Cover Page

Contents

Preface
Letter

SECTION I

Orientation
Summary

SECTION II

History
Needs
Geography
Historic Sites
Competitors
Economic Aspects

SECTION III

Federal Lands
State and Interstate
Local

SECTION IV

Division of Responsibility
Local
State
Federal
Circulation

SECTION V

Educational Opportunities

Counties

The county is one of the oldest of Anglo-Saxon political units. In America, exclusive of New England, it has been and is still today one of the most important political subdivisions of States, although in recent years there has been a tendency toward the absorption of some of its ancient functions by the State. Such loss of function as the control of roads has been counterbalanced to some extent by an extension of its functions into fields not hitherto covered by counties, such as health, library service, agricultural extension service, and recreation.

It is the purpose here to examine the possibilities of the county as a governmental unit and agent in the acquisition, development, and operation of lands for recreational purposes and for the general maintenance of a recreation service.

One impressive fact about counties in America is the large number of them. As an administrative governmental unit the system of counties was laid out for the most part when transportation was slow and communication in general difficult. This condition chiefly accounts for the large number of counties in the older sections of the country and their comparatively small size. Modern methods of transportation and communication have outmoded the original layout of the county system.

Another impressive fact is the very large number of counties that decreased in population during the decade from 1920 to 1930.

There are 3,099 counties in the United States, but out of a total of 2,955 counties whose boundaries remained unchanged during the last decade (the boundaries of 144 counties were changed) 1,220, or 41.2 percent, had less population in 1930 than 1920. The combined population (22,099,508) of these de creasing counties constituted 18 percent of the total population of the country in 1930.⁹

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⁹ President's Research Committee on Social Trends. Recent Social Trends in the United States. New York, McGraw-Hill, 1913. 2 vols., tables, diagrams. See vol. 1, p. 446.

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The number of counties in each State grouped by geographic divisions and the number in each State which decreased in population in the decade 1920—30 are shown in the following table:

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¹ Fifteenth Census of the United States, 1930, Population, Vol. 1, op. cit.

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This table shows that the highest percentage of counties decreasing in population are in those States which are primarily rural in character. In industrial New England and the Middle Atlantic States the counties which decreased in population were rural counties of the States. The largest percentage of counties decreasing in population were in the East North Central Division where a great industrial development, especially along the Great Lakes, tended to draw people from the rural sections.

A very significant fact in relation to the ability of the counties to act as effective agents in providing lands for recreation and in maintaining an organized recreational service is that comparatively few of the counties have a population of 100,000 and over. Of the 3,098 counties, only 167, or 5.3 percent, fall within this population classification, while only 7.2 percent of all the counties fall within the population classification of 50,000 to 100,000. On the other hand over 67 percent of all counties have a population under 25,000.

The following table shows the situation with respect to gross population classifications.

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¹ Fifteenth Census of the United States, 1930, Population, Vol. 1.

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In the 96 metropolitan districts, as defined by the United States Bureau of the Census in 1930, 247 counties are wholly or partially included, while in the metropolitan region as defined in this report (radius of 50 miles from the center of a central city or cities), there are, of course, many more.

It is within these counties, subject to urban influence, that the greatest growth of population has taken place during recent decades; while in the very large numbers of rural counties is found the large decrease in population during the last decade.

Of the total of 3,098 counties, 36 are city-counties, that is they are comprised wholly within the boundaries of cities and where the city exercises the joint functions of a city and county government.¹⁰

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¹⁰ The city-counties are: Baltimore, Philadelphia, Washington (District of Columbia), New Orleans (Orleans Parish), Denver, San Francisco, St. Louis, New York City (5 counties), and 24 city-counties in Virginia.

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Practically all of the 166 counties having each, in 1930, 100,000 inhabitants or over are "urban" counties. The same may be said of the 226 counties with a population from 50,000 to 100,000.

The counties of the United States may be divided, therefore, into two general classes:

(1) Those that fall within influence of metropolitan and districts and regions.

(2) Those that are primarily rural in character.

It is within the first of these classes that county action for the preservation and utilization of lands for 54 recreation has chiefly taken place.

Of the 3,063 counties remaining after deducting the 35 city-counties, record is had (1934) of 113 counties, or only 3.7 percent, having acquired lands for recreational purposes.¹¹

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¹¹ U. S. Bureau of Labor Statistics, Park Recreation Areas in the United States, 1930, Bulletin No. 565, May 1932, 156 pp., tables. (See p. 43.)

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The total area of recreational space owned by these 113 counties was 121,957.6 acres. The average area per county was approximately 1,079.3 acres.

The counties had thus provided recreational areas were distributed among 24 States. Such counties were most numerous in New Jersey, New York, Michigan, Wisconsin, Illinois, and California—States having heavy concentration of population and chiefly distinguished by urban growth.

Of the 73 counties reporting county-owned recreation areas in 1930, 44 were in 25 metropolitan districts. Fifteen others contained a central city with population ranging from about 15,000 to slightly over 55,000. Two others contained five and six small cities, respectively. Only 12 counties possessing recreation areas were more or less typically rural counties.

In 1930, 28 States were found to have enacted laws empowering counties to provide parks. No evidence of such laws was found in 20 States,¹² although under general laws relating to the powers of counties the right to purchase lands for parks probably exists if the county authority desires to exercise it.

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¹⁰ 12 Playground and Recreation Association of America, County Parks, New York, 1930, 150 pp., illus., maps. (See pp. 16—48, 111—147)

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¹ County Parks, op. cit., pp. 111—113.

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Those States having no specific legislation concerning county parks included the 6 New England States (where the county government is feeble and very little utilized), 10 agricultural States, and 4 States where the predominating influence is urban. One of these States (Washington) has provided county parks, presumably under the general powers of the counties without specific legislation.¹³

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¹³ Ibid, p. 111.

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All the States in two of the most populous geographic divisions have provided the counties with the necessary legal authority to acquire and administer recreational areas (Middle Atlantic and East North Central divisions).

The total population of the States which have provided such legislative authority to counties is 95,805,491, and, if the State of Washington, where several counties have provided parks seemingly without specific authority, is included the total population in all States making provision for county parks is 97,368,887, or nearly 80 percent of the total population of the Nation. If the population of New England is eliminated, approximately 85 percent live in States which have made legal provision for county parks. New England is excluded for the reasons that the county is a weak governmental unit there, and the States, especially Massachusetts, Connecticut, and Rhode Island, have assumed the responsibility of providing the types of recreation areas usually found in the more highly developed county park system.

It is to be noted that, with the exception of New England, the States having provided legislation empowering counties to acquire parks are found in every geographic section of the United States.

The first county park-recreation system was established in 1895, in Essex County, N. J. In a period of 39 years only 112 additional counties have followed the example of Essex County. The growth of county recreational systems until 1925 was very slow, but in the 5-year period from 1925 to 1930 the number of counties having recreation spaces more than doubled, and the total acreage set aside for recreational purposes approximately doubled.¹⁴

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¹⁴ Park Recreation Areas in the United States. 1930, Bulletin No. 565, op. cit., p. 37.

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What of the future of the county as a local governmental agency for providing recreation areas and for maintaining a general recreation service?

Since the great majority of the population of the United States is now living in States which have provided for legal action by counties in acquiring, developing, and operating land and facilities for recreation, it would be well for the 20 States lacking such laws to enact the necessary legislation (except in New England), even though the percentage of people affected (15 percent) would be small.

Based on the trend of county recreational development during the past two decades, it is reasonable to expect combined action by counties in the metropolitan districts and regions of cities, wherever the metropolitan district recreational plan is not established, and where State action does not provide all the desirable recreational spaces.

There is no standard for the amount of recreational space which the counties of the "urban" type should provide. Westchester County, N. Y., has reserved approximately 5 percent of the total area of the county for recreational purposes. This is at the ratio of about 1 acre to every 30 of the population (1930). Union County, N. J., has already reserved nearly 7 percent of the total area of the county for recreational uses, and the ratio of recreational space is 1 acre to every 73 of the inhabitants.

Cook County, Ill., has set aside in its forest preserve system about 5.5 percent of the total area of the county. The ratio of acreage to population is approximately 1 acre to every 120 of the inhabitants.

Essex County, N. J., has reserved nearly 5 percent of the total area of the county, and the ratio of recreational space to population is approximately 1 acre to every 211 inhabitants.

The above are examples of county accomplishments in highly concentrated population centers.

Erie County, N. Y., has reserved in its county system of recreation spaces only about one-fifth of 1 percent of the total area of the county, and the ratio is 1 acre to about every 565 of the population. This system, however, is as yet incomplete.

These few examples are presented to show trends as to ratio of county recreational area to population and not as bases for a desirable standard. However, it is suggested that the ultimate standard ratio of recreational area to population in county recreational systems should and will likely be far higher than the basic standard of 1 acre to every 100 persons in city systems. The desirability of preserving a generous part of all outstanding natural topographic features, including forested areas, in counties, especially counties in the vicinity of cities, will require, as a general rule, a high ratio of recreational area to population, ranging anywhere from 1 acre to every 20 persons to 1 acre to every 100 persons.

As has been shown in the discussion of metropolitan districts and regions, the States already have assumed a considerable part of the responsibility of providing recreational areas in "urban" counties. It is reasonable to assume that they will continue to do so. However, the greater percentage of the "urban" counties have the population and financial resources to assume a large share of the responsibility of acquiring, developing, and administering lands for recreational purposes, and of carrying on a year-round recreational service. There is need, however, in all these counties for comprehensive planning, studies, and surveys, a fundamental procedure that has hitherto been almost wholly neglected except in those comparatively few counties that have already established extensive systems of recreational areas.

It is desirable that a county planning commission or board be established in all the more populous counties, working in harmony with regional, State, and metropolitan planning boards.

The rural counties of the Nation present a far different problem. There are many more rural than urban counties, and fully half of them are decreasing in population. Most of them are financially weak.

Land ownership for recreational purposes is not so vital in these counties as in the urban counties. The most important problem is recreational program leadership. This does not mean, however, that publicly owned recreation spaces and facilities for the use of the rural population of the Nation are not desirable and important. The providing of such spaces should be not only the direct responsibility of the county, but should also be the joint responsibility of the State, the consolidated rural school, the local incorporated and unincorporated village, and small city communities. There is no standard as to the desirable amount of recreational area which counties of this type should possess, and there are no data on which to base consideration of a standard, as so few of them actually possess recreational areas.

Inasmuch as financial weakness is the chief bar to the rural counties providing the desirable recreation spaces for themselves and of maintaining a year-round recreation service, it is suggested that the formation of larger taxing units through the consolidation of two or more counties would be desirable, or, failing this, the setting up of recreation-administration districts through the cooperative union of two or more counties. The Michigan county park laws provide for cooperation between two or more counties in purchasing recreational properties, as do also some of the laws of other States.

The experience of the American Library Association in attempting to establish libraries and library service in rural counties has been disappointing. This association is now strongly in favor of districts composed of two or more counties in order to secure a broader financial base. On the other hand, the growth of agricultural extension work in rural counties has been phenomenal. This is a cooperative service program in agricultural economics and adult education, fostered by the extension divisions of agricultural colleges aided by the Federal Government. Financial participation comes from the county, the State, and the Federal Government. In 1931, 77.2 percent of the counties had agricultural agents and 43 percent of the counties had home demonstration agents.¹⁵

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¹⁵ Recent Social Trends in the United States, 1933, op. cit., p. 507.

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In providing a recreational service program under leadership in rural counties the same procedure may be followed as in the agricultural extension and home demonstration service program, using practically the same governmental set-up with the addition of recreation directors or leaders on the staff of the State extension service and in the counties. The State should employ the general State recreation director, while the counties or combination of counties would be responsible for the local director.

The States of New York, Pennsylvania, Massachusetts, New Hampshire, Nebraska, Connecticut, Ohio, and Oregon have each provided a State recreation director on full time, while Oklahoma, Georgia, and South Carolina have such a director on part time.¹⁶

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¹⁶ Information furnished by Mr. John Bradford, field secretary for rural counties, National Recreation Association, Sept. 5, 1934.

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It is suggested that it would be desirable if there were employed on the staff of the extension division of each State agricultural college, or other State educational institution of higher learning dealing with rural regions, a State recreation director. It would be desirable, too, if in every county, or combination of two or more counties, there would be a county or district recreation director working under the general supervision of the State recreation director and in cooperation with the county agents and home demonstration agents, to the end that a recreational service program be developed and carried on among the rural population of the Nation.

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