the city of Detroit, yet only live in areas of high density- which provide fewer a slight difference exists between the two suburban amenities for outdoor recreation. As table D-10 data areas@ifi fact, that which is indicated in table D-8 indicate further, however, Chicago dwellers overall probably is accounted for by the inclusion of a larger. and regardless of income status tend to have less outlying section in the Chicag .o areas,tudy, a section personal I mobility than their suburban counterparts' which has the highest rate of.car ownership, and by- the . The relationships evidenced among the factors given' difference in the year in which data were collected. above suggest that a combination of characteristics Mobility as a factor in outdoor recreation, there- is associated with place of residence within the Chicago fore; has a high relationship to place. of residence. area, with these associations, having@an bff&ct on out- City of Chicago residents have less overall personal door recreation behavior and interests. People inthe mobility than suburban residents, and in part because of mobility limitations have terided to de.veloprecrea- T u on by tion behavioral patterns and interests which differ able D-9. Ann'al household income, distributi' somewhat from those who live in the suburban sections. income gro .upsF 1960 (Chicago and suburban study area) Certain other. differences by place of residence ap- Chico' urban pear 'to have significance to recreation behavior. Household income go Sub Total area Table D-8, for example, provides a significant com- (percent) (percent) (percent) parison -between car ownership and density of living. While bar ownership per dwelling unit is 20 percent Under $3,000 ............. 12.0 3.2 9.1 less'in the citk of Chicago, the,net residential density $3,000 to $4,999 .......... 21.6 8.2 17.4 is 2 1/2 times greater than that in. Detroit. In the $5,000 to $6,999 .......... 31.0 V.@ AB suburban areas, again, there is little difference in $7,000 to $9,999 .... *".. 22.4 @3.3 -25.8 @density of living and in the rate of car ownership $10,000 to $14,999 ........ 9.6 19.0 12.6 Mobility has an inverse relationship to density of liv $15,000 and over .......... 1 3.41 9.1 5.2 ing in both study areas,@ but it is the people who live Median Income ............ 1 $5,8801 $7,860 $6,500 in highly congested areas of the city of Chicago that are least mobile of all. In this sense, then, the resi- -!Suburban section includes Cook County (outside Chicago), all dents of Chicago have less ability in reaching outdoor of Du Page and the southern one-half of Lake Countie-s. recreation facilities outside the city. And since high density areas by their character have few facilities Source: . "Consumer Analys:is," 1960. Chicago: Field for outdoor recreation., substitute forms of recreation Enterprises, Inc., 1960, p. 212, 239 Table D-10. Average number of cars owned per household, 1957 and later (Chicago and suburban study area) Household income Chicago Suburban Total area 1957 1958 1959 1960 1957 1958 1959 1960 1957 1958 1959 1960 Under $5,000 .............................. .53 .52 .48 .45 .88 .84 .83 .86 .58 .56 .52 .50 $5,000 to $9,999 .......................... .93 .93 .89 .89 1.15 1.15 1.13 1.15 1.00 1.01 .97 .98 $10,000 and over .......................... 1.2.7 1.18 1.22 1.21 1.53 1.45 1.48 1.46 1.39 1.31 1.35 1.33 Average ........................... .80. .79. .78 .78 1.18 1.18. 1.19. 1.20, .91 .91. .91. .92 Source: "Consumer Analysis." Chicago: Chicago Daily News, Inc:, 1959 and earlier years; Field Enterprises, Inc., 1960. See notation at bottom of table D-9 for definition of suburban area. city, living in high density residential areas, find it traditionally have been used only bywhites. Themore more difficult to take advantage of outdoor recreation serious difficulties in use of local facilities seem to opportunities. Interests tend to become directed not occur when residential neighborhoods change in oc- only to the types of facilities provided in an urban cupancy status. setting, but also to those that are within easy reach The Negro in Chicago in general is recently re- for day outings (in the case of Chicago, the water and moved from, or one generation away from the South. beach facilities of Lake Michigan and the close-in His participation in outdoor recreation obviously is sections of the county forest preserves). At the same influenced by his southern rural experiences, modi- time, alternative forms of recreation are practiced- fied by the urban environment which now surrounds e.g., walking around the block instead of through the him. The National Recreation Survey findings indi- woods, going to ball games, engaging in recreation cate that the most popular outdoor activities among indoors. By contrast, residents in the -suburban sec- southern 14egroes in terms of participation rates are tions of the Chicago area with larger lots and more fishing, hunting, pleasure walking, and attending or homeownership tend to engage in - outdoor activity participating in outdoor sports events. They are low 'twithin the sidewalk" but at the same time have participators in such activities as boating, camping, greater flexibility in movement and in exercise of out- sightseeing, pleasure driving, and horseback riding. door recreation choices. In the Chicago area, few Negroes are -observed par- ticip@Lting in boating, camping, and horseback riding. Car. ownership per Negro family probably is much RACIAL CONSIDERATIONS higher in Chicago than in the South, and pleasure driv- ing is proportionately greater. But because of the ex- National surveys indicate that nonwhites have a pense and general lack of facilities, hunting activity relatively low scale of participation in outdoor recrea- appears to be unimportant in the Chicago environment. tion. This difference in large part is believed to be Fishing and picnicking, and particularly swimming a reflection of other characteristics, such as income, among the young, are important recreation activities relative availability of recreation facilities, andplace among the Negro segment of tl@e Chicago population. of residence. Since the Chicago area has a higher Uses of parks and playgrounds include organized proportion of Negroes in its population than the four sports, and attendance is heavy at sporting events other large midwest metropolitan areas combined q)articularly baseball). While the Negro does par- (14.8 percent compared to 12.7 percent), further at- ticipate to a lesser extent in outdoor recreation, his tention to the racial factor is warranted. activities and interests also tend to reflect the inter- In the Chicago area, a disproportionate number of. ests of the low-income, inner city population. The Negroes are of low or low-middle income, living pri- younger generation is more aggressive than his peers marily within the city of Chicago in relatively high in asserting his rights to the use of existing recrea- density areas. Barriers to use of outdoor opportu- tion facilities, and through red-feather agencies and nities at some distance from residential neighborhood other semipublic and private organizations, the youths are indicated by the close correlation among high are acquiring new interests and skills in swimming, density, low income, and low personal mobility. And camping, nature study, and the like. Limited groups segregation by residential neighborhoods has tended of adults and families are observed during weekends .to encourage- separation in use of local public recrea- and vacation periods at camps or resorts within the tion facilities. Chicago region; some boating by Negro groups is being Negroes and Caucasians together utilize certain done on Lake Michigan and at certain inland lakes. se6tions of the Cook County forest preserves (e.g., the Wolf Road area of the Palos Division), picnicking, fishing, and relaxing in peace. In other parts of the CHARACTERISTICS OF WEEKDAY preserve, they may pgage in recreation as separate RECREATION groups. Parts of the beach area along Lake Michigan are occupied by both races, although for the most part Further comparison with the Detroit study area segregation of lakefront activity occurs. Conflicts provides a'basis for bringing into sharper focus the arise from time to time, particularly where teenagers characteristics of weekday recreation activities in of different groups meet. Generally, conflicts develop the Chicago area. Table D-11 data provide an insight when Negroes begin to use certain facilities that into characteristic habits of a recent period, for an 240 Table D-1 1. Average weekday internal person trips generated per acre of public open space by distance rings, Chicago and Detroit study areas Chicago area 0 956 data) Detroit area (1953 data) Ring Average Internal trips per Ring Average internal trips per distance acre of p.o.s. distance acre. of p.o. s. 0....................... 0.0 980....................... 0.0 T....................... 1.5 291....................... 0.2 29 2....................... 3.5 262....................... 2.0 id 3....................... 5.5 283......... **---- 4.5 3 4....................... 8.5 144.........*......... .... 7.5 8 5....................... 12.5 65......... *- ........... 10.5 3 6....................... 16.0 26....................... 16.5 2 7....................... 24.0 2, I Source: "Detroit Metropolitan Area Traffic Study," part 1, July 1955, table 14, p. 41; "Chicago Area Transportation Study," vol. I., Survey Findings, table 10, p. 64, December 1959. J. D. Carroll, Jr., director of both studies. average Monday through Friday weekday, by compar- evidenced by data presented in table D-12. The high ing daily internal trips (regardless of mode of travel density areas of the city of Chicago have about the other than walking) per acre of public and quasi-public same amount of open space acreage per 1,000 popu- open space by distance rings from the center of lation as the city of Detroit (in fact, the innermost Chicago and Detroit. Public open space as defined ring of Chicago has a much higher, ratio), yet the in the studies on which the data are derived include number of trips per acre of open space is much higher. the land acreage of parks and playgrounds, forest pre- Thus people in the high density 'areas of Chicago make serves or regional parks, golf courses, swimming more intensive use of local open space, by far the pools, botanical or zoological gardens, race tracks, largest part of which is devoted to recreation, for ball parks, other outdoor amusement centers, ceme- short-term weekday use. teries, etc. Except for cemeteries, the open space A survey of the characteristics of trip purposes by categories represent all types of public outdoor activ- destinations in the Chicago area by the C.A.T.S. or- ity facilities, including outdoor recreation as defined ganization provides a clue as to the importance of in this study. outdoor recreation during the average workweek day As the data indicate, the n@imber of weekday internal during the warm season of 1956. Of the 9.9 million person trips per acre of public open space in the inner daily internal person trips, 1.8 percent were destined rings of the Chicago area is considerably higher than to indoor amusement and recreation places and 3.1 in Detroit but not much different in suburban rings percent to public, - quasi-public op .en.space.10/ As of comparable distance. This is consistent with evi- expected, open space facilities of all types are m .ore dence previously presented that overall more intensiVe important trip generators on the average warm-season use is made of recreation facilities in and around the workweek day than indoor recreation centers. Chicago area than for other large metropolitan areas. The origin and destination of recreation trips to all The more intensive use of public open space in the open space areas are graphically illustrateid in figure high density areas of Chicago, of course, could be the D-4, with those going only to parks, forest preserves, result of a lower ratio of open space acreage to popu- lation numbers. That is, the factor of high density by LOIStaff, "Chicago Area Transportation Study," vol. 1, Survey itself is the explanation of the greater number of per- Findings, December 1959. Datajor computations obtained son trips. That this is not the case, however, is from table 24, p. 114, and table 36, p. 119. Table D-12. Comparison of public open space and population distribution by distance rings, Chicago and Detroit study areas Chicago area (1956 data) Detroit area (1953 data) Ring Average P.O.S. (acres) Ring Average P.o.s. (acres) distance per 1,000 persons distance per 1,000 person!_ 0....................... 0.0 17.4 0 and I ................ 0.5 0.5 1....................... 1.5 1.32....................... 2.0 2.5 2....................... 3.5 1.23...................... 4.5 1.1 3....................... 5.5 1.84...................... 7.5 2.1 4....................... 8.5 3.05...................... 10.5 5.2 5....................... 12.5 13.06..................: ... 16.5 9.7 6....................... .16.0 36.8 7....................... 1 24.0 1 73.7, Source: "Detroit Metropolitan Area Traffic Study," op. cit., part 1, table 8, p. 30 and table 36-p. 123; "Chicago Area Transportation Study, op. cit.," vol. I., table 19, p. 108, and table 21, p. 110. 241 beaches and pools indicated in figure D-5. ll/ Be- neede& Trips to: public open. space are shown by cause of the unusual nature of the phof6graphic connecting origin and destination points by straight displays, a word of explanation of what is shown is lines. Each display, then, is a "desire line" map of the sum of all trips taken, not by.actual routes traveled L/'Pre.sented through the courtesy of the C.A.T.S. organization. but by shortest distance lines. K,l W, 5@ 'A" PTO 2 0 2 4 UL ---T ----- L= MiLES FIGURE D-4. RECREATION TRIPS TO PUBLIC OPEN SPACE, AVERAGE WORKDAY, 19561/ 2/Chicago Area Transportation Study-1956 Home Review Date. 242 The dominant destinations. of workweek recreation when the'displays are matched with a map of land use trips appear on the two displays as points -of conver- of the Chicago area. It becomes obvious aftercareful gence of desire lines. A number of parks, beaches scrutiny of the site locations of the various points of and other water-oriented centers along Lake Michigan, attraction, however, that supervised and organized and sections of the forest preserves, can be identified forms of group recreation play an important role in 2 4 fIGURE D-5. RECREATION TRIPSTO PARKS, FOREST RESERVES, AND POOLS, AVERAGEWEEKDAY,1956Y -!/Chicago Area Transportation Study-1956 Home Review Data. 243 the recreation activities of people, because in addi- Some comparisons of day outing activities within tion to park and playground activities, ball parks, the Chicago area between the workweek and weekends amusement parks, race tracks, golf courses, and can be drawn from a survey recently made of users other urban-type centers are prominently displayed. and use activities in a part of the Palos division of To be mote specific, of the 252,000 internal trips the Cook County Forest Preserve District. The survey to public open space areas on an average workweek was conducted during a 7-day period in August 1960, day, 35 percent were made to parks and beaches, under the direction of the Department of Resource forest preserves, and swimming pools. An additional Development, Michigan State University, as a part of 6 percent were joy or pleasure rides. The remaining a nationwide survey of Federal, State, and county 59 percent of the trips, however, were destined to recreation areas for the Outdoor Recreation Resources commercial recreation centers which are typically Review Commission. Questionnaires.were distributed associated with a highly urbanized environment. . to each group entering the Wolf Road area, located Most of the desire lines as displayed in the two fig- about 19 miles southwest of the Loop, 8 miles west of ures are short, confirming previous conclusions that the nearest point of the city limits of Chicago, be- the facilities for recreation most often visited are, tween the Calumet Sag Channel and the Chicago Sani- those that can be easily reached in a few minutes. If tary and Ship Canal. walk trips were included with trips bymotorizedform The Wolf Road area includes low hills that are of conveyance, the dominance of local neighborhood wooded with lakes and open groves, and provides facil- or community centers of recreation would be even ities for picnicking, relaxing, boating, fishing, trail more apparent. The daily demands of job and home hiking, and walking in a natural setting. The area is permit only occasional visits during the workweek reached primarily by automobile, and is used by to places that are more distant or difficult to reach.. Chicago and suburban residents alike. Hence, this This is particularly true for people who live in more survey provides important information on a number congested surroundings and who have rather low of characteristics of day or partial- day outdoor ree- individual mobility. Even the most popular areas yeation outings within the Chicago area. along Lake Michigan and in the forest preserves, The results of the survey, as they relate to the var- places that provide the best opportunities within the ious elements of demand for daylong activities, can be built-up sections of the Chicago area for outdoor summarized under six major headings. recreation of the types considered in this study, tend 1. The Wolf Road area receives its heaviest use to become local rather than regional recreation facil- on Sundays. On this particular week, 32 percent of ities during the workweek. To the extent that resi@ the visiting groups came on Sunday, 24 percent on dents of the Chicago area engage in outdoor recreation, Saturday, with the remaining 43 percent during the then, participation takes place primarily when longer combined workweek days. Because of the method periods of leisure time are available. used in coding characteristics of group members, it is not possible to ascertain the exact number of people DAY OUTINGS ON WEEKENDS using the area each day. Inspection of coded size of groups, however, indicates that at least 45 percent, Unfortunately no systematic studies of weekendtrip more probably 50 percent or better, of all visitors origins and destinations have been made for compari- came on Sunday. son with workweek'travel. General observations, in- By way of comparison, the regional park survey of formed judgments, and fragmentary data concerning the Cleveland metropolitan area previously mentioned use of existing opportunities in the Chicago area and indicated that the Sunday load of the regional parks the Chicago region, however, indicate that day and was about 26 percent of the total recorded for a period overnight outings for outdoor recreation are concen- of a week. The survey findings for the Wolf Road area trated on weekends, principally on Sundays and holi- plus the results of the study of group picnicking in the days during the warm s(@eson.. forest preserves when compared to the Cleveland sur- Park district officials, in estimating use of lake- vey, suggests that excessive "peaking" of dayoutings front beaches in Chicago and along the north shore on Sunday exists in the Chicago area. have found that except for a few really hot and humid 2. Users of the Wolf Road area were predominantly days during the week, the beaches receivebyfar their of the family group type. About half of all groups were heaviest use on Sundays in July and August. Officials single families with an additional 30 percent composed of the Cook County Forest Preserve District refer to of groups of two or more families, familyplus others. the fact that the preserves are overcrowded on about Single-family groups predominated throughout the 18 Sundays and holidays during the June-September week, although they constituted a larger share of all period, with only light use (except for special activ- groups during the workweek than on Sunday. Two-or- ,ities such as day camping and related youth group more family groups had three times greater repre- activities) during the rest of the summer weeks'and sentation on Sunday than during the workweek. While throughout the year. A tabulation of group picnic per- this indicates that outdoor recreation tends to be a mits issued by the district in 1959 during the June- family-sharing experience, it also suggests that the August period, for example, reveals that Sundays comparatively low incidence of car ownership among accounted for about 45 percent of the"Picnics and 53 households in Chicago provides an incentive for hold- percent of the estimated attendance. And State offi- ing combined outings on 'Sunday when. an automobile. .cials report that day and overnight outings in State is available for leisure-time use. parks, forest and similar recreation facilities are 3. In a comparison of the age composition of the concentrated on weekends, with Sunday and holidays users of the Wolf Road area to that for the Chicago by far being the most important days. area (table D-.13), it was found that children and 244 Table D-13. Age composition of users of Wolf Road area compared to that of Chicago area population Chicago area Wolf Road area (percent) Age class (percent) Weeklong Workweek Saturday Sunday 12 or less ........................... 26 31 40 28 26 13 to 19 ............................. 10 17 15 19 17 20 to 44 ............................. 33 36 36 33 39 45 to 64 ............................. 22 13 8 17 14 65 and over .......................... 9 3 1 3 4 Source of Wolf Road area data: Punch cards from August 1960 survey conducted by Department of Resource Development, Michigan ,State University, for ORRRC. Estimates of age composition of users were required-where individual groups included 8 or more persons of a particular age and sex, each was counted as S. adults below the age of 45 were overrepresented. Table D-15. Aoior activities engaged in by Wolf Road This finding is consistent with national survpy data area users: percent of groups participating that show that these two groups are the most active in each activity of all groups in outdoor recreation. . 4. By a comparison of family incomes of users of A ctivity Weeklong Workweek Saturday Sunday .the Wolf Road area to that of Chicago and a major section of the suburban area (table D- 14), it was found Picnicking ........ 70 66 69 .77 that there was overrepresentation of families within- Relaxing ......... 50 43 53 56 comes of $5,000 to $10,000. This is also consistent Bank fishing ....... 39 44 42 30 with national survey findings that it is the middle- Boat fishing ....... 25 29 25 21 income group that participates most in outdoor Walking to scenic recreation. points .......... 32 37 30 27 Trail hiking ....... 28 31 26 27 Rowboating ....... 28 24 33 29 Table D-14. Household income of Wolf Road area users Sightseeing from car compared to that of Chicago area residents only ............ . 241 251 191 24 Chicago area Wolf Road users Note: Group members participated in more than 1 activity Household Income (percent) (percent) during a single visit, hence participation rates add'up to more Com- Chi- Sub. Work- Sat- Sun. than 100 percent. bined cago urban week urday day Under $3,000 ........ 9 12 3 7 8 a Picnics lead the list in both instances. This is con- $3,000 to $4,999 ..... 17 22 8 16 14 18 sistent with national survey data which indicate that $5,000 to $6,999 ..... 30 31 27 38 33 40 picnicking is one of the two most popular forms of $7,000 to $9,999 ..... 26 22 33 26 37 24 outdoor recreation today, and with the fact that picnic $10,000 to $14,999?@. 13 10 19 10 7 3 facilities are well developed in the Wolf Road area. $15,000 and over3J 5- 3 9- 3. 1 7 While picnicking leads the list of activities through- out the week, it was proportionately more important -11Chicago area as defined here includes Chicago and remainder on Sunday. Fishing was preferred to a greater extent of Cook County, all of Du Page County and the southern one. by those coming during the workweek. Presumably half of Lake County. those who visit the area primarily for fishing come on -2'The income class coded for the Wolf Road users was $10,000 workweek days to escape the overcrowded conditions to $13,999, and $14,000 and over. on Sunday. 5. As to place of residence, 58 percent of all visit- Table IM6. Most enjoyable group activity of Wolf Road ing groups lived in Chicago, coming 11 to 30 miles by area users-major activities only (percent) direct route. A higher proportion of Sundaythanwork- week groups were composed of Chicago residents- Activity Weeklong Workweek Saturday Sunday 65 and 53 percent, respectively, and of the relative size of groups are compared, the share to total visitors Picnicking ........ 30 25 32 35 from Chicago on Sunday would be even greater. Thus Bank fishing ...... 13 17 10 10 the Wolf Road area is used more by suburban resi- Relaxing .......... 12 8 19 12 dents during the workweek, and more by Chicago people Boot fishing ....... 12 18 8 6 on Sunday. This is consistent both with the tendency Walking and Trail of the forest preserves to be used more as local f acil- Hiking .......... 11 11 12 10 ities during the workweek, and the comparatively low Rowboating ....... 1 61 31 101 6 mobility of Chicago households. 6. Major activities of users according to time of Note: The major activitiei plus those of lesser impor- visit are indicated in table D-15; the activities listed tance mentioned add to 100 since each group was asked to as being most enjoyed are presented in table D-16. select the activity most enjoyed. 245 OVERNIGHT VACATION RECREATION Table DA7. Vacation, means of transportation ACTIVITIES away from Chicago area, 1950 The national survey findings of the Survey Research Chicago Suburb United Center indicate that a little over 40 percent of adults (percent) (percros States throughout the Nation took at least 1 weekend-vacation t) (percerit)_ trip away from home during a period of a year, with Automobile ............... 68.2 80.6 83 one out of eight taking two or more vacation trips. Train ... 17.8 9.9 4 The proportion of those taking vacation trips and those taking weekend trips was 32 and 19 percent, respec- Plane... 14.4 14.4 7' tively. National Recreation Survey data also show Bus .... ... 5.0 2.2 5 almost identical ratios for vacation and weekendtrips Boat or other .......... I..... 0.6 1.5 1 taken during the June-August period of 1960. As No Answer ................. 0.3 0.1. expected, the proportion of people taking both types Less Duplicates ..... 8.71 of trips increases from the low-income through the upper income groups. j/Less than 0.05 percent. Two independent surveys taken recently of pleasure trips away from home by Chicago area residents pro- Source. For the Chicago area-"1960 Consumer vide conflicting resultsi. By,means of a telephone Analysis," 'op. cit., p. 228 (the suburban area includes Cook, interview sample of households listed in the Chicago DuPa.ge, and the southern one-half of Lake CountiesL For the and "Greater Chicago" telephone books, the Bureau N ation-"The Demand for Outdoor Recreation," Survey Research of Business Research and Service, University of Center, op'. cit., p. 106. Wisconsin, concluded that 42 percent of the house- holds in the urbanized area took at least one overnight those 'in the suburbs. place 'greater reliance.on rail- or vacation pleasure trip in 1959.12/ Using a mailed roads and buses, with less use beingmade of the auto- questionnaire sample of househol7d-s in a 2 1/2 county mobile. This finding, of course, is consistent with the area of northeastern Illinois, a survey by two Chicago fact that Chicago households own fewer automobile .s. daily newspapers, however, found that about 61 per- And according to the consumer analysis survey, a cent of households took pleasure trips away from the higher proportion of suburban householders take Chicago area. 13/ The difference between the results overnight-vacation pleasure trips away from home may signify a ignificant response bias in one or both (69 against 58 percent, respectively). surveys, or it may be that differences in results re- The two surveys made locally indicate that about flect in. part differences in the area covered. At any half of the overnight weekend- vacation trips have rate, the latter survey indicates that a'higher per- destinations outside the midwest (tables D-18 and D- centage of Chicago area households take ovbrnight@ 19). Compared to the Survey Research Centerfinding vacation trips than the Nation as a whole; the former that 27 percent of the national vacation trips are suggests that the relative proportions are not much destined to places within the state of residence, the different. While it is not possible to judge the varia- local survey by the Wisconsin group indicates that only bility of sampling errors of each survey, it is believed about 8 percent of the telephoned householders stayed that the consumer survey is probably more represent- in Illinois with about 3 percent remaining in Indiana. ative of the Chicago area than,the telephone survey, The State of Wisconsin, as the strongest drawer, alone 'since it excluded from its sample the residents of the attracts three times the overnight-vacation Chicago Calumet region of northwestern Indiana, and because area recreationists as does Illinois. controls were imposed to obtain representation of A recent Cook County Highway lbepartment roadside different subgroups in the population. traffic survey provides supplementary evidence of the For trips away from home, Chicago area residents strong attraction of Wisconsin as a recreation area. make greater use of common carriers than do people On a nonholiday weekend in August 1960, sample throughout the Nation. As table D-17 data show, greater use is made of rail and plane transportation with less dependency on the automobile. Withinthe Table D-18. State visited on lost trip for vacation- Chicago . area, Chicago residents when compared to recreation purposes, by Chicago metropolitan area residents 1-2/Fine, I.V., and E. L". Worrier, "Wisconsin's Share of the Chicago Vacation Market." -Madison: Bureau of Business Percent of vacationing Research and Service, School of Commerce, University of State households Wisconsin. Wisconsin Vacation-Recreation Paper, vol. 1, No. 1, February 1960. Area telephone books cover house- Wi scon si n ........................ holds in 5 counties in northeastern Illinois, excluding Michigan .......................... 8.4 McHenry County and all of Kane County beyond the Fox Illinois ........................... 8.2 ver Volley, and the Calumet region of Lake County, Ind. Minnesota ................ ........ 4.9 L3j!i1960 Consumer Analysis." Chicago: Chicago Sun-Times Indiana .......................... [email protected] and Chicago Daily News, 1960. The survey covers Chicago. Iowa ............................... 2.5 and the suburban market in Cook, DuPage and southern one- Others ........................... 44.2 half of Lake Counties, Ill. Mailings were controlled to meet representative proportions of homeowners-renters, various Source: . "Wisconsin's Share of the Chicago Vacation- income groups, city-suburban dwellers. Recreation Market," op. cit., p. 5. 246 Table D-19. Regional place of vacation by -Chicago and camping. Intermediate in participation are fishing, study area residents boating, pleasure walking, and nature walks or study. Of the latter, boating represents a mixture of inter- Percent of household ests, since, like horseback riding, it requires special Region vocations - equipment and facilities, yet at the -same time it is City Suburbs Total associated also with other activities such as sight- seeing and fishing that have intermediate or higher East north-central ................ 42.1 41.2 41.8 popularity. South Atlantic ................... 12.1 14.3 12.9 While the recreation behavior of residents of large West nortH-centra I ................ 9.0 10.3 9.5 midwest metropolitan areas is similar to overall in- Pacific ......................... 8.6 8.8 8.7 terests of highly kirbanized America, certain differ- Middle Atlantic ........... i.v ...... 6.5 .7.1 6.7 ences have been noted. According to national surveys, East south-central ............... 7.3 3.0 5.7 somewhat greater participation takes place among Mountain ......................... 4.0 4.8 4.3 those living in the large midwest metropolitan areas ............ 4.4 3.3 4.0 in those forms of outdoor recreation that require less West south-central.... Cana do ......................... 3.3 4.9 3.9 strenuous effort. One of the differences also noted is New England .................... 2.0 2.8 2.3 that proportionately more people inthese metropolitan Mexico .......................... * 1. 1 1.7 1.3 areas engage in outdoor sports or watch such events, Europe ................. ....... 1.2 1.0 1.1 suggesting perhaps that more outdoor activity takes Al I others ....................... 1.6 1.4 1.5 place in areas that provide more supervised and group No Answer ...................... .1 .1 .1 participation types of facilities. This is consistent Less duplicates ............. 1 -3.31 -4.71 -3.8' with the fact that people who live in a highly urbanized area, where land is developed to the "highest and Source: "Consumer Analy'sis," op. cit., p. 230. East best" urban use, tend to have less day-to-day access north-central region includes the States of Wisconsin, Michigan, to large 'open spaces for outdoor recreation of the Illinois, Indiana and Ohio. types considered in this study. While it may be assumed that overall recreation demand in the Chicago area is represented by the interviews of northbound traffic on the Edens:Express- combined recreation behavior and preferences found way Inear the Cook-Lake County line were taken on in the large metropolitan areas of the Midwest (the Friday and Saturday. Of the trips for recreationpur- Chicago area being the most dominant because of size), poses, 52 percent were destined to Wisconsin resort important differences must be considered. The areas and 30 percent to northern Illinois on Friday slightly older population and a higher ratio of non- afternoon; on Saturday morning the relative shares whites suggest somewhat less per capita day and over- were 43 and 35 percent, respectively. Since 58 per- night outings, although higher incomes offset this tend- cent of the Saturday trips were 1-day-only trips as ency to a certain extent. Even more important against 18 percent on Saturday, it is apparent that probably is the finding that personal mobility is less Wisconsin attracted a higher portion of the overnight in the Chicago area, mainly due to the lower per weekend-vacation trips than these figures might indi- household car ownership in the city of Chicago. Since cate. (If a similar survey of recreation trips on the pleasure driving and sightseeing are dependent mainly heavily-traveled Northwest Tollway and U.S. 14 were on the automobile, these forms of outdoor recreation conducted, the importance of Wisconsin probablywould on day and overnight outings are consideredtobe less undoubtedly appear even greater because neither is important activities of residents of the Chicago area. considered a good access route for the northern Illinois It is also suggested that because of a deficiency in a lake resort area.) variety of outstanding vistas or natural features for The dominance of the northeastern Illinois market relaxed sightseeing, a greater amount of pleasure for Wisconsin recreation opportunities is so strong driving takes place for the purpose of viewing urban- that a Wisconsin Conservation Department Vacation type attractions. Center is maintained and staffed in Chicago for dis- Low personal mobility also is a contributing factor serninating material and information on places and to the determination of place of outdoor activity. events to visit. It is the only such vacation center Heavy reliance is placed on local amusement parks, office of its kind in Chicago under State sponsorship playgrounds, zoos, ball parks, race tracks, and other and control. intensively developed types of facilities. More in- tensive use is made of nearby opportunities for out- SUMMARY AND CONCLUSION door recreation, particularly the beach and water facilities of Lake Michigan and sections of the forest National surveys of use of leisure time indicate that preserves. While both have accessible locations, they Americans tend to engage more commonly in those represent different types of recreation opportunities. activities that can be done casually and withminimum For the latter, they are picnics, walking or relaxing preparation. With respect to outdoor recreation, driv- in a wooded environment, fishing or boating in small ing for pleasure, sightseeing, picnicking, and swim- inland water bodies, and nature walks or study. For, ming are the most pbpular. Conversely, those activ- the former,. they are walking along the waterfront, ities which require special-purpose equipment or sunbathing, relaxing and cookouts, swimming in cool facilities, or physical effort, attract the fewest (al- lake waters, and for some, boating. As we shall see though highly enthusiastic) participants-e.g., hunting, in the next chapter, it is these facilities that are most skiing, horseback riding, hiking or mountain climbing, used for short-term and daylong outings. 247 In addition, the activities and Interests of the city have less mobility and below median incomes; Chicago area resident are influenced strongly* by a the city has much higher net residential density with deficiency in recreation acreage available withinrea- less per capita public or quasi-public open space; a sonable distance for day outings. More intensive use greater variety of urban-type recreational oppor- of existing opportunities for outdoor recreation tends tunities exists in the city. Place of residence thus to take place, and interests are channeled more to- has a most important influence on outdoor recreation ward the organized, directed types of outdoor activity. practices and interests. Certain substitutions in enviromnental places of out- In short, the needs and preferences as they relate door recreation also can be observed in the city-e.g., to the level of demand for outdoor recreation are walking around the block or through the neighborhood shaped according to the environment in which people in lieu of walks in areas permitting direct contact live. For people in the city of Chicago, somewhat with nature, window shopping, driving for pleasure more overall effort is directed by man-made facil- through attractive residential areas rather than open ities in which outdoor activity is more organized countryside, swimming in artificial pools (indoor as and directed on a group basis. The opportunities well as outdoor during the summer), watching birds locally available for outdoor recreation are also more from apartment windows, visiting the natural history intensively used. The resident of the suburban area, museum or zoo to see wildlife. while he makes use of the facilities provided in the Differential characteristics by place of residence city and those provided nearby, has greater ability within the Chicago area have important associations to make use of outdoor recreation opportunities away with recreation behavior. The difference in the socio- from home. It is believed that because of his char- economic character of people in the city of Chicago acteristics and location, his participation in, and pref- as against that of those in the suburbs, in the relative erences for, such activities as fishing, camping, accessibility and availability of outdoor recreation horseback riding, hunting, and boating, activities which opportunities and facilities, are two of the most strik- are best carried out in a nonurban environment, are ing factors. A higher portion of the.people in the greater. 248 Chapter Three HOW THE RECREATION NEEDS AND PREFERENCES ARE SERVED Emphasis in this chapter is focused on outd oor major share of facilities for outdoor recreation. recreation opportunities and their uses which serve Outside the Chicago area but within the 150-mile to satisfy the needs and preferences of the residents Chicago region, the primary outdoor recreation op- of the Chicago area. Discussion is centered on portunities which serve the needs of Chicago area facilities that are accessible for day or 2-day outings. residents are those provided by State conservation Consideration is given primarily to facilities that departments and private enterprise. Figure D-6 exist within the six-county Chicago area, and within shows the location of individual State owned or con- a larger Chicago region having a radius of about 150 trolled facilities in the Chicago region that serve in miles from the center of Chicago. Because of the an important manner the needs of Chicago area resi- physical barrier of Lake Michigan in teaching rec- dents for outdoor recreation.. Principal access high- reation facilities 'in Micb.igan,and eastern Indiana, ways are also shown. Both are superimposed on a however, distance zones are modified to the extent of generalized depiction of the physiographic character bending a radius line around the southern and south- Of the region, generalized so as to illustrate the public eastern end of the lake, shoYM in figure D-1. and private recreation potential of the area in and The use of radius lines of a certain length to de- around the Chicago area within range of most day and limit the area within which day or 2-day outings are 2-day outings. taken by Chicago area residents is arbitary, of course. People in suburban locations both by distance and FACILITIES IN THE CHICAGO AREA travel time are closer than Chicago residents to the outer limits of the region and hence can reach distant Park Districts facilities more easily. Certain of the more distant. facilities are readily reached by us6e* of the new Because of technical problems in illustrating many expressways or tollways and modern,highways that small park districts on a small scale map, park permit fast travel,'while others can be reached only district properties in the Chicago area (except for by traveling slower, more localized routes. In addi- beaches along Lake Michigan) are not shown in figure tion, a segment. of the population having strong D-6. Although park districts along with municipalities preferences for specific sites will travel beyond the and school districts provide most of the public urban- area surveyed for occasional day outings, while others type facilities for recreation, they do serve also as rarely travel beyond the Chicago area even during opportunities for certain types of outdoor recreation. vacation time. The first three park districts in the Chicago area One of the strongest suggestions of the area cov- were organized in 1869, 36 years after the founding ered by Chicago area residents during day and 2-day of Chicago as a village., Prior to this; nine small outings is found in the travel maps issued through parks had been created, but as scenic greens rather local sources. The Chicago Tribune each year dis- than as places for recreation. By 1890, each of the tributes a detailed map of highways and points of districts controlled between 400 and 500.acres of interest in "Chicagoland.11 One side of the map improved park land. Under these districts the larger covers in considerable detail all but the outer sections parks of Chicago came into existence and their of the six-county area. The other side shows the names are known to millions of people today- locations of certain notable features, including rec- Washington, Jackson, Lincoln, Humboldt, and Garfield. reation opportunities, of a surrounding area within a Until the emergence of internal public transportation radius of about 110 miles (with an extension, south- systems made them more accessible to the general ward however, to include Springfield, the capitol city public, however, the large parks were actually land- of Illinois). Another popular map for many people scaped beauty spots to be enjoyed only by the I 'genteel in northeastern Illinois is that issued by the Chicago and bourgeois" elements of local society. It was not Motor Club. This map provides information on high- until the playground movement of the early 19001 s that ways, parks, forest preserves, State parks, golf and serious attempts were made to provide places and country clubs, cities, towns, and other landmark facilities for active forms of recreation. By this features within a radius of about 100 miles. Discus- time Chicago had reached the 1 million population sions with representatives of certain travel agencies level and urban growth extended beyond the outer who answer thousands of inquiries each month, con- boundaries of the park districts. The recommenda- firm the belief that the outer range of day outings for tions of a special park commission in a report of 1899 most at present is about 100-110 miles with most called for the creation of more parks as well as 2-day recreation outings staying within about 150 neighborhood facilities for play, and for the estab- miles of the center of the Chicago area. lishment of an outer belt of parks in which forest and Within the six-county area, park districts, county meadow lands would be left in their natural state. forest preserves, State controlled and operated prop- The formation of new park districts in and around erties, private resort and lake areas provide the Chicago increased rapidly after 1900. The number 249 THE CHICAGO REGION Selected Public Recreation Areas' w _4 p 7- 0 @A A@ If. -0 0 7.@ C ICAGO o F Lf po o oA- 4@ io -STATE RECREATION AREAS: PARKS AND SIMILAR FACILITIES -FORESTS 0'HUNTING AND FISHING dw# CHICAGO AREA: NORTHEASTERN ILLINOIS COUNTY FOREST PRESERVES METROPOLITAN AREA 0 LAKEFRONT BEACHES PLANNING COMMISSION 1961 0: 20 60 MILES FIGURE D-6 250 rose to 22 in Chicago by 1933 when the Park Con- park districts provide park@type facilities, making solidation Act and a referendum the following year rather intensive use of the land base. consolidated all districts into one Chicago Park Dis7 Table D-21 gives summary data on district facilities trict. Further consolidation occurred in 1959 by for certain outdoor opportunities but excluding rec- transferring the recreation facilities of the Bureau of reation center and outdoor organized sport activities Parks and Recreation of Chicago to the district. The which constitute the main activities within the parks. latter in turn gave up its systems of boulevards and Park districts other than the Chicago Park District driveways. Outside the city, the number of suburban provide an average of one picnic table for every 2 park districts have increased steadily; today the sub- acres of land (compared to one table per 5 acres in urban. districts total 80 although the acreage of all the Cook County forest preserves). The strong the holdings combined total less than half that of the orientation to picnicking in the park districts attes .ts Chicago Park District. to the popularity of picnicking in the Chicago area, Powers are conferred on park districts to "plan, but the ratio of tables per acre of land again suggests establish and maintain recreational programs, provide intensive use of the land in park districts for short- musical concerts, to construct, equip and maintain term rather than daylong outings. This is againborne airports, landinLr fields,for aircraft, armories, field- out by th .e fact t Ihat :none of the districts provide houses, gymnasiums, assembly rooms, comfort sta-, facilities . for family . or group. camping, and; hiking, tions, Jndoor and. 'outdoor. swimming pools, wading Dnly one offers,day camping facilities (Chicago), only pools, bathing, beaches, bathhouses, locker rooms, two have bridle paths (Chicago and Joliet),@. and one boating. basins, boathouses,. lagoons, skating, rinks,. has nature trails ' (Joliet). Except for theL.Chicago piers,, conservatories forAhe propagation of flowers,. Park District, such districts do not con.stitute,im- shrubs, and other plants, animal and bird houses and portant resources for fishing and boating. enclosures, athletic fields with seating stands, golf, tennis, and other courses, courts, and grounds .... Ill/ Outdoor swimming in pools and I along beaches, The express enumeration of such facilities does not however, is an important aspect of park district prohibit districts from providing additional facilities activity-the Chicago Park District has 42 outdoor appropriate for park purposes. Each district has the poolls, and 32 beach areas alone. In,'fact, the 59 out- authority to levy a general property tax on residents door pools provided by various Cook and Du Page within the district and to issue bonds. County 'park districts constitute 42 percent of the total Table D-20 indicates the acreage of park district private 'and public outdoor pools currently listed by land in each of the six counties of northeastern the American Red Cross. Public swimming along the Lake Michigan beaches also is largely under con- Table D-20. Park districts in'the Chicago area-Acreage tro .1 of park districts. characteristics Because of the relatively flat physical configuration of the Chicago area, particularly in Chicago and. in Average the adjacent, heavily settled suburban communities,' Park Acres per Number of acreage winter outdoor activity other than ice skating is at a County district 1,000 districts per minimum. Ice skating facilities are easy to construct acreage persons reporti ng district by flooding low, flat areas, and this form of outdoor reporting activity is particularly popular among children and young adults. Cook ........ 9,675 1.89 42 230.4 -Lak 6 ........... 1,052 3.58 6 175.3 McHenry ....... . 140 1.66 2 70.0 Lnicago Park District Du Page 540 1.72 7 77.1 Kane .......... 592 2.84 4 1411.0 The holdings of the Chicago Park District are so Will ......... 1,798 9.38 3 599.3 large relative to those of other park districts with its activities so diverse that separate treatment is ac- Total .... 13,797 2.22 64 215.6 corded. They represent over 56 percent of the park Chicago Park - district acreage reported, and 66 percent of the total District ....... 7,752 2.18 .... assessed valuation recorded for all of the park dis- tricts in the six-county area. The parks and recrea- tion facilities of this district serve the 57 percent of Illinois. The acreage given is understated because the Chicago area population that resides in the city the nature of the holdings of 17 of 81 organized park of Chicago, as well as many others who periodically districts is not available (5 of which were organized make use of'the facilities, particularly those along within the' last 3 years and hence may not as yet,own the lakefront. land). On the basis of 64 districts reporting, the The district at present reports 338 developedparks, average district holding is about 215 acres; if the 334 playgrounds, 153 fieldhouses, 42 outdoor and 11 Chicago (7,752 acres) and Joliet (1,335 acres) park indoor swimming pools, 594 tennis courts, 138 base- districts are excluded, however, the more represent- ball diamonds, 134 ice rinks, 32 beaches and 14 miles ative average holding is only 76 acres eventhough the of beach property, 7 marinas,, 1,815 slips, moorings total holdings include twenty- seven 9-hoI6 and 18-hole and space for boatsi 4 golf courses, 2 stadii, a golf courses. Size of holdings alone suggests that planetarium, 2 conservatories, a zoo, a large under- ground garage and several large surface parking lots; !/"Illinois Revised Statutes," ch. 105, sec. 8-10. it maintains the grounds around several @ institutions 251 Table D-21. Park Districts in the Chicago area-Selected outdoor facilities Picnic Swimming Beaches Marinas Inland lake Ice Coasting County talsles pools orlagoon rinks areas Cook ............................. 1,451 55 40 7 14 238 9 Lake ............................ 419 3 4 1 .... 16 .... McHenry .......................... 95 .... 2 .... 2 2 1 Du Page ......................... 154 4 .... .... 1 12 1 Kane ............................ 727 3 .... 1 8 1 Will ............................. 629 .... .... 8 1 Toto I ...................... 3,475 68 46 91 171 276 1 13 Chicago Park District .............. 380 42 32 71 141 1341 .... Source of park district data for both tables: "A Profile Survey of Illinois Park Districts", "Illinois Parks." Springfield: Illinois Association of Park Districts, Jan uary- February 1961, vol. XVII, No. 1, pp. 10-13 and 14-22. The amount of acreage is understated for the six-county area because 17 park districts failed to respond to the IAPD request for information (5 of which being organized less then 3 years and which may not own land). Of the 17 districts not reporting, 12 are in Cook County, 2 in Lake County, and 1 each in Du Page, Kane and McHenry Counties. using park lands such as the world-famed Museum of Table D-22. County forest preserve districts in the Science and Industry. The estimated attendance at all Chicago area-acreage and tracts supervised park programs in 1959 was over 51 million Forest Acres Average people. The programs for which daily estimates are Number attempted by district officials total 42 separate ac- County preserve per 1,000 of tracts acreage tivities, the major ones being those conducted at acreage persons per tract beaches, children's playgrounds, indoor and outdoor gymnasiums, spectator sports areas, clubrooms, Cook ............. 46,208 9.01 23 2,009 conservatories, gamerooms, baseball, softball, and Lake ............. 28 .10 1 28 swimming pools. A few of the forms of outdoor Du Page .......... 1,801 5.74 23 78 recreation with which this study is concerned appear Kane ............. 585 2.81 6 98 prominent in the list of the district offerings. Major will .............. 901 4.70 9 100 attractions are the water-oriented activities at the McHenry .......... ! .... ! .... I .... I .... beaches (12,583,000 estimated visitors in 1959). Chicago area 1 49,5231 7.961 621 799 swimming pools (1,991,117), ice skating (652,202) and fishing (40,750). These four forms of recreation Source: Acreage and tract data obtained from each county alone accounted for about 30 percent of the attendance district. County population obtained from 1960 Census of Popu- at all of the district activities, indoor and outdoor. lation. Outside the Cook County District, individual pre- County Forest Preserves serves are small and average not much more than the average size of park district holdings. In the County forest preserves constitute the major source outer counties, the major difference between forest of opportunities for public outdoor recreation in the preserves and park districts is not size butfunctional Chicago area outside Chicago. After the Illinois use and development. The county districts are not Supreme Court rendered invalid State legislative organized to provide supervised programs or permit enabling acts providing for a system of county pre- spectator sports; the activities of the visitor for the serves in the first decade of the 20th century, a bill most part are unregimented except where necessary was passed which measured up to the judicial test. to protect the native landscape. The creation of forest The Cook County Forest Preserve DistlAct was preserves was for the purpose of "protecting and formed in 1915 and the first small plat of land was preserving the flora, fauna and scenic beauties within purchased the following year. The district has been such district, and to restore, restock, protect and extremely active in acquiring land for preserves and preserve the natural forests and said lands together in providing opportunities for the recreation enjoy- with their flora and fauna ... in their natural state ment of people. The holdings in the county now total and condition, for the purpose of the education, over 46,000 acres; in the summer of 1961, the district pleasure and recreation of the public 11 21 Hence was given State legislative approval to increase its forest preserves are not parks but natural areas. holding to 55,000 acres. As natural areas they perform a dual function. They .Forest preserve districts also have been created are essentially forested reservations, with recreation in four of the remaining five counties of the Chicago facilities provided mainly on the margins of the tracts. The bulk of the holdings are maintained in a area. The exception is McHenry. The Lake County natural condition. District in February 1961 purchased its only tract of land owned to date. General characteristics of the extent of forest prese Irve holdings by counties are 2/"Illinois Revised Statutes," 1959, ch. 57 1/2, sec. 5, pp. found in table D-22. 111-112. [Underlining supplied.] 252 Picnicking is the major form of outdoor recreation tion from the Loop of Chicago, and general charac- in almost all preserve tracts. In addition, marked terization of the recreation features of each division. nature trails have been established at the most (Because three tracts are located some distancefrorn favorable places; hiking, bicycling, and horseback the main holdings of the Des Plaines Division,'sepa- riding are possible along paths or trails; fishing and rate identification is given.) some boating activity take place where water facilities . The forest preserves of this district ring th Ie outer are suitable. Day camping and some organized boundary of the city of Chicago, accessible both to youth-group camping are permitted in specified places. city and inner-suburban residents. At least some Interior portions of the preserves are keptinaccessi- part of the preserves is within a 30- minute ride of all ble to the automobile-man is introduced on foot to residents of the city and inner area, and within walk- nnture for its educational-recreational effect on him. ing distance of many suburban people. The district Cook County Forest Preserve District holdings present outstanding opportunity for outdoor recreation to these residents, and their importance can be seen in the fact that the acreage in these About 93 percent of the county forest preserve holdings alone is about 2 1/2 times the acreage of acreage in the Chicago area is in Cook County. The State park, game and fish areas in Illinois within a tracts of forest and meadow land in this district are 110-mile radius of Chicago. organized into nine divisions of considerable individual size. Table D-23 provides summary information on As stated previously, picnic facilities constitute the physical size, average distance and general direc- the major means by which people are introduced into Table D-23. Divisional characteristics of the Cook County Forest. Preserve District From Loop Picnicking Winter .E sports E Division 'a J: 0 05 0 0 1.11 CL - 0. 0 03 2 -0 Q.= E o 0 n 01 01 g DO 0. M &Z 0 E 0, C I a E E 2 2 u i .!2 C. >4, :CL E E 0 > E 0 -0 -0 u 0 . 0U 0 0 0 , 3: < LU uJ LL to Z Z 0 V) .2 2 @0_ Skokie .................... 15-20 N 3,383 395 592 4,700 X X X .... X X .... X X North Branch ............... 10-15 N-NW 1,692 0 1,690 40,800 .... .... X .... X .... X X X X Des Plaines ... ........... .... 85 549 10,200 .... .... .... .... .... .... .... .... .... .... . Des Plaines River ........ 15-20 NW. 3,911 .... .... ...... X X X X X .... X .... X Spring Creek Pres . ....... 35 NW 1,277 .... .... ...... X X .... .... ... .... .... .... . .. .... Deer Grove .............. 30 NW 1,259 .... .... ...... X .... X .... X X .... X .... X X Ned Brown Pres . ........ 20-25 NW 3,293 .... .... ...... .... .... X .... X .. . .... .... .... X Indian Boundary ............ . 10-15 W-NW 3,163 17 925 10,300 X .... X X X X .... X .... X .... Salt Creek ................ 10-15 W 3,670 5 1,"1 26,600 X X X .... X .... X X X X Palos ..................... 15-20 SW 12,158 770 1,456 24,250 X X X X X X .... X X X X Tinley Creek .............. 20 S-SW 4,757 13 550 2,900 X .... X X X .... X .... X Calumet ................... 15-20 S 1,472 55 1'175 21'900 X X X .... ... X Thorn Creek ............... 2D-30 s 6, 73. 951 1,000 14,800, X X .... X X X X X .... I I X X Source: Various Cook County Forest Preserve District reports. the native habitat. Some 190 major picnic groves highways (over 250 miles of highway frontage). Offi- and 250 roadside picnic sites are provided. The days cials also recognize that the primary purpose of the of peak use bring 400,000 to 500,000 people to the district is to protect and preserve natural lands, not holdings, many of which picnic even though other ac- to provide organized recreation and record human tivities are performed. In order to control the use use. Major exceptions to previously stated basic of the preserves, estimated by district officials to be policy of providing facilities for unsupervised recrea- about 15 million visitations annually, careful distri- tion are the swimming pools (3), golf courses (6), bution is made of picnic centers and parking spaces. zoological park.(operated by the Chicago Zoological The estimate of 15 million visitations is truly an Society), and several overnight, youth-group camps, estimate, for little attempt is made to count visitors where explanation of presence for the most part is except where permits are needed or fees charged. found in historical precedence and insistent public Even if accurate records were attempted, a large demand rather than offigial desire. margin of error would ensue because of the physical There are many recreation opportunities in the nature of the preserves. In six of the nine divisions, forest preserve beyond picnicking. Facilities are the holdings are long, narrow strips along the major available for hiking, nature study, fishing, day camp- streams in the county (having over 87 miles of river ing, boating, horseback riding, mushroom and berry and creek bank), bordered and criss-crossed by paved picking or nut gathering, tobogganing, ice skating and 253 some sleddingi and plain relaxing. Facilities have Private, Sector been so planned that regular distribution has been made among the different divisions so that no section Privately-owned facilities in the six-county area of the populated area is inconvenienced. also contribute materially to the supply of oppor-, . I To educate the public on the beneficial attributes tunities for outdoor recreation. In addition to park of the out-of-doors as well as to improve the quality district and municipal beach facilities, swimming in of use of the preserves, the district has undertaken natural waters takes place off privately-owned lake a large program beyond directly caring for the hold- beaches. Private beach facilities are concentrated in ings. A weekly bulletin of activities, interests and the lake resort section of northwestern Lake County conservation matters has a mailing list of 21,000 and in the Fox River Valley to the. south. In the resort addresses; naturalists lecture before school assem- areas are summer homes and rental cottages, resort blies on conservation matters; workshops, training and motel accommodations, with facilities for swim- sessions . and schools are held for teachers and ming, picnicking, fishing'and boating as well as some. youth-group leaders; naturalist service. is available' winter sports activity. While not considered among to each day camp using preserve lands; naturalists the list of butdoor recreation activities, it must be from time to time conduct nature walks and.are on mentioned that there are also some 16,500 acres of duty at nature centers; film shorts and programs are private golf dourse land @ and 4,000 acres of polo furnished local television and.radio stations, and a grounds in the Chicago area. In spite of extensive- picnic facilities on preserve weekly column is prepared for newspaper publication... and park district holdings, private.picnic groves can An office also is maintained to answer inquiries,@ and be rented by individual groups. The number of groves assist those in search of snecific outdoor opportunities. is unknown-the'classified telephone directory for the area carries a listing of only 21 separate places, although a separate tabulation of private groves indi- State Park and Game Areas cate that there are at least 25 near the Cook County Forest Preserve District holdings. Picnic facilities Primary responsibility for State recreation lands also are available at the privately-operated beaches. and facilities is vested in the Department of Con- Commercial boat launching ramps and boat storage servation. An inventory of facilities owned or leased facilities, and commercial trout farms are also found by the department (tables D-25 and D-26), however, in the ChicagoarLa in the stream and lake areas. indicates only limited development in the Chicago While the county .forest preserve constitute the area. At present, less than 6,000 acres in eight main source of facilities for day camping, a number holdings are listed as being developed as park land. of commercia .1 as well as red-feather day camps are The estimated attendance in 1960 in the major parks held on privately owned land. A recent directory: within the Chicago . area was less than 900,000. :issued by the Chicago section, American Camping Illinois Beach State Park in northern take County Association, of all types of camps operated by indi- adjoins Lake Michigan, providing close-in facilities viduals and organizations with headquarters in the for swimming, picnicking, and family camping in a Chicago area, lists 47 local private day camps in the beach environment. Recent construction of a lodge- area having standards approved by the association. costing mor *e than $3 million provides a "country In addition to these, long-term camping facilities club" park environment for those seeking spacious (mostly, for youths) can be found-the directory lists accommodations. To the west is the Chain O'Lakes 1 private camp, 4 Boy Scout or Girl Scout camps State Park and McHenry Dam for fishing and hunting, (other than those on forest preserve land), 5 YMCA boating in the lakes and limited camping. Along the and I YWCA camps,.13 agencyorsimilar-type camps, Illinois River in the southwestern part of the area are and 2 church and synagogue camps. The listing in- river and canal lands for fishing and sightseeing.* cludes only those camps whose owners hold membel- Within the city of Chicago to the south is Wolf Lake, ship in the association; additional private damps not but this is more aptly described as a conservation so affiliated also are available. One of the striking area used for fishing and some hunting, but also aspects of long-term private camping facilities used providing, water for small boats. To the south is the by residents of the Chicago area, however,. is that Kankakee River State Park, 1 000 acres of which are most are locatedoutside the Chicago area, with many, in WAI-County. No facilities are found in the western being. located outside the 1507mile. radius of . the part of the Chicago area-recently 200 acres were larger Chicago region. purchased near Elgin but they have been turned over to the Du Page County Forest Preserve District for operation. Horseback riding stables are found throughout the, area, except, in the densely-settled sections. At In addition to the acreage previously mentioned, present 35 commercial stables are located adjacent two State conservation areas totaling 7,700 acres, to. the holdings of the Cook County Forest Preserve providing opportunity for hunting and'fishing, are District. A number of riding stables also are located available-the Chain O'Lakes area and Des Plaines away from the urbanized sections, utilizing, private area. The latter, located near. Joliet, is leased by the holdings as well. as country, roads.. . Several concen- State from Federal authorities for public hunting and trations of private estates owning horses and riding shooting purposes. The department also is developing trails for personal use may also be encountered. three water bodies (307 acres total) in the Palos As might be expected in a large metropolitan Division in cooperation with the Cook County Forest env'ironment, opportunities for hunting and shooting Preserve District. are quite limited. While the State Department of 254 Conservation owns or leases land"for public use, most A few of these recreation areas have become popu- hunting is done on private agricultural upland and lar with residents of the Chicago,area. For example, swampland areas. Of 95 clubs or chapters listed in Gary Municipal Beach, a sand dune area along the a report by the Illinois Federation of Sportmen's Club southern shore of Lake Michigan, and Wicker Memo- or 'in the National Directory of Shooting Preseries in rial Park south of the city of Hammond, Ind., are the Chicago Area, however, only 9 are known to have important attractions to residents on the south side holdings of more than 20, acres each with a total of of Chicago and the adjoining suburban area. Sycamore about 1,600 acres. Most of the club members have Park just beyond Kane County in thetownof Sycamore worked out arrangements with private landowners attracts people from the Chicago area. The major for exclusive hunting rights; a few use only the public opportunities and facilities.,for outdoor recreation for game areas. Clubs that hold property also attempt outings by residents of the Chicago area beyond the to add variety to the recreation opportunities of mem- metropolitan area, however, are those provided by bers and their families by developing small lakes State agencies, by commercial enterprises, and by suitable for fishing and swimming, and picnicking private nonprofit organizations. along the shores. Social events also are prominent features of many such clubs. The 1,375-acre Morton Arboretum, privately en- Public Sector dowed and open to the general,public, is one of the outstanding attractions of the Chicago area. Located In Illinois, the -Department of Conservation is the about 25 miles west of the Loop in Du Page County, principal State agency responsible for providing this educational and scientific center has over 4,800 opportunities for outdoor recreation. The department species and varieties of woody plants. in natural was created in, 1925 and its operations include: arrangements. Scenic automobile drives and nature wildlife management; operation of game refuges; trails,, along with an herbarium, botanical library, habitat improvement of. private and public land; dis- and a schedule-of indoor and outdoor lecture classes tribution of and control of the taking of game; the attract. thou.sands of people -from Iwithin and without licensing of hunters and fishermen and'of private the area. On spring and ' fail weekend days, the facilities for hunting and.. fishing; management of arboretum is 'filled to capacity, with sightseers and State forests; -distribution of seedlings -from State nature lovers. on peak-use days as many as 750 nurseries to private landowners and to local govern- automobiles per hour enter the grounds. In the past, ments which own- parks and forests; acquisition, visitors have been ma,inly suburban homeowners, development and operations of State parks"and memo- viewing not only color changes in plant life buta.lso in rials; supervision of condessiona ies in the parks; search of home landscaping ideas. Easier access and control of stream pollution. Close cooperation for, Chicago residents is now afforded by the comple- is maintained with the U.S. Fish and Wildlife Service tion of Congress Street Expressway and the East-West and other Federal agencies, and contacts are kept Tollway, Visitations in the fall 'of 1960 increased with the Illinois Natural History Survey, the Water markedly. Picnicking and other types . of outdoor Survey, the Geological Survey, the Division of Water- recreation. except sigliseeing and study, however, I a.re ways, Sanitary Water Board, and the Sanitary Engi- hot permitted. neering Division. The acreage of facilities controlled Limited. winter sports facilities also are offered for recreation has increased from a little over 29,000 by private enterprises. Two ski jumps'were in oper- acres in 1940.to 128,000 in 1960. ation'last year, although climatic conditions were not In Indiana all outdoor recreation facilities of the favorable for this type of activity. Most ice skating State other than roadside parks which are maintained and ice fishing are done on public- waters; although by the, Highway Department. and a large recreation some ice -sailing facilities in the Chain 01 Lakes sec- area which i's controlled by Indiana University, are tion are offered under'private auspices. @administered by, the Department of Conservation. Created in 1919, its major responsibilities are the FACILITIES IN THE CHICAGO REGION development, conservation, . and preservation of the natural resources -of the State, and the development @Municipal parks and playgrounds, park districts, and operation of recreation facilities. While the township and county parks are found in the Chicago State forest acreage has remained almost stable with region, pro viding facilities for day outings, but with about 105,000 acres in 1940 and @115,000 in 1959, the few exceptions these are used almost- exclusively by State park. acreage and game area holdings have in- local 'residents. At least two of the Illinois counties creased from 25,800 to about 109,000 acres during th( outsi'de the Chicago area but within 100 miles have last two decades. forest preserves. Seven of the twelve counties in The principal State agency in recreation in Michigan southeastern Wisconsin have one or more county again is the Department of Conservation although 14 parks; for the most part they serve residents of other, agencies have peripheral responsibilities. The nearby communities. Few of these parks provide department was created in 1921 by consolidating a facilities attracting visitors from a distance-only 5 group of independent boards and commissions. The of @the 21 county parks outside the Milwaukee metro- principal functions are to protect and conserve natural politan' area have facilities for swimming, 4 for resources, to promote reforestation of State lands, to limited camping, and only 1 park for boating, fishing guard against the pollution. of lakes and streams and or horseback riding, as the case may be. In addition, encourage the protection and propagation of game and certain Wisconsin counties have provided county fish. Similar to other conservation departments, forests for use by the local populace. outdoor recreation opportunities are administered 255 under forestry, fish, game and park divisions. The Table D-24. Ratio of State population and State State park and recreation area acreage alone has recreation acreage within the Chicago region increased from 38,500 acres in 1940 to over 176,000 in 1960; the 23 forests today total 3,700,000 acres. Percent of Percent of Primary responsibilities for outdoor recreation State park Percent of State Percent of and State hunting facilities in Wisconsin are vested in the Conservation State State Department which succeeded an earlier Conservation population similar forest and Commission in 1927, and with the Department of Re- facility acreage fishing source Development which was created in 1959. As acreage acreage noted previously, Wisconsin provides many public as well as private facilities for outdoor recreationwhich Illinois ..... 78 31 0 12 serve as major attractions to recreationists from the Wisconsin 59 24 7 32 Chicago area. Indiana... 39 30 2 0@ The Conservation Department is responsible for the Michigan ...... 10 4 1 acquisition of land, development and maintenance Of ) . game refuges, fisheries, forests, parks, for the pro- J/Not obtained. motion of conservation of natural resources, and for Source: 1960 Census of Population and various reports publicizing the recreation facilities and attractions of obtained from State conservation commissions. the State. It maintains and manages the State facilities for outdoor recreation. Consistent with the surge of 24 percent of the State park, 7 percent of the, State interest in recreation tourism in Wisconsin, the forest, none of the 1,469,000 acre national forest, 20 acreage of State forests and parks has increasedfrom percent and 40 percent, respectively, of theownedand 176,000 in 1940, to about 385,500 in 1960. In addition, leased public hunting and fishing lands are within this over 500,000 acres of owned and leased game and area. Although it has been noted that the States of fish areas are now operated for game management and Illinois, Indiana, Michigan and Wisconsin, together with public hunting and fishing. Federal agencies control extensive land and water Although the division of responsibility in outdoor areas developed or potentially useful for recreation, recreation is unclear at present between this depart- the bulk of the holdings are outside the Chicago region. ment and the Department of Resource Development, the latter is considered primarily as an "ideatt Tables D-25 and D-26 present in tabular form the agency with direct responsibilities in policy matters. general characteristics of each State owned or leased It is directed to prepare long-range plans, plan, park, forest, recreation, hunting and fishing area by develop and promote activities in use of resources, to distance rings and sectors. Distance and direction are employ a recreational specialist to survey needs of more critical factors in selecting recreation oppor- the recreation industry, and provide advice and as- tunities for a day outing than an overnight or weekend sistance to interested persons or groups. The depart- trip because they constitute elements of the amountof ment also may designate lands for consideration as time involved in reaching places beyond the home or parks, recreation areas, historic sites, natural scenic neighborhood. With the addition of modern tollways or areas, and the like. expressways, and as more people move to the suburbs, however, it becomes easier for people living in the One of the problems in the field of outdoor rec- north to reach recreation areas to the south, and vice reation is the geographic imbalance of population con- versa, so that with passage of time, direction and centration and location of national park and forest distance will become less important. lands. The centers of heavy concentration of popu- lation in the United States are in the East while the State owned and controlled facilities for dayoutings major nationally owned recreation lands are in the do not receive the heavy use that the county forest West. While much attention is being given'at present preserves do. The acreage of the State parks and rec- to the lack of national opportunities for recreation reation areas within the 110-mile zone is about 57 within reasonable distances of large metropolitan percent of that of the Cook County Forest Preserve areas, federally owned facilities are resource oriented District, yet the estimated overall attendance is not rather than user oriented. The same type of imbalance more than one-third as much. It is also evident that on the State level is found to exist in the midwest certain of the State facilities are more used than others States surrounding Lake Michigan. In Illinois and for day outings. Illinois State Beach to the north, White Indiana, the large State recreation areas are primarily Pines Forest State Park to the west, Starved Rock downstate. In Michigan and Wisconsin they are upstate. State Park to the southwest, Kankakee River State The Chicago region is in between. Park (Illinois) to the south, and Indiana Dunes State Park and Warren Dunes State Park to the southeast In Illinois, for example, over three-fourths of the, are believed to be the major attractions for the resi- population lives within 150 miles of the center of dents of the Chicago area.' With suitable accommoda- Chicago (62 percent of the State total is actually within tions in or near the park lands, overnight and weekend the Chicago area), yet only about one-fourth of the outings are also prominent in places located beyond State parks and game areas is so located,(table D- 24). th:e 110-mile limit. Devils Lake State Park in Wis- In the adjoining States, which provide not only vacation consin, in particular, but also Turkey Run and Pokagon but daylong and overnight recreation opportunities for State parks in Indiana are strong attractions. Chicago area residents, the situation is similar. In The large- amount of owned and leased public and the case of Wisconsin, 59 percent of the Wisconsin fishing lands in southeast Wisconsin shown in figure population lives within 150 miles of Chicago, yet only D-6 is somewhat misleading. While many of these 256 Table D-25. State parks, forests and recreation areas in the Chicago region, by distance rings and sectors CL 0 C E 0 c .- a 05 V; 01 Name Sector State a E u E E :to CD E c c E -0 -C c _4" U 3@ a .!2 :1 a I- Co U_ LU 10 to 40 miles: -A, Illinois Beach .......................... N Illinois 1,651 X X X I x .... 'x .... 556,224 Wayne ............................ 1L.. ....W .... dor..... 200 (contracted to Du Page). Wolf Lake ............................... S . ....do. @ ... 580 X .... .... .... X X .... ....... Wolf Lake ............................... S Indiana .... 1,414 X X .... .... .... X .... ....... 40 to 60 miles: Chain 0' Lakes .......................... NW Illinois .... 738 X .... X X X X .... 143,109 McHenry Dom ........................... NW .... do. 94 X .... .... X X X .... 88,5U Spring Grove Fish Hatchery ............... NW .... do. 42 .... .... .... .... .... .... .... ....... Channahon Parkway ..................... SW .... do ..... 20 X .... X X . ... X .... 77,691 Gebhord Woods ...................... I.... SW .... do. ... . . 30 X .... .... X .... X .... 107,000 Illinois and Michigan Parkway ............ SW ...do ..... 450 X .... .... X X X. .. .. ....... Yorkville Game Farm .................... SW .. do.. 102 .... .... .... .... .... .... .... ....... Kankakee River Dam .................... S .. ..do. .... 6 X .... .... .... .... X .... Kankakee River ....... S ....do ..... 2,121 X X X X X .... 3.0,475 Kankakee River ......................... S Indiana .... 1,794 X X X X X .... 9,112 Indiana Dunes .......................... SE ...do. 2,182 X X X X X X .... 421,824 60 to 80 miles: Big Foot Beach ......................... NW Wisconsin -268 X X X X X X .... 209,159 National Fish Hatchery, Lake Mills ........ NW .... do..... 74 .... .... .... .... .... .... .... 1,200 Buffalo Rock ........................... SW Illinois .... 43 X .... .... X .... .... .... 128,000 Fox River .............................. SW .... do..... 64 .... .... .... .... .... X .... ....... Illini ................................... SW .... do..... 406 X .... X X .... X .... 247,000 Bass Lake Beach .................... I... SE Indiana . .. . 20 X X X .... .... X .... 42,603 Tippecanoe River ....................... SE .... do ..... 2,7" X .... X X X X .... 25,756 Warren Dunes ........................... -E Michigan ... 1,414 X X X X .... .... .... 568,219 80 to 110 miles: Axtalan Historical ....................... NW Wisconsin 123 X .... .... .... .... X .... 30,702 Cushing Memorial ....................... NW ....do ..... 10 X .... .... .... .... .... .... 33,194 Kettle Moraine-South Forest .............. NW .... do..... 8,212 X X X X X X X 184,453 Lowden Memorial ................... :.... W Illinois . ... 208 X .... X X .... .... .... 120,000 Oregon Dom ............................ W - Ao..... 28 X .... ....... White Pines Forest ...................... W ..,.do ..... 385 X .... 514,614 Matthiessen ............................ SW ....do ..... 175 X .... .... X .... .... .... 86,930 Starved Rock ........................... SW 1,437 X .... X X X X .... 845,000 110 to 130 miles: Kettle Moroine-North Forest .............. N Wisconsin .17,843 X X X X X X X 472,500 Lizard Mound'Historical .................. N ....do ..... 20 X .... .... .... .... .... .... 37,001 Terry Andrae ........................... N .... do ..... 186 X X X X .... X .... 217,167 Now Glarus Woods ...................... NW . . -do. 78 X .... X X. .... .... .... 14,823 Lake Le-Aqua-Na ........................ W Illinois 615 X .... X X X X .... 42,500 Prophetstown ............................ W .... do..... 53 X .... , X IX .... X .... 40,000 Woodford County ........................ SW do ..... 2,900 x .... .... .... X X X 7,000 Kickapoo ............................... S 1,539. X .... X X X X .... 107,630 Allegan State Forest ..................... E Michigan ... 32,472 X .... X X .... X X 446,000 130 to 150 miles: Old Wade House Historical ............... N Wisconsin 105 x ...; .... .... .... .... .... 31,458 Blue Mound ............................. NW .... do..... 714 X .... .... . 42,186 Devils Lake ....................... I..... NW .... do ..... 2,538 X X X X- 1,339,035 Governor Dodge Historical ................ NW .... do ..... 876 X X X X X. X .... 133,608 Nevin State Fish Hatchery ................ NW ....do ..... 105 X .... .... ... I. .... .... .... 15,000 Tower.Hill Historical .................... NW .... do..... 108 X .... X X .... X .... 52,489 Apple River Canyon ..................... W Illinois . . .. 157 X .... X X .... X .... 80,0()0 Johnson Sauk Trail ...................... W .... do ..... 395 X .... X X X X ....... Mississippi Palisades ................... W ...do. .. . . 1,138 X .... X X .... X .... 68,178 U. S. Grcnt's Home-Memorial ............. W do ..... 5 x . .,.. .... .... .... .... .... 236,836 Fort Creve Coeur .............. .......... SW do ..... 86 X .... .... X ... .... .... ....... 257 Table D-25. State parks, forests and recreation areas in the Chicago- region,- by distance rings and sectors-Con. C 0 E C 0 Name Sector State 131 0 V E u 0 C C E i -c :t cn, c '10 ti 3t .2 a .2 3 _. 01 a CL ca LL X uJ 130 to 150 miles:-Con. Jubilee College Memorial ................. SW Illinois .... 96 X X X X ... 100,000 'A@ Weldon Springs .......................... SW .... do ..... 120 X .... X X X X .... 103,627 Shades ................................. S Indiana .... 1,977 X .... X X .... X. 33,431 Turkey Run ............................. S .... do ..... 1,521 X X X .... X .... 174,436 Frances Slocum State Forest .............. SE ...do ..... 1,087 X X X .... .... .... . 72,000 Solamonie River State Forest ............. SE .... do ..... 805 X .... X X .... .... .... 60,600 Chain 0' Lakes ......... E .... do..... 1,183 X X .... X X X .... ....... Pokogon ...... ......... E . .. do. .. .. 956 X X X X X X .... 190,142 Fort Custer Recreation ................... E Michigan ... 1,228 X .... X X .... .... X 12,291 Grand Haven .......... :................. E ... do ..... 48 X X X .... .... X .... 1,758,000 Holland ................................ E .... do ..... 43 X X X . .... .... X .... 1,274,000 Yankee Springs ......................... E .... do ..... 1 4,2841 X X X X X X X 1 502,105 Source of data: Official publications of the Departments of Conservation of Illinois, Wisconsin, Indiana, and Michigan, and information provided on specific request. areas "are popular to Chicago area residents for out- Youth-group camps are located in the Chicago region, ings involving fishing, the high cost of hunting licenses but as previously mentioned the majority are found at or permits to nonresidents at present is a strong greater distances. impediment to their use as hunting preserves. This. is borne out by a University of Wisconsin survey on Travel is a must for outdoor recreation away from hunting which found that the number of nonresident the immediate locality of home. As previously noted, hunters regardless of State of residence was only a travel outside the Chicago area is done largely by little over 1 percent of 650,000 hunters in 1959.3/ automobile rather than mass carrier although certain The situation with respect to hunting in Michigan is railroads as well as bus companies provide 1- and similar. 2-day excursions where scenic views are available along the way and at specified destinations. Com- Pr .ivate Sector mercial air travel usually involves more distant destinations, although flying by personal plane for Facilities provided through private ownership serve pleasure is done on a more local basis. as important resources for daylong and overnight rec- reation outings. A number of the State parks have After a winter of adverse temperature a4d snow or lodge or cottage accommodations operated by conces- ice conditions, traffic is particularly heavy on *arm sionaires. The numerous lakes in Lake County, Ill. Sundays in spring when early blooming or leafing adjacent southeast Wisconsin and southwest Michigan trees, shrubs, and wild flowers present a colorful Iare centers -for commercial picnic-beach develop- scene. Warm weekends in fall tend to bring-forth a ments and.private resorts. Boating facilities serve greater number of pleasure riders who are out to thousands of families and groups on Sundays and enjoy the scenery of the open countryside bi6fore holidays, and during vacation periods. winter conditions prevail. Pleasurable views Many resorts, lodges, tourist houses, and motels Lake, Michigan are possible from parallel highways, cater to those seeking overnight accommodations; in- although urban congestion and jammed highways present imposing hazards to leisurely sightseeing. creasing numbers of people are renting orpurchasing cottages. Because of the high concentration of popu- The basic elements of recreation travel thus are lation in the Chicago area, many privately-owned rec- access highways and roads, scenic views, suitable reation facilities. depend heavily on residents of the wayside facilities for eating and rest, and attractive Chicago area seeking water- oriented recreation fac *ili- destinations. @ Access expressways and tollways have ties for daylong and weekend use as the temperature- extended materially the area in which day and over- humidity index rises in July and August. night outings can be taken, and Chicago area resi- Skiing also takes place at ski jump areas within the dents travel the regi .on in search of recreation op- 'Chicago region, although the major share of resorts ortunities. The completion of the northwest and providing ski facilities are beyond the 15.0-mile area. p Congress Street expressways in the fall of 1960 save !/Fine, 1. V., and E. E. Werner, "Economic Significance of as' much as 30 minutes each way from .the heart of the Hunters in Wisconsin," Wisconsin Vacation-Recreation Papers, city. The tollways in Illinois and Indi 'ana, the free- vol. 1, No. 6, July 1960. Madison: University of Wisconsin, ways in Wisconsin and Michigan, have also made it School of Commerce, Bureau of Bus iness Research, and possible to. reach places formerly too distant for a Service. short outing. . Inland lakes and rural scenery are 258 Table D-26. State hunting and fishing areas in the Chicago region, by distance rings and sectors Acreage 1960- Name Sector State Fishing Hunting estimated Owned Leased visitations 40 to 60 miles: Chain O'Lakes Cons .............. NW Illinois ..... 3,476 ...... x x 209,000 Karcher Marsh ................... NW Wisconsin 80 ...... .... x .200 New Munster ..................... NW . . . ..do. . 640 1,205 x x 5,000 Paris ........................... l4w ..... do ..... ...... 3,264 .... x ....... Salem ........................... NW . ..... do. ...... 1,010 x x ....... Des Plaines Cons . ................ SW Illinois . .... - 4,200 .... x ....... Des Plaines River Land ........... SW do ..... 475 ...... x x 60 to 80 m i les: Beulah Station ................... NW Wisconsin ... ....... 2,320 .... X ........ Honey Creek ....................... NW - ..... do. . . 516, ... .... x 2,000- Richmond ........................ NW ....do. ...... 2,349 ...I x ........ Tichigan ........................ NW ..... do ..... 640 460 x x 3,000 Troy ............................ NW . ... do. . ... ...... 7,588 .... x ....... Turtle Creek Cons ................ NW ..... do ..... 358 ...... x x 1,200 Vernon Marsh ............ I........ kW .... do. .. .. 1,653 1,361 x x 5,000 Iroquois County - .... ... ....... I . S Illinois ..... 1,920 x ....... Willow Slough .................... S Indiana ..... 8,360 ...... x x S1,000 Jasper-Pulaski ................... SE ..... do. 7,200 ...... .... x 5,000 Winamac ........................ SE ..... 3,912 ..... I x 5,250 80 to i 10 miles: Cedarburg ....................... N Wisconsin ... 19 1,331 .... x ....... Cedarburg Bog ................... N ..... do ..... ...... 789 .... x Colgate ......................... N . . . ..do ..... ...... 115 x ....... Hartford ......................... N ..... do. . .. . ...... 1,494 .... x ....... Jackson Marsh ................... N . do ..... 726 ...... .... x ....... Ulao ............................ N Ao ..... ...... 1,353 x ...... Avon ........................... NW ..... do ..... ...... 586 .... x ....... Brodhead ........................ NW .....do ..... ...... 3,063 x x ....... Clover Valley .................... NW ..... do ..... 201 1,806 .... x 450 Evansville ...................... NW ..... do ..... ...... 2,920 .... x ....... Footville ............ ............ NW ..... do ..... ...... 7,734 .... x ....... Hanover ......................... NW ..... do ..... ...... 1,100 .... x ....... Jefferson Marsh .................. NW ..... *do ..... ...... 2,552 x ....... Lake Mills ...................... NW ..... do..... 420 195 x x 1,000 Lima ........................... NW ..do ..... 50 1,850 x 1,000 Princess Point ................... NW .. do ..... 820 5,128 x x 1,500 Rome Pond ...................... NW ..... do..... 970 250 x x 2,000 Scuppernong ..................... NW ..... do..... 415 2,294 x x 2,500 Storr's Lake ..................... NW ... do ..... 345 547 x x 1,600 Watertown ...... ................ NW ....do ..... 50 ...... x 200 Winnebago County ................ NW Illinois ..... 688 ...... .... ....... Green River Refuge ............... W .....do ..... 2,330 ...... .... x 5,000. Sparland ......................... SW . .. ..do ..... 1,280 ...... x x 3,200 Cr(fne Pond ...................... E Michigan .... 2,913 ...... x x ....... Three Rivers .................... 6 ...do. 1,964 x x ....... 110 to 130 miles; Adel I ........................... N Wisconsin ...... 1,678 .... x ....... Allenton ........................ N ..... do ..... 754 1,305 x x ....... Eden ........................... N ....do. .... 2,170 .... x ....... Kewaskurn ........................ N .. ..do. ... . ...... 758 .... x ....... Lake Ellen ..................... N ..... do ..... 40 ...... x .... . ........ Nichols Creek ................... N ..... do ..... 361 825 x x ....... Theresa ......................... N ..... do. 1,572 3,080 .... x ....... Albany .......................... NW ..... do. 416 1,860 x x 2,100 Argyle Lake ..................... NW ..... do ..... ...... 2,'922 X x 134,450 Beaver Dam Lake ................ NW ..... do. 3 ...... x x 23,174 Brookl yn ............. .......... NW 2.02 4,296 X x 1,000 Browntown ...................... NW 354 3,650 x x 2,500 Castle Marsh .............. ........ NW ..... do ..... 13 ....... x ....... 259 Table D-26. State hunting and fishing areas in the Chicago region, by distance rings and s'ectors-Con. Acreage 1960 Name Sector State Fishing Hunting estimated Owned Leased visitations 110 to; 130 miles: Can't Wisconsin .... Deansvitle ...................... NW . do ..... 41 2,630 x x 900 Dougherty Creek ................. NW ..do ..... ...... 5 x .... ....... Hook Lake ..............*.... - NW ..... do ..... 52 ...... x 1 50 Horican Marsh .................... NW do..... 10,483 ...... .... x ........ Mud Lake ....................... NW ... ..do ..... 2,156 ...... .... x ........ New Glarus ...................... NW ... . do. - I - 3,756 x x ....... Show Marsh ...................... NW ..... do ..... 572 x ....... Token Creek ..................... NW ..... do ..... ...... 12 x .... ....... Waterloo ........................ NW . ... do. .. I - 823 6,822 X x 2,500 Westford ......................... NW ..... do ..... 462 601 x ....... Wildcat Swamp .................... NW ..... do...,. ...... 1,915 .... x ....... Spofford Creek ................... W ..... do..... 4,074 x x ....... Coleta Trout Rearing ............. W Illinois .... . ...... x .... ....... Marshall County Refuge ........... SW ..do. ... - 2,629 ...... x x 25,000 Spring Branch Cons ............... SW .... do ..... 410 ...... ... .... ....... .Tri-County Game Pres ............. E Indiana .... 2,564 ...... x x ....... Fennville Game Area ............. E Michigan .... 3,450 ...... .... x 35,000 Gourdneck Game Area ............ E . .. ..do.- I - 1,682 ...... x x ....... Swan Creek Exp. Sto .............. E ..... do ..... 6,862 ...... x x 20,000 Wolf Lake Fish Hatchery .......... E ..... do ... 300 ...... X. .... 5,000 130 to 150 miles: Eldorado ........................ N Wisconsin 2,836 ...... .... x ....... Kilisnake Creek .................. N ..... do ..... 711 x ....... LaBudde Creek N ..do . 104 ...... x .... ....... New Holstein N ..do. ...... 1,345 x ....... St. Cloud ........................ N -d ...... 3,352 .... x ....... Sheboygan Falls ................. N .....do ..... ...... 3,154 ... x ....... Supple Marsh .................... N ... ..do. .. .. ...... 321 x ....... Black Earth Creek ................ NW . ....do ..... ...... 70 x I ... French's Creek .................. NW ..... do..... 1,562, 1,633 x x ....... Garfoot Creek .................... NW ..... do ..... ...... 17 x .... ....... Grassy Lake ..................... NW .....do ..... 283 ...... x ....... Jenning's Creek .................. NW ..... do ..... 410 ...... x @x ....... Mazornania ...................... NW do. .... 2,207 7,543 x x 3,230 Mud Lake ....................... NW ,do ..... 748 ...... .... x Otter Creek ..................... NW ..... do..... ...... 19 x ....... Pine Island ...................... 7 NW . ... do. .... 3;739 ...... .... x ....... Portage ......................... NW ..... do..... ...... 938 x ....... Salmo Pond ...................... NW ..... do ..... 4 ...... x .... ....... Silver Creek ..................... NW ..... do ..... ...... 2,405 .... x ....... Waunakee ....................... NW ..... do ..... 238 . ...... x 50 Witwerr ......................... NW .....do ..... ...... 2,241 x x ....... Yellowstone .................... * MW ..... do ..... 1,954 ...... x x ....... Benton .......................... W ..... do ..... ...... 2,120 x x ....... Wyonet .......................... W Illinois . ... . 18 ...... x .... ....... Fulton .......................... E Michigan . ... 672 ...... .... ....... Barry ........................... E . .. . Ao ..... 14,093 *1*1111 x x I ....... Source of data; Official publications of the Deportment of Conservation of Illinois, Wisconsin, Indiana, and Michigan, and information provided on specific request. particularly attractive in the da iry section and Kettle While Wisconsin Dells and Devils Lake are too far Moraine area of southeastern Wisconsin, receiving for a day outing, they are well within weekend distance many visitors. An inventory.of private lake resort of the residents of northeastern Illinois who have areas popular to people from the Chicago area would helped to make this section the most visited part of have to include Lake Delavan, Lake Geneva,, and Wisconsin for recreation purposes. Chicagoland 'Brown's Lake as being among the most prominent. weekend visitors also are found in the Green Lake and 260 Lake Winnebago area, and even as far north as the of the Chicago Park District estimate that 200,000 beautiful Door County Peninsula. people use the Chicago beaches, while officials of the Cook County Forest Preserve District estimate that Pleasure driving in Illinois, away from Lake Michigan and the lake section of Lake County, is 500,000 people visit their holdings. mainly destined to specific places. People from 2. State owned and controlled recreation areas re- northeastern Illinois travel across the State to reach ceiving the heaviest use by Chicago area residents are Galena, the Palisades, and the Mississippi River those that are easily accessible by distance to the urbanized area (e.g., Indiana Danes State Park to the Valley, although thes *e trips because of distance again southeast, Kankakee River State Park to the south, and are best taken on weekend outings. As previously Illinois Beach State Park to the north), or are most mentioned, Starved Rock.and White Pines Forest accessible by tollways or major highways (Devils parks are 'notable destinations for 1-day and over- Lake, White :Pines,'Starved Rock, Warren Dunes, night outings, as is Springfield the seat of State Pokagan). Most of the State park and recreation areas government and center of memorials of. Abraham Lincoln. Michigan, with its scenic "rivierall along of the four States touching Lake Michigan, however Lake Michigan, the sand dunes,. fruit orchards,, and are located outside the Chicago region. inland lake resorts amidst a.rural landscape, at- . 3. Private or semiprivate facilitfes,are important tracts more and more people from the Chicago area. in serving the needs of residents of the Chicago area The House of David Colony, the Holland tulip festival, for day and overnight outings. The Morton Arboretum the car ferry across Lake Michigan by way of Mil- is an outstanding attraction for those having an interest wauk.ee and Ludington, and "other attractions also in viewing trees and shrubbery in a natural setting; provide incentive for recreation travel. Lack of the lakes in northwestern Lake County and the Fox limited-access highways into Michigan from Illinois River Valley which drains the Chain 01 Lakes and southeastern Wisconsin are centers of concentration permitting fast moving through traffic in the past, however, has tended to concentrate pleasure driving for private resorts, cottages, private beaches and ac- in Michigan more on holiday weekends and vacation cess points for water- oriented interests. Cottageand periods. resort acconimodations 'are also centered on the shores of Lake Michigan in Indiana and southwest Michigan, and the inland lakes of southwest Michigan SUMMARY AND CONCLUSION provide many private facilities for outdoor recreation oriented to water. The distribution and use of existing opportunities 4. The essentially rolling countryside of farms and available to Chicago area residents for day and 2-day small wooded areas provides a rural scene for pleasure outings may be summarized as follows: driving, providing variety. of landscape features to 1. The forest preserves, Lake Michigan shoreline, those who live in the more congested surroundings of and inland lake areas provide the major share of the urbanized area. Views of Lake Michigan also at- opportunities for outdoor recreation in the Chicago tract sightseers who in the process make use of public area. On peak use Sundays, for example, officials and private facilitie's for outdoor recreation. 261 CASE STUDIES SUPPLEMENTARY TO CHAPTERS TWO AND THREE GROUP PICNICS tion was Almost identical (28) to that found in the suburbs, within the city two primary variations were noted. With the exception of the neighborhoods imme- Two national surveys of recreation behavior and diately north And south of the Loop of Chicago, the interests indicate that picnicking is one of the most ratio of picnickers to population was less for the popular types of outdoor recreation. An inventory of zones immediately bordering the.lakefront. This .opportunities for outdoor activity in and around the occurrance among upper, middle, and in part lower Chicago area suggests that facilities for 'picnics and- income groups provides some evidence that people cookouts probably come closer to serving.the needs having a high degree of accessibility to beach and of the residents than those for any other type of out- lake facilities tend to make less use,of the recreation door recreation. opportunities of the forest preserve. Secondly, pro- While no records are maintained as to the total portionately fewer group picnics originated on the number of picnickers, permit records for@ individual south side than on the north side of Chicago, even groups of 25 or more a Ire maintained by the Cook though comparable facilities are available, supporting County Forest Preserve District. These records other findings that lower income groups (which are provide a basis for assessing some of the character- more prevalent on the south than north side) participate istics of group picnicking. A 25 percent sample of less in outdoor recreation. 1959 permits indicated that at least half, andprobably Three generalizations, therefore, arepossiblefrom more if the exact nature of each group were known, a study of available data. The first is that group were neighborhood in character-church, school, scout, picnicking is widespread in popularity, and day outings local. business, post, club or lodge. Other groups of this type take place at the closest suitable place. appeared to include people from more than one The second is that while no overall difference exists neighborhood-factory, large store'or firm, societal between participation rates between Chicago and the hospital staff, union, institute, and council. Cursory built-up suburban area, the incidence of group picnick- inspection of names of clubs or organizations estab- ing is less in the lower income neighborhoods of lished that a variety of ethnic groups were repre- Chicago. Place of residence does play a part-juxta- sented- Polish, 'German, Italian, Croatian, Irish, and position to Lake Michigan tends to orient activity Swedish. Family reunions are also prominent. toward lakefront recreation opportunities, while some- Most group picnics were held , during the warm what less group picnicking activity takes place among season with four out of five such picnics held during the. lower quartile income groups in the city than June, July, and August. Sunday picnics predominated, among their counterparts in the suburbs. constituting 45 percent of the total picnics and 53 percent of the estimated attendance during the sum- FISHING AND HUNTING mer months of 1959. The second most important day, Saturday, had only 18 percent and 17 percent, re- Fishing and hunting are outdoor activities in which spectively. fewer, residents of large metropolitan areas partici- Individual permits carry the name and address of pate than for the Nation as a whole. Judging from the the person obtaining the permit as well as that of the types of inquiries directed to the Cook County Forest group involved. It was noted that a number of groups Preserve District, however, interest in fishing is originated in communities outside Cook County, in- high among Chicago area residents because inquiries cluding those in Lake County, Ind. The median ratio on fishing sites constitute the most important single of group picnickers to township population in suburban category of requests other than general inquiries on Cook County was found to be 29, with only a small the nature of the forest preserves and facilities difference noted between the northern (32), western included (table D-27). (29), and southern (27) suburban areas. These sections A tabulation of the ratio of inquiries to population respectively tend to contain upper middle to upper, by suburban townships and city postal zones in Cook middle, and lower middle to lower income classes. County indicates that proportionately more inquiries One of the notable characteristics found is that on fishing sites are made by residents of Chicago most picnics were held in those sections of the forest than by suburbanites. This is believed due to the preserve which are closest to home or organization greater dependence on local fishing sites by Chicago location. In fact, the preference for nearness is so residents rather than greater overall interest in well recognized by district officials that an attempt fishing. In contrast to group picnicking, however, is made to assign picnic groves on this basis when- proportionately more inquiries are made from the ever possible. The association between residential southern sections than northern communities or neighborhood and picnic grove locations was found neighborhoods, both in the city and the suburbs. The for both Chicago and suburban areas. results obtained thus suggest that there is greater A tabulation of group picnickers according topostal interest in local fishing facilities among those with ,zones within the city indicates a slightly different incomes below the median than those above. The picture from that obtained in the suburban section. highest rate of inquiries of all were received from While the median ratio of picnickers to zone popula- the western suburbs, perhaps because forest preserve 262 headquarters are located there. Few inquiries are Table D-28. Fishing and hunting license data made on hunting opportunities, probably because of general knowledge of the major purpose of county Percent of total population forest preserves. i Fishing Hunting Data on State fishing and hunting licenses issued County licenses licenses in the Chicago area on a population unit basis in 1950 issued issued and 1959 indicate that fewer licenses are being sold 1950 1959 today (table D-28). This means that either there is less participation in hunting and fishing among resi- Cook ..................... 4 2 2 2 dents of the area today than in 1950 or proportionately Lake ....................... 36 28 7 5 greater numbers are now going elsewhere to engage in McHenry .................... 30 13 12 8 these forms of outdoor recreation. Both could be true. Kane ...................... * 11 9 7 5 A comparison of the Chicago area and the remainder Du Page .................... . 5 5 4 3 of Illinois in the incidence of fishing in Wisconsin, will ........................ 10 11 7 6 however, indicates that there is at present less Chicago area ................ 6 5 3 2 participation among residents of the Chicago area. Based on a study of fishing and fishermen in Wiscon- sin, it was found that 20 percent ofthe 1959 nonresident Source of license data: Department of Conservation, State of licenses were purchased by Chicago area residents as Illinois, and U.S. Fish and Wildlife Service. against 48 percent Illinois residents elsewhere,4/ even though over 60 percent of the Illinois populati7on BOATING resides in northeastern Illinois with a more favorable location to fishing sites in Wisconsin. It wag also Boating is one of the outdoor activities that has found that of the overnight fishing trips to Wisconsin, grown rapidly:all over the Nation since the late forties 22 percent came from the Chicago area and 50 percent The demand for new boats is highly, elastic, however, from other parts of Illinois-, for 1-day only fishing being sensitive to booms and recessions. trips -the percentages were 12-percent and 36percent, . Facilities for boating in the Chicago.area,and re- respectively. gion have. not. kept up. with the demand; there are While there has been an increase of private hunting obvious shortages in inland lake and stream waters, and shooting clubs, a decline in licenses issued to storage, mooring and launching facilities for small hunters attests to decrease opportunities for hunting powerboats. Lake Michigan provides an excellent locally. More distant trips appear to be taken to opportunity for larger pleasure craft, but the requests central and southern Illinois and to the Mississippi for mooring permits from the Chicago Park District. River Valley by small parties of men. Hunting on each year far exceed the number of spaces provided. private farm land in the area increasingly is being The@ Chain 01 Lakes and parts of the Fox River pro- done by members of private clubs. vide boating opportunities, but there is common com- Table D-27. Topical inquiries of the Cook County Forest plaint of conflicts with fishing and that the limits of Preserve District, 1958 and 1959 boating already have been reached. rThe larger, lakes of the forest preserves permit small rowboats, and Percent sailing is permitted on the lagoons in north Skokie Type of information requested of total, Division. A new launching site was opened in 1961 to the, south to provide access to- the Cal Sag Channel. Maps,'general information ................ ........ 50@ 0 The efforts being extended to increase boating. facili- Fishing ......................................... 24,8 ties only serve to emphasize the lack of good facilities Nature centers ........................... * .......... 7.8 to meet local needs. Family picnics ................................... 5.3 A boat launching guide issued locally by one of the Trails ........................................... 2,9 metropolitan newspapers lists the facilities in the Golf ............................................ 2.3 region most available for motorboats. Launching Swimming ....... ................................ 1,7 sites are concentrated along the Illinois River, in Berries, nuts and fruit ............................ 1.4 the morainic lake area of northern Lake County and Cook outs ....................................... 0.7 adjoining southeast Wisconsin, and in southwest Camping ........................................ 0.7 Michigan. These areas also provide opportunities ,Illinois State recreation ....................... I.... 1.0. for other types of outdoor recreation which compete Group picnics .................................... 0A and often conflict with boating activity. Boaters com@ .Boating .......................................... 0.4@ plain of the lack of facilities, and in turn are condemned .Winter sports ..................................... 0.4 by others for the traffic dangers on highways created Hunting .......................................... 01 by boat-towing automobiles, by the noise of motors on Zoo .............................................. 0.1 the water, and by the danger fast boats and skiers create for swimmers and fishermen. Source: Cook County Forest Preserve District records. Part of the growth in boating has come about'be- cause it is less sex-typed and class-typed than .!/Fine, 1. V., and E. E. Werner, "Economic Significance of formerly. Both male and female segments of the Fishing in Wisconsin," Wisconsin-Vocotion - Recreation population participate as well as white-collar and Papers, vol. 1. No. 10, Madison: Bureau of Business Research blue-collar classes. Boating is no longer an instru- and Service University of-Wisconsin, October 1960. Computed ment to be used just for fishing and hunting;. cruising from table p. 2. for pleasure, water skiing and scuba diving have 263 elevated boating to a primary activity in itself. Con- As expected, a class relationship exists between boat comitants of the relative increase in nonfishing uses motor ownership and car ownership. Of the motor- have been a radical increase in average horsepower owning households ', 97 percent are car owners and and purchase price of motors and motorboats. Today, 3 percent non-car owners with only 0.5 percent car ownership, shorter working hours, and higher difference between Chicago and the suburbs, Again, income are general prerequisites to boat or motor motor ownership is associated with family income, ownership. with ownership increasing with income. The low- During the 3 summer months of 1960, according to income household in the city of Chicago has the lowest the National Recreation Survey, about one out of five motor ownership of all (and car ownership as noted people 12 years of age and over had a boating experi- previously). With respect to age, boat motor owner- ence of about 1.2 days per person or 5.5 days per ship increases with adult age.through the 40's where boating participant. Slightly fewer residents of large a decline occurs. Ownership is highest in the 41 to metropolitan areas participated than for the Nation 50 age class, with the rate of ownership (11 percent) as a whole, although those who participated spent on about 60 percent above those. between the ages of 31 the average about I additional day boating. to 40. Table D-29 gives the estimated outboard motors in The rate of motor ownership varies within the city use at the end of 1959 and the estimated motor sales of Chicago, from a low of 5 percent on the south side in 1960 for the 11 largest metropolitan area boat to a high of 11 percent on the southwest side. The markets. It is believed that the estimates of motors northwest and southwest sides have the highest rab@s; in use are overstated because of a low scrappage they include the lowest net residential density areas assumption. The Chicago area is considered tobe the and are closer to the lakes and rivers suitable for second largest metropolitan market, partly because boating away from Lake Micigan. A wide range (8 to of size but also because of the favorable comparison 15 percent) characterizes ownership rates in the' of - motors in use to population.. In a consolidated suburban sectors. The northern suburbs surprisingly consumer analysis by leading newspapers for 22 have the lowest rate, althoguh these communities have American cities, however, the comparison is not as the highest income and with accessibility to Lake favor'able-for example, only 3.2 percent of the Michigan. The northwest suburbs, which are clogest householders owned boats (1958) and 8.2 percent to the lake resort axeas in northern Illinois and owned motors (1960) in the Chicago market area as southeastern Wisconsin, have the highest rate, closely against 8.8 percent and 19 percent, respectively, in followed by the southwest sector. Milwaukee.5/ In brief, it is believed that high interesi is held in Examinaflon of completed questionnaires from OL boating in the Chicago area, but that lack of available consumer analysis survey of Chiuago and a two and opportunities for day outings of this type have reduced one-half county suburban area has permitted cross the participation rate. tabulation of outboard motor ownership with certain characteristics of the population. Suburban residents SWIMMING ,presumably engage in boating to a greater extent than city dwellers-the 1960 percent of households owning Swimming, sunbathing, wading, and water play are a boat motor was 11.8 and 6.5 percent, respectively. leading recreation activities of Chicago area residents, particularly of children and young adults. Lake 1"Consolidated Consumer Analysis," 1958 and 1960. Data Michigan because of its cool lake waters is an im- from similar sumys by local newspapers participating in the portant resource especially during July and August consumer analysis. for swimming although beaches are opened earlier. Table D-29. Leading metropolitan markets for outboard motors Motors in use Motors sold Metropolitan area December 31, Percent 1960 Percent Percent of 1959 of (thousands) Of United States (thousands) United States United States population Now York ........................................... 368.5 6.3 21.3 4.2 5.9 Chicago ............................................. 236.0 4.0 13.0 2.5 3.4 Detroit .............................................. 194.0 3.3 12.8 2.5 2.1 Los Angeles ......................................... 13@2 2.3 15.6 3.1 3.7 Minneapolis .......................................... 131.3 2.2 9.2 1.8 0.8 Boston ............................................. 98.4 1.7 8.2 1.6 1.4 Son Francisco ....................................... 80.5 1.4 8.1 1.6 1.5 Philadelphia ..................................... 75.0 1.3 6.0 1.2 2.3 Seattle .............................................. 74.1 1.3 6.4 1.3 0.6 Milwaukee ........................................... 69.1 1.2 6.5 1.3 0.7 St. Louis .......................... : ................. 66.8 1.1 6.2 1.2 1.1 United States.. @ ..................................... 5,845.0 .... 510.0 .... .... Source- "The Boating Business, 1960," and "Boating 195 9," Outboard Boating Club of America and National Association of Engine and Boat Manufactures. 264 Swimming in the numerous lakes of Lake County and suitable indoor pools, swimming is a required part southeast Wisconsin overcrowds facilities in summer. of the physical education program-in the Chicago Public, semipublic and private indoor and outdoor Public School System, for example, approximately pools abound in the area, evidencing thethird-ranking 60 percent of the high school enrollment takes part in popularity of swimming among outdoor recreation the swimming program. activities. Some evidence of the interest in swimming is found There is no known count of places for swimming in in a vacation recreation survey made by the Univer- and around the Chicago area. The Chicago Chapter, sity of Wisconsin.6/ Questionnaire returns from a American Red Cross, conduts I'learnto swim" classes sample of persons who previously had made written in 296 pools in Cook and DuPage Counties, 139 of requests for information to the Madison or Chicago ,which are outdoor pools. Over half of the listed pools information offices maintained by the Wisconsin Con- are provided by school and park districts, but country servation Department indicated high interest in swim- clubs, motels, industrial plants, camps, municipal and ming opportunities. About two out of five persons swim clubs provide numerous private, semiprivate writing to the Chicago office (over 90 percent of all opportunities for outdoor as well as indoor swimming. inquiries coming from Illinois residents) specifically While Chicago's restrictive ordinance has prevented requested information on swimming and water sports. construction of private residential pools in the city, it Water-oriented activities led the list of types of is estimated there are about 1,000 backyard pools in activities for which inquiry was made. the entire Chicago area. Some indication of the popularity of swimming can CAMPING. be obtained from available attendance figures. The three pools of the Cook County Forest Preserve Camping, as the term is used locally, includes at District registered 336,525 visitations in 1959, an least three different types of outdoor activity. Day increase of almost 40 percent over that of 1949. The camping is a daylong activity sponsored by private Chic .ago Park District registered 1,991,117 visitations and public organizations in local facilities for the to its outdoor pools and 341,903 to the natatoriums, benefit of children primarily between the ages of 7 to and district officials estimate that there were over 12. Youth-group camping is overnight, weekend, and 12.5 million beach visitations in 1959. The Chicago long-term vacation activityfor children more typically Public School District summer swimming program between the ages of 10 to 13 incamps both locally and also registered 153,169 swims (22,000 individual at some distance from the Chicago area. Adultcamp- children) in its indoor pools. The I 'learn-to- swim' I ing is mainly family camping in tents or trailers and program is believed to be the largest of that of any station wagons on an individual basis, although certain city in the Nation-high schools with pools now find organizations such as churches and the YMCA sponsor that 70 to 90 percent of the incoming freshmen know adult activities or family outings in a campsite how to swim. environment. The cool waters of Lake Micigan except from mid- July through August, the problem of pollution of the Day camping streams and inland lakes in the six-county area, safety problems connected with swimming in natural Day camps are most prevalent in the forest pre- bodies of water, and the increasing popularity of serves by various types of youth-group organizations- swimming have resulted in rapid pool development in Girl Scouts, Campfire Girls, YMCA branches, settle- the area. Private nonprofit swim clubs have arisen in ment houses, Jewish community centers, recreation a number of suburbs, municipalities have constructed departments, schools or school social centers, private pools, increasing pressure has been placed on park play clubs. Day camps in the forest preserves oper- districts to provide swimming facilities. At present, ate during the Monday or Tuesday through Friday the trend is toward increased swimming in artificial period in the warm season in areas specified through bodies of water where sanitation and safety conditions advance permits. The areas used are generallypicnic can be more closely regulated. groves providing shelters and open areas for play. The beach areas along Lake Michigan and numerous In addition to nature study, most day camps emphasize lakes in Lake County provide, the natural waters for group activities such as camping skills, cookouts, swimming in the six-county area. Outside the Chicago games, crafts, and pageants. Many of the camp or- area, the major points of attraction are the beaches of ganizations using the preserves of Cook County northwestern Indiana and southwestern Michigan, and schedule trips to one of the nature centers, and on the lakes of southeastern Wisconsin. Outdoor swim- scheduled days a District naturalist conducts nature ming also is combined with other outdoor activities study outings. Many children come from under- such as camping, picnicking and fishing, and at over- privileged homes and neighborhoods, and day camps night- stays at favored resort, motel, and cottage represent for many children of the "inner city" of locations. Many country clubs have outdoor pools in Chicago th e only contact with the outdoors in a which children swim while parents use the golf courses naturalistic setting. and other club facilities. The number of children or child-days in day camps, While not considered as outdoor recreation, much however, has tended to decrease somewhat over the swimming in indoor pools takes place in winter. Schools and local colleges, the Chicago ParkDistrict, �/Fine, 1. V., and E. E. Werner, "Analysis of Requests for YMCA, private clubs, and other organizations provide Vacation* Recreation Information," vol. 1, No. 9, September facilities for off-season swimming in which children 1960. Madison: University of Wisconsin, Bureau of Business are the prime participants. In high schools having Research Service. 265 last decade. The number of child-days naturalist by the Chicago section of the American Camping service in the Cook County preserves was 29,442 in Association, 80 percent are located beyond 150 miles 1960 against 32,192 in 1950. The reason for, the of Chicago, with over 75 percent being located in apparent stagnation in activity is due to the increase Wisconsin alone. in resident youth camping outside the Chicago area, in family camping, and to a decline in private day Family-ty0e camping camp registrations. Day camps are particularly helpful in serving the Family camping is one form of outdoor recreation interests of young girls. Part of this is due to the that has received nationwide interest since World War fact that organizations for boys are oriented more 11. In fact, many feel that this form of camping prob- toward overnight camping, and wives are more avail- ably has increased at a greater rate than any other able than husbands as leaders during the week. The form of activity in a natural environment in recent Girl Scout day camps alone, for example, accounted years. It is an outdoor venture that can be shared for over 40 percent of all 1960 day campers in the by the. entire family, it is inexpensive if only the basic, Cook County Forest Preserve. Day camping is more equipment of sleeping bags, tent and stove are pur- prevalent among children in suburban Cook County- chased, it symbolizes "roughing it" but with a degree for example, less than 10 percent of the Chicago Girl of comfort. One spokesman for a local travel informa- Scouts had a day camp experience as against over tion agency believes that camping activity among 20 percent of those in the suburbs. The difference is residents of the Chicago area has increased at least even more pronounced than these figures indicate 10 percent each year since 1955, that interest in because while about 13 percent of the girls of Scout family camping opportunities has increased over 200 age in Chicago were troop members, in suburban percent since World War II. Explanation is given in communities the proportion runs over 25. terms of the increase in family-type vacations and overnight weekend trips, the reoccuring, recessions Overnight camping during the fast decade which have helped stimulate the desire for inexpensive pleasure trips away from Organized youth-group overnight camping is spon- home, the fact that the cost of basic camping equip- sored primarily by nonprofit agencies and organiza- ment has not kept pace with general inflation. tions deriving financial support by voluntary contribu- Overnight, weekend camping opportunities are lim- ti6ns and by community fund-raising efforts. Weekend ited in, the Chicago region and are overcrowded, camping takes place in camps owned by su:ch agencies particularly those that have scenic attractions and as well as at designated places in certain of the forest offer facilities for outdoor activity such as boating, preserves. Long-term resident camping also is found fishing and swimming., The most popular close-in in camps within the Chicago area, although typically facilities to Chicago area residents * are the Indiana at some distance away in Wisconsin and Michigan. Dunes, Starved Rock, Illinois Beach, and Big Foot For example, of 14 YMCA camps with, a total of Beach. - Indiana Dunes has been a major attraction, almost 2,000 acres, only 5 of the camps and, 35 percent providing a lakefront, dunes environment. Among the of the acreage are in the six-county area; actually, more distant campsites for weekend outings, as well 4 camps and 42 percent of the lands are beyond the as for vacation periods, Devells Lake, White Pines, 150-mile zone. Of 23 Boy Scout Council resident Turkey Run and Pokagan, and Warren Dunes are noted camps totaling about 14,000 acres, 11 camps With as being particularly frequented by people from the 92 percent of the acreage are beyond the 150-mile Chicago area. ,Table D-30 provides data 6ncapacities zone. Of 11 Girl Scout resident camps-, only 2 are and overall camp attendance at the State park and in the six-county area with 6 more than 150 miles forest areas in the Chicago region. away. Leaders of these organizations point to two Besides weekend camping, vacation camping is an major factors governing location of long-termeamps- important part of the outdoor recreation experience. the high cost of land in the Chicago area and better Although metropolitan Chicago residents may be sites in the wooded lake sections outside the Chicago found camping throughout the United States and region to the north., Distance increasingly becomes Canada, Wisconsin and Michigan are particularly less important in selection of camp locati(ins. popular. In a 1960 survey of campers in Wisconsin Incomplete figures preclude concise comparative State parks and forest recreation areas, it was found analysis of the characteristics of youth campers. that 20 percent were from the Chicago area, aboVt For some 60 "red feather" resident camps polled half as many as those from the entire State of Wiscon@ by the welfare council, about 65 percent of the children sin. In a 1960 survey in Michigan it was found that live in Chicago, 27 percent in suburban Cook County almost one out of every five nonresident campers in and the remainder outside. "Inner city" children are Michigan were from Illinois. Surprisingly, a some- not as well represented as those living in outer sec- what higher portion of out-of-state campers in the tions of the city and in the suburbs- a survey by the Upper Peninsula were Illinois residents (22 percent) Chicago City Missionary Society indicated that under than in the southern part of Michigan (18 percent), 6 percent of the children in the underprivileged sec- indicating the importance of northern Michigan as a. tions, white and nonwhite alike, had anovernightcamp vacation camping area. The survey also indicated experience. that a larger number of -Illinois campers visited the Camps operated by private individuals and groups northern than the southern section of Michigan. for profit are much more expensive, averaging around The overcrowded conditions of public campgrounds $75 a week per child. While a few such resident attest to the current deficiency in opportunities for camps operate in the Chicago area, of the 57 listed weekend-and vacation camping within 150 miles of 266 Table D-30. Public campgrounds in the Chicago places for Chicago area family and other group region-1960 data camping enthusiasts. Because of sanitation problems, [Leaderline indicates data not available] State conservation officials deemed it necessary in 1960 to reduce the ' number of campsites to 550- Number Camper formerly the number of tents at the maximum period State and area Camp of days Facilities exceeded 1,500 even though not all potential campers sites campers could be accommodated. While the decision was announced in Wisconsin, the information apparently Illinois: did not reach people living in adjoining States. On the lllinois.Beach' 11,687 22,334 F-Pa-Sw-T Fourth of July weekend, at least two, perhaps three Chain O'Lakes.. . .... 10,717 29,089 B-F camping groups were turned away for every one Channahon Pkwy. 10 3,554 4,368 F-Pa assigned a site; belatedly a part of the Baraboo Kankakee River 12,416 33,050 F-Pa-T Ordnance Plant grounds were opened, farmers around Illin! 10 5,137 15,487 F-T Devilis Lake SO-e Park o-pened far m- yards and fields Lowden Memorial ... 5,186 9,633 F-T to accommodate the overflow. Starved Rock .... 50 10,234 18,225 F-Pa-R-T The deficiency in opportunities for family camping White Pines Forest .... 19,609 42,679 F-Po-T and.the increase in demand with each succeedingyear Lake Le-Aquo-Na 1,476 3,532 B-F-Pa-T has been noted publ icly by officials in Illinois, Wiscon- Prophetstown. 10 176 718 F sin, Indiana, and Michigan, with promises given to Kickopoo ........ .... .957 2,542 F-Pa-R-T take positive steps to add materially to the number of Apple River Canyon 7,145 19,159 F-T available campsites. 7/ Each of the States recognizes Miss. Palisades., .6,871 13,754 B-F-Pa-T the large market cer;t-ered in the metropolitan complex Johnson Sauk Trail 20 953 2,420 B-F-Pa-T around the southern end of Lake Michigan. Jubilee College 4,278 9,687 T To date, campsites have been provided almost Weldon Springs ... 3,153, 6,762 B-F-Po-T entirely in State-owned facilities. Temporary housing away from home for recreationists as provided by Total Illinois .... 102,549 233,439 private 'enterprise has been in the form of motels, Wisconsin: hotels, resort cottages and cabins, overnight lodging Big.Foot Beach 144 .... 22,493 B-F-Sw in private rooms, and trailer parks. Private.capital Terry Andrae .... 105 .... 27,951 F-Pa-Sw-T has not been channeled into the development of parks New Glarus Woods .... .... 1,251 Pa-T or resorts in which tent, trailer, or station wagon Devils Lake ..... 550 .... 187,037 B-F-Pa-R-Sw-T camping is permitted or encouraged. Onlytwoprivate Tower Hill ....... 21 .... 3,869 F-Pa-T campgrounds of a more permanent nature and within Kettle Moraine ... 386 .... 87,446 F-R-Sw-T range of the Chicago area for tent camping are Governor Dodge 201 .... 16,529 F-Sw-T. known-one near Wisconsin Dells, Wis., and the other in the western part of northern Illinois. Each provide Total Wisconsin -1,226 .... 336,576. about 200 campsit .es and advertise recreation facilities Indiana: appealing to family campers.. Six other private sites Indiana Dunes.... 200 .... 100,388 F-Pa-Sw-T are listed in being available to campers in Wisconsin Tippecanoe River 50 .... 20,210 F-Pa-R-T within 150 miles of Chicago, but for the most part the Bass Lake ...... 15 .... 16,978 B-F-Pa-Sw facilities are not well developed or designed specifi- Turkey Run ....... 50 .... 24,623 F-Pa-R-T cally for camping. While certain nonprofit agencies Shades ........... .5 .... @,,300 F-P.-T such as the YMCA, church groups, and welfare organ- Pokogan ........ 40 .... @ 52,987 B-F-Pa-R-Sw-T izations encourage adult and family camping at certain Total Indiana of their camps, the number actually making use of such 360 .... 224,486 facilities is nominal to date. Michigan: Warren Dunes .... 75 12,764 '31,723 Sw-T WALKING AND HIKING Yankee Springs. . . 207 20,580 58,995 B-F-Sw-T Holland ......... 377 33,164 130,908 F-Sw Grand Haven ..... 237 16,334 65,656 F-Sw According to the National Recreation Survey, some Total Michigan 896 82,842 287,282 17 percent of the residents in the large metropolitan areas of the Midwest, 12 years of age and over, Grand Total.... ....11,081,783 participated in nature walks- during the summer of 1960. Thirty-eight' percent also took pleasure walks, Key to Facilities:. while 6 percent hiked on trails with pack. Only one B - Boating Pa - Playground area Sw - Swimming, out of five of those stating a preference, however, F - Fish Iing R - Riding T - Trails listed walking for pleasure among.their first three Source: Data obtained from each Stat e Department of choices for a selected outdoor activity. Conservation. 2@13y way of'example, the annual number of camper days in Chicago. The camping area of the Indiana Dunes Wisconsin State parks and forests hashad a phenomenal in- State Park, for example was closed several times crease of over 25 percent each year since 1953. In Michigan, during the 1959-60 season for lack of camp space. 184,000 camp permits were issued in 1960 with some Another example of the conditions that exist is the 42,000 additional parties denied access because use would case of Devil's Lake, Wis., one of the most popular exceed designed capacity and standards. 267 A breakdown of participation by age groups in the members from the Chicago area. Like the AYH, this Nation indicates that it is the youthful-'segment of the club sponsors a variety 'of outings-hiking, walks, population that engages in these activities. For both camping, river touring, sightseeing, etc. Exploration, males, and females, it is the 12-17 age group that conservation, ecological study, and scenic tours are participates to anysignificant degree in nature walks the main purposes of this organization. and hiking, and a steady decline in the proportion There are also a number of hiking clubs whose walking for pleasure takes place with each successively members represent an older age group than the older age group. outdoor clubs. The better known are the Prairie Chicago area residents, like those in other large Club, Forest Trails Hiking Club, Fort Dearborn Club metropolitan areas, walk for pleasure, -of course. On and the Park District Outing Club. There are also seasonable days and nights, city dwellers can be community clubs such as the Fox River Valley Hiking observed walking around the block, through business Club. districts to window shop, or througk neighborhood In addition, there are 100-or-so nature and con- parks. The Chicago Park District contains certain servation clubs. formed for specialized purposes. The sites designed specifically for nature . study while types of interests of these can be seen by their walking. Along the lakeshore, the park district has names-"Friends of Our Nature Landscape," "Wild- many miles of paved walks adjoining beaches, promon- flower Protection Society," "Chicago Ornithological tories, inlets, and small boat harbors. The forest Society," "Illinois Audubon Society," "EvanstonBird preserves maintain trails for pleasure walking and Club," "Earth Science Club of Northern Illinois," nature study, many of which are centered on picnic "Friends of the Pleistocene," "Chicago Mountain- groves. Walking and nature study takes place outside eers," "Chicago CameraClub." Conservation groups the Chicago area in State-owned recreation areas, include "Nature Conservancy" and "Natural Re- one of the closest and most enjoyable being the Indiana sources Council of Illinois.", Dunes State Park. In summary, before. the development of modern One of the common statements of recreation offi- forms of transportation, walking and hiking were cials in the area, however,, is that there is a general important forms of outdoor recreation. Today, and disinclination to walking among adults. There is also especially in large urbanized areas such as the Chicago a general lack of awareness of natural sites of interest area, walking is not only more difficult but hazardous. to walkers, and according to some there is a lack of Many fear that urban people are losing contact with interest except for the most dedicated nature lovers. nature and interest in walking for pleasure. In fact, In spite of the efforts of officials of the Cook County there is some propensity to regard adult participants Forest Preserve District, for example, to provide in hiking and. outing clubs as eccentrics and 11egg7 footpaths into the interior of the wooded preserves, to heads." The group organization of walking and hiking distribute maps showing all trails, most people make outings also is indicative of the trend toward institu- use of the recreation facilities that are provided on tionalization of outdoor activity among urbanized the margins of the preserves and within sight of their peopfe.- The young and middle-aged adult appear to automobiles. Three nature centers with a 'system of have lost the art of walking; even the young who reach educational trails, however, are proving popular, driving age take to motorized substitutes. particularly among youth groups and families-the Little Red Schoolhouse attracts an estimated 60,000 HORSEBACK RIDING visitors a year and Trailside Museum about 40,000. Youth camping groups participate in nature walking An index of the importance of horseback riding and trail hiking. Lengthy, marked trails are found in today as against a previous time is found in the oper- the Palos Hills Division of the Cook County District, ation of commercial stables. According to a leading and the Fort Dearborn Trail and Illinois Trail along source,9/ in 1920 there were 12 commercial stables the Illinois and'Michigan Canal and Illinois River are in the @%icago area with a total of about 400 riding well known. Day campers also utilize the trails in the horses serving perhaps 4,000 riders and using 26 preserves. miles of constructed bri 'dle paths. Of these, eight Nature walking by groups is sponsored not only by were located in Chicago and four in the suburbs. By the Boy Scouts, Girl Scouts, and other organizations, 1940, the construction of 470 miles of trail outside but by outing clubs which cater to young adults. The Chicago was accompanied by an increase in riders to most important of the young, adult organization in around 40,000, riding 4,000 horses stabled in over terms of membership is the American Youth Hostels 100 major stables and a number of smaller ones. (AYH), wi.th a current local membership of some World War 11 conditions brought about a substantial 3,000 people. About 90 percent of the members are deeline in the horse -population, and since then many between 18 and 30 years old and most are unmarried. miles of trail have been absorbed through new highway Besides outings for canoeing, cycling, horseback construction, new subdivisions and other urban-type riding, and skiing, there were 40 weekend hiking faci'lities. It is estimated that by 1960 the number of outings held by the AYH in 1960-13 in the'metropolitan riders had declined to about 30,000, riding about area, 10 elsewhere in Illinois, 7 in Michigan, 5 in 8,000 horses stabled in 50 large and an unknown Wisconsin, 2 in Indiana, and 3 in Missouri and number of small stables. Kentucky.@/ Another outdoor group composed mostly Commercial stables in the city of Chicago have of young adults is the Sierra Club with about 200 been closely associated with the large parks of the Ninterview with Sidney Zwick, Executive Director, AYH ?/Interview with Wayne Dinsmore, Secretary of the Horse and Chicago Council. Mule' Association of America until its dissolution in 1949. 268 Chicago Park District. The peak number of eight has June 1964 period indicates that almost,two-thirds of declined to three at present. The horse population is the riders are under 18 years of age with an additional 125 for rent and 80 for boarding. An estimate of the one-third between the ages of 18 and 30. number of riders is 150 per average warm weekday and 450 per average warm weekend day. At least two WINTER SKIING of the stables are doomed to extinction because of urban redevelopment projects. Skiing is considered the fastest growing outdoor The number of commercial stables adjacent to the winter sport in the United States. While estimates Cook County Forest Preserve District has dwindled vary as to the number who participate each winter, from a high of 93 in 1940 to 3 5 in 1960. The preserves more conservative guesses place the figure around in this district include about 170 miles of bridle path 3 million, double that for 1947. Skiing on a commer- which also serve as trails for hiking, limited cycling, cial basis has had only recent development in this for patrol cars and firefighting equipment. The num- country-the first rope tow was.introduced in 1934 ber of horses today (1,200) is about the same as in and the first chair lift in 1937. Today there are about 1950, with over half of the horses being privately 700 ski areas with about 270 of these considered as owned. The decline in such stables is attributed to major centers. Of the latter, 70 are in the midwest increases in land and labor costs, to a declining with 37 being in Michigan and 21 in Wisconsin.10/ proportion of the population renting horses, and to Skiing opportunities require below freezini tem- the fact that increasing urbanization has absorbed peratures, the maintenance of a snow cove r, and a farm land once associated in a profitable way with slope. These are combinations difficult to find in the many of the stables. Chicago area. Only two commercial ski jumps are In the outlying sections of the.Chicago area there located here, both of which manufacture artificial are but a handful of commercial stables, although' snow out of compressed air and sprayed wat 'er. Even even the larger ones are essentially boarding stables. in Wisconsin and Michigan winter conditions are The outlying network of bridle paths are primarily changeable. For the winter of 1960-61, for example, for privately-owned horses, many of which are kept spokesmen for Wisconsin ski operators claimed a in private stables. No figures exist as to the number $1 million loss, attributing this loss primarily to a lack of horses, although it is believed that the number of of a snow cover and consistently above freezing tem privately-owned horses has increased since 1946. peratures which limited good skiing to about 10 days. Around 80 riding clubs are active today, many of Skiing is predominantly a weekend venture since which are oriented to showing fancy horses and to winter is the busy season in the business world with riding exhibitions. Some 130 horse shows were few people taking long-term vacations. Altogether, it planned for the summer of 1961, about twice as many is estimated that there are about 60,000 people ' in the as were held in 1956. Chicago area who ski today,11/ Of thesei about half Most of the trails in the suburban areas are un- ski three or four times a year with the remainder marked paths through private farms and woodland, participating once a year or every 2 or 3 years. In connected through use of rural side roads, and fre- 1950, there were probably about 5,000 regular skiers quented almost exclusively by local residents and and an equal number of sometimes skiers. . by private club members. Concentration of clubs and One measure of ski activity by Chicago area resi- riding trails are found in areas of "gentlemen farm- dents is ski tours by commercial carrier. In 1950, it ers" and associated with large es 'tate subdivisions- is estimated that only about 250 skiers used public near Lake Forest and Lake Blulf in Lake County with transportation. During, the 1960-61 season, about trails extending southward to connect with those in 5.,000 people took ski tours including flights to Europe. the northern forest preserves of Cook County, in the The increase in the number of ski areas is another Barrington Hills area of northwestern Cook County measure of growth. There were but 8 major ski areas at Dunham Woods near the village of Wayne east oi in 1950;' today there are over 70 in Minnesota, the Fox River and mostly in eastern Kane County, Wisconsin, Illinois, and Michigan. north of Hinsdale in eastern DuPage County, and near There are currently about 40 ski clubs in the Steger in Will County-to the south. Chicago area, 19 of which are affiliated with the No-survey has beenmade locallyof the demographic, Metropolitan Ski Council of Chicago and having about socioeconomic characteristics of horseback riders. 6,000 members. Most of the clubs are less than 5 Obviously, most urban people owning horses are of years old and few were in existence in 1950. Not all substantial economic means because riding clubs and members are skiers - most of the clubs hold meet- trails are concentrated in upper-class suburban ings and sponsor social events year round. ' communities. The National Recreation Survey of A recent survey of 3,000 club skiers indicated that horseback riding during the 1960 summer season over 85 percent were between the ages of 18 and 30, indicated that the incidence of horseback riding in- with 88 percent unmarried males and females. Sixty- creases with income, with the highest participation eight percent were college graduates and 46 percent found among those in the $15,000 and over income were 'engaged in white-collar occupations. Thus it is group. It was also found that a higher percentage of evident that ski clubs attract young, single adults in riders are found in the 12-17 age class with 18-24 search of an exciting outdoor sport but in which much being the second highest group. . social mixing and courting takes place. The required licensing of riders utilizing the trails in the Cook County* Forest Preserve District provides Lo/"Ski Life," December 1960, pp. 97-100. partial local information. An analysis of over 1,000 U/Interview with Pat Farrell, Executive Secretary, North 3-year licenses already issued for the June 1961-to American Ski Operators Association. 269 Chapter Four EMERGENT PRESSURES-WHAT NEEDS TO BE DONE Illinois Metropolitan Area Planning Commission has Previous considerations have led to the conclusion that the existing supply of opportunities and facilities completed an extensive study of employment growth for outdoor recreation is deficient in terms of the and industry trends, with projections into the future.' l/ current level of demand of residents of the Chicago In brief, the major post-World War II trends in the area for day and overnight outings. Even if it could economy'of the Chicago area are expected to con- be assumed that the future level of demand for out- tinue for some time to come. Automation of industry door recreation would remain at present levels, de- appears to have increased somewhat faster than the cisive efforts would have to be made to overcome this national rate, and consistent with the national experi- deficiency. A.qualitative measure of this deficiency ence, low-skill occupations have been affected the was found in the area rating study conducted by ORRRC most. As in the'1947-59 period, the most rapid wherein it was found that the Chicago area and its growth in future employment is expected to takeplace environs rank in the lowest group of 66 sampling in the nonmanufacturing sector of the economy, par- areas in terms, of *recreation resources and availa- ticularly in distribution and business services. And bility but in the second highest rank in use. A quiui- as automation continues to reduce the demand for un- titative, physical measure was obtained by comparing trained workers, future demand will increase for the public, recreation acreage available within a 60- professionally educated and technically skilled wage mile radius of the center of the Chicago area with earners. The past high rate of in-migration of poorly that for other large metropolitan areas. If attempts educated and trained whites and nonwhites from the were made, for example, merely to match the public South is expected to.decline. acreage now existing in the Detroit area on a popu- Based on these employment projections and taking lation unit basis (and the Detroit Metropolitan Area into account bmployment-population ratio trends, a Regional Planning Commission concluded from its projection of population growth in the Chicago area study that more 'acreage is needed to meet existing has been made by the commission. 2/ Although the needs), it would be necessary to acquire and develop projections assume that the. rate of growth will de- about 50,000 acres of recreation land withina60-mile crease from that experienced in the past two decades, radius of the center of Chicago. the number of people is expected to increase to The assumption of static conditions in the future 7.59 million by 1976 and 10.96 by 2000. This growth obviously is not a tenable one. If it is assumed there in population represents an increase of 22 percent and will be no thermonuclear war or other major dis- 76 percent, respectively, over the 6.22 million in ruptions in the economy, a mass leisure market of 1960. greatly increased proportions for outdoor recreation appears to be in the making. The pressures to come The National Planning Association in a studyfor the in the Chicago area and throughout the region for op- Outdoor Recreation Resources Review Commission portunities for day and overnight outings appear to be has analyzed the potential characteristics of the greater than those previously experienced or envis- anticipated future economy of the United States and aged. Recreation authorities do not appear to be its various sectional parts. Taking into account re- overly concerned at present with refinements in the gional and State trends in employment conditions, level of demand for various types of outdoor activity- NPA has projected per capita personal and disposable what is of most concern is the overuse of existin income for the Chicago Standard Consolidated Area facilities on peak use days and the overall demand for (which combines the six-county Chicago area with such facilities in the rapidly approaching future. two northwestern Indiana counties). Per capita income Perhaps this is one of the main reasons for the cursory in constant dollars is expected to rise 60 percent by attention currently given to the matter of'obtaining 1976 and 100 percent by 2000 over that in 1960. The precise counts of visitations or activity days and of gain expected in the consolidated area is accepted as analyzing the characteristics of existing recreationists being representative of the Chicago area since the and their needs and preferences. basic NPA trend assumptions are consistent with those made by NIMAPC. POPULATION ANIJ kokoMic CHANGE The amount of leisure time*-available also- is ex- pected to increase. According to estimates supplied Even the most conservative estimates of growth by the Bureau of Labor Statistics, U.S. Department and progress in the Chicago area suggest that trends in the basic elements of demand-population, income, !/"Employment in 1980 in Northeastern Illinois." Unpublished leisure, and mobility, will result in a much greater to date by Northeastern Illinois Metropolitan Area Planning need for outdoor recreation opportunities and facil- Commission. ities by years 1976 and 2000 (these years have been -2/"Anticipated Population of Northeastern Illinois, 1970, suggested by ORRRC as providing a short-range and 1976, 1980 and 2000." Unpublished to date by Northeastern long-range look into the future). The Northeastern Illinois Metropolitan Area Planning Commission. 270 of Labor, the annual average number of hours worked combined increase would suggest that the future level per week in the Chicago Standard Consolidated Area of demand for all types of outdoor recreation oppor- will decrease to 34.9 by 1976 and 30.4 by 2000. In tunities and facilities will be about 3 1/2 times 1960 it was 37.7. Assuming an average of 14 hours a greater by 1976 than at present and over 11 times day consumed in sleeping, eating, commuting, and greater by 2000. other nonwork activities, the amount of leisure time Before an attempt is made to give further meaning per person will increase a little over 8 percent by to this measure of demand for recreation oppor- 1976 and about 22 percent by 2000. tunities in and around the Chicago area, however, a Mobility will also increase; projected estimates closer examination of each of the four factors must provided ORRRC by A. J. Goldenthal and Associates be made. of the volume of future domestic intercity travel by all forms of transportation point to a national in- CHICAGO AREA DEMAND FACTORS FOR DAY crease in the number of miles traveled per person AND OVERNIGHT OUTING FACILITIES by about 60 percent by 1976 and 160 percent by 2000. Population characteristics If it is assumed that the Chicago area residents will share in equal proportion to the increase in miles traveled, and that a proportionate part of this increase It will be recalled that national survey findings will be made for recreation purposes, an index of demonstrate that age is one of the important ele- increased outdoor recreation of all types due to ments underlying variations in outdoor recreation mobility thus is obtained. activity and preference. In the assessment of the A summary of the projected estimation of popula- characteristics of the existing Chicago area popula- tion, income leisure and mobility increases for 1976 tion, it was noted that the older age categories (up to and 2000 are given in table D-31. Although esti- the senior citizen level) are relatively more important mates of the future level of demand for outdoor locally than nationally; hence the age composition of the population has a differential effect on the Chicago Table D-31. Projected increases in population, income, area current level of demand for outdoor recreation. leisure time, and mobility in the Chicago area, An estimate of the age composition of the future 1976 and 2000 population of the Chicago area has been made. As 1976 2000 table D-32 data indicate, it is anticipated that the greatest growth by age categories will take place in 1960- 1960- 1960 Q ... tity 1976 Quantity 2060 increase increase Table D-32. Age composition of Chicago area population -1930, 1940, 1950, and 1960, with Population :projections to 1976 and 2000 (percent) (millions) ... 6.22 7.59 1.22 10-96 1.76 Income (1959 Age group 1930. 1940 1950 1960 19761/ 2000 dollars)- Personal Under 5 ...... 7.7 6.4 9.4 11.4 income. $2,900 $4,537 1.60 $5,699 2.00 Sto 9 ........ 8.4 6.4 7.5 9.9 20.4 21-6.1 Di sposable 10 to 14 ...... 8.6 7.5 6.0 8.4 .18.0 19.1 income., $2,494 $3,978 1.60 $4,890 2.00 15 to 19 ...... 8.7 8.2 5.8 6.5 Leisure time 20 to 24 ....... 9.4 8.9 7.4 5.8 22.6 21.5 (hours) ...... 1,690 1,835 1.08 Z069 1.22 25 to 34 ...... 18.4 17.8 17.0 13.3 Mobility (U.S.), 35 to ...... 17.1 16.3 15.8 14.3 10.5 12.2 per capita 45 to 54 ...... 11.0 14.2 13.3 12.4 travel miles. 11 4,1701 1/6,760 1 1.60 1 11,000, 2.60 55 to 64 ...... 6.4 8.3 10.3 9.4 19.7 17.5 65 and over ... 4.3 1 6.01 7.51 8.61 8.81 8.1 -1/NPA projects Q high of 6,950 and a low of 6,600 miles per capita for 1976. -!/Estimated. Source: Population and mobility increase projected by Source: Decennial population reports, Bureau of Census, NIMAPC. 'Income figures based on National Planning Associa- U.S. Department of Commerce for 1930,1940, 195b, and 1960. tion projections; leisure hours derived from data supplied by Estimates for 1976 and 2000 provided by NIMAPC. Bureau of Labor Statistics; mobility based on study by A. J. Goldenthal and Associates. the 15-19 and 20-34 age groups. Since national sur- veys indicate that people between these ages are the recreation are unavoidably rough because at present most active of all groups in outdoor activity the shift there is only limited quantitative knowledge of the toward greater representation of adobes@ents and manner in which various demand factors contribute young adults and a proportionate decrease of people to the explanation of outdoor recreation activity, the over 45 years of age would suggest increased overall magnitude of growth in each of these factors indicates participation in outdoor recreation in the future be- that outdoor recreation will increase at a rapid rate yond that in direct proportion to gross population in the future. If outdoor recreation increases in increase only. direct proportion to individual changes in the four Marked shifts in population . through continued basic factors of total demand, the magnitude of the suburban growth also will take place. By 1976, the 271 suburban area is expected to contain about 57 percent higher outdoor recreation participation rates but in of the total Chicago area population3/ whereas in greater selectivity in type and place of outdoor activity 1960 the suburban share was 43 percen7t Theoutward as well. flow of population, plus the anticipated decline of unskilled in-migrants, may result in an increased The expected gain in leisure time by the Chicago vacancy rate in the rental units of Chicago. This Standard Consolidated Area labor force. shown in table condition will depress rentals which in conjunction D-31 may be distributed by source from the estimates with increments to the supply of housing through provided by the Bureau of Labor Statistics. For the urban renewal may significantly reduce the rate of 1960-76 period, 75 percent of the gain is expected further outward movement. The suburban share of from a reduced workweek, 4 percent from increased the population will continue to increase, however, so holidays, and the remaining 21 percent from increased that by 2000 it is estimated that from 73 to 75 percent vacations. For the 1960-2000 period, a reduced of the population will reside outside the present in- workweek and increase in holidays will provide 86 corporated limits of Chicago. percent of the gain in leisure. The implication is that the overall demand for facilities for day. and over- Future changes in population distribution thus are night outings will increase faster than that for in the direction of lower densities of living'for a vacation facilities. greater portion of the population with better accessi- bility to outdoor recreation facilities near the outer Higher incomes and greater leisure will contribute edges of the Chicago area and beyond. As suburban to an increased mobility of the population. However, communities are swelled by greater numbers of estimates of the per capita miles of travel by all people, there will be increased opportunities for kinds of transportation are not as significant to this making use of recreation facilities away from the study as the projections of automobile use, since it is urbanized sections of the area. This suggests that expected that the latter will continue to furnish the there will be a greater proportion of the population transportation mode for most day and overnight outings. Projections of the number of passenger cars engaging in outdoor recreation in a nonurban-type per capita in the Chicago area indicate a'30 percent environment than at present. increase by 1976 and a 70 percent increase by 2000. Even though the rate of population growth resulting from in-migration from the South is expected to slacken in the future as job opportunities for un- Adjusted estimates of future demand skilled workers decline, the proportion of nonwhites to total population is expected to increase as a result Projections of the combined increases inpopulation, of high net internal growth. The level of outdoor income, leisure, and mobility provide a basis for recreation demand among nonwhites, both in terms estimating the future level of demand for outdoor of numbers participating and per person activity days, recreation. H continuity over time in characteristics however, may be expected to increase materially as of outdoor activity is assumed, but adjustments made northern urban attitudes toward outdoor recreation according to changes in age composition, place of are assumed, as income levels improve, and as a residence, and other demographic, socioeconomic greater variety of recreation opportunities becomes variables, the projections 'suggest that the demand by available to nonwhites through reduced restrictions residents of the Chicago area for outdoor recreation in use and greater availability of all types of facilities. opportunities and facilities accessible for day and Thus not only is the population of the Chicago area overnight outings will be about 1.7 times greater by increasing, but future outdoor recreation participation 1976 and 3.3 times greater by 2000 than at present. rates will rise as a result of changesin age composi- tion, place of residence, and increased participation of nonwhites. THE NEED FOR ADDITIONAL OUTDOOR RECREATION FACILITIES Other factors affecting demand If these estimates of future demand and the as- The National Planning Association projections in- sumptions underlying the individual factors are dicate that national expenditures per household for all accepted as being reasonable approximations of future types of goods and services, including recreation, will trends, a basis for estimating the gross amount of more than double by 2000. The proportion of total in- public acreage required to satisfy this demand has come earned by families and individuals with incomes been established. . At present there are less than 12 below $6,000 (expressed in 1959 dollars) also is ex- acres per 1,000 persons of public park and general pected to decrease from 31 percent in 1957 to 5 per- recreation land within a radius of 60 miles of the cent in 2000, while the proportion of expenditures by center of the Chicago area. By way of comparison to consumer groups with incomes over $10,000 will in- conditions in other large metropolitan areas, espe- crease from 36 percent to almost 85 percent over the cially Detroit as the second largest metropolitan area same period. The general upgrading of persons along in the midwest, a deficiency of about 50,000 acres of the income scale not only is expected to result in public recreation land is indicated, almost all of which is required to meet the needs for outdoor recre- ation carried out within reasonable outing distances. -@/"Anticipated Distribution of the Population of Northeastern In addition to this deficit, a deficiency is found in Illinois." Unpublished to date by Northeastern Illinois lands available for public hunting and fishing and as Metropolitan Area Planning Commission. wildlife refuges. At present, lands of this type total 272 to only 2 acres per 1,000 persons which is considered to water bodies. While it is not possible to quantify to be considerably less than what is needed to meet the amount of recreation land which should be ac- all such needs. quired in the future with juxtaposition to streams, If existing deficiencies in opportunities are to be lakes, and reservoirs, the preferences stated through met as well as the projected 1.7 and 3.3 increases in national surveys and the trends that appear to be demand by 1976 and 2000, respectively, a strong land developing suggest that future acquisitions of land acquisition program must be initiated. Plans and should be primarily in this direction. Where no water actions to meet current and future demand must be bodies exist, selection of specific sites should-be made now, else lands suitable for recreation purposes made on the basis of potential development of water at the places most needed will have been taken for resources and facilities suitable for outdoor other purposes or after desirable sites become too recreation., costly to acquire. The question of the respective roles to beplayed by The question of what types of land should be ac- public programs and private enterprise in supplying quired or preserved to meet future recreation demand facilities for outdoor recreation is not an easy one be- cannot be resolved satisfactorily on the basis of cause past efforts of both have been closely inter- present knowledge. At present, the most popular related. The equipment for outdoor recreation, such activity in terms of numbers participating and activity as automobiles, boats, fishing tackle, and camping days is pleasure driving. As the numbers of pas- equipment, and much of the overnight accorfimoda- senger cars per unit of population increase in the tions and services, have been supplied by private Chicago area, the demand for scenic views and enterprise. Public authorities in turn have provided pleasure drives also will increase. The high cost of most of the land resources and opportunities. The land acquisition, the lack of truly outstanding natural, interrelationship is likely to become even closer and attractions, the increasing urbanization of the land- more complex in the future. scape and traffic congestion undoubtedly will have EL It has been previously suggested that increases in twofold effect. First, more pleasure driving will income are likely to result in greater selectivity in take place within an urban environment with man-made place and type of outdoor recreation. Inthis sophisti- scenes replacing the natural landscape, and second, cation of demand, it is expected that more re@crea- that carried out on overnight, weekend outings will tionists will make use of facilities providedby private take place at increasing distances from the Chicago clubs, resorts, and lodges. In addition, the. trend will area. The need to preserve some of the rural, open probably be toward activities that require a larger space land in the Chicago area, however, is . evident outlay of money- such as boating and allied activities. While it is expected that private enterprise will in- It is believed that programs of acquisition of open creasingly provide a greater share of accommoda- space for recreation use- should include public acqui- tions and services than at present, current trends sition of partial rights to the use of private property. suggest that many private facilities will be clustered Easement right purchases for specified, limited around reservoirs, lakes, large parklands, and game purposes make it possible to retain land for nonurban areas which will be publicly controlled and which will private use, yet through purchase of partial specified provide the major resources for outdoor recreation. rights make land available for recreation enjoyment. To this extent, at least, the private sector will play a Costs of easements should prove 'to be less than more important role as a supplier of future recrea- those for full acquisition of land rights, not only for tion accommodations. scenic values but also for facilities for hunting, fish- Facilities for youth-group activities are provided ing, and possibly other types of recreation. both by nonprofit and for-profit agencies. The latter Pleasure walking ranks high in the list of outdoor are motivated by profit considerations and through activities according to national surveys, and in terms the price mechanism private camping and related of outings it is preferred most when only 2- 3 hours of facilities will increase in relation to effective demand. recreation leisure time are available. It has been Outdoor camping as conducted by nonprofit red noted that walking for pleasure in areas retained in feather organizations, on the other hand, should con- an essentially_ natural, condition appears to be de- tinue to develop in bLccordance with the recognized clining in popularity in the Chicago area. Many rec- need for supporting fund drives. The roles that each reation authorities lament this decline, pointing to type of organization play are closely related to each the physical and mental benefits to be derived from other and are not overlapping with public programs, healthful and educational walks in a natural environ- since both types of agencies also utilize public lands ment. While the relative demand in the future for for day and overnight outings. such opportunities is uncertain, future lands to be acquired should be suitable for pleasure walking and nature study. FUTURE POSSIBILITIES According to survey data, people express prefer- ences for certain types of outdoor activity that are not City of Chicago drastically unlike their present activities. Picnics and swimming are preferred most When daylong Within the city of Chicago, relatively little land outings are taken, and preferences become stronger remains undeveloped or available in large contiguous for boating, camping, and fishing on overnight, week- areas potentially suitable for outdoor recreation. end trips. Except for possibly picnics when they Attention is being turned increasingly toward the represent the only purpose of an outing, it is noted program of urban renewal as a means of recapturing that the most rapidly growing activities are oriented land for local neighborland recreation use, but there 273 is little likelihood that the renewal process will per- ment land costs in the city and considerably below mit retention of land in sufficient amounts to provide what is being paid for prime apartment land. for, outdoor recreation in natural surroundings. The A major question to be resolved is how such islands essential purpose of this program is renewal and re- at the developed cost of over $100,000 per acre could habilitation of urban neighborhoods and not restora- be financed for recreation use. A way of making the tion of land to a natural condition. project financially feasible is suggested by having the Officials of the Chicago Park District have under city issue bonds to defray the costs of building consideration a new plan for the further development islands and then retire the bonds through sale of land. of the lakefront of la Michigan. None of the details This proposal would result in private ownership and of the plan are available as of now. It is expected, development of the islands. It is feared by some that however, that in addition to proposals to add to park if medium and high residential buildings are erected, and beach facilities and improvements, including addi- the inspiring view of the lake would be eventually tional parking facilities (two underground parking obscured. Hence the lake would lose much of its areas already have been built), any plan agreed upon scenic value. It is also feared thatprivate residential will include expansion of pleasure boat harbor, interests would predominate to the exclusion of those moorage, and launching facilities. There is consid- of public recreation. Yet the possibilities exist for erable evidence that present capacities for large creating islands for mixed residential-recreation pleasure craft fall far short even of the current de- purposes whereby beach lands, marinas, andpleasure mand. This is true also in communities along the harbor facilities would be gained to meet expanding north shore outside Chicago. water-oriented outdoor recreation interests. Many.suggestions also have been advanced to make Even though the growth trend of the Chicago area the lakefront more functional as a recreation area. is away from the lake into the suburban area, it is Proposals have been advanced to fill in about four clear that the resources of Lake Michigan must be areas along the lakefront, to construct pedestrian protected not only for their natural attractiveness but bridges and tunnels to make beach and park facilities also for their recreation value to all inhabitants of more accessible and less dangerous to reach, to the area and ready accessibility to those who live in acquire all remaining privately-owned properties and the high density neighborhoods of the city. If Chicago convert to general publie'recreation purposes (the becomes more than "half a city" through the develop- Chicago Park District now controls over 70 percent ment of offshore islands and peninsulas, it is vital of the shore property), to convert the Outer Drive, that provision be made for safeguarding public recre- now a major access route to and from the Loop and ation. benefits. Effective controls need be. imposed contiguous areas i to a local pleasure drive along Lake to maintain the scenic values of the lake and to expand Michigan and to a local access route for lakefront rather than diminish opportunities and facilities for park and beach areas. Each of these proposals recreation. warrant serious consideration because they would result in additional opportunities for outdoor recrea- The conflict with other Great Lakes States and tion consistent with emerging water-oriented needs. Canada arising from the local diversion of lake waters Another of the proposals repeatedly advanced is the must also be resolved. The municipal water supply- development of peninsulas or promontories and off- sewage disposal system of Chicago and certain shore islands in Lake Michigan. Underlying these suburban communities is based on pumping useable proposals is the recognition that Lake Michigan is water directly from Lake Michigan and discharging Chicago's most outstanding natural feature, world- sewage, storm water, and industrial waste toward recognized for its beauty, and that it is a heritage to the Illinois River. While the advantages of this sys- be protected for the pleasure of future generations. tem as a source of potable water for urban purposes The Burnham Plan of Chicago, 1909, appears to are evident, the system also has a salutatory effect have made the first serious proposal for offshore of safeguarding the sanitary conditions of beaches and islands, although the islands were to be created for recreation water. If an adverse decision is rendered aesthetic purposes rather than recreation. Since then by the U.S. Supreme Court in litigation now being there have been at least nine different comprehensive heard wherein no additional water may be so diverted or specific project proposals. To date, only one (or, in the extreme, none at all) without returning an island has been created-Northerly Island, which is equal amount to the lake (meaning in the form of now used for a city airport, a planetarium, and as a sewage), it is almost certain that the beaches and protective strip for a pleasure-boat harbor. shore waters will become so polluted as to render 'Ibe feasibility of such islands and peninsulas has them unsuitable for many recreation purposes. A been studied and restudied. The most comprehensive satisfactory solution is critical not only to the sani- report now in existence is a recent unpublished tary welfare of the Chicago area but also to the prob- treatise by the Department of City Planning. 4/ This lem of meeting existing and future needs in outdoor report concludes that the development of islands or recreation. peninsulas imposes no impossible engineering prob- Another possible addition to the supply of facilities lems, and that based on current estimates, an esti- for recreation in the city and its margins is the use mated approximate cost of $2.50 per square foot of of the North Shore Channel of the Chicago River developed land would be less than recent redevelop- which connects with Lake Michigan in the north shore community of Wilmette. Little used now except for -1/13ackground Material Covering the Feasibility of Creating storm and sanitary flow, it has been proposed that the Islands Near Chicago. Chicago City Planning Department, channel and its banks be turned into a watercourse, Mimeographed First Draft, January, 1961. highway and park strip. As a watercourse it would 274 provide a valuable connection for pleasure craft be- doubt at present whether the total holdings of this dis- tween Lake Michigan and the Illinois River. It would trict will go beyond 60,000 because this amount will also provide an almost unbroken strip of park land include -about all of the land remaining that is consid- facilities from the north shore to the near north side ered suitable for forest preserve purposes. Itwillalso of Chicago. A feasibility study to this end has just result in a preserve holding of about 10 percent of the been completed by a. consulting firm at the request total acreage of the county, a figure which under past of the Metropolitan Sanitary District of Greater standards has been considered desirable and Chicago who controls the channel strip. satisfactory. Further liberalization of the intent and purpose of Suburban area county forest preserves, however, has been made through recent State legislative action. Previously, One of the important. questions in connection with it was possible only to ampilie lands already in a adding to the supply of recreation opportunities is.the wooded condition or lands connecting forested parts. overall availability of suitable open space within The recent statutory amendment enlarges the scope reasonable distances for day and overnight outings. of the types of holdings permitted to include land Of particular importance is the question of open space capable of being reforested and land.along or enclos- in the Chicago area, since this is where increasing ing watercourses, ponds, lakes, planned impound- numbers of people will seek new homes and economic ments, or elsewhere which is required to store opportunities. floodwaters or control other drainage and water con- It is estimated that not more than half of the central ditions necessary for the preservationof groundwater city and inner suburban area has now been converted and forested areas acquired or to be acquired. Thus to urban use. The remaining portion of the Chic the scope of the purpose of forest preserve holdings ago 94 area, except that in and around the satellite cities that has been broadened to cover a number of open ring the inner arda, is essentially rural or rural- space" purposes such As maintenance and develop- nonfarm. Roughly 75 to 80 percent of the total Chicago ment of forests, protection of wildlife, surface drain- area of 3,714 square miles of land isr still in fields, age and flood control, preservation of ground water, woods, wetlands and wasteland. With about 100,000 and recreation. To serve adequately allsuchmultiple persons annually being'added to the suburban popula- needs may prove to require additional acreage be-. tion over the past decade, approximately 25 square yond standards previously considered appropriate. miles of land annually are being converted to urban As previously noted, the amount of forest preserve use. On the basis of future population-urban occu- acreage in the other counties in the Chicago.area is pance estimates, it appears that about one-third of extremely small. The need for a stepped-up program the Chicago area will be converted to urban use by is evident by the current low acreage per unit popu- 1976 and a little over one-half by year 2000. lation in the outlying counties and by the fact that While the need for a strong program of conserving rapid urbanization in the future will make it increas- open space for recreation use on the basis of the ingly difficult and costly, to preserve lands suitable above estimates would appear to be of no immediate for various multiple purposes. A 1959 State legis- concern, the fact is that open space suitable for out- lative act extended authority previously given only to .door recreation purposes is rapidly disappearing. the Cook County District to all county forest preserve The fact is that the best lands rapidly are being taken districts to issue nonreferendurn bonds for the acqui- for commerce, industry, and residence, with little sition of land for preserves and to levy a tax necessary effective action taken to preserve land for flood con- to pay off the bonds. While the new bonding authority trol, water supply, waste disposal, and for recreation would permit acquisitions up to about $15 million in needs. In many of the close- in suburban areas, almost the outlying counties, only a small part of the per- total development of the land is taking place; else- mitted amount has been used to 'date. A greatly where, open space is functionally disappearing, gen- stepped-up program in counties outside Cook County erally without benefit of an orderly plan for is called for if resources are to be provided for rec- economical use of the land base. This functional reation and other open-space purposes necessary for disappearance to date has taken place in a number of the health and welfare of the suburban residents... . ways-through scatteration of subdivision develop- Other multiple-purpose projects are under study ments, through urban expansion along the major which, it is hoped, will contribute to the supply of *op- access routes of travel,. by incomplete subdivision portunities for outdoor recreation. The U.S. Corps whereby small plats of nonurban land are skipped over of Engineers has undertaken a study of the Little or left surrounded by incompatible uses, through Calumet River and tributaries south of the city of expressways and large cloverleaf abutments. Vacant Chicago both in Illinois and Indiana, the Kankakee areas between developments also are frequently left River to the south, and the Fox River and tributaries without purpose, functionally, or takwise.' The Prob- west -of the urbanized inner portion of the Chicago lem of preserving land for open space purposes is of area. While these studies primarily are for the pur-m immediate as well as future concern. pose of determining the feasibility of flood control A number of programs underway or contemplated improvements, they have a direct bearing on the po- have a direct bearing on opportunities for recreation tentiality of the water courses as recreation resources. in areas providing maximized natural conditions. The Division of Waterways, Department of Public The Cook County Forest Preserve District as the Works and Buildings, State of Illinois, has completed major supplier of outdoor recreation resources in a a study of the Des Plaines River from the western wooded environment now has the statutory authority suburbs of Chicago north to the Wisconsin line. The to increase its holdings to 55,000 acres. There is results of this study are not yet available, but it 275 appears that it is possible to develop two reservoirs tary cooperation of private and public, recreation and in Lake County: one along the main stem of the river nonrecreation interests. It requires in the end a and another on tributary Mill Creek. The two reser- financing plan that will combine community, county, voirs would have a combined storage capacity of over State, and Federal sources of revenue for metro- 50,000 acre-feet which would require the purchase of. politan-wide public benefits. perhaps 10,000 acres of land. Similar studies are Two recent developments show promise of supple- being made of. the Du Page River and the Fox River menting existing methods of providing space for out- and tributaries which may reveal suitable sites for door recreation, one in the public and the other in reservoirs. While development of such reservoirs the private sector. Title VII of the Housing Act of are being considered as a means of controlling storm 1961 for the first time provides Federal assistance water runoff, the possibility of using reservoir as to State and local governments to help finance the .recreation resources appears practical-for fishing, acquisition of title toi or other permanent interests .hunting, and boating and for a series of shoreline in, open- space land under an orderly comprehensive parks interconnected by highways. plan. The purpose of the new enp:ctment is to help The Northeastern Illinois Metropolitan Area Plan- curb urban sprawl by encouraging desirable urban ning Commission, the individual counties, and the development, and to help provide necessary recrea- U.S. Geological Survey have recently instituted a flood tion, conservation, and scenic areas through assisting hazard mapping program. Experience gained from in preserving open space land. The program of several nationwide studies of flooding problems sug- grants-in-aid may prove to be a forerunner of a gests that in order to obtain a reasonable degree of national open space policy with direct emphasis on flood protection in a'rapidly expanding metropolitan recreation. area, there is need to regulate land use to avoid the creation of unnecessary new flood problems. The re- A local development in the private sector with sults of the -mapping program will provide detailed promise of maintaining open space areas with recre information on the flood plains and of the flood hazard ation benefits is the establishment of a nonprofit to -help guide the development of low- lying lands along organization called the Midwest Open Land Associa- streams of the Chicago area, including the potential tion. The purpose of this association includes acqui- of certain areas for recreation use. sition of all kinds of open space lands useful for .It is apparent from the estimated amount of total preservation for outdoor recreation or conservation land needed in the future to satisfy outing demands areas. The lands acquired by donations of land or for outdoor recreation that all needs cannot be met purchase through use of funds privately donated in the Chicago area alone. To set aside an additional would be either turned over to the appropriate public amount of 880,000 acres of public land just for day recreation or conservation agency or leased at a and overnight outings would require an amount equal nominal rent or conveyed to an eleemosynary insti@ .to 6.4 times the present size of the city of Chicago tution. In this sense, the MOLA would act as a private or 37 percent of the total land base of the Chicago clearing house, and. hence would be able to reach area. Further, the Chicago area simply does nothave hitherto untapped sources of private generosity. the amount of open space with existing natural attrac- tions suitable for outdoor recreation. An inventory of inland lakes in the area reveals that combined they Chicago region total only 20,000 acres, and almost all of this acreage, already is being used. An inventory of land with other Even though possibilities exist for the development suitable natural features such as areas with topo- of reservoirs and flood plains for recreation, and for graphical variety, woodlands, marshes, abandoned additions to Lake Michigan recreation facilities and gravel pits, and strip mines remaining as open space county forest preserves, for large parks and con- provides a total of only about 65,000 acres, including servation areas, for open space preservation which many small, noncontiguous parcels which are virtu- provides recreation benefits, it has been pointed out ally useless for outdoor recreation purposes. The that total outdoor recreation resource needs of the surprisingly small inventory of land remaining with future residents of the Chicago area cannot be met. suitable natural features thus suggests not only the entirely in the area. Nor is it necessary or even need for multiple-purpose projects but acquisition of advisable. As a concomitant to the addition of new land with no 6dsting attractions. The costs of de- and more efficient access routes of travel, to income veloping features suitable as an environment for out- and leisure time increases, the distance range of day door recreation will be high but necessary if the and overnight recreation outings will increase. In needs for facilities with ready accessibility are to be effect, by widening the area of access a wider selec- met. For recreation facilities away from the area re- tion of landscape features will be available as the quire added time of travel and individual and public radius of travel time expands. Certain attractive cost to reach them. natural features away from the Chicago area in the A plan of preserving open space to meet existing western part of the State along the Mississippi River, and potential needs is necessary if orderly develop- developments in central Illinois.such as possibilities ment of the Chicago area is to take place. The of a 25,000- acre reservoir some 150 miles from Chi- preparation of such a plan is now underway by the cago, and notable attractions in Wisconsin, Indiana, Northeastern Illinois Metropolitan Area Planning and Michigan will become more accessible. TheAeed Commission. An open space plan must take into con- for facilities best provided by State and Federal sideration community, county, and metropolitan needs agencies within the Chicago region will grow in the for open space; to be effective it requires the volun- future. 276 I .he total acreage of State parks and other types of forest recreation area land, 353,000 acres of prime recreation land in @ Illinois lags behind that of other game habitat, 25. to 30 new lakes, 103 new areas of neighboring States and. the bulk of the acreage is land under the fish- management program, 3,000 miles downstate away from the Chicago area. A possible of highway scenic rights, and other recreation land. start to materially improve the outdoor recreation Significantly, major emphasis in much of theprogram opportunities and the tourism industry was taken irk is on the development of recreation facilities in south- mid-1961 by.the establishment of two new State eastern Wisconsin and in the southwestern part of agencies. A Commission on Recreational Development the State, both of which are accessible to Chicago was created to study all aspects of planning, acqui- area residents as well as the centers of heavy popu- sition, development, and financing of public recreation lation concentration in Wisconsin. areas, parks, and facilities, and to report to -the One of the striking features of the Wisconsin pro- legislature not later than March 1, 1963. A Boar 'd of gram.is that almost one-seventh of the funds,is in- Economic Development also-was created and charged tended for purchase of easement rights. Specifically with the 'responsibility offurthering all aspects of mentioned are scenic easements, public access rights, economic development of the State, including recrea- public hunting and fishing rights, wetland drainage tion. This board has the authority to assemble in- rights, fencerow rights for protection of game cover, formation as to. potential recreation locations in the platting rights along streams, subdivision and timber various sections of the. State, to encourage and pro- cutting rights along lake shorelines, development mote tourism, to investigate ways by which the water rights to protect lands adjacent to State parks and resources of the State may be put to maximum' campgrounds. The experience of the WisconsinHigh- beneficial use and to provide ways for the reconcilia- way Department with purchasing scenic easement tion and adjustment of the various conflicting claims rights along the Great - River Road paralleling the to water by users and uses. Mississippi River has been encouraging in that the While it appears that these State bodies have over- scenic rights cost,only one-third to one-half as much lapping responsibilities in the field of recreation, a as outright or complete purchase of land. program devoted to studies leading to ways and means Chicago area residents, particularly those in the of implementing the supply of facilities. for, outdoor southern section, have long been interested in oppor- recreation is long overdue. It is also.official recog- tunities for day and overnight outdoor recreation along nition that the recreation resources of the State are the Indiana southern edge of Lake Michigan. Pro- underdeveloped and that an imbalance between supply posals for strengthening the use of the dunes area have and demand exists. for a long time received strong support from north- The State of Wisconsin at present provides a major eastern Illinois. The conflict between industrial share of opportunities, private and public alike, for development interests with those of recreation has weekend and vacation recreation trips by residents been deep and bitter at times; recently, however, of the Chicago area. Facilities in the southeastern northwestern Indiana as well as national political sup- section of the State are also within range for day port has been gained toward the establishment of a outings. Having watched the rapid exploitation of National Dunes Park. Two.Senate bills now under natural resources during the 19th and first part of study, call for the establishment of such a park, one the 20th centuries, State officials and the general which would authorize a 5,000- to 6,000-acre dunes public have been extremely receptive to conservation area including the present 2,000-acre State park, and measures to restore and develop. State resources. the other which would include a considerably larger The economic welfare of Wisconsin has been consid- area. of dunes. The long struggle between recreation erably enhanced through efforts to develop oppor- and industrial interests would appear to be closer to tunities for outdoor recreation by visitors from out-- solution; the major conflict at present appears to be oi-state, including the Chicago area. over what lands to include and how much to be ac- In a "Resource Development Message" to the quired for recreation and conservation. legislature in March 1961, Governor Nelsonpresented While Michigan is a favorite spot for many vaca- a dramatic 10-year program to increase facilitiesfor tioners from the Chicago area, it has been less im- outdoor recreation. Calling for emergency action portant as a public and private resource for daylong support, he proposed that the State spend $50 million and even overnight outings. By straight-line distance, over a 10-year period for State parks and State forest the western section of the State is in close proximity recreation areas (33 million), fish and game habitat to northeastern Illinois, but Lake Michigan, congested (9 million), youth conservation camps, protection of highways, and urban concentrations around the south- scenic resources along highways, creation of new lakes ern tip have been major barriers to ready access. under the Federal small watershed program, State As tollways and expressways are connected to mate- aid to assist metropolitan areas in acquiring new rially reduce traveltime, it is expected that recrea- recreation space, additional tourist information cen- tion facilities in southwestern and west-central ters, and.additional surveys and planning vital to the Michigan will be used to a much greater extent for recreation program. Almost all of the money would outings of a day or overnight duration. be used to supplement present conservation activities, . One of the developments in the field of transpor- and it would be financed by an additional 1-cent tax -tation which may. revolutionize travel is the use of on cigarettes. The additional, tax and the underlying an air cushion between the ground surface and vehicle program were approved.by an otherwise. economy- of travel. A hydrofoil, ship may one day be used to minded legislative body. transport passengers and freight across Lake Mich- According to the Governor's message, the -10-year igan, traveling at the speed of 7 0 to 100 miles an hour. program is expected to add 145,000 acres of park and This would make it possible to cross. the lake to South 277 Haven, Mich., in about an hour and to Ludington in phasize the fact that regardless of the relative lack of 2 hours. The first oceangoing hydrofoil ship has al- natural features in the Chicago area, a major part of ready been constructed; large lake craft are almost the outing needs will have to be met locally even though sure to follow. by usual standards the physical attributes of much of A plan to establish a national park along 35 miles of the remaining open space suffer by comparison with Lake Michigan shoreline to include about 80,000 acres certain more notable areas elsewhere in the Chicago west of Traverse City, Mich., if effectuatedwill create region. Consumer- oriented land must be acquired a new and important outdoor recreation resource t -o within or near the margins of the Chicago area even. Chicago area residents for long weekend and vacation though it. may have only limited potential at present trips. The establishment of national parks along the for recreation use. shores of Lake Michigan, such as a Dunes Parkin The. above conjectures cannot be taken to mean, Indiana and the proposed Sleeping Bear Dunes Parkin however, that decisive action need not be taken to Michigan, would provide national recreation areas preserve. and enhance the natural attractions else- within reasonable distance of the Chicago area for where in 'the Chicago region, in Illinois as well as day and weekend outings for the first time. adjoining States for serving recreation needs and preferences of the residents of the Chicago area. CONCLUSION While the number of visitations and activity days on outings may decrease with distance away from the The foregoing sections of this chapter have provided area, the desire to travel to see unfamiliar places and an estimate of the magnitude of future demand for out- enjoy new experiences is a strong motivating force for door recreation of residents of the Chicago area in outdoor recreation. Increases in the supply of -oppor- the context of anticipated characteristics of the under- tunities and facilities for long weekend and vacation lying elements of that demand. The amount of public recreation must also be made in' the region. It is recreation land required to meet existing deficiencies expected that resources elsewhere for such activities and emerging needs is a matter of judgment, based as camping, fishing, hunting, boating, and winter sports on careful weighting of the evidence available of the will never be duplicated in the urbanized environment existing level of demand and what is expected in the of @ortheastern Illinois, or that the magnitude of de- future. The respective role of the private and public mand for specific types of water-centered recreation sectors in providing facilities for outdoor recreation facilities will ever be met by the local resource within reasonable distance for day and overnight out- potential. ings is also a qualitative consideration based on past conditions and what is expected to occur. While other Another of the problems which must be faced is the investigators might assess current and future needs structure of political organization and finance if reality somewhat differently, the judgments expressed here is to be made of what needs to be done. Almost all of are considered to provide a reasonable, conservative the resource potential for outdoor recreation is held -appraisal of emerging pressures in the light of what in some type of private ownership which means that is known today. land must be acquired at a price. Who shall do the One of the problems only lightly touched upon has acquisition, development, and maintenance, and who to do with the question of where lands should be ac- shall pay for it? Unfortunately, the recreation re- quired and public and private facilities developed for sources of the area and in the region are irregularly outdoor recreation. At present, it is apparent from distributed and the population has a different type of estimates of visitations that most day outings are distribution. Recreationists will continue to cross spent in the Chicago area with only a small propor- political boundaries to take advantage of recreation tion going out as far as 100 or 110 miles. It is believed opportunities, and it cannot be expected that local also that most overnight outings for outdoor recrea- communities pay the total costs of recreation facili- tion are spent outside the Chicago area but within the ties for the use by others. It seems clear that a larger Chicago region. How much is "most," however, is share, at least of operating costs, than at present must not ascertainable on the basis of present knowledge, be passed directly to recreationists on a user-benefit nor is it possible to predict the area of day and 2-day basis. outings in the future. Where'local- facilities are used by people nearby, While the area of outings is certain to expand as the individual counties must Assume the leadership neces- per capita number of automobiles increase along with sary . to finance . the creation of opportunities for out- new and improved limited-access expressways to door recreation. This is being done now with differ- speed up travel, and as outward movement of popula- ential success in.the case of forest preserves. Where tion continues, it is expected that the recreation re- facilities become used by people from outside, it is sources of the Chicago area will continue to receive suggested that counties develop intercounty commit- the. majority of the day outing visitations for some tees for joint action. The irregularity of population. time to come. As distance between residence and distribution and tax yields by governmental districts, place of recreation increases, both the expense of and the unevenness of recreation potential from one travel and the time involved increase. And as demon- section of the Chicago area to another, however, re- strated by a number of investigators, the higher the quire an integrated metropolitan approach to the .cost and travel the less frequent visitations are made. preservation and expansion of recreation opportu- Perhaps as much asC 60 percent of the leisure time nities. To this end, an open space planmust consider consumed in all-day and 2-day outings will be spent all types of open space use, including recreation, with within the Chicago area by 1976 and half by 2000. This a system of priorities@ established and a plan of finan- is only a rough estimate at best, but it serves to em- cing for short-range and long-range benefits. 278 The State must take a more active part in the provi- combine Federal assistance grants-in-aid with State sion of consumer-oriented recreation areas. While and local financial resources. It is not necessary the Illinois Department of Conservation has developed that Illinois follow the exact path of Wisconsin; what a State park and conservation area system, the rate is being suggested is that Illinois must develop a of expansion lags behind that in neighboring States. recreation program and sound fiscal policy of her In addition, only limited attempts have been 'made to own. create resources for recreation on a sectional basis. Many Federal agencies directly or indirectly pro- The amount of park and reservation acreage in and vide assistance to State and local public bodies in around the Chicago area is extremely limited, and a recreation. The National Government has never stated program of rapid acquisition is needed before open a national recreation policy, however, and until the space of recreation potential disappears. It is im- Housing Act of 1961 has given but scant financial at- perative that the two newly- created agencies under the tention to the user-oriented recreation problem and responsibilities given them develop through their re- the rapid disappearance of resource potentials for searches a program of State'action to meet nonurban, recreation in and around large metropolitan areas such day and overnight recreation needs on a* sectional as that in northeastern Illinois. In fact, a number of basis. These agencies now have the opportunity to aids such as payments made for wetland drainage provide the citizens of the State and their political have served to work against the preservation of areas leaders with a better understanding and appreciation favorable to outdoor reer6ation. of the physical and financial resources needed. to sus- There are vast regional differences in the extent tain recreation and tourism which are vital to the of Federal recreation land and multiple-purpose pro- welfare of the economy of.the State and its individual grams which provide recreation benefits. The Chicago -parts. area and its environs is one that is deficient in na- The 16-year program of action being initiated by the tional facilities. The primacy of metropolitan area State of Wi9consin captures the imagination because problems in outdoor recreation must be recognized, it recognizes the importance of #reserving and devel- both in the provision of national parks and projects oping recreation facilities where they are most needed accessible to the highly urbanized area, and in the and the vital role the tourist industry plays in the strengthening of State and local efforts to provide economic welfare of the State. The financing plan has suitable opportunities- 'and facilities for outdoor many advantages in that it is a statewide tax to provide recreation. statewide benefits. It.is based on a tax of a consumer Open space is the major resource in and around item not considered a necessit y for subsistence, and the Chicago area for outdoor recreation. Will the use to the extent that cigarettes are purchased by out-of- in the future be wasteful and indiscriminate; will it be State recreationists, the costs of acquiring anddevel- orderly in which all uses, including those for outdoor oping facilities and attendant elements necessary for recreation, are functionally balanced? Public policy outdoor recreation are passed on to those outsiders decisions are needed now and programs of action who take advantage of the opportunities made avail- .initiated before disappearance of the recreation re- able. The program also has sufficient flexibility to source potential takes place. ,279 THE ADVISORY COUNCIL The act establishing the Commission provided for an Advisory Council consist- ing of Federal liaison officers from agencies having a responsibility for outdoor recrea- tion and 25 other members representative of various major geographical areas and citizen interest groups. The following persons served on the Council. FEDERAL LIAISON MEMBERS Department of the Treasury Fed eral Power Commission A. Gilmore Flues Howard Morgan Assistant Secretary Commissioner Department of Defense Housing and Home Finance Agency Carlisle P. Runge Milton Davis Assistant Secretary Office of Program Policy Department of justice Interstate Commerce Commission Robert F. Kennedy Bernard F. Schmid Attorney,General Managing Director Department of the Interior Stewart L. Udall Small Business Administration Secretary of the Interior John J. Hurley Department of Agriculture Special Assistant to the Orville L. Freeman Administrator ' - Secretary of Agriculture Smithsonian Institution Department of Commerce Albert Q Smith Edward Gudeman Director Under Secretary Museum of Natural History Department of Labor Tennessee Vacy Authority Jerry R. Holleman Robert M. Howes Assistant Secretary Director Department of Health, Education, Division of Reservoir Properties and Welfare Veterans Adnu*m*stration Ivan A. Nestingen W. J. Driver Under Secretary Deputy Administrator OTHER MEMBERS Horace M. Albright Harvey 0. Banks Director-Consultant Water Resources Consultant U.S. Borax & Chemical Association San Francisco, California New York, New York Andrew J. Biemiller A. D. Aldrich Director Director Department of Legislation, AFL-CIO Game and Fresh Water Fish Washington, D.C. Commission Tallahassee, Florida 280 James Lee Bossemeyer Luther Gulick Executive Director President National Assn of Travel Organizations Institute of Public Administration Washington, D.C. New York, New York Harvey Broome Charles E. Jackson President GeneralManager The Wilderness Society National Fisheries Institute, Inc. Knoxville, Tennessee Washington, D.C. A. D. Brownfield, Sr. American National Cattlemen's Assn Joseph E. McCaffrey Deming, New Mexico Vice President International Paper Company Erwin D. Canham Mobile, Alabama Editor Christian Science Monitor Dwight F. Metzler Boston, Massachusetts Director Kenneth Chorley Division of Sanitation Chairman Kansas State Board of Health Executive and Finance Committees Topeka, Kansas Colonial Williamsburg DeWitt Nelson New York, New York Director Mrs. Harold Christensen Department of Conservation Chairman State of California Conservation Department Sacramento, California General Federation of Women's Clubs Iloyd E. Partain SpringviUe,.Utah Manager - LeRoy Collins Trade and Industry Relations President The Curtis Publishing Company National Association of Broadcasters Philadelphia, Pennsylvania Washington, D.C. Joseph Prendergast Kenneth R. Cougill Executive Director Director National Recreation Association Division of State Parks New York, New York Indiana Department of Conservation Indianapolis, Indiana T. J. Rouner Davi .d L. Francis Vice President President New England Power Company Princess Coals, Inc. Boston, Massachusetts Huntington, West Virginia David A. Shepard Ira N. Gabrielson Executive Vice President President Standard Oil Company of New Jersey Wildlife Management Institute New York, New York Washington, D.C. Gilbert F. White Pat GrAb Chairman of the Department of President Geography Pat G.iffin Company The University of Chicago Fort Collins, Colorado Chicago, Illinois 281 FORMER MEMBERS@ (Titles indicate affiliation at time of membership on Council) Bertha S. Adkins Mrs. Oveta Culp Hobby Under Secretary President Department of Health, Education, and The Houston Post Welfare Houston, Texas Elmer F. Bennett Robert C. Jones Assistant to the Administrator Under Secretary s Small Business Administration Department at the Interior James M. Mitchell', Newell Brown Associate Director Assistant Secretary National Science Foundation Department of Labor Bradford Morse Deputy Administrator Ward Duffy (deceased) Veterans Administration Editor Hartford Times Perry W. Morton Hartford, Connecticut Assistant Attorney General Lands Division Department of justice Charles C. Finucane Assistant Secretary Carl F. Oechsle Department of Defense Assistant Secretary Department of Commerce Clyde C. Hall E. L. Peterson National Science Foundation Assistant Secretary Department of Agriculture Flora Y. Hatcher Assistant to the Administrator Matthew A. Reese, Jr. Housing and Home Finance Agency Special Assistant to the Administrator Small Business Administration Marion F. Hetherington Frederick Stueck (deceased) Deputy Chief Commissioner Federal Power Commission Federal Power Commission 282 ORRRC STUDY REPORTS Page counts are estimates. All are for s ale by' the and economic characteristics of wilderness users is' Superintendent of Documents, U.S. Government based upon a sam ple sur@7ey carried out in three Printing Office, Washingtoti 25, D.C. specified areas. 4. Shoreline Recreation Resources of the United 1. Public Outdoor Recreation Area s-Acreag e, States, 156 p .ages, prepared by The George Wash- Use, Potential, 205 pages,, prepared by the Commis- ington University@, contains an analysis of the Great sion staff, presents a description, and analysis, of all nonurban public designated, rec 1. reation areas in the 50. Lakes and ocean shoreline of the contiguous States, States, Puerto Rico,. and,"the, Virgin Islands. Nearly and presents a detailed State-by-State summary of quantitative and qualitative factors affecting.. their 10,000.named areas, and anadditional 15,000 small areas, are included, with pertinent data on their acre- recreational use' It includes a classification-of national shoreline .-resources-beach,- marsh, and bluff. P b- age, location, and management agenc@. Areas, con-. lems of hip, access, and suitabilityro taining more than 40 acres are evaluated and analyzed private owners are discussed, and recommendations are made. in terms of visits, use pressures, major activities, facili- ties, number of employees, and future expansion poten- 5. The Ouality of Outdoor Recreation: As Evi- tial. This study contains a separate inventory of denced by User Satisfaction, 95 pages, prepared by recreation use of military-areas, public domain, and the Department of Resource Development, Michigan Indian lands in the United States. Definitions and State University, presents the findings -of a study procedures utilized in the study are included. designed to test the usefulness of'user satisfaction as a .2. List of Public Outdoor Recreation Areas- measure of area quality. This study is based in part 1960,@ 173 page@, prepared by the, Commission staff, upon a user survey of 24 recreation areas, Federal, contains the names of approximately 10,000 recrea- State, and local. Data from the survey are summa- tion areas, grouped by State and managing. agency, and rized and evaluated in terms of socioeconomic charac- provides data on their,acre .age and county location. teristics and activities engaged in. Aeld appraisals of Additional aggregate data for minor recreation areas, various elements which affect quality-facilities, such as waysides and picnic areas, are included. , Data physical'characteristics, cleanliness, degree of conges- on areas are presented by census region, management tion-of each site were carried 'out by a team of re- agency, and size category. Definitions and procedures source technicians to provide a framework for relating utilize& in obtaining these data are included. and assessing the survey findings. An analysis is made 3. Wildernegs.an'd Recreation-A Report on Re- of the validity of 6mploying expressions of user satisfac- sources, Values, and Problems, .352 pages, prepared tion as a measure of area quality, and the resulting by The Wildland Research Center, University of Cali- implications for public policy are discussed. fornia, Berkeley, presents a comprehensive discussion. 1 6. Hunting in the United States-its Present and and analysis of wilderness preservation. The study Future Role, 128 pages, prepared by the Department contains an inventory of 64 areas, containing approxi- of Conservation, School of Natural Resources, The mately 28 million acres. It discusses traditional, con- University of Michigan, examines the forces affecting cepts of wilderness, various approaches to its economic game supply and summarizes a State-by-State survey evaluation, and basic legal and admin-istrative consid- of factors influencing hunting in the 48 contiguous erations and problems involved in wilderness preserva:- States. Attention 'is given to wildlife regulations, limi- tion. An evaluation is made of the commercial tation of hunting access, public hunting areas, fee potential of existing wilderness areas-timber, grazing, hunting, and shooting preserves. The significance of water, and mineral resources; An analysis of the social land-use trends and Federal land-use programs as they 283 affect game supply are evaluated. Problems affecting 11. Private Outdoor Recreation Facilities, 154. State game agencies are analyzed and suggested solu- pages, prepared by the Economic Research Service, tions are offered. U.S. Department of Agriculture, consists of two parts. 7. Sport Filhing-Today and Tomorrow, 140 The first reports on a mail survey of private owners of pages, prepared by the Bureau of Sport Fisheries and recreation facilities such as resorts, dude ranches, Wildlife, U.S. Department of the Interior, presents an campgrounds, ski areas, vacation farms, and resort appraisal of fishing as a form of recr.eition in the hotels, and includes a partial inventory from secondary United States and includes a State-by-State survey of sources of industrial recreation areas, including large c_ the problems of supply, status of fishing waters, and commercial'timber holdings. The second phase of the management policies and responsibilities. It covers study is a qualitative appraisal of 66 cases representing present and future supply of both warm- and cold- various types of private recreation facilities scattered water fish and makes projections of the status of sport throughout the United States. Included is a discussion fishing in the years ahead. It summarizes the future of such factorsas type of specific activities provided, prospects by regions. amount of land used, number of visitors, fees charged, 8. Potential New Sites for Outdoor Recreation in problems encountered, and plans for expansion. the Northeast, 123 pages, prepared by the Economic 12. Paying for Recreation Facilities, 108 pages, Research Service, U.S. Department of'Agriculture, prepared by the National Planning Association, con- presents.:@.W findings of a study designed to determine tains an analysis of the difficulties involved in obtain- the existenGe of potential recreation sites of 30 acres or ing long-term financing for recreation facilities. The. more, currently in private ownership and located in role of concessioners, is the principal focus with partic- the 10 densely populated Northeastern States. The ular emphasis on factors such -as Federal policy, - short location of sites 'is based upon an analysis of aerial season, contract provisions, and general philosophy. photographs. Site potentiality is deter-mined accord- Some consideration is given to State policies. The ing to land type, recreation suitability, and proximity analysis is supplemented by 18 case studies of conces- to major metropolitan concentrations.. Case studies sion operations on Federal lands and the approach of carried out in New Hampshire, Pennsylvania, and seven'selected. States: California, Indiana, Kentucky, Connecticut are utilized to illustrate ownership pat- New Hampshire, New York, Oklahoma, and West terns, problems, history of land transfer, current land Virginia. use, and availability for public purchase. The report 13. Federal Agencies and Outdoor Recreation, describes procedures used by and available to State 130 pages, prepared by The Frederic Burk Foundation agencies for land acquisition and development. for Education, 'San Francisco State College, presents 9. Alaska Outdoor Recreation Potential, 63 pages, a descriptive analysis of the organizational and admin- prepared by The Conservation Foundation, appraises istrative structure of Federal agencies concerned with the major factors affecting the development of Alaska's outdoor recreation. While the traditional Federal recreation potential. It discusses land control and dis-. land-managing agencies 'receive primary consideration, position patterns and economic development problems. attention is also given to other agencies which indi- It evaluates the present status of recreation, examines rectly affect the total supply of outdoor recreation op- the essentials of sound recreation planning, and con- portunities. The study is focused upon recreation cludes with a summary of current problems and recom- program objectives and policies of the agrencies. - Im- mendations for. future development of Alaska's portant problems encountered are analyzed, and op- recreation potential. portunities for more effective program coordination 10. Water for Recreation-Values and Opportu- and cooperation are identified. nities, 73 pages, prepared by the Geological Survey, 14. Directory of State Outdoor Recreation Admin- U.S. Department of the Interior, presents an analysis istration, 196 pages, a Commi ssion staff project based of future water-based recreation in the United States. on an American Political Science Association study, It relates recreation uses of water to other types of presents a State-by-State description of recreation ad- water development and discusses the' importance of ministration. It is designed to serve as a directory of including recreation in the planning of water resource State agencies concerned with outdoor recreation, projects. The problem of access is discussed, and the together with a brief description of agency authority, effects of such factors, as water quality and reservoir organization, and programs. Attention is given to management upon recreation use are analyzed. 284 significant or unique activities or administrative 19. National Recreation Survey, 381 pages, pre- features. pared by the Commission staff on the basis of data 15. Open Space Action, 130 pages, prepared by collected by the Bureau of the Census, contains the William H. Whyte, deals with ways and means of tabular results and analysis of a nationwide survey of acquiring open space in the fast developing areas of the outdoor recreation habits and preferences of the this country. Part I is a brief history of significant American people 12 years of age and over. These data Federal, State, and local developments in open space are derived from four separate samples, each involving action. Part II contains observations and guidelines approximately 4,000 interviews. Tables show various for open space action programs. Specific recommen- participation rates by activity and region, according dations for action by all levels of government are to age, sex, place of residence, education, occupation, presented in part III. An appendix contains examples and race. Activity rates are also shown by state of of Federal and State legislation, tax abatement meas- health, physical impairment, and size of community. ums, easement forms and costs, and plans incorporat- Activity preference and data on vacation trips and ing new devices such as cluster development. outings are expressed according to selected socideco- 16. Land Acquisition for Outdoor Recreation- nomic characteristics. E@timates are made of expendi- Analysis of Selected Legal Problems, 76 pages, pre- tures, proportion of leisure time devoted to outdoor pared by Norman Williams, Jr., reviews the consti- recreation, and other factors. Descriptive analyses of tutional power of State and local governments t '0 the results of the survey include socioeconomic factors acquire land by purchase or condemnation for re.- associated with participation in 17 specified outdoor reational purposes and for related open space, and the activities; expenditures on vacations, trips, and out- constitutional power of the Federal Government to ings; and background factors associated with partici- condemn land for such purposes. The study also pation in certain groups of activities. examines legal problems involved in acquiring case-, 20. Participation Iin Outdoor Recreation: Factors ments and other less-than-fee rights in land for recrea- Affecting Demand Among American Adults, 100 tion and open space. pages, by Eva Mueller and Gerald Gurin with the 17. Multiple Use of Land and Water Areas, 48' assistance of Margaret Wood, contains the results of a pages, prepared by Joh .n Shanklin, discusses multiple survey conducted by the Survey Research Center, The use both in a statutory and in a management sense University of Michigan. It discusses the effect upon -an'd analyzes the relationship of recreation to other participation of income, education, occupation, paid uses of land and water. It reviews the multiple-use- vacations, place of residence, region, sex, age, life cycle, concepts of the land management agencies of the U.S. and race. Included are discussions of outdoor recrea- Government and includes sections on multiple use at tion in relation to leisure-time use, vacation and week- the State level and on private land. The volume con- end trips, parks and recreation areas. It contains a tains sections on multiple-use criteria and suggestions chapter on camping. The study is based upon 2,759 for multiple-use management of public lands. Com- interviews with a representative sample of U.S. adults. ments on the study from Federal, State, and private land management agencies are included in the report. 21. The Future of Outdoor Recreation in Metro- politan Regions of the United States, three volumes 18. A Look Abroad: The Effect of Foreign Travel containing separate studies of five selected metropoli- on Domestic Outdoor Recreation and a Brief Survey tan regions. Prepared jointly by the Commission staff of Outdoor Recreation in Six Countries, 45 pages, and selected universities and planning agencies, the prepared by Pauline Tait, discusses the effect of Amer- volumes describe the particular outdoor recreation icans going abroad as a substitute for major outdoor problems of metropolitan residents, including the prob- recreation trips in this country and the impact upon lem of access, and contrast present and future outdoor our own outdoor recreation resources of foreign recreation opportunities against the backdrop of ex- -travelers coming to this country. It presents travel panding urbanization. Volume 1, 300 pages, covering projections to the years 1976 and 2000. A second Atlanta, St. Louis, Chicago, contains studies made by part contains a brief review of outdoor recreation pro-. the Center for'Continuing Education, University of grams in Great Britain, France, West Germany, Den- Georgia; Washington University, and Northeastern mark, The . Netherlands, and Japan. Attention is Illinois Metropolitan Area Planning Commission. directed to innovations that might be applicable in this Volume 11, 260 pages, covers New York-New Jersey- country. Philadelphia, with the study being made by The In- 285 stitute of Public Administration. Volume 111, 200 25. Public Expenditures for Outdoor Recreation, pages, covers Los Angeles, with the study by University .90 pages, prepared by the Commission staff, indicates of California, Los Angeles. The central topic of each the total direct expenditures made by Federal, State, study is an analysis of the supply and demand aspects and local governments for providing outdoor recrea- of outdoor recreation. In each case, central problems tion opportunities, facilities, and services during the are identified and possible solutions suggested. period 1951-60. An analysis is made of the relative amounts spent within each State and each major 22. Trends in American Living and Outdoor Rec- census region, as well as among the agencies concerned, reation, 315 pages, contains a group of essays dealing for land acquisition, development, construction, opera- with the effects of current social and cultural trends tion and maintenance., Appendix tables show detailed upon futu 're needs and preferences for outdoor recrea- data on annual expenditures by level -of government, tion. These essays, prepared independently by recog- by agency, and by objective. nized scholars in the behavioral sciences, -are focused 7 26. Prospective- DemanItl f orOutdoor Recreation, upon the following topics as they, relate to. outdoor 72 pages, prep .are.d by the Commission staff, measures recreation: historical development; cultural. change; the needs and preferences of the American people for demographic factors; the family; mass communica:- tion; physical and mental health; .education; volun- 'a number of outdoor recreation activities. This com- prehensive analysis is based on data obtained from the .@ary groups; political institutions; urban growth; and National Recreation Survey, the Commission inven- the planning process. Authors include Lawrence K. tory, the metropolitan studies, and the essays concerned Frank, Herbert J. Gans, William J. Goode, Morton with trends and patterns of American life. Grodzins, Philip M. Hauser, Max Kaplan and Paul F. 27. Ou Itdoor Recreation in the U.S.: .Its Literature Lazardsfeld, Margaret Mead, Jay B. Nash, Harvey S. Perloff and Lowdon Wingo, Jr., Julian W. $mith, and History, 100 pages, divided into two sections. Volume 1, a survey by the Library of Congress of the George.D. Stoddard, and Melvin M. Webber. literat.ure, includes a basic listing, description, and 23. Projections to the Years 1976 and 2000: assessment of some of the more, important references. Economic Growth, Population, Labor Force and Leisure, and Transportation, 510 pages, con Itains a set The discussion is divided. into literature on resources of four fundamental studies which project the size, and literature on uses. Two appendixes containsepa- rate bibliographies on leisure and intergovernmental distribution, income, leisure, and mobility of the Amer- problems. Volume 11 written by Arthur Hawthorne ican population to 1976 and 2000. The population Carhart and entitled "Historical Development of Out- studies are by the Commission staff, economic projec- tions by the National Planning Association, labor force. door Recreation," traces efforts from colonial days and leisure projections by the Bureau of Labor Sta- to the present to make the outdoors available to the tistics, U.S. Department of Labor, and the transpor- people. Included is a chronology of significant events tation study by A. J. Goldenthal, Washington, D.C. from 1710 to 1962. In addition to national aggregates, attention is directed to regional and, State characteristics. 24. Economic Studies of Outdoor Recreation, 174 pages, contains a group of essays dealing with various economic aspects of outdoor recreation. ioth theo- retical and practical approaches are taken to some basic economic problems of recreation development, including those of investment, pricing, timing, benefit- cost evaluation, public@private relationships; and eco- non-tic impact. Methods of,economic analysis and evaluation utilized by various Federal resource de- velopment agencies are discussed. In addition to Commission staff, contributors include Marion Claw- son, Resources for the Future; Arthur L. Moore, the National Planning Association; and Ivan M. Lee, University of California, Berkeley. 286 U.S. GOVERNMENT PRINTING OFFICE 1962 0-666395 "The outdoors lies deep in American tradition. It has had immeasurable impact on the Na- tion's character and on those who made its history. . . . When an American looks for the meaning of his past, he seeks it not in an- cient ruins, but more likely in '4 Fill ,'i ,mountains and f orests, by a river Iiii'I'l !ih, V or@ at the edge of the sea.... To- fill day's challenge is to assure all Mill M Hilt in M r r r r ph!" Americans permanent access to rggg their outdoor heritage." Jig' i% zg- R 59 9", JIM "a". - 1 11, SUM 001 NO 14; nl ili5i"`E@ ,i@ ..... ..... .... . Uff IN ....... ..... IN 7@ ;'Z, 11YRR z M@ T M, S, '�t2@L' P 792 VJ`i@ 4ftk7 zi ...... .. ...... M;,, R5 niv! tl, v... ... ... . ..... ........ .... 0003 1536