Park master plan Bigelow Park (Middlegrounds), Veterans Memorial Park

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

Coastal Zone b .7*
Information
Centor

PARK MASTER PLAN

BIGELOW PARK
(Middlegrounds)

VETERANS MEMORIAL PARK

CITY OF BAY CITY
301 Washington Avenue
Bay City, Michigan 48708

COASTAL ZONE

INFORMATION CENTER

April 1985

Prepared with Professional Assistance of:

A. HOWARD KUNDINGER ASSOCIATES
PLANNING AND DEVELOPMENT CONSULTANTS
500 Federal Avenue
Post Office Box 1142
SB Saginaw, Michigan 48606
482
.M52 This document was prepared in part
B39 through financial assistance provided by
1985 the Coastal Zone Management Act of 1972
administered by the Office of Coastal Zone Management
National Oceanic and Atmospheric Administration

P U R P 0 S E 0 F S T U D Y

This plan documents the planning process for a park master plan for Bigelow
Park9 also known as the Middlegrounds of Veterans Memorial Park. The site is
an attractive one for the City and there has been interest in assisting its
development. Accordingly, the City of Bay City is preparing this plan to
identify an effective, long-range plan for utilization of the unusual island
resource so that all individual efforts to develop the site implement a common
concept.

L 0 C A T 1 0 N A N D C 0 N T E X T

Bigelow Park is located at the north end of the Middlegrounds, a large island
in the Saginaw River. It is part of a larger regional park - Veterans
Memorial Park - that extends along the west bank of the Saginaw River from
Midland Street to the Middlegrounds. The park is the largest in Bay City and
includes a comprehensive range of facilities from athletic fields and other
active recreation to passive recreation such as picnic grounds, and arboretum
and nature study area. The Middlegrounds is an especially attractive site
because it is a key image point for river traffic and also provides
exceptional access to the river for park visitors. The location is shown on
the opposite map.

The site is relatively small and lacks large, level, open areas that are
desirable for most active recreation such as athletic fields, court sports or
other extensive park uses. Furthermore, its most unique quality is a high
degree of accessibility to the river, which would not be related to most forms
of active recreation. Finally, there are many nearby opportunities for active
recreation facilities in Veterans Memorial Park less than half a mile to the
north. Accordingly, the City envisions the site being most suitable and
attractive for passive recreational uses such as picnic areas, playground
equipment, boat tie-ups and shore or pier fishing.

Access to th@ site is via the Lafayette Bridge that connects Salzburg Avenue
to the west of the river and Lafayette Avenue to the east. The north end of
the Middlegrounds does have municipal water, but it does not have sanitary
sewer wervice. Electricity can be made available to the site. Soils
underlying the site are generally quite unstable and unsuitable for much
development. However, the site has had a great deal of fill that includes
stone, inert debris, sand, clay and topsoils. Thus the soil is not uniform
and remains unsuitable as is for any intensive development. The river banks
are subject to erosion by the Saginaw River from both spring runoff and other
storm events and by wave action from winds.

The site itself is approximately nine acres. It includes a portion along the
west channel of the river from the bridge to the north and the northern tip of
the Middlegrounds. It shares the area north of the bridge with the Bay City
Boys Club, which operates an indoor recreation center and two ballfields on
City-owned property. US Department of Commerce
NOAA Coastal Services Center Library
2234 South Hobson Avenue
Charleston, SC 29405-2413

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S I T E A N A L Y S I S

The principal conditions affecting the site for recreation development can be
summarized as below:

- Bigelow Park and the rest of the Middlegrounds can be accessed by vehicles
or by pedestrians only via the Lafayette Bridge. Public utilities on the
island include municipal water and electricity. Sanitary sewer service is
not available.

- Most development on the Middlegrounds will be oriented toward it's west
shore, which is the west channel of the Saginaw River. This shore has
approximately 2,100 lineal feet of river bank, while the main channel
shoreline is only 1,000 lineal feet in length because of the Boy-s Club. In
addition, the west channel is narrower, somewhat sheltered, and has less
wave action or other disturbances.

- The site includes the tip of the island with about 6 acres of area and the
southwest corner at the Lafayeete Bridge with about 2 1/4 acres and a
linear segment between the two. The southwest corner is low and subject to
flooding. The rest of the island is 3 - 4 feet above normal water level
and is without significant topographic relief. Most of the northern tip of
the island is out of the 100 year flood plain.

- Water quality in the Saginaw River was rated "medium" in 1977 according to
the Michigan Department of Natural Resources, although some "poor" readings
have been obtained. The water quality is not suitable for body-contact
water recreation. There is a Fish Consumption Ban for fish caught in the
Saginaw River because of PBB and TCDD levels, but recent testing has the
DNR reviewing the ban because of improvements in water quality. Game fish
in the Saginaw River near the site includes perch, northern pike, walleyes,
and some largemouth bass. Water depths in the west channel area as deep as
8- while the main, navigable channel is maintained at 26'.

- The river banks are subject to scouring and erosion from the river's
northerly flow, from wave action and from the wakes of watercraft.

- There is no significant natural flora on-site. It has no wetlands, no
significant trees and consists almost entirely of maintained grass. The
only site fauna observed were a number of ducks and geese, some of which
were apparently domesticated and some wild. It appears that this
water-fowl actually lives on the opposite bank of the west channel.

- Views from the site are variable. Toward the west the predominant uses
across the channel are City parkland, some residential some small industry.
To the north along the River, there is additional City parkland, the
Veterans Memorial Bridge, downtown Bay City - including historic City Hall,
some industrial uses and some riverfront docks. Views to the east of the
site include predominantly industrial uses. The general views of the river
afford excellent viewing of commercial shipping and of pleasure craft on
the river.

Site conditions are graphically portrayed on the opposite map of the island.

D E V E L 0 P M E N T P 0 L I C I E S

Development goals were formulated by an ad hoc committee that identified the
major issues and then formulated develop7me_r@_t_goals and priority ranking for
improvements. The committee consisted of City personnel, representatives of
the Boys Club, and representatives of the Lions Club, which has indicated
interest in assisting with development of the s i te. The major issues
identified by the committee were:

- Ensure that the site is developed for passive recreation uses with a
special emphasis on high quality because of the unique character of the
s i te.

- Special concern was noted for shore protection through design or management
recommendations.

- Accomodation must be made to permit connection of a foot bridge to three
islands northwest of the site and thence to main Veterans Memorial Park.

- Because of the unique character and river access of the site, plans should
focus on its water proximity and passive uses.

In consideration of these issues, a list of priority improvements was prepared
by the ad hoc committee. The improvements desired for Bigelow Park and their
relati@_e-@_riority are as follows:

HIGHEST PRIORITY:

Fishing Pier
Parking Lot, Preferably Paved
Boat Tie-up

Picnic Area(s)
Shelter/Pavillion, Preferably Semi-Enclosed
Toilet Facilities

Electricity, Including Security Lighting

IMPORTANT:

Observation Deck
Vegetative Visual Feature
Playground for Children

Grading to be Level with Berms
Plant Materials Might Include Coniferous
On-Site Wastewater Treatment

DESIREABLE:

Architectural Feature
Pick-up Field Sports

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G E N E R A L S I T E 0 R I E N T A T 1 0 N A N D A N A L Y S I S

. . . . . . . . . .

. . . . . . . . . . . . . .

..........

. .. . .... . .. . .
EXISTING PARKING

. . . . . . . . . . . . . . . . .
BOYS CLUB

EXISTING SOFTBALL FIELDS

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STERPLAN BIGELOW PARK
DLEGROUNDS
D 0 VETERANS MEMORIAL PARK
BAY CITY 9 MICHIGAN

BY HOWARD KUNDINGER ASSOCIATES

A L T E R N A T I V E P L A N C 0 N C E P T S

Because the range of activities is modest and because of the limitations of
the site, there is a modest range of options available for development. Two
concepts were formulated for review and are discussed below:

Preliminary 1 featured four adjacent zones of use (shelter-group picnic
zone; open space-picnic zone; bridge terminus-landmark zone; and river
access zone along the main channel). Parking is provided immediately
adjacent to the Boys Club location requiring access to the rest of the site
by walking. The parking area is bufferred from the northern portion of the
by berms.

Preliminary 2 had the same four zones, but segregated the shelter-group
picnic area from the balance of the uses by extending and curving the
parking lot into the site and around that zone. This increased the number
of spaces available and permitted parking closer to all parts of the site.
It does, though, use more of the limited space for circulation and parking.

M A S T E R P A R K P L A N

During review by the ad hoc committee and City staff, it was determined that a
modification of Preli`mir@a__lry 1 was most appropriate for the site. The final
plan was designed accordingly with the major change being a reduction of the
access and uses along the main river channel. That plan is shown on the
following map.

The plan generally treats the area near the Lafayette Bridge as part of the
entrance to the tip of the Middlegrounds. No functional uses of the area are
planned because it is highly subject to flooding. Thus it is planned to be an
aesthetic and minimal use area such as for trails and picnics. An access road
under the Lafayette Bridge is shown to provide access to the south end of the
Middlegrounds without crossing Lafayette. It should be noted that the
location of that road under the bridge is especially prone to flooding and
that vertical clearance from any road to the bridge trusses would be well
below standards and restricted to automobile traffic. Based on a better study
of Middlegrounds access off the Lafayette Bridge, it may not be desireable to
actually include the road under the bridge. Even without the road, however, a
trail under the bridge for bikes and pedestrians is still appropriate.

The access road to the tip of the island would be developed between the Boys
Club ballfields and the rivers edge. The road should be high enough to avoid
frequent flooding and wide enough to provide for two lanes of traffic and
parking on at least one side. The area between the road and the ballfields
should be landscaped with trees to provide a visual buffer and screening to
intercept fly balls from those fields. The road ends in the parking lot so
that additional space is not needed for circulation and to avoid conflicts
with other uses.

LEGEND

IENTRANCE DRIVE (24 roodway)
2PEDESTRIAN oW BICYCLE PATH (8'wide asphcO
3LANDSCAPING (deckWo and owWoon trees and stwubs)
4PEDESTRIAN CROSSING
5PARK ENTRANCE SIGN
6BOAT DOCKS
7PARKING LOT (86Vw")
8EVERGREEN PLANT SCREEN
9PICNIC SHELTER. RESTROOMS and STORAGE
10 BANK FISHING
11 PLAYGROUND
12 BERMS
13 OPEN SPACE and PICNICING
KBENCHES ard SITTING AREAS
15 PERMANENT TERRACED FISHING AREA
16 UNDERWATER FISH HABITAT
f? PLAZA
0SHORELINE STABILIZATION (roprop or gabion baslaft)
IS BRIDGE TERMINUS / LANDMARK
20 PEDESTRIAN BRIDGE

............

-Z4 .. .. ... .. ..

. . . . . . . . . .

16
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Most of the recreation functions are reserved for the tip of the island. The
proposed uses in this area are generally restricted to passive uses that are
linked with the river for either fishing or aesthetic purposes. No athletic
or competitive sports are intended or appropriate for the site. The major
uses of the tip are described below:

Picnic Facilities will be provided for both group and family picnics on
the site. The facilities will include a picnic pavillion, grills and
tables, and landscaped areas. The principal area for picnics will be
imm diately adjacent to the parking lot and at the east shore of the
island looking across the river's main channel. The river will have a
fishing access along its frontage at the picnic area. This will
especially provide for group picnics, family reunions, and other large
group users.

A more informal space for picnics will be provided just north of that
area. It need not have a shelter or any other formal aspects, but will
provide for an attractive landscaped area with views of the river. The
area will include a children's play area and open space for a possible
pick-up sports (volleyball, badminton, etc.), but the primary purpose of
this is to provide for activities for small children during picnics.
Generally the eastern half of the park will be oriented toward picnic
functions.

Riverfront Interaction will be greatest on the west shore of the
Middle-grounds. Boat tie-up docks will be constructed here so that
boaters can enjoy a picnic or visit the Middlegrounds. Fishing piers and
bank. sites will also be constructed. In addition, the access road and a
trail will provide for views of the river for aesethetic purposes.

A Landmark/Plaza is proposed for the northern tip of the island. It is
expected that such and architectural landmark use an appropriate theme
such as a possible stylized lighthous, ship's bow or similar image. A
hard surfaced plaza down to the river would be desireable as well. This
could also be used for fishing as well. The plaza would be a logical
terminus for the pedestrian/bicycle bridge to the three islands and then
west shore of the Saginaw River.

A Trail Network is planned to provide access throughout the entire site
for pedestrians, joggers, and bicyclists. The basic system makes Bigelow
Park a part of a total trail system planned for most of the Middlegrounds
and then crossing on a proposed bridge to the three islands and then the
west shore of the Saginaw River where it traverses the length of Veterans
Memorial Park.

In addition to being a part of this major trail along the Saginaw River,
the proposed improvements provide for internal circulation among the
various elements (picnic, riverfront, playground, landmark-plaza, etc.)
of the park. This internal circulation and the riverfront segment
provide for access along all of the river's edge in the park.

E;1n(,tioti@-:11 @lements olanned for t@,(? 3"te
will require necessary supporting infrastructure. This in(@ludes the iccess
road, which should be at least 201 and preferably 241 wide to accomodate two-
way traffic. Although de,3ireable to widen it sufficiently to pr,)vide ffor
parking on at least one side of the road, there is not sufficient room between
the river and the exi3tLng ball fields.

The road terminates into a parking lot just -After the access road clears the
Boys Club ballfields. The parking lot is designed to accomodate 86 vehicles
on a paved service. In addition it includes a landscaped strip between the
two bays of parking to keep the image of the park green. Pedestrian
circulation is provided on all sides of the parking lot. There is a
pedestrian crossing from the parking lot across the road to the west bank of
the Middlegrounds that is less than ideal because the clearance from the
parking lot is only about 301. However, due to very slow speeds required to
access the parking lot, this should not present a safety problem.

Water service for picnics will be provided from an existing watermain on the
Mildlegrounds. However, it will only be a convenience matter and will not lie
used for complete restroom facilities. Wastewater control is available using a
number of methods. As in many other City locations, portable toilets could be
used. Since there is not sanitary sewer :;ervice on site and not likely to be,
and since the overall location is not especially favorable for septic systems,
one additional method is available. That is the use of an organic composting
system. These are self-contained, waterless, low odor, biological
decomposition systems that have worked in remote sites across the country and
world. They are relatively simple from a maintenance and operations
standpoint with their only end product being a useful organic mulch that is
safe and easy to handle and low odor.

Landscaping is a major feature of site development. The site will be
essentially level except for three major berms. Two of them are adjacent to
the parking lot and are intended to help visually screen the lot from active
functions as well as to provide visual interest to the site. The third berm
is more of a knoll near the tip of the island and is intended to provide an
elevated, attractive area for viewing downriver. It also segregates the more
formal plaza area from picnic and children's play area and from some of the
riverfront fishing areas.

Vegetation would be used for both functional and aesthetic purposes. A row of
mixed coniferous and deciduous trees is suggested between the ballfields of
the Boys Club and the access road. This not only provides for visual
separation of the active recreation fields from an otherwise passive park, it
also provides some protection from balls leaving the fields and potentially
hitting vehicles. A strong coniferous screen is suggested at the south end of
the parking lot to screen the ballfield from Bigelow Park. The remaining
vegetation is intended primarily to help provide some wind and visual
screening, but is predominantly aesthetic in function.

Shore protection is a major issue for any riverfront park along the Saginaw
River, but especially for an island environment. A number of methods are
available, none of them especially inexpensive. A revetment would generally
be effective if slopes of 1 vertical to 5 horizontal can be maintained.
Revetments can include stone, concrete rubble, concrete blocks in a variety of
patterns and uses such as turfblocks, stacked bag or mat revetments
(preferably concrete filled), or gabion revetments. Stacked gabion baskets
are also very effective and do not require the controlled slopes needed by
revetment.s. The City of Saginaw has successfully and extensively used gabion
baskets on its riverfront park sites and also at storm sewer outfalls. Gabion
baskets are one of the most cost effective systems. The cost of shore
protection is not in,.@Iuded in the cost estimates. Because of relatively high
costs, it is often necessary to undertake it in a phased, section-by- section
process.

ESTIMATED COSTS FOR CAPITAL IMPROVEMENTS

On a following page is a summary of estimated costs for constructing the
capital improvements portrayed on the site plan map. These costs are based on
anticipated 1985 construction season costs. They also assume that the
improvements constructed will be sound, functional, and durable, but that
extraordinarily expensive improvements are not generally necessary. They also
show shore stabilization only at the extreme north end of the site and not
included along the entire perimeter of the island, though more extensive
stabilization should eventually be considered. A possible extension of the
entrance drive looping underneath the Lafayette Bridge is also not included
because of the doubt that such an improvement will be constructed, at least in
the near term.

The cost estimates also do not include construction of a pedestrian/bicycle
bridge agross the west channel to the three islands and thence to the west
shore of the Saginaw River. Eventual construction of that bridge will require
careful design consideration to provide adequate vertical clearance between
the water surface and the structure for watercraft (at least equal to the
Lafayette Bridge) as well as reasonable slopes. It will also require careful
design with the final character of a landmark at the north end of the park.

It may be possible for costs to be reduced for some of the features by using
lower cost seasonal employees, volunteers, or similar low cost labor. It is,
though, important to carefully supervise inexperienced workers to assure the
intended functions and durability can be met.

C A P I T A IMPROVEMENT C 0 S T S

Below is an estiluate of the Capital Improvement Cost for Bigelow Park based on
the master park plan. These costs are based on 1985 cost estimates and based
on the quantities and conditions identified. Actual costs could vary according
to final design character and conditions.

1. ENTRANCE DRIVE
(+ 1155 l.f., 22mi./241 w asphalt, not incl. under bridge) $ 35,000.00

2. PEDESTRIAN arid BICYCLE PATH
(+ 3290 L.F., .6 mi./8' w asphalt, not incl.
loop under bridge) .......................................... 31,500.00

3. PEDESTRIAN CROSSING
(Painted road surface and signage ........................... 500.00

4. PARK ENTRANCE SIGN ......................................... 1,000.00

5. PLAYGROUND ................................................. 15,000.00

6. GRADING
(5.3A, not incl. entrance drive) ............................ 32,500.00

7. PARKING LOT
(86 cars) .................................................. 51,500.00

8. SHELTER, RESTROOM AND STORAGE BLDG ......................... 95,000.00

9. BOAT DOCKS ................................................. 12,500.00

10. PLAZA DEVELOPMENT
(+ 17,600 s.f., incl. bank stabilization, ornamental paving
terraced fishing location developments) .................... 123,200.00

11. LANDSCAPING
(Includes trees, shrubs and lawns. Does not include
entrance drive.) ........................................... 30,200.00

12. AMENITIES
(Benches, trash cans, picnic tables, grills
and signage) ............................................... 5,000.00

13. UNDERWATER FISH HABITAT DEVELOPMENT
(Use salvaged materials and volunteer labor) ............... 0.00

14. LIGHTING
(201 h, low pressure sodium fixtures, ea.) ................. 1,800.00

TOTAL (not incl. lighting) $ 434,200.00

0 P E R A T I N G A N D M A I N T E N A N C E C 0 S T S

Because of simple design characteristics, the passive nature of most of the
facilities, and the modest size of Bigelow Park, the proposed improvements are
not expected to introduce significant costs for routine annual maintenance.
The costs identified below are on based assumptions using permanent employees
or contractors and 'maximum equipment or operating needs. Eveft then, the
operating and maintenance costs are modest in comparison with the capital
i nve s tme n t. Maximizing the use of seasonal employees, existing equipment and
other normal efficiencies should result in even lower costs.

OPERATING AND MAINTENANCE COST ESTIMATES SUMMARY:

Salaries, Wages, and Frindge Benefits . . . . . . . . . $ 5,000.00
(Assumes equivalent of 1/3 of a permanent employee
for 21 weeks)

Equipment Costs (Annual for Lawnmower Amortization/Fuel). . 600.00

Utilities (Water and Electricity) . . . . . . . . . . . . . 800.00

Miscellaneous and Contingencies . . . . . . . . . . . . . 1,100.00

TOTAL ANNUAL ESTIMATED OPERATING AND MAINTENANCE COSTS $ 7,500.00

These costs could esculate if final design characteristics included a great
deal of specialized improvements not now expected. If any lighting beyond
basic security lighting were anticipated; or if the tip of the Middlegrounds
included a lighted landmark; or if fountains requiring pumps were installed,
then the above figures could be substantially low. Similarly, if play
equipment that required frequent upkeep or complete restrooms were
constructed, then the costs could also run higher. Such improvements are not
now anticipated, and thus the costs identified above should approximate actual
annual operating and maintenance costs exclusive of capital depreciation.

R E K A 1 0 N IIKOGRALMI@, o N S i 'r E

Bigelow park will be primarily a passive recreation facility that will not
require active recreation programming to optimally utilize it. Most of the
activities will be informal, family-oriented activities rather than intensive
recreation such as organized athletics. Accordingly, there will be no need to
plan on recreation programming for the site. Several organized activities,
though, may be attractive at the site.

Group picnics can be expected to be popular at the site. Already the
Lion's Club has plans to use the park for barbecues and special
programs as a service club. Other organizations may likewise find the
site attractive for their uses. Certainly family reunions and similar
functions will also be frequent. These do not, however, require any
special public investment in programming other than assuring there are
enough picnic tables, grills and trash receptacles for normal use.

Special events using the riverfront location are very appropriate and
may result in use of the park. These might include a children's
fishing contest, a boater's picnic, a canoe race in the west channel,
or any number of similar events. Such events, however, are frequently
organized by civic groups or associations and would not necessarily
require any special involvement in City recreation programming.

Fireworks viewing during the Fourth of July festival should be
excellent from Bigelow Park. The shoreline, the berms, the monument
plaza, and the parking lot should afford good vistas of that week-long
event.

The net result is that the planned development of Bigelow Park on the
Middlegrounds should not result in any demand for City-sponsored recreation
activities. Such programming is possible, but need be City-sponsored only if
desired and can often be more effectively handled by community groups. Thus
no costs for recreation programmine are should result from this plan.

NOAA COASTAL SERVICES CENTER LIBRARY

3 6668 14104 7706
C I T Y 0 F B A Y C I T Y
3 0 1 W a s h i n g t o n A v e n u e
B a y C i t y M i c h i g a n 4 8 7 0 8

Timothy G. Sullivan, Mayor

City Commissioners:

Thomas J. Bleau, President
Patricia A. Savage
James L. Murdey
Robert D. Mochrie
Richard J. Laskowski
Michael D. Martindale
Thomas A. Baird
Michael J. Buda
John M. Hartman

Participating City Staff Members

David D. Barnes, City Manager
Erland Kivisto, City Planner
Donald Heffelbower, City Engineer
Alex Peterson, DPW Director
Dave Bourdon, Parks Superintendent
Ronald MacGillivary, Consultant

NATIONAL REGISTER OF HISTORIC SITES
MORGAN HISTORIC REGISTER

Other Participants
Bay City Lions Club
Bay City Boys Club

This document was prepared in part through financial assistance
provided by Coastal Zone Management Act of 1972 administered by
the Office of Coastal Zone Management, National Oceanic and
Atmospheric Administration through the Michigan Department of
Natural Resources.