PARKS AND OPEN SPACE MASTER PLAN

AUGUST 2017

PARKS AND OPEN SPACE MASTER PLAN

EXECUTIVE SUMMARY

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The Parks and Open Space Master Plan establishes goals, objectives, recommendations and implementation strategies for the planning and development of new parks, recreation facilities/programs, trails, and open space in the city of Thornton. The Master Plan

�� serves as a detailed supplement to the Thornton Comprehensive Plan,

�� responds to the goals and policies related to parks, recreation, trails and open space stated in the plan. The Plan, and

�� serves as a guide for continued improvements and expansion resulting in a safe, high quality, citywide system of parks, recreation facilities/programs, trails and open space that will meet the needs of Thornton citizens now and in the future.

In the spring of 1998, the Thornton City Council formed the Parks and Open Space Advisory Commission (POSAC) in response to the passage of a November 1997 ballot initiative allowing for a .25% sales and use tax increase. The proceeds of this tax increase are divided into thirds; one third for parks, one third for open space and one third to be determined by city council based on recommendations of an open space and parks advisory commission appointed by the city council. POSAC worked diligently to develop a vision, goals and objectives for the city’s parks, trails and open space system, to identify and evaluate parks, trails and open space opportunities, and to develop recommendations on park, trail and open space acquisition and development.

In November, 2000, Thornton voters also approved a $22.4 million bond issue, to finance the costs of acquiring 116 acres of open space, 5.5 miles of trails, and 53 acres of parkland. The bond issue also provided for development of various facilities, including the Gravel Lakes Fishing Facility, Thornton Sports Complex, Croke Lake Park north of Thornton Civic Center, and other projects.

In November, 2013, Thornton voters approved the extension of the existing .25% sales and use tax for open space and parks purposes from its current termination date of December 31, 2018 to December 31, 2038. Voters also approved allocation of no more than 20% of the total annual revenues from the tax to be spent on or reserved for maintenance costs.

The vision established by the Parks and Open Space Master Plan is one in which parks, recreation facilities and open space are linked by a citywide trail system to form a “string of pearls.” The “pearls” include opportunities for both active and passive forms of recreation. The plan gives considerable attention to protecting and utilizing the city’s environmental and historical assets as part of the parks and open space system, including existing wildlife habitat, vegetation, historical buildings, the South Platte River, Niver Creek and Big Dry Creek and their tributaries, and existing irrigation ditches and reservoirs that were built when the Thornton area was a farming community.

In order to implement this “string of pearls” concept, the Parks and Open Space Master Plan includes the following goals and objectives for developing the system:

Goal 1: Plan and develop an interconnected citywide system of parks, recreation facilities, trails, parkways, boulevards, and open space that provides for a diversity of recreational opportunities within the com-munity. The park and open space system, where appropriate, should be integrated with other commu-nity facilities, including schools.

CITY OF THORNTON PARKS & OPEN SPACE MASTER PLAN

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Goal 2: Distribute park, recreation and open space resources, to the extent possible, on an equitable basis.

Goal 3: Develop the parks and open space system as a major component of Thornton’s community image and identity, and promote an overall design theme that is unified, consistent and committed to quality.

Goal 4: Recognize the recreational needs of all Thornton’s citizens in providing parks, recreation facilities, and recreation programs in the community.

Goal 5: As the city of Thornton grows, apply a consistent, fair, and rigorous set of park planning and design standards to all development. These standards shall cover pocket parks, neighborhood parks, commu-nity parks and trails.

Goal 6: Develop parks and recreation facilities to preserve and emphasize significant features of the city of Thornton’s natural environment.

Goal 7: Recognize and respond to passive, as well as active, recreational needs in the design of the park and recreation system.

Goal 8: Create and connect recreational opportunities through a well connected trail system.

Goal 9: Provide long open space trail corridors.

Goal 10: Provide trail connection to other modes of transportation.

Goal 11: Incorporate “Complete Street” projects into the trails network.

Goal 12: Promote the city of Thornton’s unique environmental, cultural, and historical resources.

Goal 13: Support a variety of trail users.

Goal 14: Raise awareness and educate trail users.

Goal 15: Preserve the city of Thornton’s unique environmental and visual resources in a natural condition.

Goal 16: Provide recreation opportunities in natural areas for the enjoyment residents and visitors in Thornton.

Goal 17: Open space acquisition, either by purchase or land dedication, shall contain resources that warrant protection.

Goal 18: Protect/preserve open space in the most cost-effective manner possible.

Goal 19: Use open space lands in a manner that allows for reasonable use by the public while protecting envi-ronmental resources.

Goal 20: Incorporate lands that have development or geologic constraints as part of the city’s open space sys-tem, if appropriate, and in the interest of public health, safety, and welfare.

Goal 21: Coordinate and cooperate with surrounding jurisdictions so that the open space system is allowed to follow natural systems across jurisdictional boundaries.

Goal 22: Preserve historical and cultural sites in their traditional condition for the benefit of future generations.

Goal 23: Prepare and regularly update the Parks and Open Space Master Plan to guide the development of the parks, trails, open space system, and recreation for the city of Thornton.

Goal 24: Provide for the funding of the proposed parks, recreation, trails and open space system by using a variety of funding sources.

Goal 25: Acquire and preserve park and/or open space lands using available mechanisms.

Goal 26: Assure that the park and open space system is realistic and affordable, and that the costs required for long term, quality management and maintenance are recognized.

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Goal 27: Assure that parks, open space, recreation, and trails are managed and maintained in an environmen-tally responsible and cost-effective manner that preserves the underlying resources while being atten-tive to public enjoyment and safety concerns.

This fifth update to the Parks and Open Space Master Plan (preceding plans were approved in 2000, 2004, 2009 and 2012) retains the over-arching vision, goals, and policies summarized above, but also responds to changes that have taken place or issues that have emerged since the original plan was drafted. Among these are population growth and demographics, ward redistricting, the distribution of facilities throughout the city, public sentiment regarding completion of major trail corridors, suggestions for specialized facilities, public safety on open lands and the unique challenges associated with installing vehicular and pedestrian lighting at parks, trailheads and along trails adjacent to both residential development and open space.

This plan update presents an assessment of needs and specific plan proposals for parks, trails, and open space, with an emphasis on short-term actions that can be implemented within the next five years. The plan update also describes actions that may be undertaken over a longer term planning horizon, although these actions are developed with much less specificity. The plan update has again benefited from the active participation of city staff from a variety of departments, POSAC, and city of Thornton residents.

Recommendations carried forward from prior Parks and Open Space Master Plans include:

�� Review annually the action plan for connecting existing trail segments into continuous routes and incorporate plan proposals into the capital budget.

�� Continue to require dedication of trail easements in all developments affected by the trail system shown in the Parks and Open Space Master Plan Map (Exhibit 4.1).

�� In park-deficient areas of the city, identify specific park development opportunities with other partners. Continue to explore the opportunities for joint development with landowners.

�� Continue to implement specific maintenance and management guidelines to achieve effective stewardship of the city’s open lands. Provide staffing necessary to carry out responsibilities relative to these guidelines.

The Master Plan also addresses recreation programming and facilities, the use of parkways and boulevards to create linkages between parks and open spaces, and the value of the parks, open space and trails system for enhancing community identity and quality of life for Thornton citizens.

Thornton Youth Programming Cherrywood Park

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ACKNOWLEDGEMENTS

THORNTON CITY COUNCIL

Heidi Williams, Mayor

THORNTON PARKS AND OPEN SPACE ADVISORY COMMISSION

CITY MANAGER

Jack Ethredge

THORNTON STAFF TEAMMike Soderberg, Executive Director for Community ServicesDiane Van Fossen, Capital Projects and Planning Manager

Paula Schulte, Parks & Open Space Project ManagerPaul Burkholder, Parks and Golf Manager

Jan Kiehl, Recreation ManagerBonnie Allen, Administrative Assistant

Glenda Lainis, Policy Planning ManagerHeidi Feigal, Senior Landscape Architect

Darrell Alston, Traffic EngineerJim Kaiser, Senior Civil Engineer

Jason O’Shea, Development DirectorValorie Plesha, GIS Analyst II

Marta Benavente, Senior Civil Engineer - TrafficRob Larsen, Senior Planner

Kent Moorman, Regional Transportation EngineerSuzann Cox, Parks & Open Space Project Manager

CONSULTANT TEAMStudioCPG - Heather Gregg, Abigail Griffith

Jacque Phillips, Ward I Mack Goodman, Ward I

Eric Montoya, Ward II Val Vigil, Ward II

Josh Zygielbaum, Ward IIISam Nizam, Ward III

Adam Matkowsky, Ward IVJanifer Kulmann, Ward IV

Merylee AppelAaron Bergman

Paul DarrahCurry Houck

Jane MeadorBrian OcepekJanet SherbaLinda Weitzel

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1 . INTRODUCTIONPg # Description

1-1 INTRODUCTION1-1 Purpose of the Plan1-1 Plan Update1-1 Relationship to Thornton Comprehensive Plan

1-2 PLANNING PROCESS1-2 Parks, Recreation and Open Space Committee (PROS)1-2 Passage of the 1997 Parks and Open Space Tax1-2 Passage of the 2000 Parks and Open Space Bond Issue1-3 Parks and Open Space Advisory Commission (POSAC)1-3 Research and Analysis 1-4 Public Input1-4 2015 Parks and Open Space Master Plan Update Process1-5 Adoption

1-5 PARKS AND RECREATION FACILITIES: HISTORICAL OVERVIEW

1-5 RECREATION AND TOURISM USES ELEMENT

1-5 PLAN ORGANIZATION

2 . EXISTING CONDITIONSPg # Description

2-1 LOCAL AND REGIONAL CONTEXT2-1 Community Character2-2 Regional Setting

2-5 PARKS AND OPEN SPACE INVENTORY OVERVIEW

2-5 EXISTING PARK LAND

2-8 COMMUNITY-WIDE PARKS & RECREATION FACILITIES

2-12 RECREATION CENTERS & POOLS2-12 City of Thornton Recreation Centers and Pools2-12 Joint Use Aquatic Center

2-14 OTHER CITY OF THORNTON COMMUNITY CENTERS, PROGRAMS AND SERVICES2-14 Thornton Senior Center2-14 Thornton Arts & Culture Center (TACC)2-14 Community Gardens

2-15 CITY OF THORNTON RECREATION PROGRAMS2-15 Preschool Program2-15 Dance Program2-15 Youth Programming2-17 Youth Sports2-17 Adult Programming2-18 Programming for Senior Citizens2-18 Special Events and Festivals

2-19 PRIVATELY OWNED AND MAINTAINED RECREATION FACILITIES

2-27 HYLAND HILLS RECREATION DISTRICT

2-28 DESIGNATED OPEN SPACE AND OPEN LAND2-30 WARD 1: City-Owned Designated Open Space and Open Land 2-30 WARD 2: City-Owned Designated Open Space and Open Land2-31 WARD 3: City-Owned Designated Open Space and Open Land2-32 WARD 4: City-Owned Designated Open Space and Open Land

2-33 TRAILS2-34 Heritage Trail System

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3 . VISION, GOALS AND POLICIESPg # Description

3-1 OVERALL VISION: “A STRING OF PEARLS”

3-1 VISION FOR PARKS, RECREATION FACILITIES, AND TRAILS

3-2 VISION FOR OPEN SPACE

3-3 GOALS AND POLICIES 3-3 Goals and Policies: Overall System and Community Image 3-5 Goals and Policies: Parks, Recreation Facilities, and Recreation Programs 3-7 Goals and Policies: Trails 3-10 Goals and Policies: Open Space 3-13 Goals and Policies: Historical and Cultural Resources 3-14 Goals and Policies: Planning 3-14 Acquisition, Funding, Management, and Maintenance

4 . PLAN OVERVIEW: CITYWIDE PARKS, RECREATION, TRAILS AND OPEN SPACE SYSTEMPg # Description

4-1 ELEMENTS OF THE PLAN

4-1 USING THE PARKS AND OPEN SPACE MAP

4-2 METHODOLOGY AND MAPPING 4-2 Natural Resource Evaluation Methods from Prior Updates 4-2 Natural Resource Evaluation Methods 4-3 Resource Maps

5 . PARKS, RECREATION AND RECREATION FACILITIES ELEMENTPg # Description

5-1 NEEDS FOR PARKS, RECREATION PROGRAMS AND RECREATION FACILITIES

5-1 PARK ACREAGE AND RECREATION FACILITIES 5-1 Parks and Recreation Facilities Level of Service 5-3 Projection for future athletic facility needs based on Thornton organized sports participation

5-9 ACCESS TO NEIGHBORHOOD AND COMMUNITY SCALE FACILITIES

5-9 NEEDS FOR RECREATION PROGRAMS AND FUTURE TRENDS

5-10 SERVICE AREAS FOR RECREATION CENTERS

5-11 NEEDS FOR SPECIALIZED FACILITIES

5-12 SPECIFIC PLAN PROPOSALS

5-12 Community Parks 5-12 Neighborhood and Pocket Parks 5-13 Regional Parks 5-13 Specialized Recreation Facilities 5-13 Unique Challenges

5-13 DESIGN STANDARDS FOR PARKS 5-14 1. Pocket Parks 5-15 2. Neighborhood Parks 5-16 3. Community Parks

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6 . TRAILS ELEMENTPg # Description

6-1 CONNECTING THE “PEARLS”

6-1 2012 TRAILS ELEMENT: EXPANDING THE FOCUS

6-2 INTEGRATING PLANNING APPROACHES 6-2 Thornton Existing Trail System 6-4 2011 Thornton Complete Street Policy 6-4 Multi-Jurisdictional Plans

6-6 UNDERSTANDING THE TRAIL USERS

6-7 IMPLEMENTING AN ACTION PLAN FOR 2025 AND 2040 6-7 Opportunity-Based Projects 6-7 Need-Based Projects

6-11 PROMOTING THORNTON’S HERITAGE

6-15 FACILITY CLASSIFICATIONS AND STANDARDS 6-18 Regional Multi-Use Trail Facilities 6-18 Local Trail Facilities 6-19 Heritage Trail Facilities 6-19 Bike Lands and Bike Routes

6-19 STREET CROSSING GUIDANCE 6-19 Grade separation 6-20 At-Grade Crossings

7 . OPEN SPACE ELEMENTPg # Description

7-1 EXISTING CONDITIONS 7-2 Topography and Views 7-2 Water Features and Floodplains 7-2 Vegetation 7-3 Wildlife Habitat 7-5 Wildlife 7-7 Farmland

7-7 MECHANISMS FOR OPEN SPACE PROTECTION 7-7 Public Ownership (City-Owned Land) 7-7 Floodways and Floodplains 7-7 Tracts and Easements 7-8 Parks and Open Space Zoning 7-8 Wetlands

7-8 CRITERIA FOR OPEN SPACE PROTECTION 7-8 Natural Resource Values 7-9 Functional Values 7-9 Special Features 7-9 Feasibility Of Acquisition

7-10 SPECIAL ECOLOGICAL OPPORTUNITIES

7-13 SPECIFIC PLAN PROPOSALS 7-13 Higher Priority Areas 7-16 Medium to Lower Priority Areas

7-17 SUMMARY

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8 . IMPLEMENTATIONPg # Description

8-1 TOOLS FOR EXPANDING THORNTON’S PARK AND OPEN SPACE SYSTEM 8-1 Public Land Dedication (PLD) Requirement 8-1 Parks and Open Space Taxes 8-2 Other Preservation Tools

8-5 CAPITAL BUDGETING

8-5 STAFFING REQUIREMENTS FOR MANAGEMENT AND MAINTENANCE

8-6 PLAN AMENDMENTS AND REVISIONS

8-6 RECOMMENDED ACTION STEPS

A . APPENDIX

List of Appendices

Page Appendix # Appendix Description

A1-1 Appendix 1 2012 Thornton Comprehensive Plan Core Goal: City of Great Amenities Policies that apply to Parks, Open Space, Recreation, and Trails

A2-1 Appendix 2 1997 Ballot Language – Parks and Open Space Tax

A3-1 Appendix 3 2000 Ballot Language – Parks and Open Space Bond Issue

A4-1 Appendix 4 2013 Ballot Language

A5-1 Appendix 5 Charge from the Thornton City Council to the Parks & Open Space Commission (POSAC)

A6-1 Appendix 6 Record of Public Input

A6-3 Appendix 6.A Public Outreach Summary

A6-11 Appendix 6.B Master List of All Projects for the Parks and Open Space Plan

A7-1 Appendix 7 Community Overview and Historical Sketch of Thornton

A8-1 Appendix 8 Inventory of Parks and Other Recreational Resources

A9-1 Appendix 9 Natural Resource Mapping and Analysis

A10-1 Appendix 10 Property and Resource Disposition Policies for Open Space

A11-1 Appendix 11 Land Acquisition Tools

A12-1 Appendix 12 Heritage Trail Linkage Plan, March 2012

A13-1 Appendix 13 Trails Element Appendices

A13-3 Appendix 13.A Missing Links In 2025 Primary Network

A13-11 Appendix 13.B Highest Priority Action Items

A13-13 Appendix 13.C Trail Amenity Specifications

A14-1 Appendix 14 City of Thornton Community Services Program Participation

A15-1 Appendix 15 City of Thornton Coyote Management Plan

A16-1 Appendix 16 Comparison of Colorado Local Government Requirements for Parks, Trails, and Open Space

A17-1 Appendix 17 2016 Parks and Open Space Master Plan Update Survey

A17-3 Appendix 17.1 Summary and Overview

A17-7 Appendix 17.2 Sample Survey

A17-11 Appendix 17.3 Summary Diagrams

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List of Exhibits

Page Exhibit # Exhibit Description

2-3 Exhibit 2.1 MAP: Regional Context

2-6 Exhibit 2.2 Existing Parks and Parks Planned in Approved Developments in the city of Thornton, by Classification (2015)

2-7 Exhibit 2.3 Distribution of Existing Recreation Facilities and Recreation Facilities Planned in Approved Developments in the city of Thornton, by Ward (2015)

2-8 Exhibit 2.4 Current Parkland and Recreation Facilities Level of Service Acreage in Thornton, by Ward (2015) and Estimated Level of Service for Parks Planned in Approved Development

2-9 Exhibit 2.5 MAP: Existing Parks and Open Space

2-21 Exhibit 2.6 MAP: Privately Owned Facilities - Playgrounds

2-23 Exhibit 2.7 MAP: Privately Owned Facilities - Pools

2-25 Exhibit 2.8 MAP: Schools

2-28 Exhibit 2.9 Existing and Future Approved Designated Open Space and Open Lands in Thornton, by Ward (2015)

4-5 Exhibit 4.1 MAP: Parks and Open Space Master Plan

5-2 Exhibit 5.1 2015 Current Park and Recreation Facilities Levels of Service (LOS) in Thornton

5-3 Exhibit 5.2 City of Thornton Existing Parkland and Recreation Facilities Comparisons to NRPA 2015 Benchmarks and 2012 Regional Municipalities Average

5-5 Exhibit 5.3 MAP: Service Areas for Parks

5-7 Exhibit 5.4 Levels of Service: City and Non-City Owned Facilities

6-3 Exhibit 6.1 Existing Trail Segments

6-5 Exhibit 6.2 Multimodal Thoroughfares

6-8 Exhibit 6.3 2025 Trails Plan: Primary Network

6-9 Exhibit 6.4 2025 Trails Plan: Priority Missing Links

6-10 Exhibit 6.5 2025 Trails Plan: Facility Types

6-11 Exhibit 6.6 2025 Trails Plan: Heritage Trail System

6-13 Exhibit 6.7 MAP: Existing Trails Network and Proposed 2040 Trail Plan

6-16 Exhibit 6.8 Trail Types

6-21 Exhibit 6.9 Crossing Type Criteria

6-22 Exhibit 6.10 Crossing Types

7-11 Exhibit 7.1 MAP: Special Ecological Opportunities

8-3 Exhibit 8.1 Public Land Dedication Requirements Change Recommendations

8-7 Exhibit 8.2 IMPLEMENTATION ACTION STEPS for Parks, Trails and Recreation Facilities

8-8 Exhibit 8.3 IMPLEMENTATION ACTION STEPS for Open Space

B . GLOSSARY