Crow Wing County. Parks, Trails and Open Space Plan

Transcription

1 Crow Wing County Parks, Trails and Open Space Plan November 8, 2005

2 Acknowledgements Crow Wing County Parks Department Michael Kearns, Director Rachel Trebesch, Senior Technical Clerk Mark Rudningen, Parks Foreman Alan Smith, Parks Maintenance Worker Michael Volk, Parks Maintenance Worker Crow Wing County Land Department Tom Cowell, Director Crow Wing County Board of Commissioners Dewey Tautges, District 1 Ed Larsen, District 2 Terry Sluss, District 3 Gary Walters, District 4 John Jinx Ferrari, District 5 Crow Wing County Parks Advisory Commission Jon Henke, Chair, District 2 Roger Landers, Vice Chair, Trails Advocate Greg Smith, District 1 Terry McGaughey, District 3 Steve Van de Putte, District 4 Gloria Perpich, District 5 Larry Moses, Lands and Forestry Advisory Committee Mary Clair Ryan, Parks and Recreation Professional John Jinx Ferrari, County Commissioner Gary Walters, County Commissioner Don Hickman, Secretary, Conservation Advocate Dennis Slayton, Planning Professional Steve Masimore, Resort Industry Professional Crow Wing County Trails Subcommittee Randy Roach Jeff Norlin Brett hardy Doug Rhode Larry Moses Roger Landers Bill Meyer Al Steiff Laurie Majka Kathy Bernier CR Planning Project Team Brian Ross, Project Manager Carol Ann Sersland, GIS Specialist and Environmental Planner Maia Mae-Collins, Graphics and Administrative Assistant

3 TABLE OF CONTENTS 1.0 INTRODUCTION Process Background Comprehensive Plan: Overview of Goals and Polices Public and Stakeholder Participation CURRENT PARKS, TRAILS AND OPEN SPACE RESOURCES County Characteristics Publicly Managed Lands Cultural Resources Biological Survey Potential Conservation Priority Areas Current Park System Park Activities and Facilities outside the County s Jurisdiction Campgrounds Golf Courses Beaches, Boat Accesses, Fishing Hunting and other off-trail activities Trails PLANNED AND PROPOSED PARKS, TRAILS, AND OPEN SPACE Planned Park Facilities Proposed Park and Trail Facilities PARKS, TRAILS, AND OPEN SPACE GOALS AND OBJECTIVES Parks, Trails, and Open Space Plan Goals and Objectives NEEDS ASSESSMENT Trails and related facilities Park facilities other than trails Open Space Considerations... 72

4 6.0 STRATEGY PRIORITIES Strategy Categories and Selection Criteria Implementation Partners Implementation Process Funding Sources Strategy Priorities IMPLEMENTATION PLAN Introduction Introduction Map Project Evaluation Model Implementation Time Line Cost Examples APPENDICES Appendix A: Bylaws Appendix B: Survey Appendix C: Regional Tables Appendix D: Implementation Case Studies

5 TABLES 1 Most Common Recreational Activity for Survey Participants Most Important Recreational Amenity for Crow Wing County to Develop Management of Parks and Open Space at a Municipal Level Land Ownership in Crow Wing County Archeological and Historic Sites County Biological Survey Sites Existing Designated County Park Facilities Day-use Areas Campgrounds Golf Courses Beaches Trailer Launch Water Access Carry-In Water Access State Wildlife Management Areas County Trails State Trails Municipal/Community/Regional Trails Private Trails Snowmobile Trails Bikeways Planned Facilities - County Planned Facilities - Non-County Planned Trails Proposed Trails Open Space Needs... 74

6 FIGURES A ECS Province Level B ECS Subsections Crow Wing County Land Cover Publicly Managed Lands and Forest Industry Lands Minnesota County Biological Survey Potential Conservation Priority Areas County Park Facilities Campgrounds Golf Courses Water Access County Managed Trails Corridor Trails Possible Trail Locations by Type Plan Implementation... 99

7 1.0 INTRODUCTION Natural resources have always played a vital role in the growth and development of Crow Wing County. What is now a booming tourism industry began with trapping and fur trading along the Leech Lake Trail, a major corridor used by Native Americans and trappers during the early to mid 1800s. Railroads opened Crow Wing County to logging of its large stands of white and Norway pine trees from Iron mining along the Cuyuna Range also emerged at this time, as did small-scale agricultural operations in the southern portion of the County. The railroads brought settlers in search of logging, mining and farming jobs to the area. They also brought vacationers and tourists to lakeside resorts and cabins located close to train stations. Beginning in the 1920 s, Crow Wing County experienced intense growth and development spurred by the introduction of the automobile and the construction of roads and highways. The Leech Lake Trail was converted to Trunk Highway 371. Interstate 94, US Highway 10, and US Highways 169 and 210 were also built, dramatically shortening the travel time from St. Cloud and the Twin Cities. Not only were more people coming to Crow Wing County, but they were able to access increasingly remote areas, which lead to large-scale development and fragmentation of the County s natural areas. From 1924 to 1965, the number of seasonal and permanent lake homes along the Highway 371 corridor increased by 88 percent 1. Today, Crow Wing County continues to attract people of all age groups. Approximately 28 percent or 209,211 acres - of the County is covered by lakes, streams and wetlands, and another 50 percent or 374,488 acres - is covered by forests. These features, coupled with the County s steep hills and rolling topography, are highly sought by families and retirees looking to relocate to the area. The Brainerd/Baxter area has emerged as a regional job and shopping center, which has allowed more people to live and work in the area year-round. Highway expansions and improvements, along with advances in telecommunications technology and high-speed internet service have aided this transition. In response to rapid development, changing land use patterns, and increasing pressure on ever more scarce resources, Crow Wing County completed a Comprehensive Plan in At virtually every community meeting held during the development of the Comprehensive Plan the protection of natural resources, easy access to recreational opportunities, and preservation of rural character and open space were listed as the top goals. According to the Comprehensive Plan, residents placed significant value on developing/maintaining a high quality of life by preserving Crow Wing County s rural character, high quality lakes and other water bodies. The presence of quality parks, trails, and open space is recognized as an important component of a perceived quality of life. 1

8 The County Comprehensive Plan notes: As the population of Crow Wing County grows, so too will demand for parks, recreational opportunities, and open space. This demand will become increasingly difficult to meet as more land is developed, thus shrinking the recreational resource base. Residents are worried that as the population grows, the amount of acres of public land available per person for recreation will decline, as is occurring State-wide. They are also concerned that some recreational opportunities will be lost, particularly in populated centers. In addition, due to recent legislative changes, many private lands that have historically been held in forest reserve are now being converted to development and/or leased, thereby removing them from public use. Residents also expressed that parks, historic sites, and other recreational opportunities are important assets that enhance quality of life and economic vitality. They want the County to coordinate events and the planning of recreational facilities County-wide, update existing facilities, and expand recreational opportunities such as campgrounds, multi-use trails, and access to lakes and beaches. Trail users are concerned that major trail corridors are being encroached upon by housing developments. The concerns expressed by residents and stakeholders in the Comprehensive Plan process led the County to develop this Parks, Trails and Open Space Plan. The Parks, Trails and Open Space Plan identifies the vision, sets specific policies, and recommends implementation strategies for County park and recreation management, acquisition, and investment. The Plan provides guidelines and indicators for decisions on a variety of recreational and open space choices, including the following: selecting future trail corridors and trail areas; investing in active and passive recreation; preserving high quality natural areas; cooperating with private and public entities that provide recreational services or manage open space or natural resources; prioritizing investments in the County s existing parks. No planning process can foresee all the opportunities and barriers to achieving the desired future conditions. Consequently, this Plan does not identify specific parcels and investments other than general 2

9 recommendations. Instead the Plan creates decision criteria in the form of goals, policies, and strategy priorities that should guide decisions on specific parcels, corridors, programs, and investments. 1.1 Process Background In February 2001 the Crow Wing County Board of Commissioners appointed 13 citizens to serve as members of an Ad Hoc Parks and Recreation Committee. Their assignment was to develop recommendations to the County Board for the creation of a Parks Department. The Crow Wing County Parks Department was created in July 2001 and a full-time Parks Director was appointed in In 2002 the Crow Wing County Parks Advisory Commission was created to replace the ad hoc Parks and Recreation Committee. In 2004 the process was continued with the selection of a consultant to guide the development of a Parks, Trails and Open Space Plan. The following Plan provides a detailed policy and strategy guidance document that implements the priorities of the Comprehensive Plan. 1.2 Comprehensive Plan: Overview of Goals and Polices In 2004 Crow Wing County completed their County Comprehensive Plan. The Comprehensive Plan included a section addressing parks, recreation opportunities, and open spaces within the County. Public comment during the Comprehensive Plan process included concerns regarding the growing population, increasing levels of development, and declining amounts of open land, resulting in fewer and lower quality recreation opportunities. Concern from citizens was expressed over the growing population and the shrinking undeveloped land base resource resulting in fewer and lower quality recreation opportunities. The Comprehensive Plan includes the following park, recreation, and open space goal: Maintain and enhance parks, recreation and open space for Crow Wing county residents and visitors by providing diverse recreational opportunities that are accessible to people of all ages and abilities, while preserving the County s high quality natural areas and open space (p. 35). The Comprehensive Plan goal and accompanying text provide the guiding vision or principle upon which the goals, policies and strategy priorities of this Plan are based. 3

10 Future County land use decisions must build on existing recreational resources, meet the demands of a growing and changing population, and reinforce the policies developed by the Crow Wing County Parks Advisory Commission, which are: to integrate park, open space, historical, and recreational values into County planning; to provide diverse recreational opportunities for people of all ages, income, and abilities; to coordinate County-wide parks and recreation functions and activities; and to manage County recreational lands in concert with other County managing authorities (p. 35). The County Comprehensive Plan also included specific implementation strategies, including to develop a park and open space master plan that establishes Goals and Strategies for the long-term integration, protection, expansion and recreational use of the County s public land base (p. 36). The Comprehensive Plan also recommended that an advisory committee be created to conduct the planning process. 1.3 Public and Stakeholder Participation Parks Advisory Commission In 2002 the County Board created a permanent stakeholder advisory commission for park, trail, and open space decisions. The Parks Advisory Commission s (PAC) role is to advise the Board on park planning, park and trail management, and parks and recreation funding; to make recommendations on management, acquisition, and programming; and to make recreation recommendations regarding the County s management of tax-forfeit lands. The adopted by-laws for the PAC, including its composition and authority, are provided in Appendix A of this Plan. The PAC is composed of individuals representing a variety of stakeholder groups, including County Board members, professional planner, trail advocate, parks and recreational professional, conservation advocate, local resort representative, and one member from each commissioner district for a variety of trail modes, open space and natural area advocates, and motorized recreation advocates. The PAC used a facilitated, committee-based, public participation process to engage citizens, landowners, and public officials in a respectful dialogue concerning open space, parks and trails planning. In addition, existing sub-committee workgroups were used to review detailed data or proposals, and to provide recommendations to the full Advisory Commission. These include a trails subcommittee and a park planning subcommittee. 4

11 Facilitated Public Meetings The County held two public meetings in 2004 that were designed to provide a safe and respectful environment where participants comments were considered. The two meetings were designed to gather information under a facilitated process to guide the decision-making on parks, recreation and open space planning by the Parks Department and the PAC. Public meeting participants responded to three questions in order to assess their park, trail, and open space preferences. The questions were posed in a small group setting with a facilitator to ensure that responses stayed approximately on target and to ensure participation by all individuals. The meeting results demonstrated that trails and related facilities were the most sought after recreational amentities. Motorized trail facilities were highly desired, but non-motorized trails and passive recreation were equally popular as a recreational choice. Water-related activies were a third general category that generated high priority responses. The meetings also confirmed the comments from the Comprehensive Plan process that residents wish to retain the County s rural character and to protect its natural areas. One additional interesting outcome was the frequency with which participants noted the need for local governments to better coordinate on recreation and open space planning and investment. Parks Department Surveys To meet the goal of creating a parks, trails, and open space blueprint, the Parks Advisory Committee (PAC) decided to first gauge the interests and values of County residents and visitors (Appendix B). The County conducted its own survey on outdoor recreation activities in the summer of These responses were generally consistent with the findings of the DNR state-wide survey that younger age groups were more interested in active and organized recreation activities. The Crow Wing County youth survey also identified recreation markets that are now met through private sector investment and management, such as paintball and BMX. Crow Wing County youth also showed significant interest and participation in hunting and fishing (Table 1), and motorized and nonmotorized trail activities(table 1 & 2). The youth survey respondent characteristics and highlights of survey results are shown below: 5

12 Respondent characteristics Total: 2,882 50% male, 50% female Average age 14.1, median age 14 Most Common Recreational Activity for Survey Participants Table 1 Activity # of Responses Percent Fishing % Swimming % Walk/Jog/Run % Snowmobiling % Basketball % Hunting % Boating/Sailing % Ski/Snowboard % Football % ATV Riding % Most Important Recreational Amenity for Crow Wing County to Develop Table 2 Activity # of Responses Percent A skateboard / in-line skating park % Swimming beaches % Increase the number of basketball courts % Motorized trails % Open space areas % Shooting range % Recreational trails % Large parks dedicated to organized field sports % BMX bicycle course % Finally, youth responses demonstrated a recognition that recreational investment needs to serve a broad range of interests and abilities. Almost as many respondents (37%) noted that developing programs for people with disabilities was very important as said developing motorized trails or new skateboarding parks was very important (39%). Results from the youth portion of the survey were tabulated, discussed by the PAC and incorporated into the ongoing planning effort. 6

13 County Comprehensive Plan Public Comments During the Comprehensive Plan process, a number of facilitated public meetings were conducted to identify issues and priorities of County residents. Each meeting asked similar questions to small groups of participants, and summary notes of the issues and priorities were kept to help guide the development of the Comprehensive Plan. To guide the Parks, Trails, and Open Space Plan, the notes from these meetings were reviewed for specific comments relating to park, recreation, open space, and natural area priorities. The review of Comprehensive Plan comments shed additional light on recreation and open space priorities of County residents. Citizens expressed a clear concern for loss of open space and compromised natural systems, placed a high priority on recreational assets, a desire for more inter-governmental cooperation, and cautioned the County from intruding on perceived private property rights. State-wide Outdoor Recreation Survey The Minnesota Department of Natural Resources released the results of its 2004 outdoor recreation survey in early 2005, 2004 Outdoor Recreation Participation Survey of Minnesotans: Report on Findings (January, 2005) (Excerpts in Appendix C). The information provides a statistically valid snapshot of outdoor recreation preferences state-wide, where adults go to recreate outdoors, and identifies some regional and demographic differences in outdoor recreational activities that can guide decisionmaking by Crow Wing County in completing and implementing its Parks, Trails, and Open Space Plan. The complete report can be found at The survey found, consistent with previous surveys, that outdoor recreation is an important component of the lives of most Minnesotans. Fifty-seven percent indicate that outdoor recreation is very important to their life, while another 25 percent indicate it is moderately important. The remainder comprising nearly one in five Minnesota adults (18%) believe outdoor recreation is of little importance. The survey also found that people who recreate outdoors have numerous motivations for going outdoors. The primary reason for outdoor recreation selected by respondents is simply to enjoy nature. Next in the ranking is exercise and feeling healthier. Additional reasons selected by respondents included outdoor recreation as: a means to build bonds with family and friends; a means to escape the pressures of modern life, to experience some silence and quiet; a means of learning or exploring. 7

14 Preferred Outdoor Activities The kinds of activities identified by survey respondents as primary to their outdoor recreation experience tended to cluster around similar demographic profiles. The survey analysis conducted a hierarchical cluster analysis on all 32 activities identified by participants. The DNR identified four activity clusters: (1) hunting and motorized trail activities, (2) passive recreation and learning related activities, (3) active recreation activities, and (4) boating/fishing/camping/golfing activities, for lack of a better descriptor. The passive recreation and learning-related activities cluster contains 40 percent of all recreation by Minnesota adults. The activities in this cluster include walking/hiking, nature observation, and visiting nature centers, historic/archaeological sites and outdoor zoos. The active recreation activities cluster contains 26 percent of all recreation by Minnesota adults, and includes activities such as swimming, biking, running/jogging, outdoor field/court sports, tent camping, inline skating, non-motorized boating, and downhill skiing/snowboarding. Younger urban dwellers (aged 20 to 45 in highest population density class) invested 40 percent of their total recreation time on activities in this cluster, while older rural dwellers (aged 55+ in lowest population density class) only invested 11 percent. The boating/fishing/camping/golfing activities cluster contains 24 percent of all recreation by Minnesota adults, including activities such as motor boating, fishing, camper-vehicle camping, and golfing. Rural men (lowest population density class) invest 30 percent of their total recreation time on activities in this cluster, while urban women (highest population density class) invest 11 percent. The hunting and motorized trail activities cluster contains 10 percent of all recreation by Minnesota adults, and is typified by big-game and smallgame hunting, snowmobiling, and ATV driving. Activities in this cluster were more common in areas such as Crow Wing County than in the Metro area, and more common to men: rural men invest 21 percent of their total recreation time on activities in this cluster, while urban women invest 1 percent. 8

15 Outdoor Recreation as Tourism The survey also identified where Minnesota adults recreated outdoors, how likely they were to travel for outdoor recreation, and where they tended to go when they did travel. Most adults tended to recreate within a relatively short distance of their home, a result that was more pronounced in the more rural regions of the state, and in the northern regions. Thirtyfive percent of activities by Metro-area adults were outside their region, while only 20% of activities by Northeast region adults were in other regions. For recreation that required travel, the survey analyzed how people traveled between the five large geographic regions of the state. The survey did not identify travel to specific counties or recreational amenity locations. Crow Wing County was included as the southeastern most portion of the Northeast region, being grouped with the Arrowhead region, Koochiching, Itasca, Carlton, Pine, and Aitkin counties. The Northeast region of the state (see map in Appendix B) was the primary destination for adults who recreated outside their own region of the state. The Report on Findings notes the following: The two northern regions import a large portion of their Minnesotaoriginated recreation use. The flow of recreation use between Minnesota regions is accompanied by the flow of recreation-related spending, which creates economic impacts (e.g., income, jobs) in the regions where the recreation takes place. In Minnesota, there is a general south-to-north flow of recreation use and spending, driven primarily by the flow from the Metro Region to the two northern regions. Additionally, Minnesota regions receive recreation use and associated spending from non-minnesotans. The large majority of non-resident use and spending occurs in the two northern regions, which provide attractive lake-forest recreation settings for nonresidents and Minnesotans alike (p. 9-10). 9

16 2.0 CURRENT PARKS, TRAILS AND OPEN SPACE RESOURCES 2.1 County Characteristics Figure A. ECS Province Level Crow Wing County s population is growing rapidly, particularly in high amenity areas rich with natural resources. Since the 1994 Comprehensive Plan update, the County s population has grown over 25 percent. Its total population in 2000 was 55,099, more than the 49,690 projected for the County in The lure of scenic areas is consistent with the County s growth patterns from People want to live near water, trees, and hills. Increasing wealth, leisure time and demand for recreational activities will keep growth pressure in these areas high. 1 Crow Wing County has vast forests, beautiful lakes, rivers and wetlands, large areas of public land and open space, interconnected trail systems, and a diversity of rural and urban areas. Crow Wing County is located in central Minnesota approximately 100 miles northwest of the Twin Cities Metropolitan Area (Figure 1). According to the 2004 Comprehensive Plan the County is 999 square miles in size (639,360 acres) 2. Approximately 28 percent (209,211 acres) of the County is covered by lakes, streams, and wetlands with 50 percent (374,488 acres) covered by forests. Landscape Context The County is situated in the southwest part of the Laurentian Mixed Forest Province as classified by the MN DNR s Ecological Classification System (ECS) 3. This province s land cover is characterized by extensive conifer and conifer-hardwood mix. To the west of Crow Wing County is the Eastern Deciduous Forest Province characterized as the transition zone between the boreal forests to the northeast and the prairie to the southwest. The Provinces are then further divided into Sections. The northern half of Crow Wing County is defined by the Northern Minnesota Drift and Lake Plains Section and the south by the Western Superior Uplands. Sections are based on the origin of glacial deposits, regional elevation, distribution of plants and regional climate. 4 1 Crow Wing County Comprehensive Plan According to the Mn/DOT BaseMap source the county is 739,800 acres (or 1, 156 sq mi). 3 The ECS is part of a nationwide program to manage natural resources on a sustainable basis. Identifying areas similar in climatic, geologic, hydrologic, topographic, soil and vegetation conditions is a method of achieving this. 4 For a more detailed discussion of the Ecological Classification and its application in Crow Wing County, see the Forest Management Plan for the Tax-Forfeited Lands of Crow Wing County 2000 or: 10

17 Figure 1 11

18 In the next level of the ECS, Crow Wing County is part of five subsections (Figure B.). The three subsections that comprise the majority of Crow Wing County, are the: Pine Moraines and Outwash Plains, Mille Lacs Uplands, and St. Louis Moraines. Small portions of the County occur within the: Anoka Sand Plains, located in the Mississippi River valley in the southwestern corner of the County Tamarack Lowlands, located around the Mississippi River in the east central portion of the County These ecological subsections define the diverse landscape in Crow Wing County. Over the last century and a half major dramatic land use transformations have occurred across the landscape. The aspen-oak woodland and savannah of the Mille Lacs Upland transformed to farmlands. Lakes surrounded by pine and birch forests in the Pine Moraines and Outwash Plains were logged and then transformed to recreation development. The St. Louis Moraines subsection was composed of wetlands and mixed forests dominated by pines until they were logged. Then the discovery of iron ore transformed this landscape first to an industrial area, then transitioned to another tourist destination with the return of the forests and creation of new lakes as the mine pits filled with cold clear water. Figure B. ECS Subsections Ecological Classification System Subsection Characteristics The three major ecological subsections are the Pine Moraines and Outwash Plains, the Mille Lacs Uplands, and the St. Louis Moraines. The Pine Moraines and Outwash Plains subsection is dominated by outwash plains, outwash channels, and end moraines. The eastern boundary is based on the interface between the end and ground moraines of the Rainy Lobe and the western limits of the ice contact sediments of the Des Moines Lobe. Large outwash areas dominate the center and southeast corner of the subsection. Ground and end moraines of the Rainy Lobe underlie areas of the eastern portion of the subsection. The topography ranges from level to gently rolling. 12

19 Groups of large lakes are located in the eastern and western portions of the subsection. Smaller lakes are present in the central area. The Cuyuna Iron Range is mostly located east of Brainerd in central Crow Wing County at the east central border of the subsection. In the 19 th century the prevalent tree cover on the well-drained soils of outwash was jack pine, red pine, white pine, and aspen-birch with a conifer component. Mille Lacs Uplands are characterized by the end and ground moraines occurring throughout the subsection. The western boundary is defined by the interface between the western edge of the Rainy Lobe moraine and the eastern limits of the Des Moines Lobe end moraine. Lake Mille Lacs dominates this subsection. The end and ground moraines of the Superior Lobe define the subsection, though materials from three glacial sources are evident. Rainy Lobe moraines are located west of Mille Lacs Lake. The Mille Lacs Uplands is a landscape with flat to gently rolling topography. Oak openings, barrens and prairies occurred on the margins of the Big Woods and as inclusions in the mixed forest. The topography varies from rolling to steep throughout the St. Louis Moraines subsection. The St. Louis part of the name is from the St. Louis River which forms one of the two continental divide drainages in this subsection. The St. Louis River watershed drains eastward. The Mississippi River in the southern part of the subsection drains to the south. Many lakes are interspersed throughout the hills of this subsection. White and red pine covered much of the area that is within the County boundary. Land Cover/Land Use The current land cover map shows actual land use as seen from space satellites. According to the most recent (1996) satellite imagery, the majority of land in Crow Wing County is still undeveloped and supports a rich natural heritage (Figure 2). Nearly 50 percent of the land is forested with 14 percent open water, 14 percent wetland, 16 percent grassland, two percent cultivated, and three percent developed. Most developed areas exist around lakeshores, south of the Cuyuna Iron Range and the Brainerd/ Baxter regional center. 13

20 Figure 2 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 14

21 2.2 Publicly Managed Lands The Crow Wing County Parks, Trails, and Open Space Plan directly impacts the County s 31 unincorporated townships (Figure 1). The following jurisdictions are responsible for the management of parks and open space at a municipal level: Table 3 Management of Parks and Open Space at a Municipal Level City of Brainerd City of Breezy Point City of Baxter City of Manhattan Beach City of Crosslake City of Fifty Lakes City of Crosby City of Emily City of Ironton City of Deerwood City of Nisswa City of Pequot Lakes Crow Wing Township Mission Township There are two additional public agencies that own and manage land for public recreation: the Minnesota Department of Natural Resources (Mn/DNR) at the state level and the Army Corps of Engineers (ACOE) at the federal level. A small amount of land is owned and managed for recreation by the Mille Lacs Band of Chippewa Indians. Approximately 20% of the land in Crow Wing County is public land. Of the 20% of total land in Crow Wing County that is public land, approximately 71.5% is Tax Forfeited Land. Twenty-three percent (23%) is owned by the State of Minnesota, with the Federal Government (4.5%), and County Owned (2.5%) make up the remainder (Figure 3). 5 Table 4 Land Ownership in Crow Wing County Owner Acres Percent Tax Forfeit 103,267 16% County 1,840 <1% State 31,617 5% University of Minnesota 1,520 <1% Federal 531 <1% Forest Industry 23,794 4% Other exempt 11,059 2% All Other 432,569 68% TOTAL: 639, ,197 95% Source: County Auditor, 1998 via 2000 Forest Management Plan The 2004 County Comprehensive Plan describes the public lands in the following manner: Most of this land is located in the northern and central portions of the County, and 75% of the public land is tax-forfeited land that is owned and managed by the County. This land is largely undeveloped open space featuring wetlands, grasslands, and forests. Forests on County land, which have traditionally been managed for lumber and pulp production, are valued more and more for wildlife watching, hunting, hiking, cross-country skiing, dirt bike and ATV trail riding, camping, and scenic open space. 5 Source: 2004 Crow Wing County Comprehensive Plan Forestry Section 15

22 Figure 3 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 16

23 2.3 Cultural Resources Archeological Crow Wing County has many historic and archeological sites. The Minnesota Historical Society s State Historic Preservation Office (SHPO) maintains the locations and record of sites across the state. In Crow Wing County, SHPO has recorded approximately 310 archeological sites (Table 5). The archeological sites date back to the precontact Archaic period from 8000 to 2500 B.P. (Before Present) with burial mounds represented in this period. There are also sites from the precontact Woodland tradition (2500 to 300 B.P). Seven sites have been placed on the National Register of Historic Places (NRHP) along with a number of others which are considered eligible 6. Crow Wing County s multiple archeological resources are located on both private and public lands. A more thorough inventory and location of these sites could be undertaken to determine sites which may be within county or public land ownership. The results of such an inventory could provide the county with an opportunity to protect these sites and to offer educational programs or interpretive recreational areas. Historical One hundred and eighty-six (186) Crow Wing County properties have been inventoried for the SHPO Architecture-History database. Of those inventoried and entered into the database, 36 have been added to the National Register of Historic Places. Table 5 Archeological and Historical Sites Minnesota SHPO Listed Sites Total NRHP Archeological Sites Historical Sites In addition to the official NRHP sites, a number of organizations collect, preserve, and manage facilities through which history is presented to the public. The Crow Wing County Historical Society s Museum is located in downtown Brainerd. Historical organizations with managed facilities are also found in Crosslake, Ironton, and Nisswa

24 2.4 Biological Survey The Minnesota County Biological Survey (MCBS) is a program within the Mn/DNR division of Ecological Services. The MCBS began in 1987 as a systematic survey of rare biological features. The goal of the Survey is to identify significant natural areas and to collect and interpret data on the distribution and ecology of rare plants, rare animals and native plant communities. A preliminary survey of Crow Wing County was released for review in 2002, and in 2004 the final Survey was issued. The final report lists 44 areas examined and rated by the MCBS staff (see Table 6 and Figure 4). The areas of land (or sites ), range from tens to thousands of acres in size. The sites were selected for survey because they are likely to contain relatively undisturbed native plant communities, large populations and/or concentrations of rare species, and/or critical animal habitat. The sites provide a geographic framework for recording and storing data and compiling descriptive summaries. 7 There are six main systems (or natural community types 8 ) identified within Crow Wing County: Upland Forest and Woodland Systems Wetland Forest System Wetland Grassland, Shrubland and Marsh Systems Wetland Grassland, Shrubland and Sparse Vegetation Systems Young Forest Complex Open Water For each of the areas, a broad ranking is assigned to assess quality. Ecologists primarily consider the presence or absence of unnatural or human-induced disturbances such as logging, plowing, overgrazing and development. 7 From Minnesota DNR website: 8 Natural communities are functional units of landscape that are characterized and defined by their most prominent habitat features - a combination of vegetation, hydrology, landform, soil, and natural disturbance cycles. Although natural communities have no legal protection in Minnesota, the Natural Heritage and Nongame Research Program and the Minnesota County Biological Survey have evaluated and ranked community types according to their relative rarity and endangerment throughout their range. Locations of high quality examples are tracked by the Rare Features Database. 18

25 Table 6 County Biological Survey Sites SITE_NAME Rank 1 BLACK BROOK SWAMP HIGH 2 Baxter South HIGH 3 Bay Lake 25 HIGH 4 Big Island OUTSTANDING 5 Crow Wing 27 BELOW 6 Dagget Brook MODERATE 7 Dean Lake 14 BELOW 8 Duck Lake HIGH 9 EAST RIPLEY 1 BELOW 10 Fuch s Lake Prairie HIGH 11 Gail Lake 24 MODERATE 12 Galbrath MODERATE 13 Gull River HIGH 14 Irondale 13 MODERATE 15 Irondale 36 HIGH 16 Jail Lake MODERATE 17 Kego Lake HIGH 18 Larson Lake MODERATE 19 Little Nokassippi River HIGH 20 Little Pine Lake HIGH 21 Little Pine River MODERATE 22 Lows Lake HIGH 23 Maple Grove 1 MODERATE 24 Mille Lacs Moraine OUTSTANDING 25 Mississippi Half Moon Lake MODERATE 26 Mississippi Moraine HIGH 27 Mississippi Pine Confluence MODERATE 28 Mississippi Wolford MODERATE 29 Mud Lake Peatlands HIGH 30 Nokassippi Lakes MODERATE 31 Nokassippi River MODERATE 32 Nokay Lake 13 MODERATE 33 Ossawinnamakee Lake BELOW 34 PULASKI 3 MODERATE 35 Paul Bunyan Arboretum HIGH 36 Pine River MODERATE 37 RICHARDSON 5 MODERATE 38 Rabbit Lake Peatlands HIGH 39 Rabbit Lake Uplands MODERATE 40 Russel Lake MODERATE 41 Stewart Lake MODERATE 42 Thompson Creek MODERATE 43 Upper Cullen Lake HIGH 44 Upper Dean Lake HIGH The four categories are defined as follows: Outstanding: sites containing the best occurrences of the rarest species, the most outstanding examples of the rarest native plant communities and /or the largest, most intact functional landscapes present in the state. High: sites containing the best of the rest, such as sites with very good quality occurrences of the rarest species, high quality examples of the rarest native plant communities, and/or important functional landscapes. Moderate: Sites containing significant occurrences of rare species, and/or moderately disturbed native plant communities and landscapes that have a strong potential for recovery. Below MCBS minimum threshold for statewide significance: Sites lacking occurrences of rare species and/or natural features that met MCBS standards for an outstanding, high or moderate rank. These include areas of conservation value at the local level, such as habitat for native plants and animals, corridors for animal movements, buffers surrounding higher quality natural areas, and open space areas. 19

26 Figure 4 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 20

27 2.5 Potential Conservation Priority Areas In 2004 a coalition of local and regional recreation, open space, and environmental stakeholders produced a study with a goal of providing information to assist decision makers to make informed and prudent choices on the management of the ecological and recreational opportunities in Crow Wing and adjacent areas. The title of the study is Inventory and Assessment of Natural Resources in Crow Wing County A Framework for Conservation and Recreation Planning. 9 This document and associated data and maps provide a wealth of high quality background data for the Parks and Recreation Department, its advisors, and other concerned citizens. The study identifies Potential Conservation Priority Areas (Figure 5) and generates a Development Suitability Analysis intended to guide land use decisions. The Potential Conservation Priority Areas (which are based in large part on the locations of the County Biological Survey areas discussed previously) became a variable in the generation of the Development Suitability Map. The study process evaluated specific geographic areas for development suitability by combining the above mentioned variables with terrain conditions (slopes and erosion susceptibility), groundwater contamination potential, independent sewage treatment suitability, and proximity to roads and open water. While the immediate outcome of the report is to inform residents and local governments about suitable areas for development, the report has additional value. The report includes valuable information emphasizing the unique natural features of Crow Wing County. The report also recommends a number of tools for land use managers within the County that promote responsible land and water use practices. County Parks Department 2.6 Current Park System Parks, Trails, And Open Space Facilities Currently the Crow Wing County Parks and Recreation Department manages 22 recreation facilities. The facilities are composed of five parks, fifteen water accesses (of which three are included in the parks category because of the additional facilities such as picnic grounds at the site), and five trails. The average size of the parks and water accesses is less than an acre. Table 7 lists the facilities and Figure 2 shows their location. 9 The unpublished study created by the Brainerd Lakes Area Conservation Coalition (BLACC) may be obtained on CD through the County or 1000 Friends of Minnesota. 21

28 Figure 5 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 22

29 There are no campgrounds or beaches owned or administered by the Parks and Recreation Department. Tax forfeited lands are owned by the State of Minnesota but managed and administered by the County. Table 7 Existing Designated 10 County Park Facilities Facility Location Activities Park County Island 1 Rush Lake Picnic Rollie Johnson 2 Upper Whitefish Lake Picnic, camping, pit toilets Jones Bay 3 Pelican Lake west shore Motorized Boat Access, Dock, Toilets Section 6 Mine Pit 4 Section 6, Irondale Township Motorized Boat Access, Picnic grounds Little Rabbit Lake/ Rowe Mine Pit Water Access Trails 5 Little Rabbit Lake / Rowe Mine Pit, Riverton, Irondale Township Motorized Boat Access, Dock Picnic grounds, Toilets 1 Black Lake Motorized Boat Access 2 Butternut Lake Motorized Boat Access (small boats) 3 Fawn Lake Motorized Boat Access 4 French Rapids Motorized Boat Access 5 Gilbert Lake Motorized Boat Access 6 Larson Lake Carry-in Boat Access 7 Loon Lake Carry-in Boat Access (small boats only, no trailers) 8 Pelican Lake (Jones Bay, west shore) Motorized Boat Access, Dock, Toilets 9 Pelican Lake (south shore) Motorized Boat Access, Dock 10 Little Rabbit Lake/Rowe Mine Pit 2 Motorized Boat Accesses, Dock 11 Red Sand Lake Motorized Boat Access 12 Sebie Lake Motorized Boat Access 13 Section 6 Mine Pit Motorized Boat Access 14 Wolf Lake Carry-in Access 15 North Long Lake 2 Motorized Boat Accesses 1 Roosevelt Township ATV trail 2 Sebie Lake ATV trail 3 Wolf Lake Cross country skiing, hiking and horseback riding 4 Larson Lake Cross country ski, hiking and horseback riding 5 Emily to Outing ATV trail 10 A designated county park facility has a) had a resolution passed by the County Board designating it as an official county park and b) had specific improvements made and management or maintenance activities as a result 23

30 Figure 6 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 24

31 2.7 Park Activities and Facilities outside the County s Jurisdiction Local Public Facilities Twenty-three cities and townships have indicated that they have some type of recreation facility within their jurisdiction (See Appendix A). Most of the cities have full responsibility for the facilities, though at least two have cooperative efforts with private non-profit groups. The facility types range from a single site with picnic tables and a playground in Barrows to the City of Crosslake with a community center and maintained cross country ski trails. Picnic areas are the most common type of facility, with 26 listed, not counting Baxter, Crosby or the State day-use areas. The next most common facility type is playgrounds, most likely associated with many of the picnic sites. The recreation sites include over 18 baseball facilities with varying degrees of enhancements, eight basketball facilities, eight tennis courts, eight volleyball courts. Sites also include four horseshoe courts, two fishing piers, three beaches (one on Serpent Lake in Crosby, one in Lum Park in Brainerd and Whipple Beach in Baxter), and six hockey/skating rinks. Crosslake, Baxter and Brainerd are the cities that have listed trails as part of their recreation resources. Crosslake is the only city with a city owned and maintained cross-country ski trail. Crosby and Brainerd are the only cities listing a skateboard park. The Cities of Brainerd and Baxter have a nature center at the Northland Arboretum and Baxter has the Paul Bunyan Nature Learning Center. State Facilities In addition to the recreation sites listed above involving cities and municipalities, the state Department of Natural Resources offers day-use areas that include picnicking activities at the locations listed in Table 8. Table 8 Day-use Areas Site name Jurisdiction Location 1 Pine Lake State Pine Lake-Hwy 3 2 Staircase Landing State Pine River-Cty 11 3 Pelican Lake Beach State Pelican Lake-east side 4 Harvey Drake Landing State Pine R-CtyRd 36 5 Cuyuna Country State North of Crosby/ State Recreation Area Ironton 6 Crow Wing State Park State Mississippi River, south of Brainerd 7 Greer Lake State City of Crosslake, southeast corner 25

32 2.8 Campgrounds There are 25 public and private campgrounds in the county, with over 600 campsites (Figure 7). The campground facilities range from primitive to full hook-up for RVs, and from overnight use to seasonal. There is one federally owned campground, located on Cross Lake in the City of Crosslake. There is another 38-site federally owned campground just across the western county border in Cass County. The three state campgrounds in Crow Wing County are within Crow Wing State Park, within the Cuyuna Country State Recreation Area and the third is located in Crow Wing State Forest on Greer Lake. Three primitive campsites on the Mississippi River are accessible by water (Lone Pine Creek Campsite downstream from Dean Brook, Half-Moon Campsite downstream from the Trommald Landing, and Baxter Canoe Campsite downstream from Buffalo Creek south of the City of Baxter). Two cities have campgrounds: Crosby and Brainerd. There are 18 additional campgrounds run by private entities. The private campgrounds are concentrated in the central lakes district continuing north to Emily. Fort Ripley contains two campgrounds, three in the Crosby-Ironton area, and one south of Deerwood. 26

33 Figure 7 27

34 Table 9 Campgrounds Id Site_name Jurisdiction Location 1 R.L. Cloutier Recreation Area Federal Crosslake 2 Hidden Paradise Resort&Campgroround Private Brainerd 3 Lake Emily Resort and RV/ Campground Private Lk Emily 4 Twin Oaks Resort Private Brainerd 5 Rager s Acres Private Pequot Lakes 6 Highview Campground and RV Park Private Breezy Pt 7 Sullivan s Resort and Campground Private N Long Lk-Lk Edward tnshp 8 Greer Lake State Greer Lake-Crosslake 9 Lake Edward Resort and RV Park Private Lk Edward twnshp 10 Portsmouth Bay Campground Private Crosby 11 Lum Park City Brainerd 12 Don and Mayva s Crow Wing Lake Private Ft Ripley tnshp- CrowWing Lk 13 Crow Wing State Park State Ft Ripley-Crow Wing Riv 14 Camp Holiday Resort Private Bay Lk twnshp 15 Pine Crest Resort and Campground Private Merrifield 16 Serpent Lake City Crosby 17 Hart s RV Park Private Merrifield 18 Cuyuna Country State Rec Area State Crosby-Ironton 19 Galles Upper Cullen Campground Private Upper Cullen Lake 20 Fritz s Resort and Trailer Campground Private Nisswa 21 Fifty Lakes Campground Private Fifty Lakes 22 Cozy Bay Resort Private Lk Edward twnshp 23 Family Fun Resort Private Lk Edward tnshp-n Long Lk 24 ShingWako Resort & Campground Private Lake Edward 25 Sissebagamah RV Resort Private Bay Lake 2.9 Golf Courses Golf has become as nearly a popular activity as fishing in the Brainerd Lakes area, though demand has been leveling off in the past few years. In the past years a number of new private golf courses have been built. No new courses are currently being planned. One golf course is being converted to other land uses (Pine Meadows in Baxter). Crow Wing County has 19 golf courses. (Figure 8). Eight additional golf courses are in the vicinity of Gull Lake just outside the county border in Cass County. 28

35 Figure 8 29

36 Table 10 Golf Courses Id Golf Courses Location Administration 1 Cuyuna Country Club Deerwood Private 2 Ruttger s Alec s Nine Deerwood Private / resort 3 Ruttger s The Lakes Deerwood Private / resort 4 Crosswoods Crosslake 5 Emily Greens Emily 6 Deacon s Lodge Pequot Lakes Private / resort 7 Golden Eagle Golf Club Fifty Lakes 8 Irish Hills Golf Course Cass County 9 Pine River Country Club Cass County 10 Breezy Point Traditional Pequot Lakes Private resort 11 Breezy Point Whitebirch Pequot Lakes Private resort 12 Eagle s Landing Golf Club Morrison County 13 Pine Meadows Baxter Private 14 Dutch Legacy Course Cass County Private / resort 15 Bobby s Legacy Course Cass County Private / resort 16 Par 3 Legacy Cass County Private / resort 17 The Pines Nisswa Private / resort 18 The Garden Nisswa Private /resort 19 Whitefish Golf Club Pequot Lakes 20 Wildwedge Family Golf Park Pequot Lakes 21 Fritz s Nine Nisswa Private / resort 22 The Preserve Pequot Lakes 23 Madden s Pine Beach East Cass County Private / resort 24 Madden s Pine Beach West Cass County Private / resort 25 Madden s Social Nine Cass County Private / resort 26 The Classic Cass County Private / resort 27 Birch Bay Nisswa Private / resort 30

37 2.10 Beaches, Boat Accesses, Fishing Beaches Crow Wing County has approximately 700 lakes completely within or on the County border (101,768 acres). 11 Forty-three lakes are larger than 500 acres in size. In spite of the large number of lakes, there are only five maintained public beaches (Table 11). Three of the five are supervised by lifeguards (Figure 9). There are numerous beach areas that are not maintained. There are no public outdoor pools. Many resorts have beaches for their clients, but these are closed to the general public. Table 11 Beaches Facility Location Jurisdiction Activities Whipple Dock, restrooms, parking, 1 Whipple Lake Baxter Beach lifeguards, and picnicking Lum Park Beach Serpent Beach Pelican Beach Cross Lake Dam 2 Rice Lake Brainerd Two docks, three separate swimming areas with varied depths, restrooms, picnic shelter, lifeguards and parking. 3 Serpent Lake Crosby Restrooms, lifeguards, parking 4 Pelican Lake west shore Mn/DNR 5 Cross Lake Army Corps of Engineers Restrooms, parking. Two swimming areas, handicapped accessible, shelter, restrooms, and parking. Boat Accesses The County has 97 water access locations for trailer launched boats and an additional 20 carry-in water accesses primarily for non-motorized water craft (Figure 9) for a total of 117. The Mn/DNR maintains the majority of the accesses, with 16 listed under county administration, two as Army Corps of Engineers, and eight as city. (Table 12) The accesses have varying levels of amenities associated with them. Some of the basics include docks and toilet facilities. Others have picnic areas and campgrounds at the water access location. The following list of boat launches are from the DNR s water access database. 11 DNR Public Water Access Map 31

38 Figure 9 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 32

39 Table 12 Trailer Launch Water Access Facility/Lake Administration 1 Adney Lake DNR T&W 2 Bass Lake (Turkey) DNR T&W 3 Bay Lake DNR T&W Region Office 3A 4 Black Bear Lake DNR Forestry 5 Black Lake County Parks 6 Blackhoof Lake DNR Forestry 7 Borden Lake DNR T&W 8 Camp Lake DNR T&W 9 Clamshell Lake U.S. Corps of Engineers 10 Clark Lake DNR T&W 11 Clear Lake DNR T&W 12 Clearwater Lake DNR T&W 13 Clinker Lake MN DOT 14 Crooked Lake DNR T&W 15 Cross Lake #1 DNR T&W 16 Cross Lake #2 U.S. Corps Of Engineers 17 Crow Wing Lake DNR T&W 18 Dean Lake 19 Dolney Lake DNR T&W 20 Eagle Lake DNR T&W 21 East Fox Lake DNR T&W 22 East Twin Lake DNR T&W 23 Edna Lake DNR T&W 24 Edwards Lake DNR T&W 25 Emily Lake MN DOT 26 Erskine Lake DNR T&W 27 Fawn Lake County Parks 28 Gilbert Lake County Parks 29 Gladstone Lake DNR T&W 30 Grass Lake DNR T&W 31 Greer Lake DNR Forestry 32 Gull Lake (e) DNR T&W 33 Island Lake DNR T&W 34 Kego Lake DNR T&W 35 Kimball Lake DNR T&W 36 Lake Hubert DNR T&W 37 Larson Lake County Parks 38 Little Pelican Lake DNR T&W 39 Little Rabbit Lake DNR T&W 40 Little Rabbit Lake 1 City Parks Department 41 Lougee Lake DNR T&W 42 Lower Cullen Lake DNR T&W 43 Lower Hay Lake DNR T&W 44 Lower Mission Lake w DNR T&W 45 Middle Cullen Lake DNR T&W 46 Milford - small boat 47 Mille Lacs Lake MN DOT 48 Miss Riv (Crow Wing) DNR Parks & Recreation 49 Miss Riv (Evergreen) City Parks Department 50 Miss Riv (French Rpd County Parks 51 Miss Riv (Ft Ripley) DNR T&W 52 Miss Riv (Hwy 6) DNR T&W 53 Miss Riv (Trommold) DNR T&W 54 Mississippi River DNR T&W 55 Mississippi River #1 DNR T&W Region Office 3A 56 Mitchell Lake DNR T&W 57 N Long Lake (Merrifield) DNR T&W 58 N Long Lake (n) County Parks 59 N Long Lake (Nw) MN DOT 60 Nokay Lake DNR T&W 61 Ossawinnamakee Lake DNR T&W 62 Partridge Lake City Parks Department 63 Pelican Lake County Parks 64 Pelican Lake (Jones Bay) County Parks 65 Pelican Lake (Sw) DNR T&W Region Office 3A 66 Pelican Lk (North) DNR T&W 67 Pelican Lk (Nw) Breezy Point City Clerk 68 Perch Lake DNR T&W 69 Pig Lake DNR T&W Region Office 3A 70 Pine Lake DNR T&W 71 Platte Lake DNR T&W 72 Portsmouth Lake 73 Rabbit Lake (Eastside Cuyuna) DNR T&W 74 Red Sand Lake County Parks 75 Rice Lake (Lum Park) City Parks Department 76 Rock Lake DNR T&W 77 Round Lake DNR T&W 78 Round Lake DNR T&W 79 Ruth Lake DNR T&W 80 Sandbar Lk -horseshoe DNR T&W 81 Section 6 Mine Pit County Parks 82 Serpent Lake (e) MN DOT 83 Serpent Lake (w) City Parks Department 84 Sibley Lake DNR T&W 85 Silver Lake DNR T&W 86 South Long Lake DNR T&W 87 Stark Lake DNR T&W 88 Strawberry Lake DNR T&W 89 Upper Dean Lake DNR Section of Wildlife 90 Upper Hay Lake DNR T&W 91 Upper Mission Lake DNR T&W 92 Upper S Long Lake DNR T&W 93 Upper Whitefish Lake DNR T&W 94 Wolford - motorized 95 Whipple Lake DNR T&W 96 White Sand Lake DNR T&W 97 Wolf Lake County Parks 33

40 Fishing Docks or Piers County residents have access to several public fishing piers, but the piers are limited to urban lakes. Two piers are located in Kiwanis Park and one in Lum Park, both in Brainerd. 12 There is also a fishing pier in the City of Pequot Lakes. Crosby/Ironton area has piers on Pennington Pit and Serpent Lake Hunting and other off-trail activities Hunting occurs on both public and privately held land. Hunting on tax forfeit and state lands is a significant component of the local tourism economy. 13 Compared to counties east and north of Crow Wing County, Crow Wing County has a relatively small amount of public land. In addition, as agricultural and forested areas are developed. There are seven hunting shack leases on Crow Wing County administered land due to expire in 2005, with no new leases being issued. Table 13 Carry-in Water Access Location Administration 1 Allen Lake DNR Fisheries 2 Bass Lake (Mission) DNR T&W 3 Birchdale Lake DNR Section of Wildlife 4 Dahler Lake City Parks Department 5 Dean Lake DNR Section of Wildlife 6 Duck Lake DNR T&W 7 Duck Lake (n) DNR Section of Wildlife 8 Lwr Mission Lake se DNR Fisheries 9 Miss Riv (Green s) DNR T&W 10 Miss Riv (Kiwanis) City Parks Department 11 N Long Lake (s) County Parks 12 Pine Riv (Cross Lk) DNR T&W Region Office 3A 13 Pine Riv (Drake) DNR T&W 14 Pine Riv (Staircase) DNR T&W 15 Pleasant Lake DNR Fisheries 16 Rice Lake (Hesitation) DNR Section of Wildlife 17 Sebie Lake County Parks 18 Gilbert DNR T&W 19 Butternut County Parks 20 Loon County Parks As noted in Table 4 approximately 20% of the County is in public ownership, with 16% as tax-forfeit (approximately 103,000 acres) along with a fraction owned by the County (1800 acres). The forest industry owns 4% of the property in the County. Potlatch Corporation is the largest private landowner. Potlatch Corporation lands were accessible to the general public before the private tree growth tax was rescinded in Potlatch Corporation has now instituted a program of leasing its land to private parties. The change has resulted in restricting not only hunting access but access for other activities as well, e.g. OHV use. Within Crow Wing County the DNR manages Wildlife Management Areas with a total of 5,800 acres (Figure 3 and Table 14). Three of these units are cooperatively managed by the County and the State where the county lands are adjacent to the WMA. WMAs are used for wildlife management and production. WMAs can be used for timber harvesting and for recreation activities such as hiking, hunting, wildlife watching, and cross country skiing. WMA rules generally prohibit the use of OHVs on roads and trails within wildlife areas. 12 Source: DNR s Mississippi Headwaters River Trail brochure: Palisade to Brainerd 13 Source: Crow Wing County Forest Plan

41 Table 14 State Wildlife Management Areas UNIT name acres area name 1 Agate Lake WMA 34.7 Brainerd 2 Mission Lake WMA Brainerd 3 Poor Farm WMA Brainerd 4 Telef Paulson WMA 41.2 Brainerd 5 Upgaard WMA Brainerd 6 Twin Heron WMA Brainerd 7 Lowell WMA Brainerd 8 Loerch WMA 40.0 Brainerd 9 Loerch WMA Brainerd 10 Ray Cook WMA Brainerd 11 Hesitation WMA Brainerd 12 Lower Dean WMA Brainerd 13 Deutsch WMA 39.6 Brainerd 14 Deutsch WMA Brainerd 15 Lower Dean WMA Brainerd 16 WMA01376 Coop - County WMA Brainerd 17 WMA01376 Coop - County WMA 41.0 Brainerd 18 Birchdale WMA Brainerd 19 Duck Lake WMA Brainerd 20 Roosevelt WMA Brainerd 21 Upper Dean WMA 1.2 Brainerd 22 Upper Dean WMA 38.5 Brainerd 35

42 2.12 Trails The 2004 County Comprehensive Plan includes the following recommendations for trail development: Promote the enhancement and development of other forms of transportation, including foot, biking, snowmobile, and ATV trails and sidewalks. How: Evaluate existing trails and explore the possibility of adding new trails or upgrading existing trails. This may include connecting existing trails. Who: Crow Wing County Parks Department, Highway Department and Health Department, MN DOT, cities, townships, developers, and other trail related agencies When: Spring 2005 This section provides an account of existing trails in Crow Wing County, including a discussion of trails that are administered by the County (Table 15) and trails under non-county jurisdictions. County Parks Department Non-motorized The Crow Wing County Parks Department maintains two designated trails, Larson Lake and Wolf Lake that feature non-motorized activities: hiking, biking, horse back riding, and cross country skiing (Table 15). Both cross country ski trails are located in the central part of the county and are within 15 miles of Brainerd/Baxter and Crosby/Ironton. The County is not managing any designated bikeways (i.e. paved bike trails separated from the road right-of-way). There are segments of CSAH 16 and CSAH 11 (also know as the Paul Bunyan Scenic Byway) where the shoulders have been widened and paved sufficiently to allow bicycle use. Motorized Three ATV trails are under the jurisdiction of the Parks Department. All are located on county tax-forfeit land (Figure 12). Two of these County trails are located in southern Crow Wing County (near Sebie Lake in Fort Ripley Township and in Roosevelt Township). The third ATV trail is in northeast Crow Wing County and goes from Emily to Outing in Cass County. 36

43 Figure 10 37

44 County Land Department The County Land Department has completed the process of locating (using GPS technology) and classifying roads and trails located on tax forfeit lands. Prior to this inventory the County estimated that there were roughly 249 miles of forest roads and forest trails with 15% of these gated to promote non-motorized uses or to protect the road surface. Non-motorized As a result of the 2000 Forest Management Plan nine trail areas have been specified as non-motorized areas (Table 15). These trails are gated and support recreation activities such as hiking and hunting, and snowshoeing. Eight are located in the northern part of the county (Figure 12), with four designated nonmotorized areas in central Crow Wing County. Motorized Currently ATV use on county tax forfeit land is regulated. ATV and other motorized vehicles (OHV) are allowed on county trails and roads as long as the trails are not posted closed to motorized vehicles. The County is currently engaged in a joint effort with the Mn/DNR to classify forest roads and trails with regard to their use by motorized vehicles. Because many of the county and state parcels are adjacent and trails between county to state are continuous, the joint effort was seen as necessary in order to provide a seamless network of trail activity. Other areas of the County are also being used by OHV s. Road ditches / road right-of way is the most visible area of use. Private lands are also being used by OHV riders - with permission, but also in situations where use would be considered trespassing. 38

45 Table 15 County Trails Trail NAME / Location miles trail use administrator/ agency/ sponsor 1 Pine Center Township ATV trail Parks Department 2 Fort Ripley ATV trail Parks Department 3 Wolf Lake 9.4 km 4 Larson Lake 10.5 km Cross-country skiing, Horseback-riding, Hiking, Biking Cross-country skiing, Horseback-riding, Hiking, Biking Parks Department Parks Department 5 Emily to Outing ATV trail Parks Department 1 Blueberry Bog, Timothy Non-motorized: hiking Land Department 2 Thompson Creek Trail, Timothy Non-motorized: hiking Land Department 3 Cranberry Bog Trail, Timothy Non-motorized: hiking Land Department 4 Pine Ridge Trail, Fifty Lakes Non-motorized: hiking Land Department 5 Rock Creek Trail, Fifty Lakes Non-motorized: hiking Land Department 6 White Pine Trail, Fifty Lakes Non-motorized: hiking Land Department 7 Scrub Oak Trail, Mission Non-motorized: hiking Land Department 8 Rice Lake Trail, Irondale Non-motorized: hiking Land Department 9 Poor Farm Trail, Oak Lawn Non-motorized: hiking Land Department State of Minnesota Motorized State legislation enacted in 2003 requires the Commissioner of the Department of Natural Resources (DNR) to move toward a closed unless posted open management policy for off-highway vehicles (OHVs) on State Forest lands. The Minnesota Legislature required the DNR to inventory forest access routes, designate routes that will be open to Off- Highway Vehicle (OHV) use, and reclassify those State Forests that are currently classified as managed to limited or closed with respect to motor vehicle use. State Forest Roads are typically open to use by both highway-licensed vehicles and off-highway vehicles (ATVs, OHMs, and ORVs). However, in forests classified as closed only highway licensed vehicles are allowed on forest roads. Nonmotorized users (e.g., hikers, horseback riders, crosscountry skiers, snowshoers, mountain bikers) are allowed to use roads, trails, and undesignated routes in the forest but they are not the primary users and the routes are not mapped, signed, or maintained for such uses. 39

46 Non-motorized The state Department of Natural Resources also provides trails for recreation (Table 16). Crow Wing State Park currently offers trails maintained for hiking, biking, snowmobiling and cross country skiing. Island Lake Woods is located along CSAH 16 in Jenkins Township. It is a 158-acre tract of land managed by the Department of Natural Resources. In September of 2003, a new footbridge was installed on the Veteran s Hiking Trail that takes visitors over Hay Creek to the north side of the parcel, and over a wetland to high ground for a view of the mixed forest of red and white pine, spruce, aspen and oak. The trail system continuing into the bog should be completed in There is another hiking trail in a forested tract at the Chiarella Forest Management Area on CSAH #11 in Breezy Point. Pillsbury State Forest has the following recreational management objectives: horseback riding and camping in the spring, summer, and early fall; hunting in the fall; and snowmobiling and cross country skiing in the winter. Given the level of horseback riding in the Pillsbury it is not feasible to permit OHV use of the existing horse trails Source: Paul Bunyan Scenic Byways Association, 15 Source: Proposed Mn/DNR State Forest Trail and Road Designations

47 Table 16 State Trails Trail NAME / Location miles trail use 1 Crow Wing State Park 18 (+ 6 miles snowmobile) Hiking, cross country skiing, snowshoeing, and snowmobile administrator/ agency/ sponsor MN/DNR 2 Emily State Forest [currently classified managed ] MN/DNR 3 Crow Wing State Forest [currently classified managed ] MN/DNR 4 Uppgaard WMA Hiking, cross country skiing MN/DNR 5 Paul Bunyan State Trail 26 Biking, hiking, snowmobiling MN/DNR 6 Pillsbury State Forest 3 7 Wealthwood State Forest 7.4 Veterans Hiking Trail / Island Lake Woods Chiarella Forest Mgmt Area/ Breezy Point Horse back riding, hiking, biking, cross country skiing, snowmobiling (no motorized use other than snowmobiles is proposed, i.e. the closed classification) Snowmobile the only designated trail within the forest (no motorized use other than snowmobiles is proposed, i.e. the closed classification) Hiking Hiking MN/DNR MN/DNR Mn/DNR, Paul Bunyan Scenic Byways Association Mn/DNR, Paul Bunyan Scenic Byways Association Pillsbury is less than 3 miles west of the Crow Wing County border and provides a major recreation facility for residents and visitors of densely populated areas of Crow Wing County and thus is included in the review. Wealthwood is located less than 1 mile east of the County border. Cities, Townships and Other Organizations There are a number of cities which have constructed and now maintain trails within their borders and connect to regional trails (Table 17). For example the Baxter trail system is designed to connect to the Paul Bunyan State Trail. Pequot Lakes has included proposed trails in their Comprehensive Plan which will provide connections to the Paul Bunyan Trail and the Paul Bunyan Scenic Byway. A third trail at French Rapids is used for cross country skiing, hiking, and mountain biking is located on county-owned airport land. A local ski group maintains and grooms the trails. 41

48 Table 17 Municipal/ Community /Regional Trails 1 Trail NAME / Location Northland Arboretum (aka Paul Bunyan Conservation Area) trail use 20 km of Cross country skiing, hiking 2 French Rapids Cross country skiing, hiking 3 Crosslake 4 Brainerd Cross-country skiing, hiking, biking Hiking, biking, in-line skating, snowmobiling administrator/agency/ sponsor Arboretum / Brainerd Nordic Ski Club County / Brainerd Nordic Ski Club City of Crosslake City of Brainerd 5 Baxter Hiking, biking, in-line skating City of Baxter 6 Pillsbury State Park (Cass County) #6 Source: Table 18 Private Trails (Golf Course/Skiing) Cross country skiing, hiking, snowshoeing, snowmobiling Trail NAME / Location trail use administrator/ agency/ sponsor 1 Pine Beach Cross country skiing Private 2 Breezy Point Cross country skiing Private 3 West Gull Cross country skiing Private 4 Grandview Lodge Cross country skiing Private 5 Boyd Lodge Cross country skiing Private Mn/DNR A network of snowmobile trails (Table 19) traverses Crow Wing County providing connections across the County and connections to Aitkin, Cass, Morrison, and Todd Counties. These trails are located along roadways and across private lands. Because permanent easements have not been obtained for trails that cross private land, these trails are subject to regular re-alignment. Agreements for trail use, mapping, and distribution of snowmobile trail information are done by the private sector, without formal involvement of the County, although the County acts as the fiscal agent for state grants (i.e. the Grant-in-Aid program which distributes the snowmobile registration fees for maintenance and grooming purposes). Table 19 Snowmobile Trails Trail NAME miles* Sponsor 1 Baxter Trail 22 Club 2 Brainerd Sno Deos 60 Club 3 Cuyuna Trail 84 Club 4 Emily Trail 34 Club 5 Fort Ripley Trail 57 Club 6 Garrison 41 Club 7 Gull Lake Drifters 17 Club 8 Ideal Sno-Pros 60 Club 9 Merrifield Marathons Trail 36 Club * Mileage is approximate and subject to change 42

49 Trail Corridors The Paul Bunyan State trail (from Brainerd to Pine River and beyond) and the snowmobile trails (administered by private clubs with assistance from the Grant-in-Aid state program) provide the only long distance trail corridors in the county. All other County trails are contained within county tax forfeit boundaries. The Paul Bunyan State Trail, following an abandoned railroad right-of-way, currently has over 71 miles of paved trail from Baxter to Walker. An additional 37 miles of unpaved trail runs from Walker to Lake Bemidji State Park (northeast of Bemidji). Sanctioned activities on the trail include biking, inline skating, and walking during the summer, and it is groomed for snowmobile traffic in the winter months. The Paul Bunyan Scenic Byway, which runs along County Highways 11 and 16 east of Pequot Lakes, is another important recreational asset primarily for driving and sight-seeing (Figure 12). Though there are also paved shoulders in limited areas along the Paul Bunyan Scenic Byways that are available for biking. The Paul Bunyan Scenic Byway is a 54 mile loop road route. County State Aid Highway (CSAH) 16 is the spine of the route. At the intersection with CSAH 66, the route travels both north around the Whitefish Chain and south along the north side of Pelican Lake. The Byway passes through 14 local government jurisdictions: Jenkins, Ideal Township, Crosslake, Manhattan Beach, Mission Township, Pelican Township, Timothy Township, Pequot Lakes, Breezy Point, Pine River, Jenkins Township, Gail Lake Township, Wilson Township, and Barclay Township. The Byway connects with the Paul Bunyan Trail in four locations, at CSAH 16, at CSAH 11, and at CSAH 15 in Crow Wing County and at CSAH 1 in Cass County. Hikers share the trail with bikers during the summer. The trail is used for snowmobiling in the winter. Table 20 Bikeways 1 Trail NAME / Location Paul Bunyan State Trail (Baxter to Jenkins) 2 Paul Bunyan Scenic Byway 54 miles administrator/ agency/sponsor 31.4 Mn/DNR Paul Bunyan Scenic Byway Association, a non-profit organization 43

50 Figure 11 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 44

51 3.0 PLANNED AND PROPOSED PARKS, TRAILS, AND OPEN SPACE 3.1 Planned Park Facilities Crow Wing County Jurisdiction The County Board has designated two park sites that remain undeveloped at this time (Table 21 and Figure 6). Land on the southern end of Lower South Long Lake was recently donated to the County for a recreation site. The site has been used for many years as if it were a public recreation site, with no services. The site will now be developed, supervised, and maintained by the County. Approximately 100 acres on the west shore of Gilbert Lake has also been designated for use as a County park by the County Board. Table 21 Planned Facilities - County to be developed Location potential features Park 1 South Long Lake Park 2 Gilbert Lake 1 Source: January 04 PAC meeting minutes 2 Source: July 04 PAC meeting minutes Fishing pier, carry-in water access, toilets, parking, picnic Multi-use, low impact park Outside County Jurisdiction There are also a number of recreation facilities that are being planned by entities other than Crow Wing County. Table 22 lists the facilities that have been identified by the County PAC. Table 22 Planned Facilities Non-county Planned Location Jurisdiction potential features Park expansion 1 Crow Wing State Park State Additional acreage to add to existing park - Expanded parking, bus loading area, sewer and water, improved public Park 2 Whipple Park City of Baxter access, new playground (already improvements installed). Connected to Baxter Trail system. Army Corps New Park 3 Cross Lake, south bay of Engineers/ City of Crosslake Picnic, walking, beach New Park and Recreation Area 4 Crow Wing Township, Barrows Township 1 Source: January 04 PAC meeting minutes, December 04 personal correspondence 2 Source: February 04 PAC meeting minutes 3 Source: February 04 PAC meeting minutes 4 Source: May 04 PAC meeting minutes Picnic shelter, grills, bike racks, picnic tables, bathrooms, horseshoe pits, baseball, basketball, hiking and horse trails 45

52 Figure 12 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN 46

53 Table 23 lists trails that are proposed for development. A connecting section of the Paul Bunyan Trail is proposed to connect to Crow Wing State Park. The Cuyuna Lakes State Trail will be a vital link in the recreation system of the central Minnesota lakes region. The trail will connect to the Paul Bunyan State Trail, a 100-mile long trail between Baxter/Brainerd and Bemidji. The Cuyuna Lakes State Trail is also planned to be a link to other state and regional trails, such as the Munger State Trail to the east, the Mesabi Regional Trail to the north, and the Glacial Lake Aitkin Trail system in Aitkin County. The Cuyuna Lakes State Trail will also be part of the national Mississippi River Trail a 10-state cycling route that will allow cyclists to tour from the headwaters of the Mississippi to the Gulf of Mexico. 16 Cuyuna Country State Recreation Area (CCSRA), located in the Crosby- Ironton vicinity, has nearly 60 miles of paths, trails, roads, and railroad grades that are planned to support mountain biking, hiking, horseback riding along with cross country skiing. The future connecting local trail system between Deerwood and Bay Lake will pass through or near, the Lansin R. Hamilton Memorial Forest, a Crow Wing County Forest. Table 23 Planned Trails 1 Trail NAME / Location Paul Bunyan Trail Brainerd to Crow Wing State Park trail use Connection south to Crow Wing State Park including Excelsior Boulevard Overpass to Hwy 210 underpass administrator/ agency/ sponsor State and Paul Bunyan Trail Association/ MN Parks and Trails Council 2 Cuyuna Lakes State Trail Seven miles of dualtreadway: paved for biking and in-line skating, unpaved for snowmobile and mountain bikes State/ Cuyuna Trail Association 3 Cuyuna Country State Recreation Area Mountain biking, hiking, horseback riding, cross country skiing, snowmobiling Mn/DNR 1 Source: January 04 PAC meeting minutes and MN Parks and Trails Council/Paul Bunyan Trail Association representative 2 Source: September 04 Trails Subcommittee meeting minutes, January 04 PAC meeting minutes 16 Minnesota DNR Cuyuna Lakes State Trail Plan 47

54 3.2 Proposed Park and Trail Facilities Proposed park facilities are those that are under consideration by the County, but have no funds allocated for their development at this time. Crow Wing County Jurisdiction The County PAC and County Board have discussed a number of potential new recreation facilities or sites, including the following: OHV Park Milford Mine site Flanders Lake and surrounding area Outside County Jurisdiction The Paul Bunyan Scenic Byway Association has proposed an interpretive Center in Crosslake, and is investigating funding opportunities. An Interpretive Center as part of the Cuyuna Country State Recreation Area has been included in the Plan for the Area. There are a number of trails and/or trail segments that would be desirable in order to create a more continuous network (Table 24). Table 24 Proposed Trails 1 2 Trail NAME / Location Extend Crosslake ski trails onto County lands County Hwy 66 snowmobile trail / Crosslake trail use Cross country skiing Snowmobile administrator/ agency/ sponsor City of Crosslake and County Undetermined 3 Snowmobile trail bridge over the Pine River to connect Crosby/Ironton and Crosslake trail system Snowmobile Undetermined 1 Source: May 04 PAC meeting minutes 2 Source: September 04 Trails Subcommittee meeting minutes, January 04 PAC meeting minutes 48

55 4.0 PARKS, TRAILS, AND OPEN SPACE GOALS AND OBJECTIVES The 2004 County Comprehensive Plan notes that future County land use decisions must build on existing recreational resources, meet the demands of a growing and changing population, and reinforce the policies developed by the Crow Wing County Parks Advisory Commission, which are: to integrate park, open space, historical, and recreational values into County planning; to provide diverse recreational opportunities for people of all ages, income, and abilities; to coordinate County-wide parks and recreation functions and activities; and to manage County recreational lands in concert with other County managing authorities. The Comprehensive Plan also sets the guiding policy for the Parks,Trails, and Open Space Plan: Maintain and enhance parks, recreation, and open space for Crow Wing County residents and visitors by providing diverse recreational opportunities that are accessible to people of all ages and abilities, while preserving the County s high quality natural areas and open space. 4.1 Parks, Trails, and Open Space Plan Goals and Objectives In response to the need for a Parks, Trails, and Open Space Plan, as stated in the 2004 Comprehensive Plan, the following goals and objectives articulate the priorities of residents and stakeholders, and are designed to enhance the 2004 Comprehensive Plan for Parks, Recreation, and Open Space policy. 1. Meet Resident and Visitor Demand for Parks, Trails, and Open Space Facilities and Areas Crow Wing County will strive to meet public demand for parks, trails, and open space. The County will: A. Develop opportunities that meet demand for active and passive recreation facilities and trails in its investment and acquisition decisions. B. Create open space and natural areas to embrace residents and visitors priorities for maintaining the County s community character. C. Evaluate whether the County s investment of dollars or staff meets specific demands for services, facilities, or programs. 49

56 D. Meet demand for a wide range of recreation activities, including niche or specialized recreation activities, through creative design of facilities to accommodate a mix of uses. 2. Respect Natural Systems and Carrying Capacity of the County s Resources Crow Wing County will respect the physical attributes and limitations of each park, trail, or open space area and the natural systems that might be affected by park, trail, and open space decisions. The County will: 50 A. Minimize conflicts between recreational uses in multi-use facilities or parcels. B. Protect habitat and watershed functions in both active and passive recreation areas. C. Use each site in a manner that suits the unique characteristics of the site. D. Recognize that lakes, forest, rivers, watersheds, and other natural systems have carrying capacities that must be carefully managed to ensure long-term sustainability. 3. Recognizing Community Diversity and Practicing Community-oriented Planning Crow Wing County recognizes the diversity of its natural landscapes and population centers, and will develop park, trail, and open space facilities in appropriate locations that provide access, preserve local character, and minimize nuisances. The County will: A. Locate facilities that have appropriate access to the target population for local facilities, regional facilities, and county-wide facilities. B. Minimize nuisances from its facilities through good planning and recognition of individual and community property rights. C. Create single-use facilities that preserve or enhance the qualities implicit to particular recreation or natural area uses. D. Create facilities oriented to the recreational needs of diverse age groups: children, youth, adults, families, and seniors. E. Create facilities appropriate for quiet activities and loud activities. F. Limit fragmentation of natural areas through the use of non-motorized trail corridors, greenways, or watercourses where appropriate.

57 4. Ensure Park Program and Facility Efficiency Crow Wing County will efficiently manage its park and trail facilities. The County will: A. Avoid unnecessary duplication of facilities or services when making new acquisitions or investments. B. Consider whether new investment will enhance or degrade existing public or private recreational development. C. Partner with cities, townships, state and federal agencies to improve efficiency and enhance delivery of services. D. Create an appropriate balance of local, regional, and interregional facilities. E. Coordinate and cooperate, where appropriate, with the Crow Wing County Land Department to ensure efficient management of multi-purpose County lands. 5. Respect Public Process and Decision-making Procedures Crow Wing County respects public input and will implement the long-term vision described in its 2004 Comprehensive Plan and its Parks, Trails, and Open Space Plan. The County will: A. Make investment, acquisition, and management decisions based on consistency with its long-term goals and needs analysis as articulated in the 2004 Comprehensive Plan and Parks, Trails, and Open Space Plan. B. Regularly engage the public in its park, trail, and open space investment and management decisions. C. Follow a public and open procedure when evaluating park, trail and open space options. 51

58 6. Practice Responsible Financial management Crow Wing County will sustainably and equitably manage the short- and long-term costs of its parks, trails, and open space facilities. The County will: A. Consider comparable facilities or land, including the market price, when considering facility or land purchases. B. Identify the potential for creating a revenue stream with facilities that are appropriate for charging fees. C. Evaluate operating and management costs of its facilities. D. Consider whether the costs of a facility are commensurate with the value of the proposed use or the number of people who will use the facility. E. Consider both the fiscal costs and benefits and the qualitative costs and benefits of its management, investment, and acquisition decisions. 52

59 5.0 NEEDS ASSESSMENT After identifying goals and policies, the consultant team conducted a needs assessment to direct strategy priorities and the implementation plan. The needs assessment was broken into three primary foci, within which needs-oriented questions were answered. The three focus areas were: A. Trails and related facilities B. Park facilities other than trails C. Open Space considerations Within these three focus areas the consultants followed the same assessment process: Identify potential needs categories Review existing facilities and programs within each need category. Consider whether existing facilities and programs meet the evaluation criteria identified in the Plan s goals and policies (demand for services, access, geographic location, carrying capacity) Review proposed facilities and programs within each need category. Consider whether proposed facilities meet the evaluation criteria identified in the Plan s goals and policies. Identify potential unmet needs for consideration and prioritization by Parks staff, the Parks Advisory Committee (PAC), and the Trails Subcommittee. 53

60 Enforcement and Maintenance Needs When the County invests capital in and provides land for projects it also takes on the responsibility for taking proper care of those assets. Investment that encourages public use requires that the County consider the safety of those users and take reasonable steps to make facilities safe and to educate users of the risks associated with certain facilities. The County must also monitor facilities to minimize nuisances, ensure appropriate facility use, and protect the facilities or park area from harm. If user fees are a part of the funding, the County must insure that only those who have paid fees are using the facility. Meeting any of the needs identified in this plan creates additional needs for education efforts and regulatory initiatives to ensure sustainable use of the new facilities. 5.1 Trails and Related Facilities Needs Categories In public comments on parks, trails, and open space issues, trails garner the majority of comments and issues. In Comprehensive Plan public meetings, Parks Plan public meetings, and in public surveys the most desired facilities related to trails. To address this highly visible recreation need, the County has formed a Trails Subcommittee to the PAC, which has been holding its own discussions and setting trail priorities. In response to the increased trail activities in the county, the Trails Subcommittee has been meeting to gain insight into potential trail issues and formulate possible solutions to address those issues. Another County committee has been meeting to understand the use of ATVs in County road right-of-ways and how to deal with the safety and environmental implications of this activity. Other organizations are also working on the expansion of trail facilities, including Minnesota Parks and Trails, the Cuyuna Lakes Trails Association, the Brainerd Nordic Ski Club, a number of snowmobile organizations, four ATV clubs, and Paul Bunyan Scenic Byway Association. The following trail needs categories were derived from the trail categories identified by the Trails Subcommittee and responses from public comments and surveys. The Subcommittee also identified typical features of desirable trail facilities, which have been included here to help define trail needs. 54

61 Trail User Group Motorcycles ATV Horseback riding Cross country skiing Hiking Typical features of desirable facilities Users will trailer motorcycles to site Loops, miles of trail, mostly single track May be combined with ATV use if needed. Long distance riding is desirable. ATVs may ride in ROWs unless local road authority prohibits Destination to destination routes Loop system with up to 1,500 acres and 70+ miles of trail Divide into Unit trails with some built and maintained by a public agency, and others built and maintained by clubs and reimbursed by the DNR dedicated funds. At least 15, and up to 30 miles of trail (more with overnight camping) Intersecting and looping trail system Accessible for parking and turning around with truck and trailer Parking for at least 10 rigs Compatible with snowmobile, ski, hiking, and mountain bike trails Need ample warning signage both ways at motorized trail crossing, minimize motor and other loud noises on trails Camping would require additional facilities: toilets, water 80 to 640 acres with 20 km of trails About 16 foot wide trail for dual use to accommodate skating and classic techniques and still maintain ground cover Must have a level cross section for grooming small amounts of snow Incompatible with motorized activities Day hiking areas similar to ski areas Destination to destination, similar to the North Shore trail or North Country trail 55

62 Trail User Group facilities (cont) Snowmobile Bicycles Typical features of desirable Destination to destination ( touring ) Grant-in-Aid system is model with long distance corridors crossing water, wetlands and private lands with permission ATV use across private lands on snowmobile trails is prohibited Winter snowmobile grooming is not compatible with ATVs Paved roads with clean paved shoulders Linear paved trail systems (i.e. Paul Bunyan State Trail) Parking and toilet facilities in high use areas Wayfinding - Trail and or route maps, Information Kiosk, Secondary roads (low traffic) signed and mapped. Camping/lodging/food close by Dog sledding 4x4/Mudder trucks Solitude areas Canoe/Kayak trails Intersecting and looping trail system, with up to 30+ miles of trail Average width should be at least 10 feet Accessible for parking and turning around with a trailer Variety of terrain, winding, wooded, gentle hills Compatible with snowmobile, hiking, mountain biking, horseback riding and ATV trails. Need ample warning signage both ways at motorized trail crossing, minimize motor and other loud noises on trails No specific trail standards proposed challenge areas are addressed in Park Facilities section of the needs assessment Campsites, hiking and hunting trails, high value natural areas, and scenic areas Well-marked accesses every 5-8 miles Camping facilities Good route maps Mountain bike In-line skating Variety of trail widths including single track trails Variety of challenging terrain through wooded areas Looped trail systems Wayfinding - Trail maps, Information kiosk, Parking and toilet facility Camping/lodging/food close by Terrain/soils that can withstand use without excessive erosion Wide (more than 8 feet) and paved roadway Flat terrain more popular (abandoned railways) Looped systems most popular, however trails will depend upon skaters physical condition Parking and toilet facilities Camping/lodging/food close by Good sightlines for safety 56

63 Existing Facilities and Programs The consultant evaluated the existing facilities identified in the trail facility inventory and in discussions with Trails Subcommittee members. The trail facilities include trails managed by a range of entities, including the following managers: County-owned or managed trail facilities Local government owned or managed facilities State owned or managed facilities Privately owned or managed facilities Non-profit or club owned or managed facilities A summary of existing trail facilities by trail user group is shown below: Motorcycle trails - There are no specified areas for motorcycle/ motocross activities in the County. An area that motorcycles had been using was the Potlatch lands east of the airport lands. These have now been closed for public use because of changes to the property tax regulations. Motorcycles are not allowed to ride in road side ROWs, though they are allowed on state and county forest roads and trails not marked closed though many of these are not the type of experience the motorcyclists are interested in. The trail area that most closely meets Subcommittee criteria is in Paul Bunyan State Forest in Hubbard County. ATV/OHV trails - ATVs currently have access to certain road ROWs throughout the county, to state and county forest roads and trails that are not marked closed to motorized vehicles. There are three trail systems designated by the County as ATV trails, including one in the north and the others in the southwest and southeast corners of the County. ATV/OHV riders also have access to much of the trail and road system within the countymanaged tax forfeit lands. Equestrian trails - Multi-use non-motorized trails are meeting some of the need for horseback trails. The County has designated two non-motorized trails (Larson and Wolf) as equestrian trail areas in addition to other allowed uses. Three miles to the west of Baxter is an additional site for horse back riding in Pillsbury State Forest with over 25 miles of trails plus trailer and overnight accommodations. 57

64 Horse back riding is also permitted on non-motorized trails within the state forest and county lands, though the trail mileage does not meet the desired length for most users. Examples of existing facilities that meet the Subcommittee s recommended specifications include Pillsbury State Forest with 28 miles of trails/30-40 campers, Kathio State Park with 20 miles of trails/10 campers Cross country ski trails - There are two county maintained facilities for cross country skiing located within 15 miles of one another in the east central portion of the County. The County also partners with the City of Crosslake in Crosslake Park to maintain approximately 3.5 miles of trails. Two others are maintained by non-profit or club organizations and located within one mile of Brainerd (French Rapids, owned by the Airport Authority and the Arboretum). A fifth system of trails is located within Crow Wing State Park. A maintained trail in Pillsbury State Forest is outside Crow Wing County (in Cass County) but is less than three miles west of Baxter. Other cross country ski trails are groomed by private entities located in the resort area of west central Crow Wing County. Hiking trails - Hiking trails correspond with many of the trails described for cross country skiing. In addition to these there are a number of trails on county tax forfeit land designated as nonmotorized and gated to discourage motor vehicle access. These trails are concentrated in the northern part of the county, but there are at least three others located in central areas of the County. Hiking for recreation and for hunting are permitted on most trails and roads within State and County forests, though these would be shared with motorized vehicles. Snowmobile trails - There are approximately 875 miles of snowmobile trail in Crow Wing County supervised and maintained by a variety of organizations both public to private. Bicycle trails, in-line skate trails - The Paul Bunyan State Trail is the major paved trail for bikes and in-line skating in the area that is separated from motorized traffic. Approximately 26 miles of the Paul Bunyan State Trail is located in Crow Wing County. 850 miles of bikeways (in the form of road shoulders) have been identified as bikeable by the local bike club (Paul Bunyan Cyclists). 58

65 Dogsledding trails - There are no specified areas for dog sledding and carting activities in the County. Mushers usually use snowmobile trails or multi-use trails on public land. Canoe/Kayak trails - There are three DNR designated canoe routes within the County. The Pine River meanders 31 miles through Crow Wing County and has two designated campsites and 3 access points. The Mississippi River traverses 62 miles through the county and has 4 designated camping areas and 10 access points. The Mississippi River and the Pine River have carry-in accesses and campsites along the routes. Mountain bike trails (off road) - Mountain bikers use ski, hiking and forest roads and trails in the county. The needs assessment must address primary needs issues raised in the Plan s Goals and Policies section. The goals raise four specific issues goals in assessing need: Demand for facilities (Goal 1); Geographic distribution of and access to facilities (Goal 3); Diversity of targeted user ages and recreation activities (Goal 3), and; Carrying capacity of existing facilities (Goal 2). These four needs issues were evaluated in the following manner when reviewing existing facilities as part of the needs assessment. Demand Existing facilities were evaluated based on how demand for trail needs were expressed in the record of public comment, survey responses, and staff and Trails Subcommittee comments. Geographic distribution and access Some types of trails and trail activities are necessarily dependent on the natural environment to create a high quality recreation experience, such as hiking, or by specific elements of the terrain, such as ATV/OHV challenge areas. Specific trail activities will be enhanced by natural amenities that may include woods, hilly terrain, scenic overlooks, and large acreages. Other experiences are less specific in qualitative need, or are destination oriented, and may depend only on the availability of land in the form of an easement or purchase or public agency policy allowing that use. A number of access issues exist for trail facilities. Trail heads may need access to major roads, parking, and restrooms. Maps need to be created showing locations. Bridges are needed to connect divided trail sections. Some trails follow one-year trail easements that frequently change as land owners change, creating additional access problems. 59

66 Diversity of target user/activity Parks, Trails, and Open Space Plan Goal 3 policies call for a diversity of active and passive areas, of quiet and motorized trails and related facilities. The mix of opportunity for diverse trail activities was considered, as well as the ability of multiuse trails to meet a diversity of activities. Some passive trail activities can be met simultaneously with the open space needs described later in this analysis. Carrying capacity Carrying capacity issues of trail and related facilities were considered in two specific ways: is the capacity of the facility adequate to demand, and is the carrying capacity of economic, social or natural resources affected by the trail facility? Some facilities have capacity issues related to maintenance facility use is dependent on regular maintenance in order for ongoing use (grooming, erosion control). Trails and related facilities can also affect sensitive areas, and must sometime include design or additional control facilities to minimize risk to sensitive features or water resources from erosion and pollution. Proposed Trail Facilities or Programs Proposed facilities or programs were considered to see if on-going efforts by the County were addressing potential unmeet needs. Proposed facilities included potential locations for trail or related investments, even those only considered at the most conceptual stage. The proposed facilities or programs included the following efforts: On-going planning for an ATV/OHV area on County land New water access and associated facilities on South Long Lake The Cuyuna Lakes State Trail for bicycle use. The first 5 miles is scheduled to be paved in the summer of 2005, and extended in subsequent years. A County Board committee to study the use of county highway ROWs for ATV use Ongoing classification and surveying of trails in state forests by DNR. Proposed facilities are geographically distributed in several areas in the County. Some facilities are intended to be regional in nature, where people are anticipated to travel to the facility, and thus should include amenities related to a regional park (parking, restrooms, campgrounds or shelter areas). Long corridors and/or looped trails have both been proposed as needed features. Corridors are the preferred trail design for snowmobiles, ATVs, biking, and canoeing. Looped trails are preferred in the case of motorcycles, horse back riders, non-motorized (hiking and skiing), and also for trail-related ATV facilities, such as challenge areas. 60

67 Potential Unmet Trail Needs Demand for trail-based recreation is the single largest category of use that residents and visitors are demanding. The public comment and survey information clearly reflect a growing demand for trails and related facilities. The Trails Subcommittee has identified a number of unmet trail needs. Specific areas or locations for facilities have been discussed as well. The table below shows the potential needs under discussion, some additional potential needs that arose from this analysis, and the geographic locations that have been discussed. Several needs categories appear to have no trails or related facilities (such as challenge areas), including motorcycles, dog sleds, mudder truck facilities, and mountain bike trails. Informal trail use does occur for all of these need categories, but no existing formal designated or managed areas have been identified. Multi-use trails can and do accommodate some of these uses, but can also create conflicts between non-motorized and motorized uses. Some unmet needs are applicable across trail need categories. Trail amenities such as reasonable access, appropriate signage, maps, parking, and other investments that enhance the use of recreational trails need to be considered for all kinds of trails. Similarly, enforcement of trail rules, usage limitations, speed limits, and payment of user fees are a potential programmatic need identified in public and stakeholder comments. Recreational trail use (both motorized and non-motorized) has real and perceived nuisances that require management, including users who leave the designated trail, damage to sensitive slopes and natural areas, littering, illegal parking, and speeding. Effective enforcement programs ultimately enhance the recreational trail experience for users and ensure that trail use is sustainable over time. 61

68 Trail User Group Potential need Potential areas to meet needs 4x4/Mudder trucks ATV Bicycle Demand for challenge areas is indicated in public comments and surveys. The County has no existing facilities, but can incorporate such areas in a motorized regional park. Several ATV/OHV trails exist in the County, and regional facilities exist north of the County, but appear not to meet demand. In addition to trail facilities there is a demand for related motorized challenge areas and similar facilities. A regional motorized park could address not only ATV/OHV but demand for other motorized facilities. Few officially designated bicycle trails exist other than the State trails and some locally designated bike paths, such as in Baxter and Brainerd. Some roadways have been designed to accommodate bicycle traffic but liability issues are high when motorized and non-motorized uses share a facility. Resolution of the liability issues and ongoing cooperation with traffic and road planners to enhance bicycle opportunities could be a priority. Area could include facilities 4X4 challenges East side of the Airport Between Riverton and Trommald, including Crosby area (around the Section 6 Mine Pit) South of Crosslake Timothy township Existing trails at Emily expanded Extension of Paul Bunyan State Trail to the south and connecting to Crow Wing State Park Seven mile trail from Crosby to Riverton within the Cuyuna Country State Recreation Area, eventually extending east to Aitkin The Cuyuna Country trail may be extended west to Brainerd Paul Bunyan Scenic byway with its 10 foot shoulders State and county highways (targeting low-traffic roads) designated as bikeways if shoulder width and surface are appropriate Route signs, maps on county web site. New or resurfaced roads with paved shoulders 62

69 Trail User Group Canoe/Kayak trails Cross country skiing Dog sledding Hiking Horseback riding Potential need The Pine and Mississippi rivers have water trails with primitive camping sites managed by DNR. Expanded access, improved supporting facilities (parking, camping, signage, canoe maps). Several existing cross country skiing trails are in or near the County, and at least one new facility is ready for use this winter. Some additional facilities may be needed near population centers. Some ski trail needs can be met through adapting existing summer use recreational facilities. Dog sledding is a growing sport in the area. Mushers now use snowmobile trails and horse trails in the county. Otherwise, there is no place for them to go. Dog sledding has minimal impact on the environment. Public comments and survey responses show interest in additional passive recreation areas, including hiking. A number of hiking opportunities exist in the County, but don t have some of the supporting facilities to encourage use or ensure adequate access. Open space and natural areas, as defined in the Open Space section, can accommodate hiking and related activities well. Existing county facilities are well used during peak riding season. The Trails Subcommittee has identified Equestrian facilities as a specific need and developed some criteria for additional facilities. Potential areas to meet needs Pine River - below Crosslake Dam, in Mission Twps sec. 2, 3 or 4 Mississippi River - Improve existing access (i.e. Hwy 6 landing), new access near Aitkin County border Crosslake area the City of Crosslake is working with the County on additional ski trails Nisswa/Pequot Lakes Emily Within the GCWESF STUDY AREA (Fairfield township) Dog sledding is compatible with summer non-paved trail use. Horseback riding, ATV, hiking and mountain biking trails are a good match if the trails are wide enough and do not become deeply rutted. Within the GCWESF STUDY AREA - Section 15 in Mission township (Flanders Lake) is currently used by riders French Rapids (on the ski trails) Greer Lake area Timothy Township 63

70 Trail User Group Potential Need Potential areas to meet needs In-line skating Motorcycles No motorcycle trails or related facilities currently exist. The Trails Subcommittee has identified draft criteria for motorcycle facilities. Extension of Paul Bunyan State Trail to the south and connecting to Crow Wing State Park Seven mile trail from Crosby to Riverton within the Cuyuna Country State Recreation Area, eventually extending east to Aitkin. The Cuyuna Country trail may be extended west to Brainerd Paul Bunyan Scenic byway with its 10 foot shoulders State and county highways (targeting low-traffic roads) designated as bikeways if shoulder width and surface are appropriate Route signs, maps on county web site. New or resurfaced roads with paved shoulders Area east of the Airport Between Riverton and Trommald City of Crosslake West of Garrison in Sections 17 and 20 64

71 Trail User Group Potential Need Potential areas to meet needs Mountain bike/ Off road bike Snowmobile Solitude areas Mountain bike and other off-road biking currently uses multi-use trails, private land use, and informal use at some public sites. Off-road challenge areas or trails might be included at a regional park if separation from motorized facilities is assured. Snowmobile trails are also in demand, and a large number of trails are across the County. The Subcommittee has identified trail criteria new trails and improved access to existing trails. Permanent easements and additional enforcement of trail boundaries are two issues that could be additional priorities. Remote hiking, backpacking, experiencing natural areas can be accommodated on existing public lands and in conjunction with natural infrastructure protection as discussed in the Open Space section. Sagamore Mine pit area French Rapids Ski Trails, Larson and Wolf Lake Ski Trails, Northland Arboretum County/state public land (logging roads and trails). Bridge over the Pine River to connect Crosby-Ironton with the Crosslake trail system Timothy Township area Mission Township Fifty Lakes 65

72 5.2 Park facilities other than trails Most sport and recreational activities require special facilities, fields, or other set-aside areas. Crow Wing County residents and visitors engage in a wide variety of recreational activities that require or are enhanced by specific facilities, from playgrounds to ski hills, from nature preserves to indoor swimming. Facility-based Sports/ Activities Baseball Softball Soccer Hockey Football Basketball Tennis Indoor swim/swim Team Gymnastics Volleyball Other Specialized Facilities ATV/OHV Challenge Downhill Ski/Snowboard Golf Disk (Frisbee) Golf Climbing Skateboard BMX Racing Paint Ball Weight Training Racquetball Dance Fitness/aerobics General Park Facilities Playground/tot lot Picnic areas Pavilion/Shelters Skating rinks Multi-use fields Restrooms Sledding Lake/River Facilities Boating/Sailing Canoeing/Kayaking Wind Surfing Wake Board/Water Skiing Swimming Beaches Fishing boat and shore Outdoor Non-Facility-Based Bird/Wildlife Watching/Photography Hunting Sledding Camping Cultural/Educational Citywide festivals & events Crafts/hobbies Museums/galleries Historic sites and cultural events 66

73 Different types of park facilities are frequently managed by different entities. The Parks, Trails, and Open Space goals and policies direct the County to meet demand for park facilities, but to take advantage of partnering opportunities and to evaluate the costs and benefits of investment and management activities. The needs assessment must consider not only the recreation and sport priorities of Crow Wing County residents and visitors, but whether the County is the best entity for meeting those needs. The existing facilities discussion therefore includes an analysis of both the kinds of facilities in Crow Wing County and what entity (if any) is currently providing or managing facilities. Needs categories Park facilities include a very wide range of facility types, including lake/river-related facilities, sports facilities, community gathering areas and facilities, general recreation areas, and natural areas. The following needs categories were derived from the facilities identified on the park and recreation surveys conducted in The categories include both the facilities listed on the questionnaires and additional facilities identified by survey respondents and via public comments. Existing facilities and programs Park planning typically uses distinct categories of parks to address distinct activity and community needs. The needs assessment used a simplified version of park categories, as described below: Neighborhood Park. A small park serving primarily the residential community within walking distance of the park. Neighborhood parks are typically owned and maintained by or on behalf of the local government (city or township) or community service organization (Lions or Rotary). The parks can include a variety of general facilities and sports fields, including playgrounds, picnic shelters, generalized sport fields (softball/baseball, soccer/ football), and restrooms. Community Park. A mid-sized to large park serving a community-wide need. Community parks are typically owned and maintained by the local government, but can be managed by a county or regional entity. Community parks can include more intense recreational facilities (i.e. little league, adult softball, regulation soccer, court games), swimming pool, community center, parking, natural areas, or amphitheaters. 67

74 Regional Park. A mid-sized to very large park serving a regional, inter-community need. Regional parks are typically owned and maintained by county, regional, or state governments. Regional parks usually include natural amenities or large natural areas and associated recreational facilities, including beaches, fishing and boating access, sensitive environmental areas, environmental learning centers, camping, and links to regional trails. Specialized regional parks can include motorized trails and related facilities for motorized sports. The needs assessment also considers existing facilities owned or managed by the following categories of facility managers: County-owned or managed park facilities Local government or public school owned or managed facilities State owned or managed facilities Privately owned or managed facilities Non-profit owned or managed facilities The needs assessment must address primary needs issues raised in the Goals and Policies section of the Plan. In considering the policies that describe the goals, four specific issues address assessing need for facilities or investment: Demand for facilities (Goal 1); Geographic distribution of and access to facilities (Goal 3); Diversity of targeted user ages and recreation activities (Goal 3), and; Carrying capacity of existing facilities (Goal 2). These four needs issues were evaluated in the following manner when reviewing existing facilities as part of the needs assessment. Demand Existing facilities were evaluated based on the record of public comment, survey responses, and staff and PAC comments. The County will need to create means to measure demand for services or facilities to meet its demand-oriented policies (Goal 1). Geographic distribution and access Different park facilities have quite different geographic distribution criteria. Neighborhood parks, for instance, need to be accessible at the neighborhood level. Regional facility needs, such as unique sport facilities, must have access to population centers and transportation systems. Parking and restrooms are access issues for some types of facilities but not others. Walkability or access to trail systems enhances access for some facilities, while access to transportation arteries is critical for ensuring access to other facilities. 68

75 Diversity of target user/activity The range of existing facilities was evaluated according to the target age market and the targeted type of activity. Generally, sport facilities and active recreation areas will appeal to youth and young adults (consistent with the youth survey results). More generalized park facilities (picnic areas, playgrounds) will draw more families. Fishing, hunting, golf, nature areas, and similar lower intensity activities draw more adults. Goal 3 policies similarly call for a diversity of active and passive activities. Carrying capacity the capacity of the park or amenity can be evaluated in two ways: is the facility s capacity underused, overcrowded, or sufficient, and; does the facility affect natural systems that might have carrying capacity issues? Some facilities have additional capacity issues related to maintenance facility use is dependent on regular maintenance in order to continue to be used. Proposed Park Facilities or Programs New or planned facilities for many of the above need categories are being primarily addressed by local government or schools. The County is planning on expanding some lake and river accesses and beach areas, including South Long Lake and Flanders Lake. An undeveloped U.S. Army Corps site in Crosslake is likely to be developed with trails, bathrooms, picnic areas, and additional beach facilities. The proposed Gilbert Lake park would add picnic areas, bathrooms, and park land. The County s Forest Management Plan (December, 2000) has identified some areas in which timber management activities are subordinate to recreational activities (in scheduling, managing visual impacts, and size of any forest or timber management action). Many of the recreational opportunities discussed in the Forest Management Plan are hunting, hiking, and related open space recreation, and some motorized and nonmotorized recreational trails. As the Forest Management Plan notes, however, opportunities may exist for investment into some portion of these lands to increase access and use of recreational land. Some smaller parcels, furthermore, may be appropriate for a larger investment in facilities and official designation as parks. Few specific plans have been made to meet the recreational facility elements of the Forest Management Plan, and the Crow Wing Parks, Trails, and Open Space Plan should provide guidance for meeting some of the objectives stated in the Forest Plan. 69

76 The value and demand for an ATV/OHV trail and challenge area has been discussed. The motorized sport facility could include other motorized facilities, such as a mudder truck (4X4) area, motocross challenge, or other similar facilities as well as parking areas and campgrounds. While ATV/OHV trails are discussed in the Trails section of the needs assessment, this proposed facility would be unique in the County and Region, and would more appropriately be categorized as a destination park facility rather than a trail facility. Potential Unmet Park Needs Based on the above-noted criteria and qualitative assessment, the following potential needs were identified for further discussion and prioritization. Beaches The County has relatively few public beaches, and has several informal beach sites at boat access points and unimproved beaches on tax forfeit lands. Unimproved sites limit access, present safety issues, diminish the recreational opportunity, and sometimes allow activities that degrade the very resource (water quality and beach quality) that endow the site with opportunity. Additional opportunities may exist for cooperative efforts with local governments and the State to create beach access. Campgrounds The County does not manage any of its own camping areas, and has relatively few public campgrounds managed by local governments or the State. While few data exist to evaluate capacity against demand, anecdotal evidence points to a need for some additional campground space. The County does have a number of private campgrounds, but the capacity of these facilities is uncertain. Golf courses The County has some private golf facilities within its borders, but the primary facilities lie just outside the County. Most courses are privately managed, but may sufficiently meet demand for golf by residents. There may be a need to encourage a more even distribution of golf facilities, or to develop a niche facilities, such as for beginning golfers. Unmet golf facility demand may, however, be primarily a demand by visitors rather than residents. The private market may be sufficient if that is the case. Lake and river boat accesses the number of boat accesses appears to be adequate. In addition to the County accesses the State maintains a number of access points, and private access is well developed. Geographic distribution of access points is 70

77 an issue, however, as well as the lack of supporting facilities (parking, restrooms) at some existing accesses. Additional information may be needed to assess the carrying capacity of lakes for additional recreational use prior to expanding access on some waters, the condition of facilities, and the maintenance needs of the accesses. Motorized challenge areas The public response at meetings and in surveys identifies demand for OHV parks and trails. These facilities are often ideally associated with trail systems that allow more remote access and meet multiple needs (challenge areas and motor vehicle trail systems) Neighborhood and general park facilities The population of the County is growing rapidly. Access to neighborhood and community-specific parks, and the capacity of existing general park and recreational amenities, must increase with population growth in order to maintain a consistent standard of service. Neighborhood or community parks are generally maintained by local governments, but opportunities may exist for the County to partner on creating new facilities in geographic areas with limited options. Passive recreation areas Public response in meetings, hearings, and surveys identified a need for passive or quiet recreation areas for hiking, wildlife watching, and similar activities. These areas typically can meet both recreational needs and open space needs, as described in the section on open space considerations. Public swimming pool the County does not have a public outdoor swimming pool that is accessible to the general population, and only limited access to indoor swimming pools. Such facilities can be expensive to construct and maintain, but would fill a need for which demand clearly exists. Regional parks Crow Wing County does not have the large Federal and State holdings that other northern Minnesota counties rely on to meet some regional recreational needs. The County has an abundance of lands that are managed for multiple uses, including both recreational uses and timber production. The County also has a number of state-designated wildlife management areas, and one State park. Neither of these, however, serve as regional park facilities. Regional facilities will generally address multiple uses, including open areas for ad hoc sports activities, picnicking, small amphitheater or community gathering areas, and perhaps associated with trail systems, hiking areas, interpretive sites of historic, cultural, or natural resource 71

78 interest such as environmental learning centers (as currently exist at the Northland Arboretum or the Paul Bunyan Learning Center). These areas can be larger than 40 acres, and opportunities may exist for creation of such facilities on or adjacent to tax-forfeit County-managed lands. Larger regional parks, encompassing hundreds of acres, could include a broader range of activities and purposes, including some motorized uses and natural infrastructure sites (see Open Space section for definition of natural infrastructure). Supporting facilities at other County facilities access to County facilities and recreational amenities can be limited by undeveloped or primitive facilities. Some public forum comments suggest that opportunities for improving access may exist at unimproved boat access, fishing access, and beach areas. Shore fishing facilities (fishing piers) could enhance access to recreational fishing waters that might otherwise require a boat. 5.3 Open Space Considerations The draft goals and policies for the Crow Wing County Parks, Trails, and Open Space plan note the importance of open space and natural areas in maintaining community character, natural systems, and providing for recreational amenities. One of the primary difficulties in an open space needs assessment is simply defining open space. Open space is a community-specific term that means one thing in the City of Minneapolis, and quite another thing in northern Minnesota. A number of communities across the nation have adopted land use policies that encourage protection of open space and define it within the context of their own perspective. Community perceptions of what constitutes open space can vary considerably within Crow Wing County, having distinct urban and rural definitions. In this diversity of opinion there is some basic agreement on what constitutes open space. First, open space is not development (buildings, parking lots, commercial or industrial facilities, streets and roads, etc.). Second, open space has some visual, natural resource, or recreational value that distinguishes it from adjacent spaces. Finally, open space can be either public land or private. The 2004 Crow Wing County Comprehensive Plan makes numerous references to open space, and defines open space on page 34 as including undeveloped land with forests, wetlands, grasslands, agricultural fields, and parks. The Plan goes on to state the value of open space: 72

79 Some actively use open space for hiking, wildlifewatching, and hunting. Others passively use it for the scenery and the sense of serenity it provides. Still others value it for its intrinsic qualities and wish to preserve it for future generations to enjoy. No matter the reason, open-space drives the character and the economic value of the County. The Brainerd Lakes Area Conservation Collaborative (BLACC), a coalition of 12 organizations and government agencies (including Crow Wing County agencies) working to protect and conserve ecologically significant terrestrial and aquatic habitats, defines open space in the following manner: Open space is a general, all-encompassing term to describe the following: green space, wetlands, woodlands, waterways, riparian corridors, wildlife habitat, critical environmental areas, public and private conservation lands (including nature preserves, conservation easements, green corridors, landscape linkages, wildlife corridors and wilderness areas), private working lands of conservation value (including forests, farms and agricultural greenbelts), scenic vistas, and other protected lands that include greenways, utility corridors, trails and parks. Under either of these definitions, Crow Wing County has an abundance of open space. How that open space is being managed, however, and whether the County s character is changing as open space is developed are different considerations. In evaluating open space needs, public comment and priorities clearly express concerns regarding the ongoing maintenance of existing open space as the County develops. Needs categories. The 2004 Comprehensive Plan, results from public meetings and surveys, and staff and PAC comments provide the basis for identifying needs categories associated with open space. 73

80 Table 25 Open Space Needs Primary Open Space Value Natural Visual/ Recreation Open Space Need Categories Infrastructure Character Conservation/hunting areas x x County public lands x x x High-quality or threatened native landscapes x Native species habitat x Nature park x x x Parks x Private agricultural fields x Private forests and grasslands x x Prominent viewsheds x Urban or suburban green space x x x Watersheds of sensitive/impacted waters x Wetlands x x Wilderness areas x x x The needs categories shown above include identification of the primary open space value. As noted above, the 2004 Comprehensive Plan identified distinct qualitative values associated with open space. To clarify the needs assessment for open space, three qualitative values of open space have been identified: Open space as natural infrastructure. Natural infrastructure is a term that refers to the proper functioning of natural systems to manage stormwater, sustain native animal and plant communities, sustain harvests of forest products, and protect soils, groundwater, and other natural amenities. Considering natural systems as infrastructure recognizes both that such system require periodic maintenance and investment similar to gray infrastructure (roads, wastewater systems, energy utilities, etc.), and that natural systems contribute to our quality of life similar to gray infrastructure. Open space as a recreational asset. Open space can serve a variety of passive or dispersed recreational activities such as hiking, bird and animal photography, orienteering, and berry gathering, as well as hunting and related activities that do not require infrastructure other than open space. Open space as visually defining community character. Great attention was given to maintaining Crow Wing County s rural or up-north character in public comments and discussion. Open space visually defines such character even if the viewer is merely passing by on road or trail, or looking out over a vista or landscape. 74

81 Existing and Proposed Open Space Areas and Initiatives The County has a variety of private and public open space areas. Public areas include two state forests, a state park, a number of state conservation areas, and the County s tax forfeit lands. The single biggest public land category is the tax forfeit lands, primarily managed by the County Land Department. The Crow Wing County Forest Management Plan (December, 2000) notes the following in regard to the County s public lands (p. 2-3): Unlike more northern Minnesota counties, Crow Wing County lacks any substantial non-county publicly owned land. Consequently, nearly all the economic, social, and ecological pressures generally applied to undeveloped forested public lands fall upon the County and its limited amount of tax-forfeited lands. Given the relative sparsity of other public lands in the county, this situation suggests that much of the unmet demands will have to be met through the use of private lands. As noted in this plan, the County will cooperate with private landowners, as individuals and groups, to coordinate land management to help achieve the objectives of this plan. The County has initiated some programmatic and regulatory efforts to ensure that private open space is protected or incorporated into development. Coalitions of organizations, such as the Brainerd Lakes Area Conservation Coalition, have formed to encourage programmatic efforts that meet open space goals on public and private lands. The use of natural vegetation as buffers in developed areas, watershed management of private land use impacts to protect water quality, public or non-profit acquisition of conservation easements on critical habitat or sensitive landscape, and connecting public and private open space areas throughout Crow Wing County are methods by which private lands are used to meet open space goals. The State of Minnesota is enhancing County open space through the acquisition of land and protection of viewsheds along the Mississippi River and in planning for the Cuyuna Lakes State Trail. The State is the second largest manager of public open space in the County, managing Crow Wing State Park, Crow Wing and Emily State Forests, Cuyuna Country State Recreation Area, and a variety of wildlife management areas. Existing areas and proposed initiatives were evaluated under the four needs criteria to determine unmet needs. 75

82 Demand Open space considerations were evaluated based on the record of public comment, survey responses, and staff and PAC comments. Open space and its related concepts of rural or up-north character are clearly a priority to County residents and visitors, as was the preservation or protection of natural infrastructure (natural systems, water quality, and native habitat). Geographic distribution and access Open space areas, including private lands, are geographically distributed across the County. Development is displacing private agricultural, grassland, and forest lands around the County s urban areas, creating urban- or suburban-oriented open space/green space needs. Open space needs in the rural portions of the County were evaluated based on access to public lands, whether lands had adequate access to allow dispersed recreation and use of specific amenities such as lakes. Potential natural infrastructure needs were evaluated based on the sensitivity of the landscape and the quality of the existing natural systems. Diversity of target user/activities As noted in the 2004 Comprehensive Plan, open space serves a variety of purposes and activities. Existing open space was considered based on the breadth of activities allowed and encouraged (including natural infrastructure functions), and whether the allowed activities were commensurate with the diversity envisioned in the Comprehensive Plan and Parks, Trails, and Open Space goals and policies. Carrying capacity Open space is frequently a tool to address carrying capacity issues for natural systems and for gray infrastructure in and around developed areas. The needs assessment considered the role of open space in protecting natural systems and mitigating the impacts of development and other land uses. Potential Unmet Open Space Needs Based on the above-noted criteria and qualitative assessment, the following potential needs were identified for further discussion and prioritization. County-managed lands The County s tax-forfeit lands are the most significant and most widespread public open space areas in the County. Recreation, natural infrastructure, and visual/character considerations are already explicit components 76

83 of the Crow Wing County Forest Management Plan (see Social Sustainability Objectives #5, #6, and #8; and Ecological Sustainability Objectives #1-#8). Implementation of these objectives is an on-going process that may require coordination of planning efforts between the Parks and Land departments. Implementation may also require coordination between the County and private land owners adjacent to public lands or within the same natural system or landscape boundaries. Corridors connecting open space areas corridors connecting open space areas greatly enhance the resource and frequently the recreational value of open spaces. The corridors must sometime run across local government boundaries, and the County may have opportunities to coordinate corridor planning. Natural infrastructure functions in developing areas - areas where development is occurring can be both risk and opportunity for natural systems in the area. Park dedication requirements can be used to enhance natural infrastructure as well as provide recreation. The County may have an opportunity to partner with local governments on planning for enhancing natural infrastructure in targeted areas. Viewshed protection selected viewsheds can be identified for protection along scenic drives or trails, particularly where public lands lie in the viewshed. Other Enhancement of Natural Infrastructure The County can coordinate with local governments to protect watersheds of heavily used waterbodies, sensitive environmental areas, and unusual features that enhance Crow Wing County s character. The County can use a variety of land protection tools to create or enhance natural park areas or interpretive areas in addition to enhancing the County s natural infrastructure. Such tools include the following: 1. Use of conservation easements or purchase-of-development-rights (PDR) programs; 2. Transfer of development rights (TDR) programs or ordinances; 3. Land exchanges, and; 4. Land acquisition. 77

84 6.0 STRATEGY PRIORITIES The strategy priorities in the Parks, Trails, and Open Space Plan should direct action by the County and its related entities, residents, land owners, and others. The priorities discuss not only what the County Parks Department can do, but what the Parks Department might do in conjunction with the Land Department, Planning and Zoning, the Soil and Water Conservation District, and other County agencies. Furthermore, the County needs to play a coordinating role with other units of government in the County, including cities, townships, and state and federal agencies. The following strategies are the beginning of the decisions that go into capital improvement planning, management priorities within the Park Department budget, coordination with the Land Department on Countymanaged land, ordinance language, educational efforts and programs, and incentive programs. The following priorities should thus not be considered the final word, but the start of the discussion. 6.1 Strategy Categories and Selection Criteria The Parks, Trails, and Open Space Plan goals and objectives are made more specific by identifying priorities for implementation strategies. The County has a wide variety of strategies at its disposal, and must decide how to choose the most effective and sustainable portfolio of strategies in order to achieve the Plan goals and objectives. In discussing strategy options, this section uses the four strategy categories below to provide an outline for setting priorities: Encouragement Educating or encouraging individuals or land owners to act consistently with the community s goals. Incentives Providing an inducement for individuals or land owners to act consistently with the community s goals. Regulation Requiring individuals or land owners to act in ways that are consistent with the community s goals. Public Ownership or Management Buying or keeping land or resources in public ownership to ensure management and use that is consistent with the community s goals. As described in these four strategy categories, Plan implementation can include the establishment of programs and educational efforts, the creation of incentive programs, changes to regulations and ordinances, and setting public acquisition or management priorities. In choosing among the variety of tools to implement goals, and in evaluating the sustainability of a particular strategy, the County will need to evaluate strategies based on a variety of criteria, including the following: 78

85 Selection Criteria Cost - the initial implementation and any ongoing maintenance or administration costs. The community must be willing and able to expend sufficient resources on its selected strategies. Political Will the willingness of political decision-makers to use a particular tool or strategy. A strategy may be effective, but is not sustainable if it requires large changes in the community s political culture. Market Characteristics the compatibility of the strategy with current market conditions and market forces. The market does not dictate the community s goals, but does influence the community s ability to achieve its goals. Strategy selection must acknowledge the direction of the market forces. Permanency the length of time for which the strategy is effective. Regulation can, for instance, be changed. An incentive program for using conservation easements or to meet design standards will, however, be more permanent. Importance of Policy the level of societal benefit to be achieved in meeting the policy or goal. Different policies or goals carry different levels of priority to the community. Thus, higher priority needs will be more likely to use higher cost or more complex strategies, while lower priority items will rely more on education, market-driven incentives or investment, and non-controversial regulation Implementation Partners As noted above, the potential strategies described in this section include actions that are taken by the Parks Department, other County agencies or departments, other units of government, non-profit entities, and the private sector. The relationship of the County to other governmental entities is particularly important in park planning given the many entities engaged in park planning. The relative roles of different governmental entities in park, trail and open space planning is described below: Coordinating Role of the County - The County s parks, recreation, and open space role is to acquire, develop and maintain parks and to administer public recreation programs that will serve the needs of communities larger than the local neighborhood, but smaller than statewide or national communities. The County provides park and open space areas and trail systems to accommodate active and passive recreational pursuits for both current and future residents. In addition, the County coordinates the actions of government units with 79

86 80 citizens and special interest groups to provide a collaborative, county-wide recreation system. The recreation system must be coordinated and responsibility delineated between the County, cities, townships, the State and Federal levels of government, as well as the private sector. Cities Cities typically have the prime responsibility for providing active recreation areas, parks and open space within their boundaries. Townships A number of Crow Wing County s townships have their own land use policies and/or zoning ordinances. The townships also fill the role of providing local park and recreation facilities. Township involvement may afford opportunities for cooperative recreation planning and implementation within growing communities. State Government Crow Wing County supports the continuation of existing state programs aimed at providing public water access, grant-in-aid-trails, rail-to-trail corridors, canoe and boating routes, wildlife management areas, and bikeways, and motorized recreation planning. Federal Government While the County has little or no control over federal activities, the goal of the U.S. Fish and Wildlife Service to acquire and provide waterfowl production areas are endorsed by the County. Additionally, the County supports coordination of the natural, historic, economic, scenic, recreational and cultural value of the Mississippi River Corridor. The Camp Ripley program to purchase development rights from landowners around the Camp (to keep incompatible land uses such as new housing from being developed near to the National Guard training facility) can also serve to meet natural infrastructure protection goals. In addition to governmental entities, the County should work with a variety of non-governmental organizations and the private sector. Non-governmental Organizations A wide variety of formal and ad hoc organizations play a role in park, trail, and open space initiatives in the County. Collaboration will greatly enhance programmatic efforts and provide opportunities to use County resources to leverage other resources. The Brainerd Lakes Areas Conservation Coalition (BLACC) that provided much of the natural resources prioritization for this report is an example of such a collaborative effort. Other kinds of organizations that need to be brought into collaborative efforts include:

87 ü Recreation-focused clubs (snowmobile and ATV clubs, hunting and fishing clubs, local trail groups), ü Open space and natural area advocacy organizations (1000 Friends of Minnesota, Trust of Public Land, Nature Conservancy, Izaak Walton League); ü Community-oriented foundations and organizations ü Economic development and business organizations Private The private sector is encouraged to become a partner with the public sector in supplying recreation facilities and open space to achieve the economic benefits and efficiencies a coordinated recreation system can provide. 6.3 Implementation Process Finally, the strategies must be selected in the context of specific projects that reflect locations, access, capacity, and cost. These decisions should be made in explicit recognition of the Parks, Trails, and Open Space goals and policies. A sample decisional flow chart is noted below: 81

88 6.4 Funding Sources Crow Wing County has a number of funding alternatives for making improvements to or acquisitions of parks, trails and natural areas. Below is a list of potential funding sources that can be utilized for various types of improvements. Other sources are available, but the general categories and examples provided below can inform the decision-making process. County funding City funding Grants - State Private sources (donations or easements) Federal Funding Legislative Commission on Natural Resources Other Options Each of these funding sources or has a unique set of requirements and criteria that must be met to receive funding; in some cases this includes successfully competing for limited funding. There are also rules that govern how the money can be used. Below is a more detailed description of the funding sources, how to receive the funds and how the funds can be used. County Funding Park Dedication Ordinance Park dedication via the development or subdivision process could be an important tool for implementing Crow Wing County s Parks, Trails and Open Space Plan. Park dedication land or funds at the time that new lots are being subdivided or new homes being built enables the County to acquire resources to provide for the park system described in this Plan. Funds received from payments in lieu of dedication should be used to acquire park sites, trail corridor and greenway components. A park dedication ordinance would set the parameters for receiving land, collecting cash payment in lieu of land and using these resources. Bonds and Initiatives Locally applied bond issues or land use control propositions can be used to further the goals of trails and park land development. These instruments may take the form of ballot measures that are drafted by agencies and/or citizenry, or alternatively as bond acts drafted by state legislators for passage in the Minnesota Legislature. 82

89 Their purposes include financing acquisition, designating specific land areas for conservation, or setting basic land use policies. The success of any local bond measure depends on active local backing. In addition, if it requires levying additional property taxes, voters must approve it by a two-thirds majority. Park or Trail Fees The County could consider the establishment of fees in order to finance the acquisition, construction and maintenance of the trail system. The monies collected from this tax must be placed in a special fund, and can only be used to defray the reasonable expense of collecting such tax and for the maintenance, acquisition and construction of trails for equestrians and bicyclists. These funds may be used as local matching monies for any federal or state grants for such purposes or for matching funds in the acquisition and development of a federal or state trails project. County Highway Capital Improvement Funds Trails added along county roads during construction or reconstruction can be funded through this source. Crow Wing County funding is provided to maintain and construct the county road system. These funds are used for roadways not on the CSAH system and some improvements made to County State Aid Highways. City Funding Cities have many of the same funding options available to the County. A number of Crow Wing County cities have, furthermore, already implemented park dedication ordinances. These funding sources can support joint initiatives or portions of trail or park investments that lie within existing city boundaries or within a city s expansion area. State Grants Grants are available to help defray the costs of building or rejuvenating parks and open space. The following table identifies examples of grants and similar funding sources that may be applicable to specific types of initiatives. The Department of Natural Resources has an entire book on funding call the DNR Financial Assistance Directory. A copy can be found at: Some examples of the funding provided by the Mn/DNR are listed below: 83

90 Title State Fund Description General Recreation Outdoor Recreation Grant Makes funds available to increase and enhance outdoor recreation facilities. Provides matching grants to local governments for up to 50% of the cost of acquisition or development/redevelopment of local parks and recreation areas. Eligible projects Park acquisition and/or development/redevelopment including, internal park trails, picnic shelters, playgrounds, athletic facilities, boat accesses, fishing piers, swimming beaches and campgrounds. Contact the Grants Manager with questions about other eligible facilities. Regional Parks Grant Makes funds available to increase and enhance regional outdoor recreation facilities in areas outside the seven county metropolitan area. Provides matching grants to public regional park organizations outside the seven county metropolitan area for up to 60% of the acquisition or development costs. Eligible projects Park acquisition and/or development/redevelopment of regional park facilities including, internal park trails, picnic shelters, playgrounds, boat accesses, fishing piers, swimming beaches and campgrounds. Contact the Grants Manager with questions about other eligible facilities. Project proposals must have a total project cost of at least $40,000. State Park Road Account Provides financial assistance to upgrade county, township, and city roads that provide access to public lakes, rivers, state parks, or state campgrounds. Eligible Projects The establishment, construction, reconstruction, repair, and improvement of county state aid, county, township, and city roads that provide access to a public lake, river, state park or state campground. Fishing Pier Grant To improve fishing opportunities, especially to meet the needs of children, the elderly, and people with disabilities. 84 Eligible projects Development, installation, or improvement of fishing piers, shore fishing sites or shore fishing platforms. Local units of government provide public land, accessible sidewalk/path, accessible parking space and on-going maintenance.

91 Federal Recreation Trail Program federal.html To encourage the maintenance and development of motorized, non-motorized, and diversified trails by providing funding assistance. Eligible projects Motorized and non-motorized trail projects; maintenance/resotration of exidting recreational trails; development/rehabilitation of recreational trail linkages including trail side and trail head facilities; environmental awareness and safety education programs relating to the use of recreational trails; and redesign/ relocation of trails to benefit/minimize the impact to the natural environment. Private funding Parks Foundation Crow Wing County could establish a legally separate foundation (Crow Wing County Parks Foundation, e.g.) or a Friends of the Parks organization that would be eligible to receive donations as a trust entity. The foundation could accept general donations on an ongoing basis, or receive endowments for specific park features that were designated in the County s master plan in exchange for naming privileges. The County could then also apply to the foundation for money for projects as needs arose. Private Foundations and Organizations Crow Wing County can partner with a number of non-government, non-profit organizations that can provide funding, fund-raising, gapfinancing, technical assistance, and other forms of assistance for parks, trails, and open space. Each of these organizations has specific goals and criteria for providing funding or technical assistance, and most are focused on open space, natural area, and habitat protection. All of the following entities have participated in Crow Wing County open space projects or planning efforts: o Initiative Foundation o McKnight Foundation o Bush Foundation o The Nature Conservancy o The Minnesota Land Trust o The Trust of Public Land o 1000 Friends of Minnesota o Conservation and Outdoor Recreation Organizations Examples include Pheasants Forever, Duck Unlimited, Trout Unlimited, Izaak Walton League, Audubon, Minnesota Deer Hunters Association. 85

92 Federal Funding A number of federal government agencies have funding for open space, recreation, or trail projects that meet agency goals and are competitive with other projects in similar categories and have some form of local or private matching funds. Community-Based Programs The U.S. Environmental Protection Agency, for instance, lists a wide variety of funding from many different agencies for community based efforts to improve the environment, create open space, or restore habitat: (for a complete list of these EPA programs go to http: // Surface Transportation Program (STP) STP funding is available for roadway construction and reconstruction, capacity projects, safety projects, bikeway or walkway components of projects, transit projects, park and ride facilities and traffic management projects. Congestion Mitigation and Air Quality Improvement Program (CMAQ) CMAQ provides flexible funding to state and local governments for transportation projects and programs to help meet the requirements on the Clean Air Act of In general, eligible projects provide some type of reduction in toxic emissions. These include alternative fuel vehicle purchases, traffic flow improvements, transit projects, rideshare activities, and telecommuting. CMAQ funding can be used in various fashions to defer the costs of implementation these strategies. Transportation Enhancement Program (TE) (-TEA-21 Transportation Enhancement Activities Program (TEA; SANDAG) Transportation Enhancements are transportation-related activities designed to strengthen the cultural, aesthetic and environmental aspects of the nation s inter-modal transportation system. The types of projects that are eligible for funding under this category include bicycle and pedestrian facilities, scenic beautification, historic preservation, environmental mitigation and transportation museums. Transportation enhancement funding is the largest potential funding source for trail projects throughout the Country. LGEAN The Local Government Environmental Assistance Network has a website that has a section devoted entirely to funding. Go to: 86

93 Legislative Commission on Minnesota Resources The Minnesota Habitat Corridors Partnership is an example of an LCMR project that has provided funds to acquire or restore wildlife habitat and protect shoreland areas. Other Fund Raising Special Events The County, with the assistance of park and trail advocacy groups like the Paul Bunyan Scenic Byways or Cuyuna Lakes Trails Association or snowmobile or ATV or cross country ski groups, could sponsor a special event such as a trail ride or walk-a-thon. This could take place along a portion of trail that has safe passage, but is in need of improvement or along completed segments adjacent to segments that need acquisition or development. Local merchants who derive business from the equestrian community (tack and feed) or bicycle stores could also help sponsor this event. Events of this kind help to generate revenues as well as building support for the further development and continued maintenance of the park and trail system. 6.5 Strategy Priorities The following list of strategy priorities was developed based on the PAC discussions, from suggestions at public meetings and surveys, and from suggestions by County staff. The PAC provided a relative priority to specific needs that had come out of the needs assessment within each focus area. Example strategies that reflected the priorities were assigned to each need. The result of this prioritization is presented below by focus area. 87

94 Park Facilities (other than trails) Park Facility Need Priority Strategies Develop Regional Park - Designate one or more areas to serve as multi-use regional parks, invest in appropriate facilities 1 Public acquisition and management Identify existing tax-forfeit lands that meet geographic and carrying capacity policies, conduct master planning process for a regional multiuse park and make public investments. Consider land exchanges to improve access or geographic location qualities. Encouragement - Work with townships and cities to co-fund a regional park. Develop New Skateboard Park - Locate a new skateboard park in a County facility or partner to create a new facility. 1 Public acquisition and management - Invest in a new skateboard park at an existing County park with adequate access and location, or at a new regional park. Incentives - Offer to co-fund a new park at an appropriate City or local park, including development of appropriate access/parking needs. Develop Swimming Beaches - Invest in currently unimproved beaches and work to acquire or partner on acquiring new sites 1 Public acquisition and management Invest in existing unimproved beach sites and potential beach development sites that are on existing County lands that meet access and geographic distribution criteria. Consider land swaps in strategic areas that allow the County to acquire strategic beach sites that meet locational and access policies. Regulation - require lakeshore development to provide for public beach access or contribute to a beach development fund. Designate Passive Rec Areas - Identify quiet recreation areas and provide supporting facilities - trails, camping, parking 1 Public acquisition and management Working with the Land Department, designate high-quality habitat areas on County land as passive recreation areas. Invest in parking and camping facilities consistent with carrying capacity and access policies. Encouragement Work with State agencies to designate passive recreation areas adjacent to County lands. Create maps and brochures to promote appropriate use of the sites. 88

95 Regional Motorized Park - Challenge areas with camping, trails and other facilities 1 Public acquisition and management - Identify appropriate site, consistent with access and carrying capacity policies, on County land and invest in facilities (parking, camping, challenge area improvements) and management programs. Complete a master planning regional park process. Regulation Create motorized park area maintenance standards and fund programs Limit ATV ditch riding on some road to encourage use of the park facility Incentive - consider partnering with surrounding counties, ATV/OHV clubs, on facility and management development and funding. Encouragement - Promote this type of facility combined with an existing or proposed OHV trail system Improve Existing Facilities - Parking, shelters, restrooms, picnic areas, fishing piers 1 Public acquisition and management Inventory use of existing parks and prioritize public investment in supporting facilities. Identify geographic locations for fishing piers consistent with access and carrying capacity policies, consider land swaps and or financial partnering with local governments, state agencies. Regulation - consider requiring fishing pier public access or financial contributions for lakeshore subdivision or development. Improve Boat Accesses - 1. Ensure geographic distribution. 2. Invest in supporting facilities 1 Public management - Identify and prioritize geographic gaps in public accesses, and identify facilities under-served with supporting facilities. Invest in new facilities. Incentives - Co-fund new access points with local government and state agencies. Regulation - Consider requiring public access points and parking for shoreland PUDs or major subdivisions. 89

96 Public Swimming Pool - Create, or partner to develop, an outdoor swimming pool 2 Incentives Partner with local governments to develop a regional outdoor swimming facility. Partner with a private water park development to offer public pool amenities or discounted rates to residents. Cultural/Historical Interpretive Sites - conduct cultural inventory and prioritize needs for interpretive facilities and protection 2 Public management - Conduct a cultural inventory, identify priority sites for public investment or acquisition, develop interpretive programs. Incentives - Provide incentives to owners of land with priority historical/ cultural sites to accept historical designation and protection. Encouragement - Create educational materials on sites to promote their value and better imbue the sites with community value. Develop Campgrounds - Create public campgrounds for RVs, tents, campers 2 Public management - Identify potential sites for development of camping facilities on County-managed land. Incentives - consider partnering with private recreation developers to build and manage camping facilities on County land. Neighborhood Parks - Create, or partner to create, neighborhood parks and playgrounds around the County 3 Encouragement Work with local governments and service association partners to create new neighborhood parks in developing areas. Support local park dedication efforts that allow development of neighborhood parks and trail systems. Develop Golf Facilities - Target beginning golf facilities for development 3 Encouragement - work with private recreation providers or local governments to guide investment or programs to meet a broad range of the golf market, from beginners to advanced players. 90

97 Trails and Related Facilities Trail & Related Facilities Needs Priority Strategies ATV Trails - Expand ATV trail system, create links between existing trails 1 Public Management Collaborate with the Land Department to identify potential corridors that may satisfy user needs (e.g. access to users, ability to ride for longer distances, loop trails) and discuss the feasibility of those areas being available for OHV /ATV use Develop clear goals and deadlines for the ATV/ROW committee to follow in making recommendations on county road and ditch use Regulation Coordinate with the State during the DNR s Road and Trail Designation and Forest Classification process and formally designate trails consistent with DNR Set noise regulation levels when locating OHV trails and proximity to residential areas Establish BMPs Encouragement Prepare a consistent sign program that makes it clear to users which trails are open and which trails are closed to motorized traffic. Develop maps indicating locations of motorized/non-motorized trail systems. Cooperate with adjacent counties and rider clubs to create a comprehensive network of trails. Partner with the private sector Hiking/Solitude Areas - Create set-aside nonmotorized hiking trail systems with more remote solitude areas 1 Public Management Follow up on the recommendations in the CW Forest Management plan to include non-motorized recreational use opportunities (p. 74-5) and in the Management Unit Narratives (p ). Use the BLACC findings to site hiking/solitude systems in Potential Priority Conservation Areas Initiate a master planning process for selecting a large acreage site that will be designated for non-motorized activity that may include amenities such as a beach, picnic facilities.. Paved bike extensions - create new trails or trail extensions 1 Regulation Consider requiring trail dedication in new subdivisions, particularly in areas with existing or proposed regional trails Encouragement Actively support the DNR in their efforts to extend the Paul Bunyan State Trail to Crow Wing State Park and beyond Actively support the DNR in their efforts to develop the Cuyuna Lakes State Trail between Brainerd and Aitkin (through the Cuyuna Country State Recreation Area) 91

98 Snowmobile Trails - 1. Acquire permanent ownership. 2. Connect existing trail systems 1 Encouragement Continue to support and sponsor local snowmobile clubs in the GIA process Support the efforts of local advocate groups such as Friends of the Cuyuna Lakes Trail in their efforts to secure funding for state trail development With other counties and cities, identify problem areas for access and connectivity, prioritize them for resolution Public Acquisition and Management - Initiate development of a process to transform temporary easements into permanent trail easements/ownership or long-term leases. Cross Country Skiing - 1. New dedicated trail systems. 2. Expanded facilities on existing trail areas 1 Public Management Identify new sites and existing roads and trails on County land meeting geographic distribution objectives. Develop a process for prioritizing these sites and determining total mileage (kilometers) necessary Encouragement - Promote partnerships between the County and adjacent land owners (public and private) to expand opportunities Road Bicycle Routes 1. Resolve shared facility liabilities. 2. Designate bicycle routes on roads 1.5 Encouragement Actively support the Paul Bunyan Scenic Byway in their efforts to expand the Byway shoulder area for bike traffic Form collaborations with cities to become aware of their efforts and how the agencies can work together to create bikeway networks Regulation- Review State Statute Subd. 72. Bikeway. Bikeway means a bicycle land, bicycle path, or bicycle route, regardless of whether it is designed for the exclusive use of bicycles or is to be shared with other transportation modes. Public Management Identify roadways that are favorable to bicycle riding (considerations: AADT (Annual Average Daily Traffic), motor vehicle speed, traffic mix, and existing shoulder design). Develop a program of bikeway improvements planned in conjunction with other programmed roadway improvements. These improvements should be identified in the County highway system plan 92

99 Motorcycles - Create trails or challenge areas Mountain Bike Trails - Create dedicated off-road bike area/ trails 1.5 Public Acquisition and Management - Evaluate up to two sites on public or private land for use by motorcycles 2 Public Management Review existing non-motorized trail facilities for use as mountain bike trail Evaluate level of mountain biking demand/use and determine if a trail with a combination of mountain biking/ horse-back-riding / hiking would be appropriate. Coordinate multiple use trail system with Cuyuna Range cities and Cuyuna Country State Recreation Area. Enhance Water Trails - Improve parking, access, and camping facilities 2 Encouragement Work with DNR and other partners to identify rivers in addition to the Mississippi and the Pine that may be feasible for recreational water trails. Promote existing facilities and determine what additional features would enhance the user s experience and accommodate additional users. Public Acquisition and Management - Create designated river-access only camping and day use areas along the Mississippi River in the area north of Cuyuna Country State Recreation Area. New Equestrian Trails - Create new trail areas with supporting facilities (parking, trail head) 2 Encouragement - Consider geographic distribution of future horse back riding trails Public Acquisition and Management Identify county lands that have the accessibility and area required by users (for parking, etc.) Consider additional amenities for County visitors who need camping or overnight amenities for themselves and their horses Coordinate multiple use trail system with Cuyuna Range cities and Cuyuna Country State Recreation Area. Consider expanding the Wolf Lake Trail system to the north to provide additional recreational opportunities and create an access from Highway 210. Motorized Challenge Areas - ATV, OHV, 4x4 parks or challenge areas 2 See regional motorized park need under Park Facilities (other than trails). 93

100 Dog Sledding - Designate trails 3 Encouragement- Study specific needs and user demand, and compatibility with other types of recreation Public Management- Identify existing trails which could be designated by signs, notices, and maps as available to dog sleds Inline Skating Create trails similar to paved surface biking Encouragement- Actively support the DNR in their efforts to develop the Cuyuna Lakes State Trail between Brainerd and Aitkin (through the Cuyuna Country State Recreation Area) Regulation Consider requiring trail dedication in new subdivisions, particularly in areas with existing or proposed regional trails 94

101 Open Space Needs Open Space Needs Priority Strategies Protect sensitive natural systems in areas undergoing housing or commercial development. 1 Encouragement Educate private landowners on their role in managing water quality, limiting nutrients, fostering native planting. Promote use of conservation easements, deed restrictions, management agreements, cluster development, and other tools for protecting natural systems on private land Incentives Purchase conservation easements (TDR program) from willing sellers to protect sensitive areas or watersheds Create TDR programs with sending areas based on natural resource value. Density bonus for preservation of open space Regulation - Require buffers to natural areas or creation of linear greenway connections in subdivision ordinance. Protect/Enhance Views - Target open space viewsheds on highways and trails for protection 1 Encouragement - Identify priority viewsheds and the public and private lands encompassed by the viewshed, and promote the importance of retaining the character of these areas. Regulation - Create viewshed overlay districts that limit heights and appearance of buildings and set standards for clearing of land. Public acquisition and management - Set viewshed protection standards on County lands, acquire viewshed easements to limit clearing and building construction on private lands. Protect/Enhance Natural Infrastructure. (Watersheds for lakes, unusual natural features, rare species habitat) 1 Encouragement - Work with local governments, state agencies, and private landowners to identify and manage natural infrastructure. Incentives - Offer co-funding or tax benefits for restoration of buffering vegetation or natural features on private land. Regulation - Create overlay districts that set performance standards for priority natural infrastructure on private land. Public acquisition and management Identify critical natural infrastructure on public and private land. Set appropriate management standards for public lands, and conduct land swaps for critical private land or swap land for conservation easements. 95

102 Create Corridors - Connect open spaces with corridors 1 Encouragement - Work with local governments, state agencies, and nonprofit organizations to identify priority corridors and protection strategies. Incentives - Create TDR programs targeted at corridor priorities. Regulation - Create overlay districts along priority corridors. Public acquisition and management - Protect corridors that run through County land, and acquire or use land swaps to extend corridors through adjacent private lands. Recognize forest as a resource and it s influence on open space objectives 1 Encouragement - Promote the value of forested land as community character to private landowners, and for adoption of specific forest management standards or third party management certification. Incentive - offer tax incentives for getting third party certification of private forest land. Regulation - Create working forest zoning classification that sets management standards consistent with County Land Department or other standards. Public management - Promote the County s forest management priorities as promoting open space and historic community character. County-Managed Lands - Implement Open Space objectives of Forest Plan 1 Public management Review open space objectives and identify progress against objectives. Create indicators to measure successful implementation. 96

103 7.0 IMPLEMENTATION 7.1 Introduction The Crow Wing County Board approved the Crow Wing County Parks, Trails, and Open Space Plan on November 8, The Plan provides specific policy and priority guidance for the County in: planning, managing, and investing in park and trail systems, coordinating with other entities that own or manage parks or trails, and enhancing or protecting the County s open space network. While the Plan identifies priority needs and preferred strategies, it does not identify specific implementation tasks. In order to address implementation questions, the County commissioned a separate implementation document to supplement the Parks, Trails, and Open Space Plan. The implementation plan includes the following elements: 1. A conceptual implementation plan map showing the generalized locations of park, trail, and open space search areas and opportunities for cooperative projects with state agencies and local units of government. 2. A project evaluation process, in the form of a decision tree model, that assists the Parks Advisory Committee (PAC) and County staff in matching park, trail, and open space priorities with appropriate locations and meaningful investment opportunities within the County. 3. A time line containing park, trail, and open space project targets. The time line shows how some priority projects should proceed a) within three years, b) within five years, and c) within ten years. 4. Examples of pro forma facility or project costs for specific types of park or trail facilities or open space initiatives. 5. Case study models for how park, trail, and open space projects are assembled and managed in the frequently complex process of land acquisition, acquiring funding, developing stakeholder buy-in, and arranging for sustainable management of facilities and open space areas. Each case study includes a project description and a flow chart that identifies the inter-relationship of stakeholders, decision-makers, and funders. The Parks, Trails, and Open Space Plan includes a number of goal and objective statements, in addition to priority types of projects that respond to the Plan s needs analysis. The Plan s language and priorities are frequently not specific in regard to potential locations or applications. 97

104 7.2 Implementation Map Where the Plan is specific regarding potential locations of projects the locations are not identified in the priorities section. The implementation map on the following page thus portrays examples of the geographic implementation priorities of the Parks, Trails, and Open Space Plan goals, objectives, and priorities. The implementation map is conceptual rather than directive; the geographic locations identified on the map are representative of how the goals and objectives are likely to affect the County s landscape, but do not represent commitments to particular locations or projects. For example, the Plan identifies, in section 6.5 (Strategy Priorities), both high priority needs and suggested strategies. One such need is to Develop Regional Park - Designate one or more areas to serve as multiuse regional parks. The Plan identifies several preferred strategies for meeting this need, including: Identify existing tax-forfeit lands that meet geographic and carrying capacity policies, conduct master planning process for a regional multi-use park and make public investments, and; Work with other units of government and private funders to cofund a regional park. The implementation map shows some potential locations or search areas for a regional park that demonstrate the preferred strategies for meeting this need. The search areas identified on the implementation map include areas with tax forfeit lands and areas where co-funding or co-management with local governments might be feasible. The identified areas are illustrative only, intended to identify how the Plan recommendation could be implemented rather than specific recommendations for parks on those sites. 98

105 Figure 13 99

106 7.3 Project Evaluation Model The Crow Wing County Parks, Trails, and Open Space Plan sets out six general goals for investing in and managing the County s recreational and open space systems. 1. Meet Resident and Visitor Demand for Parks, Trails, and Open Space Facilities and Areas 2. Respect Natural Systems and Carrying Capacity of the County s Resources 3. Recognize Community Diversity and Practice Community-oriented Planning 4. Ensure Park Program and Facility Efficiency 5. Respect Public Process and Decision-making Procedures 6. Practice Responsible Financial management The Plan describes these goals and identifies a number of policies through which the goals should be met. Applying the policies to the decision-making process is, however, still an uncertain process requiring both fact-based and value-based decisions. In particular, the process by which the County prioritizes investment in new or existing facilities or land should be consistent with the Plan s goals and policies. Purpose and Use To enable the decision-making process to incorporate the Plan s goals and policies, the County has created a decision-tree model. The model will help decision-makers, advisory bodies, and County staff more clearly identify which projects meet the Plan s goals and policies, which projects have potential drawbacks or informational gaps that hinder the decision-making process, and which projects have serious inconsistencies with the County s Parks, Trails, and Open Space Plan. The decision-tree model is a planning tool, not a substitute for analysis or debate. The model is instead intended to compartmentalize the debates so that decisions can be made in a structured manner. Users must also understand that the model is not comprehensive; a number of issues and decisions will need to be resolved outside the model s organization. 100

107 Decision Tree Structure The model has three components that reflect different elements of the six Parks, Trails, and Open Space goals: 1. Responding to Identified Need 2. Location Suitability 3. Financial Management Each of these components encompass a separate flow chart. The flow chart focuses on questions that ask whether the proposed project meets specific Plan policies. Beneath each question are color coded examples of answers to the question that indicate whether the project: Passes on to the next question, Passes on to the next question with cautions attached Does not pass on to the next question Within each component, projects that pass through to the end of the flow chart are then moved to the next component, with a high priority project moving from Responding to Identified Need, through Location Suitability, and then through Financial Management. The final step is for projects to become part of a public process to create support for the park, trail, or open space priority. 101

108 102 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN

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110 104 CROW WING COUNTY PARKS, TRAILS AND OPEN SPACE PLAN