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National Park ServiceU.S. Department of the InteriorThe National Mall and Pennsylvania AvenueNational Historic Park Washington D.C.the national mall1997the legacy plan1901mcmillan plan1791l'enfantl'enfant planBest Management Practices Usedat Urban Parks in National and International LocationsA Background Report for the National Mall PlanMarch 2007

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National Park ServiceU.S. Department of the InteriorNational Mall & Memorial ParksWashington, D.C.BEST MANAGEMENT PRACTICESUSED AT URBAN PARKS IN NATIONAL ANDINTERNATIONAL LOCATIONSA Background Report for the National Mall PlanPrepared by the Center for Park ManagementNational Parks Conservation Associationfor theNational Mall & Memorial ParksMarch 2007

SUMMARYUnless otherwise noted, all photographs were taken by staff at theCenter for Park Management or the National Park Service.

SUMMARYThis report looks at best management practices used at a variety of urban parks in national and international locations. The purpose is to provide information that can beused in the development of a National Mallplan. The Center for Park Management conducted the research for this report in collaboration with the National Mall & MemorialParks. The information presented is a synthesis of best practices used for events and maintenance at urban sites in the United States,Canada, England, and Australia. Use at thesenational and international sites is comparableto the National Mall in Washington, D.C.This report is rich with suggestions on howthe National Mall could improve landscapemanagement quality through its events andmaintenance programs. Not all best practiceswill necessarily be practicable or desirable. Aholistic view of the park’s long-term plans andgoals, along with the structure of existing programs, is needed to determine the fit for anyone or combination of best practices.The report highlights best practices in fivetopic areas, as described below.Landscape StandardsThe discussion of landscape standards addresses how landscape use is aligned with apark’s mission and vision, followed by a detailed discussion of how written landscapequality standards can be used for planning onboth a strategic and a practical level for eventsand maintenance. Landscape quality standardsidentify desired quality outcomes and typicallyoutline the maintenance activities required toachieve these results. Standards provide aframework for determining a specific desiredquality for a landscape element (e.g., turf, trees,and flowers). Quality standards serve as a performance-based evaluation tool for maintenance; the performance of the maintenanceprogram is evaluated against the achievementof quality standards. With these types of standards in place, parks are better able to strategically plan their maintenance programs, focusing resources in areas or zones where standards are set at higher levels.Four sites are in the United States — CentralPark in New York City, Golden Gate Park inSan Francisco, Millennium Park in Chicago,and Piedmont Park in Atlanta. Three parksites are in national capitals — Canberra, Australia (Parliamentary Triangle); Ottawa, Canada (National Capital Commission); and London, England (The Royal Parks).All study sites have one or more similar features to the National Mall: status as a national capital or a majormetropolitan area an interest in maintaining landscapequality despite high levels of use large recurring and one-time events a history of freedom of expression activities complex maintenance and events programsSummary of best practices: Align uses and standards with park mission and vision.The information presented in this report isbased on information collected through sitevisits (excluding Canberra, Australia), thecompletion of a detailed site survey, supporting materials provided by participating sites,and other relevant secondary research asnoted throughout. Define the role for high-use activities ata strategic level and make clear linksbetween intensity of use and the qualityand conservation of park resources. Get public buy-in for landscape qualitygoals through education and engagement, since the public plays an activeiii

SUMMARY Reduce damage to the landscapethrough the use of fencing, social trailreduction tactics, edging, and cornertreatments.role in respecting landscape rehabilitation and resource conservation efforts. Use written landscape quality standards. Define management areas and subareas. Design to accommodate events and regular use with less impact. Set specific, realistic, and measurablelandscape quality standards for all areas or subareas within the park. Notall areas are equal in terms of desiredor attainable landscape standards. Develop specific areas to accommodate events. Pave areas to provide space for eventinfrastructure, including mobile foodstands, information kiosks, stages,speaker’s corners, etc. Set quality expectations and guidelinesfor all maintenance activities and linkthese expectations to landscape quality standards. Incorporate landscape elements thatare robust enough for high use (e.g.,turf specified for sports field or golfcourses).Design Incorporate utility connections withinpark furniture, such as bollards orlight posts.The design section considers all types of useand outlines common practices for coordinating the identity for a place and its appearancethrough consistent, appealing, and appropriate site furnishings and circulation approaches. Enhancements to design reducelandscape damage (e.g., social trails) and improve the efficiency of the maintenance staff(e.g., consistent site furnishings). Additionally,visitor experience is enhanced as a result ofeasy access, comprehensive and clear information, and an overall level of excellence inlandscape appearance. Design tent anchor locations to support and control the location of tentsat events. Design for ease of maintenance. Standardize and limit the numbers andtypes of site furnishings. Pave under seating, trash containers,and information/interpretive signs.Visitor InformationSummary of best practices:For visitor information, approaches are discussed for improving visitor experiencesthrough coordinated onsite orientation, wayfinding, educational information, and regulations. Cutting edge education and informationmethods are highlighted, including mobile welcome centers and downloadable self-guidedtours in MP3 format. The role for strong natural resource management messaging (e.g.,“Clean and Green”) is emphasized; messagingshould be integrated with repair and recoverysignage (e.g., a red flag system in Central Park)as well as park infrastructure (e.g., trash receptacles) and visitor services (e.g., concessionstands). Establish a sense of place. Reinforce place character throughbranding — use of logos and consistent site furnishings. Set high expectations for design quality and use of enduring materials. Control circulation and access. Control access for safety (e.g., capacities are not exceeded) and the protection of landscape elements (e.g., avoiding soil compaction and trampling oftree roots). Design pathways and entrances to accommodate visitors’ needs (e.g., multiuse trails, events, and protests).iv

SummarySummary of best practices:Summary of best practices: Provide information that is identifiable,consistent, understandable, and current. Use a staffing model that works for the organization. Partner with other agencies and organizations (e.g., surrounding museums or parks) to eliminate confusionand improve visitor experiences. Assess different staffing models, including in-house staff, contract services, and private/public partnerships. Maintain an adequate level of expertise in specialty skills on the park staff(e.g., landscape architecture). Present coordinated visitor information, orientation, interpretation signs. Use volunteers to enhance staff andcontractor efforts. Reinforce resource protection messaging. Educate visitors on park programs thattarget resource protection challenges. Ensure goals, standards, and design intentare understood. Encourage the responsible behavior ofvisitors. Display positive messagingand park rules. Ensure that maintenance staff and contractors understand quality expectations. Use cutting edge education and information methods. Monitor maintenance performanceagainst landscape quality standards. Use a variety of approaches for education and information, including webbased tools, traditional interpretivepanels, and permanent and mobilewelcome centers. Reward consistently high performanceand address poor performance immediately. Promote respect through a zero tolerance approach toward trash on theground or overflowing from trash receptacles, graffiti, and other forms ofvandalism.MaintenanceThe maintenance section provides an important perspective on dealing with impacts resulting from high use. It suggests alternativestaffing structures, scheduling considerations,and practical maintenance approaches todealing with the tension between high levelsof use (both events and regular visitation) andthe desire for high landscape quality. Fostering a sense of pride in employees is a criticalcomponent of a successful maintenance program and can be achieved by streamlining hiring practices and developing staff, linking dayto-day operations to landscape quality standard goals, creating maintenance zones, andexperimenting with scheduling programs. Theuse of sustainable maintenance practices byothers is an emerging best practice. Study sitesare using organic mulching programs and tactics for limiting the use of chemicals and mitigating damage (e.g., to reduce problems associated with runoff). Organize maintenance staff by zone andspecialties. Organize staff by geographic zones todevelop expertise and to instill pridein one’s work and a caring attitudetoward the park. Manage zones to specific landscapestandards. Develop specialty teams that work inall zones as needed. Ensure that maintenance staff and contractors understand quality expectations. Monitor maintenance performanceagainst landscape quality standards. Reward consistently high performance and address poor performanceimmediately.v

SUMMARY Promote respect through zero tolerance of trash on the ground or overflowing from trash receptacles, graffiti,and other forms of vandalism.events program as well as event damages. TheRoyal Parks charge a disruption fee dependingon the scale of the event. Finally, a fully staffedteam of professional events staff will boost theperformance of a park’s event program. Develop staff. Hire staff based on both experienceand attitude.Summary of best practices: Manage events proactively. Support the professional developmentand upward mobility of employees toboost morale and satisfaction levels. Manage use, including limiting thenumber, type, location, and duration ofevents. Ensure that managers visibly participate in day-to-day activities. Use mitigation checklists. Define requirements for public safetyand security. Develop plans for regular and emergencymaintenance. Enforce event regulations uniformlyand consistently. Develop creative and flexible approaches and written schedules for recurring, periodic, and seasonal maintenance activities. Facilitate the permitting process. Create comprehensive and accessibleevents guidelines with graphic appeal. Develop a system to address typicalemergencies and complaints. Communicate park goals to event organizers to ensure a clear understandingof the park’s purpose and significance. Respond to complaints in a timelymanner; develop and maintain a systemto convey that action has occurred. Develop strong working relationshipswith event organizers. Develop a system to monitor and trackpark conditions. Charge fees and recover costs for use ofpublic areas. Use sustainable maintenance practices. Use variable permit fee schedulesbased on the type and location ofevents, as well as level of disruption. Begin to move toward organic practices and implement as possible. Limit the use of commercial fertilizers,pesticides, and herbicides, and usechemicals responsibly when necessary. Charge direct costs for staff, utilities,trash collection, removing or relocatingpark furniture, and repairing damage. Address soil compaction with turf closures and rotations, limited traffic,post-event treatments, engineeredsoils, and irrigation. Assign responsibility with performance bonds and event monitoring. Professionalize events staff. Hire staff with hands-on experience inevents production.Events ManagementEvents management looks at the many of thechallenges of hosting large-scale and high-useevents on vulnerable landscapes. Managersmust be proactive, with comprehensive eventguidelines, limitations on use (e.g., maximumduration and number of events), and regulation enforcement (e.g., weather delays). Feesand bonds should recover the cost of the Co-locate maintenance and eventstaffs to foster collaboration, coordination, and communication. Consider classifying events and maintenance staffs within one division. Staff sufficiently to cover permitting,monitoring, and reporting needs.vi

CONTENTSIntroduction. 1Best Practice Topic Areas. 1Study Methodology . 1Overview of Comparable Sites . 2Central Park, New York. 2Golden Gate Park, San Francisco . 2Millennium Park, Chicago. 3Piedmont Park, Atlanta . 4Parliamentary Triangle, Canberra, Australia. 5National Capital Commission, Ottawa, Canada . 5The Royal Parks, Hyde Park, London, England. 6Best Practices . 9Landscape Standards. 9Best Practice: Align uses and standards with park mission and vision . 9Best Practice: Use written landscape quality standards. 10Design . 15Best Practice: Establish a sense of place. 15Best Practice: Control circulation and access . 15Best Practice: Design to accommodate events and regular use with less impact . 20Best Practice: Design for ease of maintenance. 22Visitor Information. 23Best Practice: Provide information that is identifiable, consistent, understandable,and current . 23Best Practice: Reinforce resource protection messaging . 25Best Practice: Use cutting edge education and information methods. 26Maintenance . 26Best Practice: Use a staffing model that works for the organization . 26Best Practice: Ensure goals, standards, and design intent are understood . 28Best Practice: Organize maintenance staff by zone and specialties . 28Best Practice: Develop staff . 29Best Practice: Develop plans for regular and emergency maintenance. 29Best Practice: Use sustainable maintenance practices . 31Events Management . 33Best Practice: Manage events proactively. 33Best Practice: Facilitate the permitting process . 36Best Practice: Charge fees and recover costs for use of public areas . 37Best Practice: Professionalize events staff . 39Appendix A: Site Survey Template . 41Appendix B: Detailed Site Information. 50Selected Bibliography . 52Preparers and Contacts . 53vii

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INTRODUCTIONThis report synthesizes best practices information from comparable urban sites in theUnited States and the capital cities of Canada,England, and Australia. The study was conducted between July and December 2006, andthe goal was to understand best practices forachieving high standards of landscape maintenance despite heavy levels of use and thepresence of major events.pearance through consistent, appealing,and appropriate site furnishings and circulation approaches. Visitor Information — Approaches toimproving visitor experience through coordinated onsite orientation, wayfinding,educational information, and regulationsare presented. Cutting edge methods foreducation and information are emphasized, along with the importance of strongnatural resource management messaging.Webster’s New Millennium Dictionary of English defines a best practice as “a technique ormethodology that, through experience andresearch, has reliably led to a desired or optimum result.” The planning process associatedwith the National Mall plan is an ideal opportunity for contemplating new ideas and validating existing park practices. This best practices study will be used by the National ParkService (NPS) as a source of: Maintenance — Alternative staffing structures, scheduling considerations, andpractical maintenance approaches are discussed to balance the tension betweendealing with the impacts of high use (bothev

National Park Service U.S. Department of the Interior The National Mall and Pennsylvania Avenue National Historic Park † Washington D.C. 17911791 l'enfl'enfant planant plan 19011901 mcmillan planmcmillan plan the national mall March 2007 Best Management Practices Used at Urban Parks in National and International Locations A Background Report .

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