DCNR-2016-Plan
Plan-GPM – 3 Rev. 12-12
COMMONWEALTH OF PENNSYLVANIA
DEPARTMENT OF CONSERVATION AND NATURAL RESOURCES
BUREAU OF RECREATION AND CONSERVATION
COMMUNITY CONSERVATION PARTNERSHIPS PROGRAM
Comprehensive Recreation, Park and Open Space Plan
General Information and Scope of Work Guidelines
INSTRUCTIONS: The following general information and examples of specific work tasks are
provided to assist in the development of a scope of work for a Comprehensive Recreation, Park
and Open Space Plan project. We encourage you to develop your proposed scope, tailored to
meet the planning needs of your project, and submit this with your grant application. If your
project is selected for a funding, a detailed project scope of work must be submitted to the
Bureau for review before proceeding with the project.
I.
GENERAL INFORMATION
A.
Before submitting a grant application and developing your scope of work, please
contact the Bureau's Regional Advisor for your area of the Commonwealth to discuss
your project and to develop a scope of work that meets your needs and the Bureau’s
requirements. (A directory of Regional Advisors can be found in the Application
Manual or by visiting the DCNR website at: www.dcnr.state.pa.us
The Bureau's Scope of Work Guidelines provide direction for a municipal, county or
regional-based plan that identifies the methods, resources, organizational capacity
and capital investment needed to accomplish both the short-term and long-term
recreation, parks and open space goals of the community. The planning process
includes substantial citizen involvement, inventory of existing conditions and facilities,
analysis of issues and community needs, and specific recommendations that set
forth actions, priorities and cost.
The scope for these planning efforts can be integrated with new guidelines that the
Bureau has developed for greenway and open space network planning.
Municipalities and non-profit organizations are encouraged to work together to
form partnerships to develop regional plans. The Bureau places a greater
priority for funding on regional projects than on a planning project for one
municipality. All grant recipients will be required to address each plan component in
a manner agreed upon with the Bureau. The disposition of an applicant's plan is
contingent upon the community's size, needs, and goals.
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B.
Expectations of the Bureau
To ensure an adequate comprehensive plan, the Bureau has four main expectations
for the planning process and the plan. The purpose of your plan and the scope of
work should be developed to ensure that these expectations are met.
C.

Substantial citizen involvement/public participation throughout the process.

An examination and analysis of all the components of a comprehensive
recreation, park and open space operation, i.e., its mission, areas and facilities,
programs, administration, personnel, finance, maintenance, etc.

A series of recommended actions for all the above topics that set forth proposed
actions, priorities and costs.

A comprehensive recreation and park plan is an official document that, in part,
dictates municipal policy and decisions regarding land use. For that reason, the
Bureau encourages municipalities to follow adoption procedures listed in the
Pennsylvania Municipalities Planning Code, section 302, "Adoption of the
Comprehensive Plan." These procedures require a formal public hearing as
part of the plan adoption process with a 45-day review period. A copy of the
plan must be sent to all adjacent municipalities and the school district. The
Bureau provides specific details to the grantee later in the project.
Public Participation
The scope of work must include a public participation process that will fully engage
the community in the planning process and truly give ownership of the plan to the
citizens of the community. Please review the Bureau’s "Public Participation Guide"
for specific information. This is one of the most critical elements of the planning
process. Grantees must have an approved public participation process that includes
a study committee, one public hearing, and at least one of the following options:
 Citizen survey
-or Key-person interviews of community and business leaders as well as
neighborhood and/or community public meetings
D.
Eligible Costs for Reimbursement
E.
Only work included in the Bureau approved Scope of Work is eligible for
reimbursement (such as the consultant's time; the development, printing, distribution,
tabulation and analysis of survey results; printing of interim and final documents, etc.)
A grant may be used to reimburse consultant fees only. In-kind and agency
administrative services are not eligible reimbursable costs but are a required
local contribution.
Agency
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The term "agency" is used throughout the scope of work. This refers to the entity that
is preparing the plan such as one municipality, a regional recreation commission, an
inter-governmental planning effort, etc.
II. SCOPE OF WORK ELEMENTS
Note: The Bureau has funded comprehensive park and recreation plans for over 20 years.
Such plans generally follow the elements set forth below (items A-L). We encourage you to
tailor your project scope of work to meet your agency's needs and objectives. The Bureau
does not require each agency to fully complete items A-L but to choose the items that best
fulfills their planning objectives. Bureau staff will assist agencies that are selected for
funding in developing a tailored scope of work, which will best meet the needs of the
community, planning standards and Bureau requirements.
A.
Plan Purpose and Goals
Outcome: The agency defines the primary reasons for developing the plan and establishes
the plan's focus. This process, developed before selecting a consultant team, allows the
selected team to concentrate its research and analysis on the agency's highest priorities.
Upon request, the Bureau will assist an agency with this component.
B.
1.
Describe the purpose of the plan noting any special or unique community
concerns that will be addressed.
2.
3.
Develop goals of the plan that describe what the plan will accomplish.
Discuss how the agency and the general public will use the plan.
General Information and Community Background
Outcome: This component provides the reader with an overview of the community and its
residents. Collected and analyzed socio-economic and physical resource data helps
develop a future recreation and park system that reflects the needs of present and future
residents as well as conserves the natural, cultural, and historic elements that contribute to a
community's uniqueness and cohesiveness. This can be a brief summary of information
already covered in an agency's existing planning documents (comprehensive and 537 plans,
etc.) Use of the most recent U.S. Census data is required.
1.
2.
Community Background: Briefly describe the following:
a.
Community character, setting, history, and geographic location.
b.
Type of government.
c.
History of the agency's recreation and park functions.
Socio-economic Features
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3.
a.
Analyze socio-economic trends by comparing past U.S. Census
information with the most recent U.S. Census data on these features:
age, minority groups, education, gender, and per capita income.
b.
Provide population projections for at least the next 10 years.
c.
Briefly describe the major employers, economic conditions, and fiscal
health of the community.
Physical Data
Note: For agencies desiring more analysis of open space, environmental
issues, historical/cultural features, etc., this section can be expanded.
a.
Provide an updated version of the existing municipal land use map.
b.
Inventory and discuss the importance of these natural, cultural, and
man-made features:
c.
C.

Water resources -- flood plains, wetlands, waterways, canals, and
stream corridors.

Significant historic and cultural sites.

Unique natural areas, woodlands, and geological features.

Steep slopes (15% or greater).

Man-made corridors (abandoned rail lines, utility right-of ways).
At a minimum, provide one comprehensive map that identifies the
physical data noted above.
Agency Mission Statement and Goals
Outcome: The mission statement provides a clear definition of the agency's purpose and
responsibilities. Goals address what the agency hopes to achieve over the next five to ten
years.
Note: For agencies that have already developed a mission statement and goals, they should
be analyzed to determine if they clearly focus the agency's direction and purpose, are
reasonable and achievable, and reflect the needs of their constituents. For agencies
initiating a parks and recreation program, completion of this task may be best accomplished
towards the end of the project.
1.
Discuss the purpose and use of a mission statement, goals, and objectives.
These should have long-term applicability (beyond the planning process).
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2.
D.
Develop a draft mission statement and general goals. (Developing general
objectives is optional.) The mission statement and goals should be reevaluated toward the end of the planning process to ensure that they are still
appropriate for the agency.
Public Participation
Outcome: The agency's constituents must be involved in the development of this plan. The
consultant team determines the extent constituents are currently using available services,
what new services they desire, and what they want in the future.
E.
1.
Develop a well-rounded and representative study committee and discuss its
involvement in the planning process.
2.
Conduct at least a citizen survey or key person interviews of community and
business leaders and public meetings with neighborhood and community
groups. (Depending on the selected option, this component will need to be
expanded).
3.
Summarize results of the public participation process in the plan.
Administration
Outcome: This component analyzes how effectively the agency administers its recreation
and park services. Agency practices are compared to accepted administrative practices.
Analyzed practices include the agency's ability to involve the public with long-range planning
efforts, its ability to work cooperatively with other public agencies, community groups, and
businesses, and the effectiveness of existing office procedures and policies.
1.
Describe and analyze these conditions:
a.
The legal document under which the agency receives its authority and
responsibility.
b.
Relationships between the agency and community organizations and
its involvement with regional initiatives.
c.
Public relations and marketing efforts to promote agency functions,
services, and programs.
d.
Municipal-school cooperative efforts. Provide a copy of any existing
agreements.
e.
Cooperative efforts with other recreation providers, support groups,
area businesses, etc.
f.
Policies and procedures that govern the general operation of the
agency's recreation and park functions (use of facilities, non-resident
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participation, policy manuals, risk management program, record
keeping, etc.)
2.
F.
g.
Opportunities for the public to get involved with planning efforts.
Involvement could include the agency's use of program evaluation
forms, distribution of surveys, public meetings, etc.
h.
Record-keeping procedures.
Discuss any existing administrative problems, which will be examined more
thoroughly as part of this planning effort.
Agency Personnel
Outcome: This component describes who is responsible for providing the agency's
recreation and park services and analyzes the effectiveness of each involved entity. For
most agencies, at least one entity is responsible for developing recreation and park services.
Agency personnel, therefore, could include the governing body; a municipal manager; a
public works department; paid recreation and park administrative, maintenance, and
program staff; and/or volunteers like recreation and park board members.
1.
Provide a current organizational chart and analyze if it reflects present
conditions.
2.
Provide the following:
3.
G.
a.
A breakdown of the number and type of personnel involved with
providing recreation and park services.
b.
Existing job descriptions and a summary of the roles and
responsibilities of involved personnel.
c.
The numbers and descriptions of involved volunteers such as those
serving on a recreation and park board or arts councils, maintaining
parks, assisting with programs, etc.
Describe and analyze the following:
a.
How new staff/volunteers are hired/appointed and trained for their new
positions.
b.
Existing personnel policies including any manuals, appraisal systems,
opportunities to attend educational conferences and workshops, etc.
c.
The level of staffing (paid or volunteer) needed to effectively administer
and maintain the agency's facilities, programs, and services and
compare with existing conditions.
Facility and Open Space Inventory and Analysis
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Outcome: Existing recreation and park resources, regardless of ownership, are inventoried
and analyzed then compared to standards based on population and service areas. When
combined with community input, this identifies the general locations where new parks and
open space areas are needed, the type of facilities that should be developed in these areas,
and which facilities should be renovated first. This inventory should include existing forest
buffers along rivers and streams (Riparian Forest Buffers) that are in the study area.
1.
2.
3.
Provide, on a map broken down by census tract or neighborhoods, the
location of indoor and outdoor facilities and open space owned/operated by:
a.
Public agencies
b.
Schools (public and private, all levels)
c.
Major non-profits and quasi-public organizations (athletic associations,
scouts, conservancies, service clubs, YMCA/YWCA's, etc.)
d.
Major private businesses (health clubs, bowling alleys, etc.)
For all public (including schools) and non-profit facilities identified on the
above map, list in accompanying charts:
a.
Facility or open space name
b.
Ownership
c.
Number and type of facilities
d.
Acreage
e.
General condition and use
For facilities and open space areas owned or managed by the agency, list and
analyze the following:
a.
Facilities that are in poor condition and, generally, the major repairs
needed.
b.
The extent to which playgrounds meet current safety guidelines such
as those developed by the Consumer Product Safety Commission.
c.
The extent to which facilities comply with the Americans with
Disabilities Act.
d.
Facilities that have become obsolete or are no longer appropriate for
surrounding residents.
e.
The ability of residents to travel or walk to existing facilities.
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4.
Compare existing numbers and types of facilities with developed standards
either from the National Recreation and Park Association or a county agency.
5.
Compare received public input with existing facilities and conditions.
6.
Discuss and analyze the preservation of existing Riparian Forest
Buffers and the development of additional Buffers in coordination
with statewide initiatives and goals.
7.
H.
Discuss and analyze open space preservation techniques such as mandatory
dedication, overlay zoning, an official map, conservation easements, etc.
Facilities and Equipment Maintenance
Outcome: For agencies that are currently maintaining facilities, this component analyzes the
effectiveness of their maintenance program. Agencies without any facilities are provided
with an overview of recreation and park maintenance requirements and how they can
develop effective maintenance programs to ensure the protection of future capital
investments.
I.
1.
Detail the current maintenance program (record keeping, preventive
maintenance, use of a maintenance management plan, etc.) and analyze its
effectiveness.
2.
List the major maintenance equipment including age and purpose.
3.
Describe any existing risk management efforts including inspection of park
facilities, particularly playground equipment.
4.
Analyze the adequacy of maintenance in relation to the condition of the
recreation and park facilities and open space areas.
Recreation Programs
Outcome: For agencies that already provide a selection of programs, existing programs are
compared to ones provided by other public and non-public providers, the expressed desires
received by its constituents through the citizen participation process and to professional
standards. This comparison determines whether the agency provides cost effective
programs that its constituents desire and a sufficiently broad range of programs. For
agencies interested in starting its first programs, this component identifies new programming
areas and discusses how to begin developing them.
1.
Provide a list of programs sponsored by the area's public, non-profit, and
private entities that includes (see G-1a for type of entities):
a.
Sponsoring group
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J.
b.
Program name
c.
Target age and sex of participants
d.
Program fee (if any)
2.
For agency or publicly sponsored programs, provide information on
participation trends for the last five years.
3.
Analyze if there is a comprehensive offering of programs in the community
that includes these type of activities: active and passive; competitive and
noncompetitive; ones for individuals and groups, both sexes, and all ages and
abilities; and a variety of social, physical, and cultural experiences.
4.
Identify program deficiencies in the community and how the agency could
address these deficiencies.
5.
Analyze the agency's compliance with the Americans with Disabilities Act with
respect to programs and services.
Financing
Outcome: This component identifies and analyzes the agency's past funding levels and
sources, including ones with tax and non-tax support, and compares these to other
municipal departments as well as other similar agencies.
K.
1.
Provide a five-year comparison of tax support for recreation and parks in
relation to the overall municipal budget and to other departments from the
same municipality.
2.
Describe the agency's philosophy toward providing tax support for financing
recreation and park services.
3.
Compare agency expenditures, both operating and capital, with agencies and
municipalities that have similar populations and socio-economic
characteristics.
4.
Provide a breakdown of the major sources and amounts of revenues including
municipal taxes, fees and charges, donations, grants, etc. and analyze the
agency's use of a variety of financial sources.
5.
Describe and analyze the current recreation and park budget process.
6.
Identify and discuss various sources of funding such as fees and charges,
foundations, grants, donations, mandatory dedication, etc. and provide
examples of their appropriate application.
Recommendations
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Outcome: This component contains specific actions that the agency should undertake to
improve its services and better meet the needs of its constituents. Recommendations,
supported by analyzed data, are provided for each plan component (C - J) and, when
appropriate, accompanied by cost estimates.
L.
1.
Detail the recommended changes for administration, personnel, facilities,
maintenance, programs, and financing and provide supporting data to justify
the recommendations.
2.
Provide a cost estimate to implement each recommendation and discuss any
potential implementation concerns or obstacles.
Implementation and Executive Summary
Outcome: The agency is provided with a cohesive and easy to follow five-year
implementation plan.
1.
Prioritize the operating-related recommendations included in "K."
should not include capital expenses).
2.
For each recommendation, identify the following:
3.
a.
Who is going to be responsible?
b.
What is the targeted date for beginning implementation?
c.
Potential costs.
d.
Potential funding source(s).
(These
For capital improvements, provide a prioritized, multi-year year Capital
Improvement Program that is broken down by short-term (1-3 years),
medium-term (4-7 years) and long-term (8 plus years) projects and includes
the following information for each project:
a.
Facility/area name.
b.
General description of proposed improvements.
c.
The total estimated development costs of proposed improvements.
The cost estimate should include engineering and design costs, project
administration costs, acquisition and/or construction costs and at least
a 10% contingency.
d.
The proposed financing source(s) for each improvement.
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M.
4.
For operating-related costs associated with the administration, personnel,
programming and maintenance components, provide a five-year summary of
projected fiscal implications on the operating budget.
5.
Develop a brief executive summary of the plan's highest priority findings and
recommendations to be included in the beginning of the plan document.
Plan Organization
Outcome: The agency is provided with a plan document that covers all scope of work tasks
in a logical order. Each plan component must include the following elements and the final
plan must be organized in the order of these elements:
 An inventory of existing conditions.
 A comparison of these conditions with local or national standards (describe which
standards are used)
 Recommendations with priorities, timetables and costs.
N.
Draft Plan
Outcome: A draft final plan document is prepared and submitted for agency and Bureau
review. The Bureau must review and approve the complete draft plan before it is officially
adopted by the agency. Typically, the review process consists of reviewing a complete draft
plan, providing comments and then reviewing a revised draft to ensure comments are
adequately addressed. Accordingly, one (1) copy of the complete draft plan must be
submitted to the Bureau.
O.
Final Products
Outcome: A high quality final plan document is prepared and submitted to the agency and
to the Bureau. The final product must be a bound document, beginning with an executive
summary, and followed by clearly labeled sections for each of the plan's components. All
supporting documents and information shall be included in appendices and not in the body
of the report. The Bureau recommends that twenty-five (25) copies of the narrative report,
any summary documents, appropriate mapping, etc., be provided to the
municipality(s)/owner(s). The exact number of copies must be stated in the Request for
Proposal and should be determined based on the grantee’s needs. Three (3) written,
bound copies and one (1) electronic version of the final report must be submitted to
DCNR.
A comprehensive recreation and park plan is an official document that, in part, dictates
municipal policy and decisions regarding land use. For that reason, the Bureau
encourages municipalities to follow adoption procedures listed in the Pennsylvania
Municipalities Planning Code, section 302, "Adoption of the Comprehensive Plan." These
procedures require a formal public hearing as part of the plan adoption process with a 45day review period. A copy of the plan must be sent to all adjacent municipalities and the
school district. The Bureau provides specific details to the grantee later in the project.
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Depending on the agreed-upon scope of work, other final products can include a separate,
promotional summary document; conceptual master site plans and drawings; sample
implementation ordinances; display maps; etc.
P. Potential Additions to the Scope of Work
Depending on an agency's needs, listed below are other options that can be included in
the scope of work. Specific work tasks can be developed with a Bureau Recreation and
Park Advisor.
A.
Customer service and more marketing related issues.
B.
Concept designs for neighborhood and community parks.
C.
Greenway plans and more in-depth study.
D.
Pool study.
E.
Specific playground safety study.
F.
Maintenance management plan.
G.
Mandatory dedication
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