Park Planning, Open Space, and Trails

Overview

Parks, trails, and open spaces in cities and counties provide public health benefits by offering spaces for activity, relaxation, and community interaction. These areas also promote environmental sustainability, supporting biodiversity, managing stormwater, and mitigating heat island effects. The National Recreation and Park’s Green Infrastructure in Parks (2017) guide highlights the importance of sustainable practices like native planting and stormwater management to create eco-friendly park systems. 

Equitable access to these spaces ensures that all community members, including people with disabilities, can enjoy the benefits of parks. Americans with Disabilities Act (ADA) standards make parks inclusive and accessible for all users. Safety is another key priority, ensuring that playgrounds and other recreational facilities are designed to minimize risk of injury.

Parks Planning Requirements and Guidelines

In Washington, although RCW 36.70A.070(8) states that cities and counties that are required or choose to fully plan under RCW 36.70A.040 of the Growth Management Act (GMA) must develop a parks and recreation element as part of their comprehensive plans, it is actually optional since funds have not been appropriated to pay for preparing them per RCW 36.70A.070(10).

For more information about comprehensive plan optional elements, see MRSC’s Comprehensive Planning page.

While the parks and recreation element is optional, jurisdictions planning under the GMA must follow guidelines that ensure adequate park space for growing populations in their capital facilities plan element. These plans must include Level of Service (LOS) standards, which determine the amount of park space needed relative to the community's size and demographic needs (RCW 36.70A.070(3)).

To be eligible for funding from the Washington State Recreation and Conservation Office (RCO), cities and counties must update their parks plans on a six-year cycle. GMA comprehensive plans are updated on a different cycle (every 10 years), so sometimes these cycles don’t sync up. In this case, local governments adopt two different parks plans: a parks element of the comprehensive plan and a more detailed parks plan that complies with the RCO’s planning guidelines.

Parks and Recreation Elements of Comprehensive Plans

The following is a high-level summary of the steps necessary for preparing a parks element of a comprehensive plan as noted by Commerce and WAC 365-196-440:

1. Begin with a needs assessment and inventory of existing parks, setting Level of Service standards to ensure adequate park space.
2. Define goals and policies focusing on accessibility, equity, and sustainability.
3. Plan for funding through sources like grants, levies, and impact fees.
4. Coordinate the parks plan with other elements, such as land use and transportation.
5. Engage the community to gather input.
6. Ensure regular updates to keep the plan aligned with growth and changing needs.

Examples of City and County Parks Plans

This section includes examples of parks and recreation elements from GMA comprehensive plans (see RCW 36.70A.070(8)), as well as stand-alone parks plans.

Below are some city examples:

• Bellevue
  • Comprehensive Plan: Parks, Recreation, and Open Space (2024) –  Outlines how the city plans for, acquires, and maintains parks, trails, and open spaces and how it develops recreational activities and programs.
  • Parks and Open Space System Plan (2022) – Includes the community's long-range vision for acquisition and development of parks and trails and preservation of open space.
• Olympia
  • Comprehensive Plan: Public Health, Arts, Parks, and Recreation Chapter (2021) – Emphasizes the role parks and recreation play in mental and physical health.
  • Parks, Arts & Recreation Plan (2022) – Serves as a guide for the phased development and enhancement of the city’s parks system. In addition to a capital investment strategy, the plan includes new goals for equity, inclusion, and belonging, and commits to climate mitigation and adaptation.
• Redmond
  • Comprehensive Plan: Parks, Arts, Recreation, Culture, and Conservation (PARCC) (2024) – Emphasizes passive and active recreation, public art, diverse recreational opportunities, and protection and enhancement of the environment and historical and cultural areas.
  • Parks, Arts, Recreation, Culture, and Conservation (PARCC) Plan (2023) – Guides management and enhancement of parks, playgrounds, community centers, forest, and trails, and informs future programs, activities, and events.
• Spokane Valley
  • Comprehensive Plan: Chapter 9 – Parks, Recreation, & Open Space (2016) – Adopts by reference the Parks and Recreation Master Plan. Opportunities include enhancing outdoor recreation, supporting sports and leisure activities, developing tourist attractions, and making recreating space accessible.
  • Parks and Recreation Master Plan (2019) – Includes an inventory of existing parks, recreational programs, and services; determines current and future levels of service the community; and establishes goals and objectives to guide the city’s parks system. 

Below are some county examples: 

• Kitsap County
  • Comprehensive Plan: Chapter 6 - Parks, Recreation, and Open Space Element (2024) – Serves as a reference and foundation for future updates of the county’s Parks, Recreation, and Open Space (PROS) Plan.
  • Parks, Recreation, and Open Space (PROS) Plan (2025) – Central to the plan is its vision for a resilient, inclusive, and accessible park system.
• Spokane County
  • Comprehensive Plan - Parks and Recreation Element (2025) – Determines the type and level of park and recreational services that are desired by the community.
  • 2026 Parks, Recreation and Open Space Plan (2026) – Establishes goals, objectives, and recommendations for developing, conserving, and maintaining parks, trails, and open space.

For examples of metropolitan park district comprehensive plans, see MRSC's Metropolitan Parks District page. 

Recreation Planning and Programs

Recreational programs encompass a range of activities that individuals engage in for enjoyment and relaxation. These programs include sports, arts and crafts, outdoor activities, and community events that provide mental and physical health benefits.

Below are some local government examples: 

• Bellevue Recreation Program Plan – Defines the city’s role as a recreational provider in this system and establishes priorities for the Parks & Community Services Department to guide the investment of public resources in support of recreation programs.
• Burien
  • Comprehensive Plan: Chapter 10 - Parks, Recreation, and Open Space (2024) – Incorporates by reference Burien’s Parks, Recreation, Open Space (PROS) Plan and includes components of it, particularly its themes, goals, and strategies.
  • Parks, Recreation and Open Space Plan (2024) – Helps guide the management and development of parks properties and recreation programs.
• Kirkland
  • Comprehensive Plan: Chapter 7 - Parks, Recreation, and Open Space Element (2024) – Prioritizes accessible and well-maintained parks, natural areas, year-round recreational opportunities, partnerships, and sustainability.
  • Parks, Open Space and Recreation (PROS) Plan (2022) – A six-year guide and strategic plan for managing and enhancing park and recreation services. The most recent update included a community needs assessment, ADA evaluation and transition plan, and athletic field use and demand analysis study. Has a focus on implementing the policies in the Parks Element.

Open Space Planning and Programs

Under the Growth Management Act, open space (as well as green space and community forests) is required to be addressed in comprehensive plans through the land use element (RCW 36.70A.070). Often, it is included in not only the land use element but also optional parks elements. Cities and counties are also required to identify open space corridors within and between urban growth areas (RCW 36.70A.160).

Open space planning coordinates with other comprehensive plan elements, including parks and recreation, land use, transportation, and environmental protection. These plans protect natural areas, agricultural lands, and environmentally sensitive areas. Open space plans (usually grouped together with parks and recreation elements in comprehensive plans) must be updated regularly to remain eligible for state funding from the Washington State Recreation and Conservation Office (RCO).

Cities and counties implement various open space programs to preserve and manage lands within their jurisdictions. These programs often provide property tax incentives for landowners who maintain their property in qualifying open space, agricultural, or forest uses (see chapter 84.34 RCW).

Conservation programs also often work in coordination with parks systems to create regional networks of protected lands. For more information, see the section on Rural Land Stewardship and Conservation Programs on MRSC’s Rural Land Use Regulation/Development page.

Examples of City and County Open Space Plans

• Bellingham Parks, Recreation & Open Space Plan (2026) – Part of the city's comprehensive plan.
• Clark County Open Space, Farm and Agriculture Program – Preserves open space by providing property tax relief to landowners engaged in commercial agricultural production.
• King County Open Space Plan (2022) – Functional plan of the county's comprehensive plan.
• Pierce County Parks, Recreation & Open Space Plan (2026) – 15-to-20-year roadmap updated every six years.
• Seattle Parks and Open Space Plan (2024) – Guides park development and open space acquisition priorities.
• Spokane County Parks, Recreation & Open Space Plan (2020) – Guides investments in the county's park system.
• Whatcom County Comprehensive Parks, Recreation and Open Space Plan (2024) – Guides the county in addressing future recreation and conservation needs.

Trails Planning and Programs

Effective trails planning integrates with comprehensive plans to establish support for trail systems and help secure funding from the Rails to Trails Conservancy. Trails serve as both recreational amenities and transportation infrastructure, connecting neighborhoods, parks, schools, and other community destinations. This section includes selected programs and initiatives focused on trails planning, development, and maintenance.

• Issaquah
  • Parks, Recreation, Trails, and Open Space Element (2024) –  This section of the comprehensive plan envisions trails as connective links that join parks, open spaces, residential areas, and natural features like creeks and forested hillsides into an integrated system called the "Green Necklace."
  • Parks System Plan (2024) – Included an extensive public engagement process which resulted four core values that influence system investments – connectivity, vibrancy, resiliency, and balance.
• King County Parks: Trail Connections – Manages the development and maintenance of trails in King County’s parks, including multi-use, biking, and hiking trails.
• Monroe Trails Master Plan -Establishes a framework for improving, growing, and maintaining Monroe’s network of trails over the next two decades.
• Pierce County Parks: Regional Trails Plan – Aims to create, develop, and maintain an interconnected trail system within Pierce County, with opportunities for volunteer involvement in trail maintenance and construction.

For information about sidewalks, see MRSC’s page on Complete Streets. 

Recommended Resources

• CityHealth: Greenspace Policy Action Guide – Resource for local governments that want to develop or improve their Greenspace Policies.
• MRSC:
  • Arts and Cultural Programs – Oversight for some arts and culture programs may be the parks and recreation department.
  • Climate Change - Table of Contents – Includes links to MRSC’s climate and sustainability resources, including a page on climate action plans.
  • Parks and Recreation Finance – Includes information about park districts, bonds, levies, state grant programs, park foundations, and more.
  • Urban Forestry – Includes information about municipal trees on public and private property, including parks and trails.
  • Volunteer Programs and Policies – See the section on Parks and Trails.
• National Recreation and Park Association:
  • Best Practices Resources – Includes guides, briefing papers, case studies, briefs, toolkits, frameworks, and other resources.
  • Resource Guide for Planning, Designing, and Implementing Green Infrastructure in Parks (2017) – Offers best practices for integrating green infrastructure and sustainability in park designs.
• U.S. Consumer Product Safety Commission: Public Playground Safety Handbook (2015) – A guide to designing safe playgrounds and equipment, focusing on injury prevention and safety standards.
• U.S. Department of Justice, Civil Rights Division: ADA Standards for Accessible Design – Chapter 10: Recreation Facilities – Provides guidelines for designing accessible recreational facilities, ensuring compliance with federal accessibility standards.
• Washington State Recreation and Conservation Office: State Trails Database Hub – Compiles data from state and local agencies and their partners responsible for building and maintaining trails.
• Washington Trails Association: Trails Rebooted – This nonprofit works with volunteers to build and maintain hiking trails across Washington State, partnering with public land agencies to improve the trail network.