未来能源研究所-娱乐与韧性：当公园承担双重责任时 Recreation and Resilience When Parks Do Double Duty

RecreationandResilience:WhenParksDoDoubleDuty

EmmaDeAngeliandMargaretWalls

Report26-07April2026

ResourcesfortheFuturei

AbouttheAuthors

EmmaDeAngeliisaresearchassociateatResourcesfortheFuture(RFF).She

earnedherMasterofEnvironmentalManagementdegreewithaspecializationin

EnvironmentalEconomicsandPolicyfromDukeUniversityin2022,focusingon

climatechangepolicy.Hercurrentresearchpertainstofloodriskandresilience,energyaffordability,andtransportation.

MargaretWallsisaseniorfellowanddirectoroftheClimateRisksandResilience

Program,aswellascohostofRFF’spodcast,

ResourcesRadio

.Walls’sresearch

focusesontheimpactsofextremeweather,floods,hurricanes,andwildfiresonpeopleandcommunitiesandthedesignofprogramsandpoliciestoequitablyenhance

resiliencetosuchevents.

Acknowledgements

ThisreportwaspreparedbyResourcesfortheFutureusingFederalfundsunder

awardNA23NOS4780282fromtheNationalOceanicandAtmosphericAdministration,USDepartmentofCommerce.Thestatements,findings,conclusions,and

recommendationsarethoseoftheauthor(s)anddonotnecessarilyreflecttheviewsoftheNationalOceanicandAtmosphericAdministrationortheUSDepartmentof

Commerce.TheauthorsappreciatehelpfulconversationsaboutstormwaterparkswithGideonBergerofCityParksAlliance,GaylanWilliamsandTamaraGrahamfromthe

cityofAtlanta,MelissaMeyerandTrentRondotfromHarrisCountyandtheHoustonParksBoard,respectively,andMichaelKirschmanfromtheCityofVirginiaBeach.TheauthorsappreciatefeedbackfromNicoleCarlozo,AndreDeSouzaDeLima,Celso

Ferreira,JosephGalarraga,ElizabethVanDolah,andDianaVeronez.

RecreationandResilience:WhenParksDoDoubleDutyii

AboutRFF

ResourcesfortheFuture(RFF)isanindependent,nonprofitresearchinstitutionin

Washington,DC.Itsmissionistoimproveenvironmental,energy,andnaturalresourcedecisionsthroughimpartialeconomicresearchandpolicyengagement.RFFis

committedtobeingthemostwidelytrustedsourceofresearchinsightsandpolicysolutionsleadingtoahealthyenvironmentandathrivingeconomy.

TheviewsexpressedherearethoseoftheindividualauthorsandmaydifferfromthoseofotherRFFexperts,itsofficers,oritsdirectors.

SharingOurWork

OurworkisavailableforsharingandadaptationunderanAttribution-

NonCommercial-NoDerivatives4.0International(CCBY-NC-ND4.0)license.Youcancopyandredistributeourmaterialinanymediumorformat;youmustgive

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ResourcesfortheFutureiii

Abstract

ExtremeprecipitationeventsareincreasinginmanyareasoftheUnitedStates,

leadingtoagrowingnumberofdamagingfloodevents.Nature-basedsolutions(NBS),whichusenaturalfeaturesorprocessestoabsorbandredirectfloodwatersaway

fromdevelopedareas,areoftenseenasenvironmentallyfriendlyalternativestohardinfrastructureforfloodprotection,suchasleveesandseawalls.SomeNBSaresmall-scale,butstormwaterparksareoftenseveralacresinsizeandprovideimportant

communityco-benefitsintheformofoutdoorrecreation.Inthisreport,wedescribe

thedouble-dutyperformedbystormwaterparksinthreecitiesintheUnitedStates,

Atlanta,Houston,andVirginiaBeach.Weexplainhowthecitiesovercamefivemajor

challengestosuccessfullydesign,construct,andfinancetheparks.Wethendiscussthespecialchallengesthatsmalltownsfaceindevelopingsolutionstoflooding

problemsanddescribethesituationintwoMarylandtownswherevaluablecommunityparksarefloodinghotspots.

RecreationandResilience:WhenParksDoDoubleDutyiv

Contents

1.Introduction1

2.Atlanta’sRodneyCookSr.Park2

3.Houston’sInwoodDetentionBasin3

4.VirginiaBeach’sBowCreekStormwaterPark5

5.OvercomingChallenges:FiveFactorsforSuccessinAtlanta,Houston,and

VirginiaBeach6

5.1.SecuringFunding6

5.2.FacilitatingInterdepartmentalCollaboration7

5.3.AligningProjectsunderaCity-orWatershed-WideStrategy8

5.4.EmployingtheRightExpertsforDesignandMaintenance8

5.5.EnsuringCommunityRecreationandEconomicDevelopmentBenefits8

6.CanParksPerformDoubleDutyinSmallTowns?9

6.1.FinancialResources9

6.2.Staffing10

6.3.Watershed-WideResilienceStrategy10

6.4.CaseStudies:FloodingandSeaLevelRiseinMarylandEasternShore

Communities10

7.Conclusion14

References15

RecreationandResilience:WhenParksDoDoubleDuty1

1.Introduction

WeatherextremesareincreasinginmanyareasoftheUnitedStates,leadingtoa

growingnumberofcatastrophicfloodevents.Incoastalcommunities,theproblemsareparticularlyseriousassealevelriseposesanaddedthreat,exacerbatingbothroutinehigh-tidefloodingandfloodingfromhurricanestormsurges(HolmesandWalls2024;Wallsetal.2023).

Nature-basedsolutions(NBS)haveemergedinrecentyearsasawaytoaddressthesefloodingchallenges(DeAngelietal.2024).NBSusenaturalfeaturesorprocessesto

absorbandredirectfloodwatersawayfromdevelopedareasandareoftenseenas

anenvironmentallyfriendlyalternativetohardinfrastructuresuchasdams,levees,

seawalls,pipes,andtunnels.Inurbansettings,whereNBSarefrequentlyreferredtoasgreeninfrastructure,thefeaturescanincluderaingardens,bioswales,urbanforests,riparianbuffers,constructedwetlands,andstormwaterparks.Inmanysettings,thesegreenapproachesleadtoimprovementsinsurfacewaterqualitythatareequallyas

importantasfloodprotection.

WhilesomeNBS,suchasbioswalesandraingardens,arecomparativelysmallinscale,stormwaterparkscanbeseveralacresinsizeandprovideimportantcommunityco-

benefitsintheformofoutdoorrecreation.Stormwaterparksaredesignedtoflood;

byincorporatingponds,wetlands,andvegetationthatstoreandabsorbwater,they

protectsurroundingareasandhomesfromflooddamage(FEMA2021;CityParks

Alliance2024).Whentheyarenotflooded,thesenaturalfeaturesserveasscenicgreenspacesandwaterfeaturesforlocalcommunities.Manystormwaterparksalsoincludedevelopedrecreationoptions,suchassportsfacilitiesandplaygrounds.Thedouble

dutythatstormwaterparksperform—providingbothfloodprotectionandaccesstorecreation—setsthemapartfrommanyothertypesofNBS.

Interestinstormwaterparksisgrowing,butdesigning,constructing,andmaintainingthemcanbechallenging,andcommunitiesfaceseveralhurdleswhentryingtoget

itright.Inthisstudy,wehighlightthreecitiesthathavesuccessfullycreated,orare

intheprocessofcreating,newstormwaterparks.Wedescribetheirexperiencesand

drawlessonslearnedforothercommunities,identifyingfivekeyfactorsforsuccess:(a)adequatefunding;(b)astrongpartnershipacrosslocalgovernmentagencies;(c)an

integratedcity-orregion-widefloodmitigation/climateresiliencestrategy;(d)attentiontothespecializeddesign,construction,andmaintenanceneedsofstormwaterparks;and(e)thecreationofsignificantrecreationandeconomicdevelopmentbenefits.

Weendwithadiscussionofsmallercommunitieswherefloodrisksalsoloomlargebutresourcesaremorelimited.UsingtwocommunitiesinMarylandasexamples,wedescribethespecificchallengesthesecommunitiesface.

Thegrowingimpactsofclimatechangeareforcingcommunitiestotakestepsto

buildresilience—tomovefromacknowledgingproblemsanddevelopingplansto

implementingprojectsontheground.Atthesametime,communityleaderswant

theircitizenstohavehighqualityoflife,andparksandopenspaceareanimportantpartofthequality-of-lifeequation(CarlinoandSaiz2019;AkhundjanovandJakus

ResourcesfortheFuture2

forthcoming).Parkscanalsobeakeydriverofeconomicdevelopment,affecting

businesses’andworkers’decisionsaboutlocationanddrivingupwages,property

values,andlocaltaxrevenues(SzabóandUjhelyi2024;Muelleretal.2021;AndersonandWest2006;TPLandHR&A2024).Communitiesbenefitinmultiplewayswhenparksarereimaginedasintegralaspectsofresiliencestrategies.

2.Atlanta’sRodneyCookSr.Park1

MultiplewatershedscometogetherinthecityofAtlanta,creatingconditionsthatmakethecitysusceptibletoflooding.In2002,TropicalStormHannacausedheavyrainfall

thatledtoamajorfloodeventinVineCity,aneighborhoodwestofdowntownAtlanta,destroyinghundredsofhomes.Thecatastrophiceventcatalyzedcityleaderstofindsolutionstotheirfloodproblems,includingbuyingout60propertiesona16-acre

parcelofland.WorkinginpartnershipwiththeTrustforPublicLand,thecityultimatelyturnedthesiteintoRodneyCookSr.Park.

Thepark,completedin2021atafinalcostof$45million,featureswalkingtrails,

playgrounds,basketballcourts,picnicareas,atwo-acrepond,andgreenspaces.

Theinfrastructureoftheparkincludesastate-of-the-artstormwatercatchmentandfiltrationsystem,designedtoretainpollutedwaterflowingfromdowntownAtlanta’simpervioussurfaces.Theon-siteretentionpondcanstoreupto10milliongallons

ofwaterduringstormsandallowsthecitytotreatcontaminantsbeforereleasing

thewaterbackintothecity’ssystem(TPLn.d.).Allofthematerialsusedinthe

park,includingplaysurfaces,fencing,andwalkways,aredesignedtowithstandand

recoverfromflooding.TheAtlantaParksDepartmentandDepartmentofWatershedManagementcollaboratedtoincorporatebothstormwatermanagementpracticesandrecreationalfacilitiesintothepark’sdesign.

Fundingfortheprojectcamefromadiversesetofsources,includingaUS

EnvironmentalProtectionAgency(EPA)grantprogramfornonpoint-sourcepollution,acity-wideenvironmentalimpactbondforgreeninfrastructure,andphilanthropic

foundations(CityofAtlantaDepartmentofWatershedManagementn.d.;Montgomery2025).TheparkisonecomponentofalargergreeninfrastructureeffortinAtlanta’s

watershedstocontrolfloodingandwaterpollution,includingtheGreensferryStreamandFloodplainRestorationProject2westofCookPark,whichisdesignedtorestoretheProctorCreekWatershed,alsofundedbytheenvironmentalimpactbond.3

CookParkislocatedinaneighborhoodthatwasoncevibrantandmiddleclassbuthadbecomedistressedbytheearly2000s.4Theparkisahighlyvaluedrecreational

1SomeoftheinformationreportedinthissectionwasgatheredfromahelpfulconversationbetweentheauthorsandGaylanWilliams,DeputyCommissionerofParkPlanningand

DesignfortheCityofAtlanta,andTamaraGraham,EnvironmentalProgramManagerfortheCityofAtlantaDepartmentofWatershedManagement(WilliamsandGraham2025).

2See

https://expertcenter.res.us/blog/the-greensferry-project-revitalizing-atlan-

tas-proctor-creek-watershed

.

3See

/environmental-impact-bond/

.

4See

/portfolio/rodney-cook-sr-park-historic-vine-city

.

RecreationandResilience:WhenParksDoDoubleDuty3

amenityinadditiontoprovidingfloodprotection,andcityleadersviewitasaneconomicenginefortheneighborhood.

Figure1.AerialPhotoofRodneyCookSr.Park,Atlanta

Source:Dudley2021.

3.Houston’sInwoodDetentionBasin5

TheHoustonareafaceshighfloodriskduetoitsflattopography,sandysoils,intenserainfalls,andsprawlingdevelopmentthathascreatedextensiveareasofimpervioussurfaces.AfterHurricaneHarveyhitin2017andcausedunprecedenteddamageto

thegreaterHoustonarea,HarrisCountybegantoprioritizefloodcontroleffortsanddevelopadaptationstrategies(HarrisCountyFloodControlDistrict2025).About

fiveyearsearlier,thenonprofitHoustonParksBoardhadbegunitsBayouGreenwaysproject,whichaimstoconstruct150milesoftrailsandparks,connectingHouston’sbayousandcreatingnaturalamenitiesforresidents.6TheInwoodDetentionBasin,

aformer226-acregolfcourseinthemiddleofthebayousthatwaslongabandoned

andchronicallyflooded,wasidentifiedasalocationthatcouldserveasbothaHarrisCountyfloodcontrolprojectandaHoustonParksBoardbayouconnectionproject.

Thedefunctgolfcourse’soldfairwayswereenvisionedaslocationsforfloodretentionandnaturalareasthatcouldbeusedforpassiverecreation.

5SomeoftheinformationreportedinthissectionwasgatheredfromahelpfulconversationbetweentheauthorsandMelissaMeyer,DirectorofPartnershipsandPrograms,Harris

CountyFloodControlDistrict,andTrentRondot,ConservationandMaintenanceDirector,HoustonParksBoard(MeyerandRondot2025).

6See

/initiatives/bayou-greenways/

.

ResourcesfortheFuture4

TheInwoodDetentionBasinwasnotthefirstcollaborationbetweenHoustonParks

BoardandHarrisCountyFloodControlDistrict;theybeganworkingtogetherin

2004toimproveBraysBayou.HarrisCountyFloodControlDistrictpurchasedland

forprojects,butwhentheyonlyneededaportionofthepropertytoachievetheir

floodcontrolgoals,HoustonParksBoardwouldpurchasetheremainder,convertittogreenspaceforrecreation,andprovidethenecessaryparkmaintenance.Theongoingpartnershipbetweenthetwoorganizationsallowsformoreopportunitiesforprojectsfrompooledfundingandasharingofmaintenanceequipmentandcosts.TheHarrisCountyFloodControlDistrictalsoviewsthepartnershipashelpingtoimprovetheirownrelationshipwithresidents,astheycanengagewithresidentsaboutparksand

openspaceratherthanabouttheoftenfrustratingproblemscausedbyflooding.

ThecostoftheInwoodprojectisestimatedat$80million,7withfundingcomingfromavarietyofsources,includingaFederalEmergencyManagementAgency(FEMA)grantreceivedinthewakeofHurricaneHarvey,acity-widebond,andHoustonParksBoardphilanthropicpartners.

WhilebuiltinfrastructureforsportsandplayarehighlightsofCookParkinAtlanta,theInwoodplannersfocusedstronglyongreenspace.Nearbyresidents—10,000peoplelivewithina10-minutewalkofthepark—wereinitiallyhesitantabouttheprojectduetoconcernsaboutthedetentionbasin,butthebasinprovedscenicandthe12miles

oftrailshavewidespreadsupportfromresidents.Moreover,thebenefitsarenotjustfornearbyresidents,asthetrailsarepartofawalkingandbikingsystemusedby

residentsacrossHarrisCounty.Asforfloodbenefits,engineersestimatethatthe

park’sflooddetentioncapacitywilleffectivelyremove264homesfromthe100-yearfloodplain(AsakuraRobinson2020).

Figure2.WhiteOakBayou,Houston,Texas

Note:TheimagecapturesoneofthesitesdevelopedasapartoftheBayouGreenwaysproject.

Source:JonnuSingleton/HoustonParksBoard.

7See

/inwood-forest-regional-detention

.

RecreationandResilience:WhenParksDoDoubleDuty5

4.VirginiaBeach’sBowCreekStormwaterPark8

LikeAtlantaandHouston,VirginiaBeachexperienceddamagingfloodingfromastormevent—HurricaneMatthewin2016.Thehurricaneproducedrecord-settingrainfallofmorethanafootin12hoursanddamagedseveralthousandhomes,promptingconcernfromVirginiaBeachleadersandresidentsabouttheabilityofthecity’sinfrastructuretohandlehighamountsofprecipitationfromstormsinadditiontoinundationfrom

sealevelrise(CityofVirginiaBeachDepartmentofPublicWorks2020).Thecityis

lowlying,withscattered“bowls”fromwhichfloodwatersdrainslowlyandareasneartheBackBaythathavelostwetlands,whichoriginallywereabletoattenuateflooding.Toaddressthecomplexproblemsitfaces,thecitydevelopedanadaptationstrategy,includingNBS,totackleexistingandfuturefloodingissues(CityofVirginiaBeach

2020).

Akeycomponentoftheplanwasconversionofthe100-acre,publiclyownedBow

Creekgolfcourseintoastormwaterpark.IncontrasttotheHoustoncase,thegolf

courseinVirginiaBeachwasstilloperational.Inspiteofthis,theParksandRecreationandPublicWorksDepartments—thecitypartneragenciesworkingtoimplement

theproject—facedlittlepushbackfromthecommunity.Residentshadexperienced

thedamagefromHurricaneMichael(andasubsequentstorm)andwerecallingfor

solutionstofloodingproblems.Inaddition,thecreationofseveralnewrecreational

amenities,includingpavedtrails,scenicoverlooks,acommunitycenter,akayaklaunch,andpickleballcourtscompensatedforthelossofthegolfcourse.

Revenuesfromthecity’sstormwaterfeeanda$567millionbondissuedin2021

arecoveringmostofthecostoftheproject,andatotalof$83.6millionhasbeen

appropriatedsofarforthefiscalyear2023(FY23)throughFY28period.9Thecityisalsoinvestingintrainednaturalresourcesstafftoensureupkeepofthesignificantinvestmentmadeinnewnativeplants10Asoffall2025,thefirstsectionoftheparkwas80percentcompleteandslatedtoopeninspring2026,threeyearsaheadoftheoriginalschedule.Thefinishedparkwillbeabletostoreupto400acre-feetofwater,protectingsurroundinglow-tomiddle-incomeneighborhoodsduringheavyprecipitationevents.

8Someoftheinformationreportedinthissectionwasgatheredfromahelpfulconver-sationbetweentheauthorsandMichaelKirschman,CityofVirginiaBeachParksandRecreationDirector(Kirschman2025).

9See

/virginia-beach-departments-docs/budget/

Budget/Adopted/Capital-Improvement-Programs-2023-2028.pdf

.

10Thetotalworthofthenativeplantsusedinthisprojectis$8million.

ResourcesfortheFuture6

Figure3.VirginiaBeach’sBowCreekStormwaterPark

Note:ConceptualartofBowCreekStormwaterParkinVirginiaBeach.

Source:CityofVirginiaBeach2025.

5.OvercomingChallenges:FiveFactorsforSuccessinAtlanta,Houston,and

VirginiaBeach

Carryingoutacomplexprojectsuchasastormwaterpark,fromconcepttodesign

toconstructionandoperation,andensuringitisanintegratedcomponentofalargerfloodresiliencenetwork,isnoeasytask.WeidentifyfivemainchallengesthatAtlanta,Houston,andVirginiaBeachfacedandovercamewhenimplementingtheirstormwaterparks:

•securingfunding

•facilitatingcollaborationbetweenoftensiloedlocalgovernmentdepartments(andinthecaseofHouston,akeynonprofitpartner)

•aligningprojectsunderacity-orwatershed-widestrategy

•employingtherightexpertsforparkdesignandmaintenance

•ensuringthecommunityreapsrecreationandeconomicdevelopmentbenefits.

5.1.SecuringFunding

Itishardtooverstatetheimportanceofmoneyinbringingtheseprojectstofruition.TheparksinAtlanta,Houston,andVirginiaBeachcostbetween$45millionand$84million.Securingfundingforthesekindsoflargecapitalprojectscanbedaunting.

RecreationandResilience:WhenParksDoDoubleDuty7

Ineachofthethreecities,leaderspulledtogetherfundingfromavarietyofsources.Allthreeissuedvoter-supportedbondstofinancetheprojects.InVirginiaBeach,thecity’sstormwaterutilityfeegeneratedimportantrevenues.HoustonandAtlantabothreceivedfederalgrants—HoustonaFEMAdisasterassistanceawardafterHurricaneHarveyandAtlantaagrantfromtheEPACleanWaterAct319program,whichfundssolutionstononpoint-sourcepollutionproblems11Thus,inbothcases,thefederal

assistancewasreactive—thatis,itcameinresponsetoanenvironmentalpollutionproblemordisasterthatthecityexperienced.

SizablephilanthropicdonationswereobtainedinAtlantaandHouston,especially

fortherecreationalcomponentsoftheprojects.InAtlanta,theTrustforPublicLand

playedakeyroleinenvisioningtheparkandbringingitacrossthefinishline,includingraisinganestimated$12.7millionfromfoundations,corporations,andindividual

supporters12TheHoustonParksBoardprovidedfundsforthetrails,landscaping,andotherrecreationalfeaturesoftheHoustonpark13Houstonhasauniqueapproachformaintenancecosts,whichcanbesubstantial:thecityagreestotakethetaxrevenuesestimatedfromthepropertyvalueincreasesinaneconomicimpactareaaroundtheBayouGreenwaysandputittowardamaintenancefundthatgoestotheHouston

ParksBoard,whichhandlesthemaintenancefortheGreenways,includingInwood14

5.2.FacilitatingInterdepartmentalCollaboration

Thecollaborationbetweenparksagenciesandstormwaterutilities/floodcontrol

districtsisextremelyimportanttothesuccessofstormwaterparkprojects.Local

governmentdepartmentsareoftensiloed,focusingontheprioritiesandmandatestheyfaceasestablishedinlocalmunicipalcodesandregulations.Inthesethree

cities,however,theagenciesinvolvedintheparkprojectsendedupincloseworkingrelationshipswitheachother,allowingtheparkstoprovidebothrecreationandfloodreductionbenefits,oftenatloweroverallcosts.

Inworkingtogether,representativesfromthethreecitiesreportnumerousbenefits

fromworkingacrossdepartments.InAtlanta,theDepartmentofParksandRecreationandDepartmentofWatershedManagementhavepooledresourcestobringlarger

projectstofruitionthaneithercouldhavedoneonitsown.TheVirginiaBeachParksandRecreationDepartmentcoordinateswiththeDepartmentofPublicWorksaround

11See

/nps/cwa-ss319-grant-current-guidance

.

12See

/impact-insights/atl-officials-break-ground-on-

vine-citys-rodney-cook-sr-park

.

13See

/inwood-recreation-project/

.

14TexasLocalGovernmentCodeChapter380allowsmunicipalitiestouselocalrevenuestoawardgrants(orloans)tononprofitorganizationsforeconomicdevelopmentpurposes.Formoreinformation,see

/economy/development/grants/

ch380-381/

.Theideaofusingexpectedincreasesinpropertyvaluestopayforinfra-

structureisoftenreferredtoastax-incrementfinancing,orTIF(GreenbaumandLanders2014).

ResourcesfortheFuture8

keylandparcelsinthecity,sometimesdonatingsomeofitsparklandforstormwatermanagementpurposesinexchangeforDepartmentofPublicWorksfundingfortrailsandotherrecreationalamenities.InHouston,theHoustonParksBoardandHarris

CountyFloodControlDistrictshareequipmentandstaffforparkmaintenanceacrosstheBayouGreenways.Forparkstopulloffthedoubledutyofprovidingfloodresilienceandrecreationalamenities,bringingtogethertheexpertiseofthetwoagenciesis

critical.

5.3.AligningProjectsunderaCity-orWatershed-WideStrategy

Asingleparkisnotthesolutiontoacity’sfloodingproblems,butitcanbeone

componentofanintegratedapproach.Acommonthreadamongthethreestormwaterparksdescribedaboveisthattheyhavebeenenvisionedaspartofabroaderflood

controlorclimateresiliencestrategy.

InwoodDetentionBasinispartofHouston’sBayouGreenwaysproject,CookParkpartofAtlanta’sfloodplainmanagementplanacrosswatersheds,andBowCreekParkpartofVirginiaBeach’scomprehensiveprogramforaddressingsealevelriseandflooding(knownas“SeaLevelWise”).Havingtheparkaspartofanintegratedregion-wide

effortensuresthatitprovidesthe“as-advertised”floodprotectionbene