Delaware outdoor recreation plan executive summary 1971

[From the U.S. Government Printing Office, www.gpo.gov]

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191.42 Executive Summary 1971
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]RUISSIE]LE W. PETEnBON

To the Citizens of Delaware:

I am pleased to submit this summary of Delaware's
Comprehensive Outdoor Recreation Plan, which is the guide for
acquisition and development programs to preserve Delaware's
natural resources and provide outdoor recreation facilities
for Delaware residents and visitors.

Delaware is blessed with natural resources--with
its relatively unspoiled ocean front, with its bays and wetlands,
and with its many wildlife areas, parklands, forests, ponds, and
streams. Yet, most importantly, Delaware is blessed with
opportunity--an opportunity to recognize that the quality of
life in Delaware is dependent largely on these resources, and
the opportunity to act now to insure their protection, proper
development and enjoyment.

The Delaware Comprehensive Outdoor Recreation Plan
reflects the State's goals to maintain and improve the quality
of the environment and to provide present and future generations
of residents and visitors with the opportunities for a satisfy-
ing outdoor recreation experience.

Please review this summary of the Delaware Comprehensive
Outdoor Recreation Plan. We invite your comments and suggestions
as further planning and action is undertaken to achieve these
goals.

Sincerely,
-A A .Ae

Russell W. Peterson
Governor

INTRODUCTION

This report presents in condensed form the findings and
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contained in the Delaware
recommendations
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Comprehensive Outdoor Recreation Plan including an
evaluation of Delaware's historic and potential role in P
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outdoor recreation, an inventory of existing recreation
facilities, a statistical estimate of present and future
demands for these facilities, and a computation of the
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needs required to fulfill the recreation demand to the year
2000.

U S DEPARTMENI OF ("OMMERCE NOA@,
COASTAL SERVICES CENTER
2234 SOUTH HOBSON' AVINUE
TABLE OF CONTE@JqVP,1_FSTOP,1
0

Page
Goals and Objectives . . . . . . . . . 4
Potential . . . . . . . . . . . . . 4
Inventory . . . . . . . . . . . . . 4
Demand . . . . . . . . . . . . . . 5
Needs . . . . . . . . . . . . . . 7
Quality Aspects . . . . . . . . . . . 8
Handicapped 8
Pollution . . . . . . . . . . . . . 9
Wetlands and the Shore . . . . . . . . 9
Land Assembly and Protection . . . . . . 9
Watershed Drainage Projects . . . . . . . 9 Ti
Urban Residents . . . . . . . . . . . 10
Local Governments . . . . . . . . . . 10
141J
Private Recreation Lands . . . . . . . . 10
Policies . . . . . . . . . . . . . . 11
Plan . . . . . . . . . . . . . . . 13
State Program . . . . . . . . . . . . 13
Federal Programs . . . . . . . . . . . 17
Local Needs . . . . . . . . . . . . 18
Private Action . . . . . . . . . . . . 18
19
Action Program . . . . . . . . . . .
Continuing Action . . . . . . . . . . 19

The plan and this summary were prepared by the
Delaware State Planning Office in cooperation with the
Department of Natural Resources and Environmental
Control and were financed by a grant from the United
States Department of the Interior, Bureau of Outdoor
Recreation, under the provisions of the 1965 Land and
Water Conservation Fund Act (Public Law 88-578).

1PrOPGrtY Of CSC Library
3

GOALS AND OBJECTIVES DELAWARE'S OUTDOOR RECREATION POTENTIAL

The primary goal of the Outdoor Recreation Plan is a Delaware, the second smallest of the 50 states, possesses
comprehensive, orderly, efficient and achievable program outstanding outdoor recreation potentials. Located on the
for outdoor recreation planning, programming and action Atlantic Coastal Plain at the foot of the Piedmont Plateau,
for the residents and visitors of the State of Delaware. and bounded on the east by the Delaware River, Delaware
This process must strive to increase the opportunity for Bay, and the Atlantic Ocean, Delaware offers many
recreation in the out-of-doors for all uses; to preserve, recreational attractions.
protect and enhance the State's natural resources; and to
protect and restore the natural aspects of the outdoor The northern portion of the State is endowed with
environment. The goal of this plan is to provide a program wooded rolling hills and rock-strewn streams. The Coastal
for a high quality of life for residents and visitors alike Plain, possessing broad tidal wetlands, contains as a
through the proper use and enjoyment of Delaware's habitat for vast numbers and varieties of game and
natural resources. waterfowl, numerous streams and man-made lakes, large
expanses of forest, and miles of sandy ocean and bay
Specific objectives of the Delaware Outdoor Recreation beaches.
Plan are to:
These resources, all available within a hundred miles,
Provide opportunities for physical and mental provide the potential for all but a few outdoor recreation
revitalization through the development of a experiences; a potential offered only in Delaware.
diversified system of outdoor recreation facilities.

Prepare programs and plans for the preservation of
irreplaceable natural resources.

Develop programs and policies for the coordination
of acquisition and development efforts of all State
agencies with those of other public and semi-public
bodies engaged in providing facilities for outdoor
recreation, in fish and wildlife conservation, or in INVENTORY
the preservation of scenic, cultural, or historic
resources. An inventory of outdoor recreation resources was
conducted to gain an insight into the type, ownership, and
Determine an appropriate level of State action location of outdoor recreation facilities presently available
vis-a-vis the role of private enterprise in the in Delaware. The inventory revealed that over 74,400
provisions of outdoor recreation f6cilities. acres of land are currently available for outdoor recreation
u se, including 8,500 acres of privately-sponsored
Assign responsibility, evaluate potentials and reservation areas, 25,350 acres of federally o .wned areas,
constraints, delineate special problems, propose and 40,560 acres,of State, county and municipally owned
programs and actions, and establish priorities for areas. The type and location of the presently owned areas
the provision of outdoor recreation facilities. reflect both the distribution of population and the
location of various resources throughout the State. The
These objectives outline a work program aimed at the majority of the private, county, and municipal areas are
creation of an outdoor recreation system to serve as a located in New Castle County where more than two-thirds
guideline for local, county, State and federal government; of the State's population resides. The majority of the
private enterprise, and the activities of civic, service, and State and federal ownerships, however, are resource
conservation groups throughout the State. The growing oriented and located where the State's resources are suited
outdoor -recreation need, the limited natural resources, for recreational uses such as swimming, camping, hunting,
and the trend toward continued urbanization demand that nature study and fishing. The present supply of resources
this effort be made and that this system be developed and provide an excellent beginning in the development of a
above all implemented. program to satisfy the outdoor recreation need.

DEMAND

Estimates of the future level of demand are necessary in
order to develop an outdoor recreation plan and program
which truly satisfies individual desires. The demand for
outdoor recreational opportunities is increasing at a rate
PRIVATE exceeding the growth of population and is closely
correlated to the major characteristics of modern society.
This is an increasingly urban nation whose citizens are
enjoying a level of affluence never before achieved. The
rapid urbanization of our landscape, increased family
incomes, more leisure time, mobility, and many other
factors all contribute to the growing demand for outdoor
FEDERAL recreation experiences.

The most significant factors influencing the demand for
outdoor recreation include age, the growth in population,
increased leisure time, and economic prosperity. Delaware
and the adjacent states contain some of the nation's
fastest growing urban areas. During the 1960-1970
decade, Delaware attained the third fastest growth rate of
DISTRIBUTION OF OUTDOOR RECREATION FACILITIES any state on the East Coast while its neighboring counties
have equally impressive growth records. If this growth
BY OWNERSHIP IN DELAWARE continues a State population of almost one million is
possible @y the end of the century within a region of over
19,700,000 people. This magnitude of population,
whenever achieved, will present tremendous pressure for
outdoor recreation.

mh IK I VaTntl
WeR I
TIIN IN S

RIDES

PICNICKING

VACATION TRIPS
UtURWAK
WEEKEND TRIPS

SWIM_GCEAN
PLEASURE WALKS
SWIM-POOL (AWW
RSHING
BOATING :TWITIES

ICE SKATING
SWIM-LAKE
SWIM-BAY

GOLFING
SWIM-POOL
(HOME)
HUNTING

CAMPING
-HORSEBACK RIDING
SWIM-RIVER

SWIM-POND

TOBOGOANING
SNOW SKIING

Population growth, however, is not as important as the Decreases in the average work week from 39 hours to less
characteristics of that population. Age is the single most than 32 hours, and increases in the average vacation from
important factor affecting demand, especially as it relates 2.3 weeks to 4 weeks may be realized by the year 2000.
to the head of the household. The potential impact of this While some of this increased time will be used for other
factor in Delaware can be seen in that thirty-two percent activities, much of it will be reflected in demand for
of the State's population in 1967 was under fifteen years outdoor,- recreation. -The shorter work day will allow more
of age and another forty-two percent was between 15 and time, for: picnicking,-- pleasure walking, and active sports
45--the age groups most active in outdoor recreation while . longer vacations will increase the amount of
activities. participation in camping and ocean or beach activities.

In addition to age factors, certain economic and social Mobility, residence and family size also affect demand.
factors also greatly influence demand. Income affects the Americans have become more mobile as the
type and frequency of participation, especially in the transportation network continues to develop. This
most active experiences which necessitate the greatest coupled with the number of automobiles makes almost
public expenditure for facilities. Delaware's rising level of any recreational activity readily available. Additionally,
family income will greatly increase the demand for younger families and the recent shift in family size
outdoor recreation activities such as swimming, boating, combine to produce demands for more specialized
horseback riding, camping and golf. facilities near the point of residence. Given the trends in
the factors affecting outdoor recreation demand,
As the level of job skill and education increases, the type Delaware can expect high levels of demand for a wide
and frequency of participation also increases. Recent variety of facilities and resources.
trends in Delaware show substantial gains in educational
achievement and a continued trend toward skilled and A study was undertaken to determine the types of
semi-skilled occupations, both of which indicates activities most commonly enjoyed and the frequency of
substantial demand for outdoor recreation facilities. participation in each by residents and visitors in Delaware.
After adjustment for expected social and economic
Another factor affecting demand is increased leisure time. changes during the plan period the projected level of
Delawareans and residents of the surrounding region are demand for recreation was compared with the present
realizing the benefits of more leisure time as the hours of supply of facilities to determine the deficiencies or
work decrease and the length of vacation increases. 11 need" to which the plan is directed.

ANNUAL DEMAND FOR OUTDOOR RECREATION ACTIVITIES

(MILLIONS OF USERS)
ACTIVITIES 0 5 10 20 25 30 35

PLEASURE WDES
@ . . . - = = 77@1_
SWIM-POOL (AWAY).

PLEASURE WALKS

SWIM - OCEAN
SWIM-POOL (HOME)-
2M
WEEKEND TRIP

VACATION TRIP

77
SWIM - LAKE ----i

BOATING

PICNICKING
SWIM - BAY =12 __ I

_SWIM-RIVER

FISHING

GOLFING

ICE SKATING LEGEND

SWIM-POND 1980
HORSEBACK AIDING 777.1
2000

CAMPING

HUNTING

SNOW SKIING

70BOGGANING

NEEDS

The determination of the present supply of outdoor R
recreation facilities and the projection of total demand for
various facilities do not provide sufficient background
data for the development of a plan. Computation of need,
is necessary. The Needs section provides the framework of
land and facility requirements which can be addressed by
federal, State, local, and private action and against which
progress can be measured.

In order to determine the adequacy of present facilities,
maximum capacities of each facility are necessary. If
present facilities are not adequate, the deficiency must be
expressed in terms of future land and facilities as well as
the number of potentially unserved outdoor recreation
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participants. For these reasons, standards of space per
activity per person or group of persons were derived. It
must be recognized that standards serve as a guide to
planning, not an absolute measure of need. The character
of each site, the nature of the present and potential uses,
and the aesthetics or "quality" of the locality will alter "1 '12
the actual needs.

Computation of the projected need requires determining
the capacity of present recreation resources and the
application of assumed standards of participation and
space requirements to the projected demand. The
differences between the projected requirements and the
present capacities are the deficiencies to which the plan
must address itself. The projected demand for outdoor
EEDS,
-RECREATION-.- CAPACITY I
recreation will require over 130,000 acres of land and
water by 1980 and over 175,000 acres by the end of the
century, to accommodate the peak day requirements.
200
These needs expressed as capacities of users total over
538,000 persons on a peak day in 1980 and 700,000 by
the year 2000. Deficiencies in eight of the most popular
outdoor recreation activities alone exceed 300,000 users
per day in 1980 and 460,000 by the end of the century.

10
Meeting these needs requires a plan and an action
program, It also requires implementation, the
follow-through of acquisition and development by all
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levels of government. Most of all, it requires public
understanding and concern. Recreation needs will not be
met simply because this plan was prepared. There must be
a combination of time, money and effort by all levels of
.0.
government, private enterprise, and individuals working 106 -1980 20001.:
together to provide Delaware with the finest outdoor
re
creation system possible.

THE QUALITY ASPECTS OF OUTDOOR RECREATION If the outdoor recreation experience is to be pleasant, the
waters by which or in which water-related activities occur
must be pure, the air surrounding any activity must be
Many of the qualities which contribute to the enjoyment free of harmful or distracting pollutants, and the grounds
and importance of outdoor recreation facilities cannot be on which the activity occurs must be free of trash and
measured by dollars, user capacities, or other tangible other discards of our urban society. Furthermore, the
units. The demand for outdoor recreation facilities cannot natural landscape must be visible rather than hidden by
totally be met by the provision of large areas of unregulated signs or camouflaged by poorly arranged
undeveloped land, nor.can it be totally met by the factories, homes, or businesses. It is critical in the desire
intensive development of smaller areas into ballfields, to meet activity needs that the broader scale relationships
picnic tables, concessions, and parking lots. and needs not be overlooked.

The word "recreation" literally means re-creation, a These qualitative values have been provided for
restoration of the psychological as well as the throughout the Outdoor Recreation Plan in order that
physiological well-being. There must be the quiet place, elements possessing such characteristics may be given
the sense of belonging to a natural order, and the place for proper recognition. The meeting of need only in a
recognition of our natural and cultural heritage. Hence, a physical sense may "cost" society more in the. long run
plan for outdoor recreation must give consideration to the than a less ambitious but more responsible desire to meet
aesthetic values just as it must consider the functional the total need, whether that need is physical,
value of these natural and scenic resources. Both values psychological, or environmental.
need protection and preservation.

Natural resources such as forests and unaltered waterways
provide a welcome psychological relief from the
over-utilized character of our urban areas. These same
areas provide opportunities for hunting, fishing, camping,
and hiking activities, all of which provide links with our
natural heritage.

Coastal marshlands, which provide visual character and a
sense of remoteness to the landscape, also serve as
for migratory
spawning grounds for fish, habitat
waterfowl, shelter for small wildlife, and the sources of
food essential to shell fish and other marine life. Once
destroyed, this ecological chain and the aesthetic
character are irrevocably lost.

Man-made elements and resources which are significant to
man's history also have inherent qualitative value.
Elements such as canals, old ports, early powder and flour
mills, wooden and iron bridges, and ruins of early
industry, may provide a physical link with the
industrialization of past eras. Similarly, the homes of HANDICAPPED
statesmen, inventors, artists, and others provide a link
with the history of the State. This aspect is especially Outdoor recreation facilities should be available for all
significant in Delaware due to its role in the early history people. Handicapped persons are often prevented from
of the Nation and Delaware's place as "The First State." enjoying our natural and man-made resources simply
These areas and others possessing prehistoric, scientific, or because of a failure to recognize their special needs in
architectural value are likely to be lost to the pressure of facility design. Handicapped persons include those of 611
development unless they are specifically preserved for ages and sexes suffering from some physical or
future generations. psychological disability affecting mobility, visual or
auditory ability, or the level of intellectual functioning.
Still other areas provide qualitative values in an even less The handicapped must not be kept from enjoying the
measurable sense. These "breathing spaces" may be little State's resources. Proper design and construction, and a
more than a small wooded area, a linear park or a stream positive approach to helping the disabled enjoy
valley. In each, an opportunity is created whereby people recreational pursuits is also the responsibility of
can escape the momentum of daily life. governments and individuals alike.

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LAND ASSEMBLY AND PROTECTION

Delaware's natural resource agencies have experienced
little difficulty in the past in assembling the land
necessary for outdoor recreation facilities. However,
continued growth in population, further urbanization, and
the I i m itations of available funds require full
consideration of all possible land assembly techniques.
The State and local governments must carefully explore
techniques which allow for acquisition of less than fee
simple title or which make use of the powers to tax or
POLLUTION exempt from taxes. Local government can regulate,
through zoning, to establish the intent of future action
ihe outdoor recreation experience takes place in a total and can allow for phased acquisition. The need to protect
environment. Pollution of the water and the air, and the environment, preserve open spaces, and provide for
littering of the landscape, takes its toll of the quality of outdoor recreation requires utilization of all methods
the recreation experience and seriously upsets the delicate which might meet these goals at the least cost.
ecological balance of nature.

Evidence of the damage can already be found. Large WETLANDS AND THE SHORE
portions of the State's tributary waters are closed to
shelifishing. Many of the State's roadways are littered Delaware is endowed with extensive tidal wetlands and
with discarded trash. Scenic vistas are shrouded by smoke with a long and varied shoreline. The past unregulated
from industrial operations. Lakes and other water bodies development of these areas has been largely detrimental to
provide declining recreational experiences due to algae their natural character with drastic repercussions on
growths and the improper use of these waters for wildlife as well. The intrusion of man interrupts, disturbs,
discarding wastes. and destroys the wetlands and their ecology. In many
cases, man has developed homes and businesses on the
The solution to the pollution problem will not come coastal dunes, and has filled wetlands to increase the
cheaply or easily. Studies and corrective programs are potential for resort development.
underway by all levels of government. The awareness and
response of every individual is critical to ensure the The State's wetlands and shore area are in continual
protection of Delaware's environmental resources while danger as witnessed by the record of applications for
there are still resources to protect. dredging and filling of large portions of the Rehoboth,
Indian River and Assawoman Bays and the dramatic
changes in the development of this area in the past 30
WATERSHED DRAINAGE PROJECTS years. If such widespread practices are allowed to
continue, further destruction of the shore and the
Watershed protection, flood control and drainage wetlands will result. Severe deterioration of the coastal
programs, require ditching and re-channelling of many ecology and the loss of a vital element in Delaware's
minor water courses. This process is intended to improve outdoor recreation system is imminent within a few years.
natural drainage and increase agricultural and other values
of adjacent lands.

These projects require clearing large areas of brush and Z
trees, with a marked effect on the landscape and on
wildlife habitat. The lands utilized for these programs
r
possess generally unrealized outdoor recreation potential.
In many cases, the new channel area is of suitable length
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for hiking and bicycle riding. Since the projects follow
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tural drainage areas rather than roads, they offer 4- F-7-
a
potential access to wooded, low lying stream-edges, parts
of the countryside not otherwise visible. A drainage
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project could also open new areas for picnicking, fishing,
and canoeing to increase the supply of recreational
resources. State, local and private interests must consider
these aspects and develop a multi-use approach to the
drainage program.

URBAN RESIDENTS LOCAL GOVERNMENTS

As much of the Nation's population continues to be One very significant characteristic of the present outdoor
concentrated in increasingly urban areas, the space ideal recreation program is the dominance by the State. It'is
for outdoor recreation too frequently is lost to the rush highly desirable for county and local governments to
for more development. The most urgent recreation needs, assume mor .e responsibility in the acquisition,
those closest to the concentration of residences, are development and maintenance of outdoor recreation
poorly accommodated because of past development programs which will serve local needs. Local development,
patterns, the competition for lands f6r all other uses and as opposed to state development, is more likely to
the strain on local finances to meet the rapidly growing consider and satisfy the preferences and needs of local
needs. people.

With the continued flight to the suburbs of the middle Fiscal analysis and administrative constraints handicap all
and upper income families most urban areas become the three counties and most municipalities at the present
home o f the poor, the aged, and the time. These constraints will persist in the immediate
social ly-disadvantaged. These, the most deprived urban future while problems of development control and sewer
residents, are almost entirely dependent upon public parks and water service are being considered. In order to
for outdoor recreation, while a wide variety of public and alleviate this problem, the State has made efforts in the
private facilities are available to the more affluent past to assist the localities in acquisition, and it is
suburbanite. Further, these same deprived groups, because recommended that these efforts be continued.
of limited income and education, often need to be Additionally, State funds are now available for park
informed of the facilities that are available and the development at the local level. Whenever possible, the
benefits to be derived from enjoying them. State natural resources agencies should actively participate
as consultants to local governments in meeting their
The number and size of the facilities is not the only needs.
consideration. The simple fact remains that in all major
cities large numbers of inhabitants do not have access to
public recreational facilities because the parks are not
where the people are. Location must be considered. The
problem is not as acute presently in Delaware as in many
other areas due to the relatively low density of the urban
portion of the State and the presence of on-going park LOSS OF PRIVATE RECREATION LANDS
and recreation programs in Wilmington and the urban
areas of New Castle County. Nevertheless, in 1960, 87 Private lands that have long been used by the public for
percent of the Wilmington-New Castle County portion of hunting and fishing are being withdrawn from public use
Delaware was classified as urban. New Castle County was at an alarming rate. The impact of the loss of these lands
one of the fastest growing counties in the Nation. is compounded by the steady increase in the number of
Obviously, this growth will place greater burdens on hunters and fishermen.
existing recreational areas and will limit the opportunities
to obtain additional areas. Considerably more evaluation An estimated 75 percent of the 'farmland in New Castle
is necessary to determine the proper role of recreational County and northern Kent County is posted with "No
facilities and programs to meet urban needs. Meeting the Hunting or Trespassing" signs, In Sussex County and
urban recreation need must be a priority of State and southern Kent County land is posted to a somewhat lesser
local governments. degree, although some of these lands are open to hunting
if permission is asked, and respect for the' property is
guaranteed. Some previously public game land is removed
from public use every year by new highways, residential
development, industrial expansion. Town annexations also
take hunting land, since hunting is Usually banned within
town limits, although the character of the land may be
unchanged for years.

If the opportunities for both active and passive outdoor
recreation are to be preserved, State, local, and private
interests must work together to find a means of
maintaining the character of these private recreation
lands.

POLICIES FOR OUTDOOR RECREATION 3. In order to maximize the effectiveness of limited
financial and physical resources, action will be
As part of the development of the Outdoor Recreation directed primarily at acquisition of those areas
Plan for Delaware, policy meetings were held with State, deemed important in the overall system rather than
county and local officials; and interested private development of land in public ownership.
individuals. These meetings allowed an interchange of
ideas and positions regarding outdoor recreation needs, 4. Acquisition of land and exercise of other controls
facilities, locations, emphasis and other matters related to over the inland bays and rivers, the State's
outdoor recreation planning, programming, and wetlands, and areas necessary to complete the
administration. The following policies have been 11 urban-serving parks" will be a first priority above
incorporated into the plan and program for outdoor all other acquisition and development actions.
recreation in Delaware.
Policies 3 and 4 recognize that action is necessary
General Policies now to protect the State's remaining wetlands and
waters from pollution, improper development, and
1. The State's Outdoor Recreation System will be the destruction of their ecology. The policies also
characterized by resource protection, thereby recognize the limitations on the State's financial
providing for nature-oriented experiences and resources and the necessity of directing these to the
activities. areas of greatest need. Consequently, acquisition
projects, especially where wetlands, water areas, or
2. The State will continue to expand its technical lands necessary to the proper development of an
assistance to counties and municipalities for urban-serving facility are involved, will have first
acquisition and development of local open space priority in the distribution of funds. The best
facilities. This role should include financing, legacy this program can leave the next generation is
planning, and development assistance with the State the opportunity to develop the land this program
acting as professional consultant. The State preserves in open space. The plan recognizes,
recognizes the hardship placed on the counties and however, that initial development is necessary to
the municipalities to fully meet their responsibility serve present needs, especially that of persons
due to financial and administrative constraints. residing in the urban portions of the State.
Therefore, the State adopts as a policy, the creation
and administration of funds, programs, and staffs to 5. A Department of Natural Resources and
act as consultants to these jurisdictions in meeting Environmental Control has been created at State
their pro0ems. level which encompasses all agencies, boards,
commissions, and departments whose duties
involved protection, development, use, or
administration of n a tural resources. This
department should be encouraged to develop
in-house capability for program planning related to
the funding, acquisition, and development of the
State's natural resources in a manner consistent
with proper Statewide Comprehensive Planning.

6. Development of outdoor recreation and open space
systems and complexes should be encouraged over
the acquisition of small, scattered, and unrelated
parcels. Particular emphasis should be given to
"filling-in" voids in present large State ownerships
in order to make them more complete and usable
units.

7. The federal government should be encouraged to
continue its present primary role in Delaware,
which is essentially concerned with navigation and
with fish and wildlife management. It should also
be encou@raged to coordinate its recreational
facilities with the State's program.

Specific Policies 8. The lease-concession type arrangement will be fully
utilized for commercial services provided on state
The following policies deal with a specific aspect of the lands whenever private enterprise operating under
open space and outdoor recreation system or its State supervision would result in a reduction in
administration. direct costs to the State while maintaining the same
level of service to the public, or bring about a
general upgrading of the service provided.

9. Regulations should be adopted and enforced which
allow strong State control over dredging, filling, and
1 .The State will give priority to projects which serve bulkheading of wetlands and tidal shorelines,
the recreational needs of urban residents. control over impoundment projects and the
artificial ponds or lakes created by these projects.
2. Because of the valuable ecological contribution of
marsh wetlands, the State will continue its emphasis 10. The State will actively encourage the provision of
on preservation of these areas in their natural camping facilities by private enterprise operating
condition and limit the use of these areas in a under adequate regulations to allow for a
manner consistent with proper fish and wildlife reasonable return to the owners. In this regard, the
management. State should avoid under-cutting any private
operation by less than fair market rates and limit its
3. Promotional activities directed toward the State's camping development to lands which are capable of
outdoor recreational facilities should emphasize supporting such activities pursuant to
those areas which are presently under-utilized and comprehensive master plans.
the new facilities to be provided, rather than the
shore. In this way, the economy of the entire State 11. The present State outdoor recreation lands and
will benefit from diversified recreational experience facilities will remain under State control and
while avoiding an overburden on the beach areas. operation even if these do not conform to proposed
ownership policies until another unit of government
4. Master plans of all present and proposed outdoor indicates a willingness and ability to use them for
recreation facilities will be developed as one of the their needs, or until disposition of these properties
highest priorities of the outdoor recreation planning would not handicap satisfaction of the needs
program. Development of any area should be expressed in the State's outdoor recreation
dependent upon this plan and should not be funded program.
prior to the completion and approval of the master
plan. 12. Local governments will be encouraged to develop
recreational areas specifically suited to the needs of
5. Recreational and other development of areas the area. This policy recommends that the facility
administered by the Division of Fish and Wildlife, development in local parks be evaluated in terms of
Department of Natural Resources and social, economic and physical characteristics of the
Environmental Control should be compatible with proposed area to be served.
the welfare of the fish and wildlife resources in
order to protect the status of species populations, 13. Preparation of open space and recreation plans as
maximize the consumptive enjoyment of game part of local comprehensive plans shall be'
species, and preserve the non-consumptive values of encouraged to serve as the guide for local
all species for aesthetic and scientific purposes. acquisition and development projects and for
distribution of State and federal grants.
6. Multiple use potentials of all State and other public
ownerships should be fully explored, including use 14. Private enterprise shall be encouraged to satisfy a
of school facilities and the spaces surrounding substantial portion of the outdoor recreation need,
public buildings for outdoor recreational programs. especially in those activities which are appropriately
suited to commercial endeavors such as
7. The State will continue its policy and program of campgrounds, horseback riding stables (academies),
acquisition of mill ponds and other water bodies golf courses, marinas, etc. The private facilities will'
and should acquire sufficient land at each to also be expected to meet the highest standards of
accommodate the recreational facilities as needed. environmental protection and public service.

PLAN

The Delaware Comprehensive Outdoor Recreation Plan is
dedicated to the achievement of a system of parks,
forests, fishing areas, wildlife areas and open spaces to
serve the present and future residents of Delaware and its
service area. It encourages the growth of Delaware's
recreation businesses, and provides for a land use balance EJ
between recreation needs and homes, industry and
commerce. The plan outlines the overall program to be
undertaken by all levels of government, semi-public WAIK
groups, and private enterprise. It also provides a
framework for evaluation of progress and the allocation of
limited financial and other resources for the maximum THE!
public benefit. I I

ODESSA

THE STATE PROGRAM SNYINA

The State Program includes a variety of facilities ranging
from the active state park to the more passive forest or
wildlife area. The Program establishes wildlife areas, COVER
impounded waters and accesses, forest preservations, state
parks, and historic- prehistoric areas. It also includes
present State ownership and considers areas in which the
State should express a long-range conservation interests,
and evaluation of fulfilling recreation needs.

Based on the State's natural resources, the present and
NARR116TO1
projected population, the demand and needs studies, and 11FIRD 52,
the State's responsibilities; the plan recommends that the
State acquire an additional 34,950 acres by 1980 and
22,600 acres between 1980 and 2000. These acquisitions,
with the present State ownerships of 26,252 would
REIOBOTR
provide over 61,000 acres of outdoor recreation land by BEACI
1980 and 83,800 acres by 2000. These lands would
provide seven major parks, nine wildlife areas, two large EORCITOWN
forest preservations, a number of protected historic and SEAFORD
archaeological sites, and over fifty public fresh water
fishing ponds.
MAIL
Wildlife Areas

Wildlife areas represent prime natural lands which are
necessary for national and state-wide wildlife management
purposes. These areas encompass much of the river, bay
and ocean areas. They offer sports, education, and
pleasure, and serve as a vital link in the cycle of many life
forms. Potential uses include hunting, picnicking, hiking,
horseback riding, field trials, fishing, and nature study as
well as an aid in the balance of the ecology.

Wildlife areas in Delaware are of two major types, upland Impounded Waters, Water Accesses and Related Facilities
and wetland. Each has its own characteristic terrain, and
each offers certain opportunities not readily available Another specific policy of the plan indicates the State's
elsewhere. Fortunately, the need for preserving many of commitment to the acquisition of impounded waters as
these areas has been long recognized by State and private well as acqui 'sitions to ensure the right of public access to
interests. In no other type of outdoor recreational facility tidal waters. -A long-range program of the State Fish and
is the State better prepared for present and future Wildlife Division has been the acquisition of pond and
demands. Presently, there are over 15,800 acres of wildlife lake sites, the construction of control structures, and the
area administered by the Department of Natural provision of launching ramps, parking areas, and related
Resources and Environmental Control, 5,000 acres facilities to encourage use of these waters for fishing and
licensed to the State by the U. S. Corps of Engineers and boating.
another 22,000 acres under the jurisdiction of the U. S.
Department of the Interior giving a total of over 42,000 The needs study indicates that additional water and land
acres of wildlife areas. areas, boat launch facilities and parking will be necessary
to satisfy the 1980 and 2000 demand. The plan
Delaware's wetlands are among the most productive on recommends that an additional forty sites be acquired for
the Atlantic Coast. They are a part of a coastal marsh fishing ponds along with sufficient land area for
system which annually provides nesting, rearing, feeding, picnicking, boating, and passive recreational use. The plan
resting and protective cover to many of the 4 million further recommends that the right of public access to the
waterfowl using these areas during their north and south State's waters be guaranteed by the acquisition and
migrations. These areas also provide habitat for numerous development of appropriately located marine boat
other birds, for furbearers, and for many small game launches, and that areas suitable for boating and canoeing
species. uses be delineated and protected.

Consequently these areas are among the most threatened
since they are valuable for industry and commerce due to Forest Preservations and Other Woodlands
their proximity to navigable waters. They are also
valuable, after destructive filling and canal or channel Woodlands are as important a part of the total ecology of
construction, for waterfront residential development. the State as any other natural resource area. They provide
These two actions are presently reducing the wetlands by cover and habitat for many forms of wildlife; they are
approximately 1,000 acres a year. part of the process by which the oxygen content of the
atmosphere is maintained; and they contribute to the
Upland areas offer a somewhat different type of outdoor total rainfall-runoff-absorbtion cycle. Woodlands also
recreational experience than the wetlands, although many provide screening, add value to adjacent developments,
similar activities can take place. Both areas offer hunting, and contribute to the psychological satisfaction with one's
nature study, and hiking, yet the experience differs due to environment.
different species and habitat plus the considerably
different terrain and cover. One hundred fifteen different species of trees native to
Delaware woodlands have been identified. It is important
The Outdoor Recreation Plan for Delaware proposes that that these individual species be afforded the same concern
acquisition of both upland and wetland areas continue. given to the rare and endangered wildlife species in order
Such acquisition should be conducted for the purpose of that no part of the State's natural heritage be lost.
completing existing wildlife areas in order to form
efficient management and recreational units. The plan The plan recommends that at least two major forest
recommends acquisition of over 26,700 acres of wetland preservations be developed and that woodlands on the
and 13,700 acres of upland wildlife area within the next various other State recreation areas be preserved for their
thirty years. natural and aesthetic values.

:@tj
4

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PNO 1A1;;;Q_

White Clay Creek State Park

White Clay Creek State Park is located in the
northwestern portion of New Castle County. It is about
three miles north of Newark, and 18 miles west of
Wilmington. When complete, the park is proposed to be
res in size, and located adjacent to a
approximately 700 ac
large water supply reservoir.

Because of its proximity to a large concentration of
population, the park development emphasis will be on
day-use facilities. The terrain, very steep in some areas and
heavily wooded in others, offers many opportunities for
the development of a variety of activities. Among these
are: swimming, boating, picnicking, golf, informal
athletics, court and deck games.

Supporting facilities, such as a lodge for informal group
activities and an outdoor theater for the performing arts,
could also be provided. White Clay Creek State Park, at
Historic and Prehistoric Resources full development can accommodate 13,000 users at one
time. Its development has a high priority due to its
The Comprehensive Outdoor Recreation Plan recognizes proximity to the Newark-Wilmington urban areas.
that resources other than those of a natural origin are part
of the State's heritage and should be included in any Lums Pond State Park
comprehensive approach to provide for a balanced
recreational experience. Specific projections of the role of Lums Pond State Park came into State ownership through
the historic and prehistoric resources cannot easily be the United States Army Corps of Engineers' activity along
derived but it is noted that two of the major outdoor the Chesapeake and Delaware Canal. It originally provided
recreational activities, weekend and vacation trips, a water supply for the canal locks. When the canal became
traditionally include visits to these facilities by those who a sea level waterway, the pond was regarded as excess land
recognize their value. and turned over to the General Services Administration
for disposal.
A Statewide Historic Preservation Plan, currently being
prepared by the State Archives and Cultural Affairs One hundred and sixteen acres of the State-owned
Division of the Department of State, is addressing the portions have been developed as a park. The existing 464
designation and use of the State's historic resources. acres of State park land is contiguous to a 563 acre
wildlife area and 5,000 acres of federal land along the
Chesapeake and Delaware Canal. These lands could all be
part of a linear park system along the Canal including
recreation areas at Lums Pond, at Fort duPont (near
Governor Bacon Health Center), at Delaware City and at
State Parks selected areas on the Canal. The area has the potential to
become a strong link in the State's recreation program. It
Parks are the most developed of all the State outdoor could be said that it is presently the southern extent of
recreational facilities and are also the most extensively the State's major metropolitan area.
used. For these reasons and because their location must
reflect accessability to the urban centers, State parks are Lums Pond State Park could accommodate a variety of
also the most expensive. Their number, location, and outdoor recreation uses including camping, swimming,
development must be given the highest level of thought active play, hiking, nature study, picnicking, boating and
and proper planning. fishing. Water oriented uses could be available both at the
pond and at pools. A historic area containing two
The plan includes a review of the potentials for park use important structures, the Sign of the Buck Tavern and the
based upon an evaluation of natural features, population, Samuel Davies House, both under restoration by the State
location, the availability of funds, and the objective of Archivist, are important elements in the park. Fishing and
reaching an overall minimum level of development in picnicking sites also are suggested throughout the park.
every park by 1980 to ensure public use of each of these Full development of Lums Pond State Park could provide
facilities. active and passive recreation for over 17,000 users.

Brandywine Creek State Park Delaware Seashore State Park

Situated astride Brandywine Creek in the rolling hills of Delaware Seashore State Park is comprised of two parts, a
the Piedmont Plateau, Brandywine Creek State Park six_@mile stretch of barrier beach extending'from Cotton
provides outdoor recreation opportunity for the most Patch Hills on the south to Indian Beach on the north,
urban portion of the State. The park is located within five and a three-mile section bounded-by Fenwick IsIand;6n-
miles of Wilmington, easily accessible to the majority of the south and South Bethany on the north. Many Visitors-
the area's residents. The park is characterized by rolling from Maryland and the District of Columbia as well as
hills and open fields to the west of the Brandywine and Delaware residents enjoy the recreational facilities
rugged wooded slopes to the east. These characteristics available at the ocean and bay.
offer outstanding potential for the development of various
nature-oriented facilities. Proposed development is focused on ocean and bay
bathing at self-contained bathing units, each with a
Because of its location, development emphasis is on capacity of 1,000 people, expandable to 2,000. The units
day-use activities and interpretation and enjoyment of the will include parking, bathhouse, snack-bar and ocean or
park's natural qualities. The park will provide for bay bathing. Of primary concern in the development of
picnicking, canoeing, hiking, nature study and pool the ocean front bathing units is protection of the dunes
swimming for an estimated total 7,400 users at one time. and their vegative cover. These dunes form an ocean
barrier, and the protection and stimulation of natural
plant growth is the only practical means to preserve and
stabilize them. Consequently, the ocean bathing units
must be located with great care and the access across the
dunes strictly limited.

Extensive bayside development is proposed in the Indian
River Inlet area and on Burton Island. Fishing and boating
activities will be concentrated here. A fishing pier, charter
boat, concession areas, marinas and boat launch facilities,
restaurant and recreation areas are proposed. A focal
point of development is a recommended activity center on
Burton Island which will provide facilities for public
meetings or other social events.

Careful development of this park could provide facilities
for over 14,000 users at any one time without
Killen Pond State Park jeopardizing the natural beauty and value of these
resources.
Killens Pond State Park is located in central Kent County
within easy reach of the major development expected in Cape Henlopen State Park
central Delaware. It is within a half hour drive of the
Dover and Milford urban areas which are projected to Cape Henlopen State Park is a former military reservation
have a combined a 1980 population of 105,800 and a acquired from the federal government in 1964 when it
2000 population of 148,000. was declared excess land no longer needed for national
defense. The park is part of a larger reservation of which
The park focuses on two fresh water ponds, Killens and some 823 acres are still under military control.
Courseys with a'combined water area of approximately
110 acres, and the stream-valley of the upper Murderkill Cape Henlopen is recommended to be extensively
River. There is very little development at present in the developed with several distinct but interrelated areas of
park. However, initial planning indicates that substantial interest. A major focus will be on family camping located
development is possible within the limitations of funding. in the former military garrison area. Another major use
area will be ocean bathing complexes. A third activity of
Primary facilities to serve over 17,000 users could include interest will be nature study complexes, one at the most
a beach complex on Killens Pond, boating concessions on northerly tip of the Cape, the other in sandy and marshy
both ponds, picnic areas, a nature study complex and areas in the central portions of the park. In addition to
areas reserved for active recreational uses such as these proposed activities, facilities for fishing, field sports,
ballfields, tennis courts, and basketball courts. The Park tennis, and indoor recreation are recommended to round
could also include a day camp area designed for organized out the park development serving approximately 23,500
group activities. users.

Long-Range Conservation
_4

Some
lands in the State are worthy of protection for,their
conservation value alone regardless of any role they may
ultimately play in meeting outdoor recreation needs. In
some cases, these lands are critical for conservation or
open space purposes, but their size, configuration, or
location does not permit recreational use except of the
most passive type. Many of the remaining wetlands on the
State's inland bays are of this type. These areas are often
7e
small, scattered, and lack access; however, they contribute
to the complex ecological relationships of the recreational
resources, and hence are worthy of protection.

In another case, an area could be of a unique character
and require total preservation in its own right with little
concession to the demands of recreational users. The
Trap Pond State Park importance of the area as a rare part of the natural or
historic heritage may far supercede the recreation need.
Trap Pond State Park is located in the southern portion of Yet, the area may provide for passive recreation in the
the State, in Sussex County. It is the most remote from form of nature study, bird watching, and hiking. Still
the large population centers of Dover, Wilmington, and other areas are subjects for the State's long-range concern
Newark, but it is easily reached via U. S. Route 13, a as recreational resources, but because of the interest of
major north-south artery less than five miles west of the another jurisdiction or a private conservation group have
park. The park size, including proposed acquisitions and not been included in the State's acquisition program. The
protective easements, is approximately 3,400 acres. intention, in so noting these areas, is to indicate the
desirability of State action to preserve the resource should
Presently, the most heavily developed of the parks in the other interests fail.
State's system, Trap Pond emphasizes group use and
extended-stay use, characterized by the provision of The areas witWn these long-range conservation interests
facilities for the handicapped and camping areas. In include approximately 20,000 acres. These lands are to be
keeping with the site characteristics and the known preserved for their ecological value, for completion of
demand for extended-stay facilities, recommended important open spaces, or for preservation of a unique
development includes facilities for camping, swimming, link with the national heritage.
boating, picnicking, nature study, hiking and bridle trails.

The park could provide a variety of outdoor recreation
activities for over 10,000 users in a woodland and pond
setting.

FEDERAL PROGRAMS

The Federal government's role in outdoor recreation in
Delaware has been limited primarily to protection of
wildlife and to the development of subsidiary recreational
facilities as part of navigation and wildlife management
programs.

The Federal government has plans to acquire
approximately 4,000 additional acres to complete its
wildlife refuges at Bombay Hook and Primehook. These
areas when completed will encompass over 26,000 acres
under the administration of the U. S. Department of the
Interior, Fish and Wildlife Service. The proposed areas will
be part of a system of federal wildlife refuges established
for the protection of migratory waterfowl along their
Atlantic Flyways.

The U. S. Corps of Engineers owns approximately 5,000 PRIVATE ACTION
acres along the Chesapeake and Delaware Canal. While
used primarily for disposal of dredged spoils, this land has The Comprehensive Outdoor Recreation Plan cannot
recreational potential for hunting, fishing, hiking and easily determine the specific role and responsibility of
nature study. The Corps has long-range plans to devote private enterprise or of the private conservation groups. In
portions of their land for recreational uses in conjunction the first instance, the profit motive must be clearly
with State efforts at Lums Pond State Park. The Federal recognized as part of any activity engaged in by private
government also owns land in the Lewes@-Cape Henlopen enterprise. By virtue of this relationship, private enterprise
area. The largest of these ownerships totals 823 acres used will not provide facilities or services from which it cannot
for military purposes. This ownership and use bisects and receive a fair return,
seriously hampers the recreational use of Cape Henlopen
State Park. The Delaware Comprehensive Outdoor In the second case, the pure conservation motive is most
Recreation Plan strongly recommends the release of these clear. often to the point of serious limitation on use.
lands for the recreational needs of Delawareans and their These pure conservation motives are as reasonable as those
visitors. of profit or use. The efforts of the conservation groups
may offer a chance of a more efficient allocation of public
The plan does not recommend the creation of any new resources by allowing the use of public money to meet
federal wildlife or recreation areas because the recreation active needs as well as to preserve resources for future
needs can more appropriately be met through State and recreational needs.
locally-owned facilities. However, the federal lands and
programs, especially federal research, funding, and The actions of these two segments of the private sector
planning assistance, can greatly contribute to the State's can contribute to the satisfaction of needs if proper
outdoor recreation resources and ensure the maximum encouragement is given by public agencies and their
recreational and wildlife benefits of these resources. programs. Privately owned and operated outdoor
recreation facilities are vital to the satisfaction of the total
LOCAL NEEDS demand. Recreation businesses contribute considerably to
the economy of the State. Its many forms range from
The State's Outdoor Recreation Plan is not intended to marinas and camp grounds to a host of services including
specifically determine the types of, or sites for local food, entertainment, and accommodations. Tourism is the
recreational facilities, This is the proper action for county chief industry-in Sussex County, contributing heavily to
and municipal agencies. The State, however, does have a the economy of Rehoboth Beach and other resort
long term interest in the local system as the local needs communities. It has been estimated that the tourist
are generally the most pressing. The financial constraints industry generated over 100 million dollars in trade in
on local governments make the acquisition and 1967. Private enterprise should accept its responsibility
development of outdoor recreation facilities difficult, and and provide those facilities for which it is best suited,
the needs, if unmet, will ultimately be translated into including deluxe campgrounds, motels and hotels,
State-wide problems. restaurants, and resort entertainment. It should, accept
the coincident responsibility to work with government to
Recreation programs are JI underway in many local create and enforce effective regulations to protect the
jurisdictions and anticipated in a number of others. It is natural resources on which the "recreation business" is
emphasized that local needs must be realized and efforts built.
undertaken to meet these needs. The application of
accepted standards of local recreation areas indicates a The private conservation group, on the other hand, can
possible deficiency of recreation land of over 14,700 acres play an equally important role in providing the impetus
by 1980 .and almost 22,000 acres by 2000. for public action to protect these resources through their
own acquisition and management, and in conducting a
Previous State efforts to offset the local needs have taken broad-based program of public education. Action in this
at least three different forms: financial assistance, regard should go far in stimulating a viable private
technical assistance, and transfer of facilities for local interest, to the advantage of the outdoor recreation
recreational uses. Delaware now provides assistance to participant and the economy.
local governments for all phases of recreation. Various
State programs provide for acquisition, planning,
development and recreation programming. Given the
forecasted needs in urban areas, maximum efforts must be
directed toward providing outdoor recreation facilities
which serve local needs. Local governments and the State
must continue to expand their recreation programs and
must make maximum use of all available funding and
assistance to meet this high priority need.

AN ACTION PROGRAM recreation department and Sussex County has yet to
formalize programs to meet its recreational needs. The
The major problems, issues and opportunities of the State lack of action in these latter areas reflects more pressing
and the programs undertaken to resolve these have concerns including regional sewage needs and the lack of
relevance to outdoor recreation directly or to the comprehensive. plans rather than a disregard for
environment in which the recreation experience occurs. recreation. Programs are also underway in many of the
As noted in the special problems analysis and elsewhere in communities, although the earlier scarcity of development
the plan, Delaware must be prepared to meet many funds stalled many such efforts. The New Castle County
challenges. Parks and Recreation Department, and the City of
Wilmington, have programmed over $14 million during
The Action Program outlines financial and other actions the period 1971-1976. Their projects will be of
through which the federal, State, and local governments considerable value in meeting the outdoor recreation
can work toward an orderly and coordinated needs of the State's urban residents.
implementation of the plan. In order to achieve the goals
and objectives of the Plan, the State has undertaken a Other local action programs include that of the City of
variety of studies, research efforts, and enforcement Dover, which anticipates expenditures of $350,000 for
programs to protect the environment. It has also proposed acquisition and $250,000 for development during
a program to acquire 57,548 acres over the next thirty 1971-1976. Acquisition and development projects are in a
years at an estimated cost of $55,000,000. Over 34,000 of number of localities, most notably Seaford in Sussex
these acres are of such value and are threatened to the County and Newark in New Castle County. All of these
point where action will be necessary within the next ten will be of benefit in meeting the outdoor recreation need
years. and should be actively supported.

Priorities are required in order to guide the necessary
acquisitions into areas of greatest benefit. These priorities
provide for the protection of Coastal and Bay wetlands
and for the completion of State facilities which serve the
urban portions of the State as a first priority. Acquisition CONTINUING ACTION
is further favored over other activities, however, the State
recognizes the need for making its areas suitable for use. A plan is nothing more than a coordinated comprehensive
Development priorities have also been prepared with look into the future based on the conditions, data and
special emphasis on the urban facilities and the active trends evident at the time of its preparation. If these
recreation facilities for which there is a high level of change over time, the plan will no longer adequately
demand. The development program envisions the portray the current setting for outdoor recreation and,
expenditure of over $28,000,000, in the first ten year hence will be of limited usefulness. Therefore, the plan
period, to increase the utility of the State's facilities. will be periodically updated to reflect progress made since
the initial preparation. Each update will reevaluate goals,
Achievement of this ambitious program will, of course, objectives, policies, and priorities in light of changes in the
depend on the availability of funding and the ease with quantity and type of outdoor recreation facilities
which the necessary land can be acquired. Nevertheless, demanded. The update will also reflect shifts in
with federal support under the Land and Water governmental attitudes, especially as related to their
Conservation Fund, a concentrated and dedicated effort respective responsibilities, and changes in administrative
can be made to make Delaware's program a model for the and fiscal capabilities.
rest of the nation.
The public must also participate. It must make known its
Federal and local governments have also made plans to desires regarding the quality, character, quantity, and
meet the need. The Federal government has indicated its location of the facilities. This responsibility is paramount.
continued emphasis on completing its wildlife refuges and Governments and the plans they produce are intended to
on supporting the cooperative recreational use of lands provide a service to the public. The citizen's responsibility
held for navigational purposes. requires that they make known their desires, support the
plans and programs, and preserve and protect their natural
Acquisition and development programs are underway by heritage. In so doing, they will provide maximum outdoor
county and local jurisdictions throughout the State. The recreation for themselves and a chance for future
most notable programs are being carried out in New Castle generations to meet their needs in an even more urban
County. Kent County is only now establishing a environment.

CONTAL ZONE
hNIFOROMMON CEffil