BOR_BusinessPlanGuidebook.pdf

U.S. Department of the Interior Bureau of Reclamation Denver, Colorado July 2008

Outdoor Recreation Business Plan Guidebook

Mission Statements

The mission of the Department of the Interior is to protect and provide access to our Nation’s natural and cultural heritage and honor our trust responsibilities to Indian Tribes and our commitments to island communities.

The mission of the Bureau of Reclamation is to manage, develop, and protect water and related resources in an environmentally and economically sound manner in the interest of the American public.

U.S. Department of the Interior

Denver, Colorado July 2008

Outdoor Recreation Business Plan Guidebook

Submitted to:

United States Department of the Interior Bureau of Reclamation Policy and Program Services Denver, Colorado

Prepared for the Bureau of Reclamation by:

Mark S. Forbes, Deputy Director Division of State Parks and Recreation Department of Natural Resources, State of Utah under Requisition No. 06409200021

In cooperation with

Frederick Liljegren and Vernon Lovejoy United States Department of the Interior

Guidebook Citation: Forbes, M.S., F.S. Liljegren, J.T. Liljegren, and V.E. Lovejoy. July 2008. Outdoor Recreation Business Plan Guidebook. United States Department of the Interior, Bureau of Reclamation, Policy and Program Services, Denver Federal Center. Denver, Colorado.

Acronyms and Abbreviations

BLM Bureau of Land Management

CY calendar year

Guidebook Outdoor Recreation Business Plan Guidebook

IRR internal rate of return

NPS National Park Service

NPV net present value

Reclamation Bureau of Reclamation

ROI return on investment

SWOT strengths, weaknesses, opportunities, and threats

USFS U.S. Forest Service

Table of Contents

Page

Executive Summary/Introduction

Purpose Guide to Developing the Business Plan

Program Mission, Vision, Values, and Objectives Mission Vision Values Objectives

Park Description, Strengths, Weaknesses, Opportunities, and Threats

(SWOT)

Park Description Description of Facilities and Services Personnel Plan Park Partners Strengths, Weaknesses, Opportunities, and Threats

Market Analysis Demographics User Characteristics Market Trends Market Needs/Demands

Financial Analysis Strategies, Work Plans, and Milestones Summary

Strategies, Work Plans, and Milestones Financial and Impact Strategy Evaluation Success Monitoring

Performance Measures Performance Adaptation

Business Plan Template Park Description/Location

General Description Park Facilities/Services

Organizational Summary Park Partners

SWOT Analysis Summary

Strengths, Weaknesses, Opportunities, and Threats Summary Market Analysis

Market Summary Demographics User Characteristics Market Trends i

Market Needs/Demands Financial Analysis

Strategies, Work Plan, and Milestones Summary Financial Summary of Selected Alternative

Success Monitoring

Tables

Table Page

1 Park features and services 2 Personnel plan 3 Park partners

4 SWOT

5 Summary of demographic information 6 User characteristics 7 Trends by outdoor recreation activity 8 Strategies, work plans, and milestones 9 Financial summary of selected alternative 10 Comparison of current and proposed plan 11 Summary of annual funding sources 12 Summary of annual expenses 13 Performance measures

Appendix A – A State Park and Recreation Sample Business Plan ........follows 16 ii

Executive Summary/Introduction

In 2004, the Bureau of Reclamation’s (Reclamation) Office of Program and Policy Services (now Policy and Program Services) commissioned a study to determine the overall welfare of the 66 non-Federal partners that manage 159 recreation areas on Reclamation land and water throughout the 17 Western States. The study concluded with five recommendations:

1. Assist the partners in developing or improving their recreation management plans

2. Encourage the use of best recreation business practices

3. Strengthen the partner’s financial solvency

4. Continue collaborative communications

5. Consistency with agreements, contracts, and planning documents

The Office of Program and Policy Services identified the need to help Reclamation and its partners with best recreation business practices and financial solvency by preparing a simple business plan approach to assist in their decisions in managing recreation areas. The non-Federal partners have recognized the need for a simple but effective tool for planning, implementing and monitoring park programs that can be utilized by the park or program manager—those on the front line.

In the spirit of collaboration, both Reclamation and Utah State Parks recognized the benefits of combining resources to develop an “Outdoor Recreation Business Plan Guidebook” (Guidebook) for public entities.

Purpose

The purpose of this Guidebook is to provide a how-to guide to facilitate the development of a simple but effective business plan with limited resources. A business plan is a tool to address the economic consequences of various management decisions. It does not address or discount the importance of nonmarket values such as the common good from people spending time in nature, the social benefits of providing settings for activities that improve public health, and venues for environmental education and open space for natural processes, nor does it suggest that all actions must result in a profit.

Outdoor Recreation Business Plan Guidebook

The guidelines and criteria used to develop this Guidebook are as follows:

1. Simple – The end product should be no more than 20 pages, with terminology familiar to the end user.

2. Useful – The final plan developed by staff should provide a practical, usable plan of action that will aid the program in completing its goals and objectives.

3. Easily implemented – The plan must be developed in such a way that staff can easily implement the various tasks identified in the plan.

4. Measurable – Actions and results must be measurable.

The following sections in this Guidebook include step-by-step instructions on how to develop an effective, usable business plan. This Guidebook also includes a business plan template that can be readily used and modified as needed.

Guide to Developing the Business Plan

The business plan is a tool that helps staff efficiently plan, organize, evaluate, and implement available resources to meet the organization’s goals and objectives. In general, business plans forecast 2 to 3 years into the future and are task oriented.

Since there are many different formats, the Cover Page, Table of Contents, and Introduction to the business plan are left up to the individual entity to prepare.

This provides ample flexibility to follow the entity’s formatting and visual identity.

The following sections refer to an outlined template that follows and includes a description of each component, instructions and/or guidelines, and reference information.

Program Mission, Vision, Values, and Objectives

The purpose of this section is to clearly describe the recreation program’s goal or objective. This is accomplished by using mission, vision, and value statements.

These statements should be reflected, ultimately, in the implementation and work plans.

Mission

The mission statement should describe the organization’s purpose for existence.

Vision

The vision statement should describe the desired condition or state of being the organization wishes to become (e.g., levels of services or facilities).

Values

What characteristics or conduct is desired? It is a reflection of how we will achieve our goals and objectives. Innovation, efficiency, and customer service are examples of characteristics that are valued.

Objectives

Objectives should be very specific and clear (e.g., increase revenues/reduce expenses by 10 percent within the next 12 months).

Park Description, Strengths, Weaknesses, Opportunities, and Threats (SWOT)

This section identifies key features of the park and elements of the organization, focusing on its structure and the people who will provide the services and/or products of the program.

Park Description

A short description of the history, resources, geography, and physical location of the park or program.

Description of Facilities and Services

Identify key features of the park (e.g., campsites, type of bathrooms, utility hookups, vistas, group facilities, activities, and services provided).

Personnel Plan

The personnel plan identifies paid and volunteer staff and their specific responsibilities and duties. The plan should also identify what level of decisionmaking authority each position carries. Where possible, a weekly schedule should be included to help identify any potential staff shortages or conflicts.

Park Partners

Partnerships, cooperative agreements, and joint ventures are oftentimes an effective and efficient way to deliver specific products and/or services. Agency partners are encouraged when funding can be leveraged or efficiencies gained.

The list below identifies some common partners for outdoor recreational services:

1. Federal agencies – Reclamation, U.S. Forest Service (USFS), National Park Service (NPS), Bureau of Land Management (BLM), U.S. Army Corps of Engineers, and Tennessee Valley Authority.

2. State and local agencies – State agencies, cities, and counties often serve the same customer base and can benefit from serving those customers.

3. Businesses – Both large corporations and small, local businesses can make excellent partners as sponsors or providers of products and services.

Recreation agencies should look for opportunities where both the agency and business benefit from the venture.

4. Concessionaires – There are many specialized businesses and entrepreneurs that can augment recreational services that the agency cannot effectively deliver due to a lack of expertise, personnel, and/or capital.

5. Non-profits – Foundations, friend groups, associations, and clubs are made up of individuals who have a particular interest in and passion for specific activities. Because of their energy and passion, these groups and individuals can be great allies in fundraising, knowledge, and volunteer support.

Strengths, Weaknesses, Opportunities, and Threats

The SWOT analysis aids the program manager in scrutinizing her/his organization’s strengths and weaknesses as well as potential market/economic opportunities and threats. The SWOT analysis can be divided into three parts, as defined below:

• Strengths and weaknesses – Internal in nature and focus on what the entity has or provides what it does not have

• Opportunities and threats – These are external forces (e.g., changes in technology, customer preferences, and economic conditions/trends)

• Summary – Should identify the organization’s competitive edge or those attributes no one else offers to specific customers (strengths and weaknesses) and how to capitalize on the unique conditions that exist in today’s environment (opportunities and threats)

Market Analysis

The market analysis is a critical component of the business plan because it helps identify customers and their buying patterns as it relates to outdoor recreation.

Listed below are several resources that staff may use in developing and performing an adequate market analysis. It should be noted that sometimes there is a charge required by the research source for their information.

1. Federal Bureau of Labor Statistics Web site

2. Other Federal agency Web sites (Reclamation, BLM, USFS, and NPS)

3. State and local tourism agencies

4. Outdoor recreation trade associations and magazines (e.g., campground, golf, boating, etc.)

5. National and State budget offices

6. Outdoor recreation retailers, suppliers, and vendors

7. Public and private colleges and universities

8. Market research companies

In a paragraph or two, summarize the findings from your market analysis.

Demographics

Utilizing available resources, identify the characteristics of a population (e.g., age, gender, residency, ethnicity, and purchasing preferences). The population can be as general or specific as needed. Much will depend on time, expertise, and funding of the organization performing the analysis. This is a description of existing conditions, not a marketing target.

User Characteristics

User characteristics or market segmentation is simply the exercise of categorizing your users and potential users (e.g., boaters, off-highway vehicle users, campers, international visitors, picnickers, etc.). Front-line staff members are a valuable resource for this exercise.

Market Trends

Identify the most relevant market trends (e.g., decreasing use of tent sites at State and national parks).

Market Needs/Demands

Based on demographics and other information gathered from available resources, identify specific market needs (e.g., water and power hookups at campgrounds, birding, group sites, walking trails) to accommodate the growing number of recreational users. It is recommended that only two or three of the most important needs be identified and focused on, especially if the organization has the capability of meeting the market need.

Identify the relevant characteristics and participants of the organization’s industry (e.g., outdoor recreation). At a minimum, the following information should be identified:

1. Current participants – Both partners and competitors

2. Industry trends – What is happening to the industry overall

3. Competition and buying patterns – Identify your competitor’s customers’ likes or dislikes about their services

Financial Analysis

This brings all the previous information together by identifying specific strategies and an implementation or work plan.

Strategies, Work Plans, and Milestones Summary

Strategies should be aimed at meeting the organization’s objectives set forth above and reflect the analysis and plans performed in the template spreadsheets in Attachment A of the appendix. At a minimum, each strategy should contain:

• The goal or objective the strategy will help to achieve (e.g., increase revenues)

• Short statement or description of what will be done (e.g., develop a corporate donor base)

• Identify specific tactics or methods to be used (e.g., direct mail to recreational vehicle associations to promote new facilities at park)

Strategies, Work Plans, and Milestones

The strategies and work plans are the culmination of the business planning effort and a schedule of milestones (target dates) to meet. It is recommended that the plan should cover 2 to 3 years. The following components are recommended:

• A description of the strategy (i.e., capital, marketing, or special event) (from strategy section)

• Work plans with identified tasks to accomplish the strategies

• Milestones (target dates) to accomplish the tasks in the work plans

• Assign the strategy and work plan to a responsible person(s)

• Identify funding amount and source

Financial and Impact Strategy Evaluation

This section helps the staff to determine his or her available funding and develop a usable spending plan or budget. Most public agencies separate their funding and expenditure needs by operations and capital requirements because of how they are funded. The operations budget typically reflects the daily operating needs and is limited to a 12-month period, while the capital budget, on the other hand, reflects the capital (property, plant, and equipment) needs of the organization and is long term in nature (e.g., construction of a marina).

To aid program managers in the development of these budgets, detailed worksheets have been developed and can be found on the CD/DVD provided.

Support from the department’s finance and accounting staff is highly recommended in this exercise. A financial impact evaluation should be performed on all alternative projects in order to determine which ones should be included in the organization’s strategies. A summary of the project evaluation and the financial impact should be shown in this section (see sample plan).

Success Monitoring Performance Measures

Simple but meaningful performance measures are important to monitoring the success of the organization’s operations. The measurements used should be easy to gather and report and accurately reflect what is happening daily. Some examples of performance measures used by State parks are as follows:

• Revenues

• Visitation/participation

• Expenditures

• Contribution margin

• Projects completed

• Services provided

• Milestones met

Performance Adaptation

The theory behind the business plan is that it is supposed to change. As performance is monitored, management needs to act on the information received.

If a particular ad campaign is not generating the desired visitation, the resources need to be reallocated. At a minimum, the park or program manager, as well as any support staff, should be reviewing the measures on a monthly basis. Plans can and should change as conditions change.

Business Plan Template

The following template is an example of what you will find on the business plan CD/DVD. Using the templates, all you have to do is type the information in the boxes provided in each section.

Mission Statement

Vision Statement

Values Statement

1.

2.

3.

Park Description/Location General Description

Park Facilities/Services

Table 1.—Park features and services

Feature/Service Description

Organizational Summary

Table 2.—Personnel plan

Position Primary duties/authority Period

CY071

Period

CY08

Period

CY09

1 Calendar year.

Park Partners

Table 3.—Park partners Partner Potential or existing role

SWOT Analysis

Table 4.—SWOT Strengths Weaknesses

1.

2.

3.

1.

Opportunities Threats

2.

3.

1.

Summary

Strengths, Weaknesses, Opportunities, and Threats Summary

Market Summary

Table 5.—Summary of demographic information Demographic Local State National International

Population Average age Income Male Female

Table 6.—User characteristics User Description Activities/Characteristics

Table 7.—Trends by outdoor recreation activity Activity Trend

2.

4.

Strategies, Work Plan, and Milestones Summary

Table 8.—Strategies, work plans, and milestones

Capital improvement strategy Work plan(s) Milestones

(target date) Assigned to Funding

Marketing strategy Work plan(s)

Special event strategy Work plan(s)

Financial Summary of Selected Alternative

Table 9.—Financial summary of selected alternative Investment summary strategy description Net cash flow

Initial investment Payback ROI1 IRR2 NPV3

Total $ $ $ 1 Return on investment.

2 Internal rate of return.

3 Net present value.

Table 10.—Comparison of current and proposed plan

Financial summary

Current plan

Proposed plan

Net difference

CAPITAL EXPENDITURES

OPERATING COSTS

Total incremental labor

Operating supplies/maintenance

Utilities

Other costs

Overhead

Total incremental costs

REVENUE

Total incremental revenue

INVESTMENT ANALYSIS

Net cash flow

Initial investment

Payback (years)

Net present value (NPV)

BREAK-EVEN ANALYSIS

Break-even revenue

Table 11.—Summary of annual funding sources

Revenue type Current

Proposed

Net effect

General funds

10% of revenues

Federal funds

Grants

Restricted funds (law enforcement)

Other funding sources

TOTAL REVENUES

Table 12.—Summary of annual expenses

Expense type Current

Proposed

Net effect

Wages and benefits

Operating supplies/maintenance

Utilities

Other costs (contractor/professional services)

Overhead

TOTAL EXPENSES

Table 13.—Performance measures

Goal Action item Measure description Target score or range

Appendix A

A State Park and Recreation Sample Business Plan

Department of Natural Resources Division of Parks and Recreation July 2008

Stewart Lake State Park Business Plan

(Sample)

Division of Parks and Recreation July 2008

Stewart Lake State Park Business Plan

(Sample)

Submitted to:

Division of Parks and Recreation Office of the Director

Prepared for the Director by:

Stewart Lake State Park Superintendent and

Division of Parks and Recreation Budget Officer Division of State Parks and Recreation

Acronyms and Abbreviations

CY calendar year hp horsepower

IRR internal rate of return

NPV net present value

OHV off-highway vehicle

PV present value

ROI return on investment

RV recreational vehicle

Table of Contents

Executive Summary/Introduction Mission, Vision, Values, and Objectives

Mission Vision Values Objectives

Park Description and Strengths, Weaknesses, Opportunities, and Threats Description Strengths, Weaknesses, Opportunities, and Threats

Summary Market Analysis

Demographics User Characteristics Market Trends Market Needs/Demands

Financial Analysis Strategies, Work Plan, and Milestones Summary Financial Improvements Success Monitoring

Tables

Table Page

1 Stewart Lake State Park facilities and services 2 Personnel plan 3 Stewart Lake State Park partners 4 Strengths, weaknesses, opportunities, and threats 5 Summary of demographic information 6 Stewart Lake State Park 7 Stewart Lake State Park market trends 8 Strategies, work plans, and milestones 9 Financial summary of proposed plan 10 Comparison of current and proposed plan 11 Summary of annual funding sources 12 Summary of annual expenses 13 Performance measures i

Figures

Figure Page

1 Map of Stewart Lake State Park

Attachment A Examples of project evaluations CD/DVD with business plan template ii

Executive Summary/Introduction

The purpose of the business plan is to assist park management and staff at Stewart Lake State Park in making decisions regarding the management, operation, and development of park resources. This plan focuses on the financial impacts of management decisions.

Information from this document will be used to inform State park management and State legislators of financial impacts at Stewart Lake State Park.

Mission, Vision, Values, and Objectives

The mission, vision, values, and objectives of Stewart Lake State Park are as follows:

Mission

Enhance the quality of life through outdoor recreation, leisure, and educational experiences.

Vision

Provide quality outdoor recreational experiences through camping, boating, fishing, biking, hiking, and off-highway vehicle (OHV) trails.

Values

Value meeting customer needs; innovation; clean and well-maintained facilities;

preservation of natural surroundings and resources; affordable, safe, and accessible recreational activities.

1. Increase overnight camping revenue (number of visitors and nights stayed)

2. Increase day-use revenues and visitation

3. Increase fishing activities and revenues

Stewart Lake State Park Business Plan

Figure 1.—Map of Stewart Lake State Park.

he park provides for a variety of experiences with six campgrounds and open “boat

Park Description and Strengths, Weaknesses, Opportunities, and Threats

Description

Stewart Lake State Park was established in 1972, 2 years after the Bureau of Reclamation (Reclamation) built the reservoir as part of the Strawberry-Duchesne River Project. The reservoir is located off of Highway 40, next to the city of Duchesne (population 5,000), 1½ hours east of Salt Lake City and 6 hours from Denver, Colorado. Highway 40 is a main corridor from Denver to Salt Lake City. The reservoir has over 23 miles of sandy shoreline and rests at approximately 5700 feet above sea level. Many of its formations and geologic features are similar to Lake Powell, but with a shorter “warm season” limiting peak visitation to the summer months (late June – early September).

T camping” on many of its shores. Table 1 summarizes the park facilities and services currently available at the park.

Table 1.—Stewart Lake State Park facilities and services Feature/service Description

Mountain View Campground 30 developed campsites for recreational vehicles, tent trailers, or other campers looking for full hookups. Showers and flush toilets are provided.

Beach Campground Designated for “tent campers” and is located on the water’s edge near the main entrance and boat launch. Showers and flush toilets are provided.

Indian Bay Campground

A primitive campground that allows boaters to park their vehicles and boats at the water’s edge. Vault toilets and community water sources are all that are provided.

Rabbit Gulch

A primitive campground remotely located on the west side of the reservoir. This is a popular spot for boaters who can park their vehicles next to their boats right on the water. Vault toilets and community water sources are all that are provided.

Knight Hollow Campground

A primitive campground designated for OHV users.

The campground is located remotely from the main entrance/campground at the northeast end of the reservoir. Vault toilets and community water sources are all that are provided.

Juniper Point Campground

A primitive but very secluded campground up on a cliff overlooking the reservoir. Campsites are dispersed among pinyon and juniper pine trees, with only vault toilets and community water.

OHV trails

Currently, OHV trails are limited to approximately 15 acres within the park, but talks with the county and other State agencies are taking place to connect the park’s trails to an extensive trail system nearby.

Biking/hiking trails

There are many spectacular views along the reservoir, but limited hiking and biking trails. Staff is currently working with the city of Duchesne to link the trail to downtown.

Boat camping – shoreline

Because of its vast “sandy” shoreline, boat camping has become very popular with boaters along the Wasatch Front. Stewart Lake State Park is seen by staff as having the potential to become a “short seasoned” Lake Powell.

Fishing

Stewart Lake State Park is known as a premiere location for walleye fishing, with professional tournaments being held there every year. Ice fishing is also becoming more popular.

Boating activities Wake boarding, water skiing, pleasure boating, and wave runners are very popular during the summer months.

Overnight group-use area Accommodates up to 50 people and includes a pavilion, barbecue grills, and vault toilets.

Amenities Showers, restrooms, waste disposal, picnic tables (day use), boat launching.

Stewart Lake State Park is staffed by full-time, seasonal, and volunteer employees.

Table 2 outlines the park’s staffing plan.

Table 2.—Personnel plan

Position Primary duties Period

(CY07)1

Period

(CY08)

Period

(CY09)

Park Manager $58,000

• Oversees all operations

• Budgeting and purchasing

• Financial reporting

• Law enforcement

• Boating patrol and emergency response

• Facility maintenance

Jan-Dec Jan-Dec Jan-Dec

Park/Waterway Supervisor $45,000

• Assists Park Manager with administrative duties

• Law enforcement

• Boating patrol and emergency response

• Facility maintenance

Jan-Dec Jan-Dec Jan-Dec

Park Ranger $42,000

• Law enforcement

• Boating patrol and emergency response

• Facility maintenance

Jan-Dec Jan-Dec Jan-Dec

Deputy Park Ranger $25,000

• Law Enforcement

• Boating patrol and emergency response Jan-Dec Jan-Dec Jan-Dec

Camp Host This is a volunteer position. Duties include collecting camping fees and maintaining campgrounds, day-use areas, and restrooms.

May-Sep May-Sep May-Sep

Park Ranger Aide $12,000

Full-time seasonal who primarily helps with park maintenance and manning the entrance station. Apr-Oct Apr-Oct Apr-Oct

Park Ranger Aide $12,000

Planned to be used to help maintain increased use of Knight Hollow (OHV users) and Rabbit Gulch depending on available funding and trail development.

Apr-Oct Apr-Oct

Park Ranger Aide $12,000

An additional seasonal to help maintain expanded campgrounds and facilities. Will be funded with revenue collections.

Apr-Oct

1 CY = calendar year.

Stewart Lake State Park has identified several “partners” or other organizations with a mutual interest in the park’s operation and success. Table 3 specifies existing and potential partners and their roles in the operation and improvement of the park.

Table 3.—Stewart Lake State Park partners

Partner Potential or existing role

Reclamation

• Governing agency

• Planning and design

• Funding participant for new development

National Guard

• Horizontal work - building roads, boat storage, etc.

• “Vertical” work (i.e., electrical, plumbing) on bathrooms and other structures being renovated or constructed

City of Duchesne • Partially fund and build walking/biking trail from downtown to park trails

County of Duchesne

• Work with landowners and other agencies to connect Stewart Lake State Park OHV trails with other trail systems

Local OHV associations

• Work with county and park staff to connect

Stewart Lake State Park OHV trails with other trail systems

Friends of Stewart Lake State Park

• Perform fundraising for specific projects

• Lobby elected officials for critical issues and funding

Strengths, Weaknesses, Opportunities, and Threats

Table 4 lists the current strengths and weaknesses of Stewart Lake State Park as well as potential opportunities and threats to its operations.

Table 4.—Strengths, weaknesses, opportunities, and threats

Strengths Weaknesses

1. Large water surface area.

2. 23+ miles of sandy shoreline.

3. Variety of camping experiences (primitive, developed, beach, OHV, etc.).

4. Within 2-hour drive Wasatch Front.

5. Scenic views and geologic formations.

6. Close proximity to city.

7. Located off main highway between Denver and Salt Lake City.

1. Short “warm season” – June through September.

2. Aging facilities.

3. Undersized developed campgrounds.

Too small for newer recreational vehicles.

4. Lacking adequate hookups for recreational vehicles.

5. Limited OHV and hiking/biking trails.

6. Lack of on-site boat storage.

7. Limited staff to cover large area.

Enforcement and collections issues.

8. No protected docks/marina.

9. No on-site fuel stations.

Opportunities Threats

1. Growing recreational vehicle market in spite of gas prices.

2. More retirees traveling.

3. Growing interest in non-motorized sports.

4. Partners (Reclamation, city, county, National Guard, etc.) with vested interest in developing park trails and facilities.

5. Potential “Friends” group.

6. Higher gas prices. Incentive for in-

State travelers along Wasatch Front to travel closer to home. May pickup part of Lake Powell market.

1. Lack of funding for new facilities and maintenance (materials and labor).

2. Utility costs.

3. Keeping up with inflation and rising construction costs.

4. State funding – unpredictability.

5. Higher gas prices. Out-of-State travelers not as likely to travel to the State.

Summary

Stewart Lake’s competitive edge is its large water surface area with 23+ miles of shoreline within 2 hours of a major population area. The area needs to accommodate a broad range of recreation opportunities to attract users with different expectations. The mix of uses, associated facilities, and management capabilities have to be financially sound.

Stewart Lake State Park’s primary customers are boaters form the Wasatch Front area and anglers throughout the State and neighboring States. Current demand is primarily for improved access and regress for boats and improved facilities (hookups, docks, camping, etc.).

The makeup of the population that recreates at Stewart Lake State Park is identified in table 5.

Table 5.—Summary of demographic information

Demographic Local State National International

Population 1,932,967 2,550,063 296,410,404 6,451,392,455

Average age 28.4 28.5 36.4 26.9

Income $74,078 $47,934 $46,242 N/A

Male 50.1% 50.1% 49% 50.4%

Female 49.9% 49.9% 51% 49.6%

The Division of Parks and Recreation has identified the following users or target markets currently served by the park’s facilities and programs in table 6.

Table 6.—Stewart Lake State Park Customer Description Activities/Characteristics

Water users

Power boaters

Watercraft with 50-horsepower

(hp) or greater engines.

Water skiing, wake boarding, tubing, fishing, pleasure riding—primarily day use on weekends. Tend to have more disposable income. Average investment in equipment is $30,000.

Small boaters Motorized boats (under 50 hp). Primarily fisherman—both day users

(throughout the week) and overnighters (mostly weekends).

Personal watercraft users

Motorized watercraft such as wave runners and jet skis.

Pleasure riding, tubing, skiing—day users and campers, primarily on weekends.

Non-motorized boaters

Including sailboats, canoes, and kayaks.

Sailing, canoeing, kayaking—day users.

Dedicated anglers

Individuals with high investment in fishing gear/equipment and high frequency of outings.

Pleasure fishing and tournament fishing of all styles—primarily day use throughout week, year round.

Casual anglers

Individuals with low to moderate investment in gear and equipment.

Pleasure fishing—primarily day use throughout week.

Recreational users

Comfort campers

Individuals, couples, and families that like the outdoors but do not wish to camp and who do not own or rent a recreational vehicle. They prefer cabins, yurts, or lodges.

Golfing, hiking, biking, skiing, OHV users, boaters. Above-average disposable income. Require bed, electricity, shower, and flushing toilet at a minimum.

Recreational vehicle campers

Couples, families who want hookups and more services.

Camping, campfire programs— overnight during both the week and weekend. Tend to stay longer in one area. Often bring boats and/or OHVs or other “toys.”

Campers

Couples, families, individuals wanting a more primitive experience.

Tent camping, hiking, biking, swimming, fishing, boating, campfire programs— primarily weekends. Camping on water’s edge popular.

Group users

Family reunions/activities, church groups, corporations, and clubs/associations.

Camping, OHV, boating, fishing, socializing—overnight, primarily weekends. Minimum requirements are shade (pavilion), tables, cooking facilities (e.g., BBQ grills).

Trail users

OHV

Individuals, families, clubs-novice to expert riders.

Statewide OHV trail system, OHV education classes —primarily weekends, both day use and overnight.

Mountain biking

Individuals, families, clubs-novice to expert riders.

Campers often bring bicycles (mountain bike style primarily) as a secondary form of recreation—primarily weekends.

Sport or special events/ tournaments

Local, State, and national organizations.

Fishing tournaments are already occurring. Real potential for water ski or wake board tournaments.

General trends in outdoor recreation are as follows:

• Greater awareness of value of leisure – overall increased demand for leisure activities.

• Expectation of recreation facilities – more “comfort” oriented.

• Preference for individual or informal activities is increasing. People are looking for “experiences.”

• Participation by older adults in active recreation and sport has increased.

• Average age of outdoor recreation participant is increasing (baby boomers).

• Number of minority participants is increasing (most notably the Hispanic community).

Table 7 identifies more specific trends in the State by activity as applicable to Stewart Lake State Park.

The following needs and demands have been identified by park staff based on visitor feedback, trend analysis, and community comments for Stewart Lake State Park.

1. More, larger campsites/hookups for recreational vehicles (RVs)

2. Larger or additional boat ramp

3. Additional fish-cleaning stations (improve existing)

4. Added roads and “turn-around” for boat launching

5. Expanded parking for boats and day users

6. Protected docks (breakwater wall/marina)

7. Improve/expand bathrooms and showers

Table 7.—Stewart Lake State Park market trends

Activity Trend

Boaters

• Boat registrations in the State are relatively flat – no growth

• Nationally, 69 million recreational boating participants

• Boats operated most often in State:

Open motorboat – 34.6% Personal watercraft – 21.3% Canoe – 12.5% Cabin motorboat – 6.8% Inflatable – 6.2% Kayak – 4.8%

• Boat activities (top five):

Cruising using engine – 46.9% Water skiing, wake boarding, or tubing – 42.6% Recreational fishing – 42.0% Swimming or diving off boat – 33.5% Paddling – 24.7%

• Wake boarding and other water toys overtaking water ski industry

Anglers

• 50 to 55 percent of boaters use for fishing

• Increase in number of State fishing licenses

• Average 14 outings per year (nationally)

• Participation dropping nationally

• Decreasing in popularity for ages 20 and under

• 80% are Caucasian

• Cross-over activities include camping, biking, hiking

• Fishing is the most popular physical activity on a camping trip

Campers

• 45 million adults camp at least once a year

• Car camping declining

• Demand for “hookups” increasing

• The typical RV owner is age 49, married, owns a home, and has an annual household income of $68,000

• Camping in national parks decreasing

• One in 12 households owns an RV

• Baby boomers (ages 55 to 64) have the highest ownership rates, and 1 in 10 households in this age group own at least one RV

• Baby boomers and children desire more amenities and comfortable accommodations

• In the next 2 years, campers are most interested in visiting the west (52%) and south (32%)

Motorized vehicles – summer

• Participation is stable nationally

• OHV registrations in State are increasing

• Participation by Hispanics and African-Americans is increasing

• Number of outings is increasing

Non-motorized trail users – summer

• Number of mountain biking participants has remained fairly steady

• 60 million adults bike at least once a year

• Walking continues to be most popular outdoor activity

8. Expand “sandy” beach area for day users

9. Fuel station for boats

10. Improved bathrooms/showers at Knight Hollow and Indian Bay

11. More “accessible” water; expand culinary water system

12. Connect OHV trails to system outside of park

13. Improve OHV trails inside park

14. Develop group site for Knight Hollow (OHV users)

15. Add paved and non-paved trails for hiking and biking; link to city of Duchesne

16. Emphasize partnership with local businesses for food, rentals, and supplies—no concessionaire

17. Develop comfort camping facilities (i.e., yurts, cabins)

Strategies, Work Plan, and Milestones Summary

Table 8 lists the park’s strategies, work plans, and milestones and assigns them to an individual responsible for overseeing the coordination and funding target dates for calendar years 2008 through 2010.

Financial Improvements

The division staff evaluates potential projects, programs, events, etc., using return on investment (ROI) (the ratio of money gained or lost on an investment relative to the amount of money invested) and payback period as its methods to measure the acceptability of each project. For long-term capital projects, internal rate of return (IRR) (the annualized effective compounded return rate which can be earned on the invested capital, i.e., the yield on the investment) and/or net present value (NPV) measures the excess or shortfall of cash flows, in present value (PV) terms, once financing charges are met. By definition, NPV = present value of net cash flows methods are used. As a standard of acceptability, project ROI must meet or exceed the current State Treasurer’s money market fund. Capital project IRR uses a hurdle rate of 3 percent and payback period of 30 years, or the estimated life of the structure/facility, whichever is less.

Table 8.—Strategies, work plans, and milestones Capital improvement strategy Work plan

Milestones (target date) Assigned to Funding

Develop and construct key facilities

Renovate the Mountain View complex with 12 full hookup camp units, expanded boat ramp and expanded boat parking, boat storage for 30 boats, 4 enclosed pavilions, 21 new park cabins, 2 acres of beach development, and 4 restrooms with showers

Renovate Indian Bay, Rabbit Gulch, Juniper Point, Knight Hollow, and Strawberry River above and below with 150 rural camp units, 21 rural picnic units, 1 group area, and 3 rural developed boat ramps and parking

08/2008

08/2009

Park Manager;

Reclamation Rep.; Project Manager, Division of Facilities and Construction Management (DFCM);

and National Guard volunteers

Park Manager;

Reclamation Rep.; Project Manager, DFCM; and National Guard volunteers

Reclamation/State matching funds

Coast Guard fund

Boating fund

OHV fund

Capital budget

Marketing strategy Work plan

Milestones (target date) Assigned to Funding

Division sponsored advertising/ promotions

Radio advertising

Television advertising

Theater advertising

Newspaper advertising

Brochures

10/2008- 05/2009

01/2009- 04/2009

08/2008-

08/2008-

10/2008-

Marketing Team, Park Manager

Marketing Team, Park Manager

Marketing Team, Park Manager

Marketing Team, Park Manager

Marketing Team, Park Manager

Park budget

Marketing budget

County Tourism Board

Special event strategy Work plan

Milestones (target date) Assigned to Funding

Enter into agreement for a fishing derby at Stewart Lake

Enter into agreement for half triathlon based at Stewart Lake

Establish partnership with agencies, clubs, associations, and promoters

Schedule tournament days

Advertise tournament

Establish partnership with agencies, clubs, associations, and promoters

Schedule tournament days

Advertise tournament

06/2008-

06/2008

06/2008- 06/2009

06/2008

06/2009

Park Manager, Marketing Team

Promoter

Marketing Team, fishing associations, and tourism

Park Manager, Marketing Team

Promoter

Marketing Team, Triathlon Groups, and tourism

Private sponsors

Marketing budget

County Tourism Board

It should be noted, however, that certain projects may be accepted even if the minimum criteria are not met based on such factors such as environmental justice, safety, resource protection, heritage preservation, or division objectives.

Attachment A contains the detailed summary of the different projects considered by division staff. Table 9 is a summary of the financial summary of the selected alternative, and table 10 is a financial summary comparison of the current and proposed plan.

Table 9.—Financial summary of proposed plan

Investment summary strategy description

Net cash flow

Initial investment

($) Payback1

ROI

IRR

NPV2

Mountain View Alternative 2 $239,160 $4,666,000 20 5.13 3.04 $145,000

Indian Bay 26,310 579,000 22 4.54 2.13 (50,000)

Rabbit Gulch 25,300 434,000 17 5.83 4.07 75,000

Juniper Point 16,450 278,000 17 5.92 4.19 53,000

Knight Hollow 10,825 194,000 18 5.58 3.71 24,000

Strawberry River Above (165) 38,000 -230 -0.43 -0.43 (41,000)

Strawberry River Below 125 43,000 344 0.29 - 11.65

(40,000)

Special events 2,950 3,000 1 98.33 —

Marketing — 6,000 0 0.00 0.00 (6,000)

TOTAL $320,955 $6,241,000 19 $160,000

1 Payback is in years.

2 Based on a 30-year life (except for special events and marketing).

Assuming all the projects listed above are implemented, park staff estimates a net annual increase of $403,200 in revenue over the current plan. Tables 10-12 summarize the financial differences between the current and proposed plan.

The performance measures in table 13 will be used to monitor and measure the success of the implementation of the above-mentioned strategies.

Table 10.—Comparison of current and proposed plan

Financial summary Current plan

Proposed plan

Net difference

CAPITAL EXPENDITURES $4,859,000 $6,235,000 $1,376,000

OPERATING COSTS

Total incremental labor 68,250 181,750 113,500

Operating supplies/maintenance 4,970 88,890 83,920

Utilities 10,425 23,725 13,300

Other costs 2,250 9,600 7,350

Overhead 17,200 60,800 43,600

Total incremental costs 103,095 364,765 261,670

REVENUE

Total incremental revenue 282,520 685,720 403,200

INVESTMENT ANALYSIS

Net cash flow 179,425 320,955 141,530

Initial investment 4,859,000 6,235,000 1,376,000

Payback (years) 27 19

Net present value (NPV) (1,305,000) 166,000 1,471,000

BREAK-EVEN ANALYSIS

Break-even revenue $347,567 $677,636 $330,070

Table 11.—Summary of annual funding sources

Revenue type Current

Proposed

Net effect

General funds $103,095 $364,765 $261,670

10% of total incremental revenue 28,252 68,572 40,320

Federal funds 0 0 0

Grants 0 0 0

Restricted funds (law enforcement) 86,300 86,300 0

Other funding sources 250 250 0

TOTAL REVENUES $217,897 $519,887 $301,990

Table 12.—Summary of annual expenses

Expense type Current

Proposed

Net effect

Wages and benefits $183,052 $336,872 $153,820

Operating supplies/maintenance 4,970 88,890 83,920

Utilities 10,425 23,725 13,300

Other costs (contractor/professional services) 2,250 9,600 7,350

Overhead 17,200 60,800 43,600

TOTAL EXPENSES $217,897 $519,887 $301,990

Table 13.—Performance measures

Goal Action item Measure description Target score or range

Meet or exceed projected visitor use levels identified for camping, cabins, pavilions, boating, and day use

Promote new facilities as they are brought on line

Grand opening campaigns

Match or exceed projected revenues

Maintain or exceed projected use for 3 years

Organize and hold a fishing derby

Establish partnership with agencies, clubs, associations, and promoters

Schedule and follow through on a fishing derby

Hold an event each year for 3 years

Organize and hold a half triathlon

Establish partnership with agencies, clubs, associations, and promoters

Schedule and follow through on a triathlon

Hold an event each year for 3 years

Attachment A

Examples of Project Evaluations

INTEREST RATE 2.8%

I. CAPITAL EXPENDITURES ECONOMIC LIFE 30

ITEM DESCRIPTION UNIT PRICE UNIT BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND BEACH AREA TOTAL 1 Roads (paved) $1.64 SQ FT 24,000 39,360$ 2 Parking $1.64 SQ FT 16,500 27,060 3 Water $14.50 LF 7,000 101,500 4 Dry Boat Storage $11,400.00 LS 1 11,400 5 Docks/Gangways $8,000.00 EA 5 40,000 6 Restrooms/Showers (4 Unit) $180,000.00 EA 1 3 1 900,000 7 Restrooms/Showers (6 Unit) $220,000.00 EA - 8 Campgrounds (Urban) $18,000.00 EA 26 468,000 9 Enclosed Pavilion $42,000.00 EA -

10 Park Cabins $50,000.00 EA - 11 Launch Ramp $230,000.00 LS 1 230,000 12 Beach area $2.04 CU FT 85,000 173,400 13 Boat ramp jetty $25.00 CU YD 5,500 137,500

SUBTOTAL 653,920$ 11,400$ 1,109,500$ 353,400$ 2,128,220$

Mobilization 5% 32,696 570 55,475 17,670 106,411

Unlisted Items 10% 65,392 1,140 110,950 35,340 212,822

CONTRACT COST 752,008$ 13,110$ 1,275,925$ 406,410$ 2,447,453$

Contingencies 20% 150,402 2,622 255,185 81,282 489,491

FIELD COST 902,400$ 15,700$ 1,531,100$ 487,700$ 2,936,900$

Design 6% 54,144 942 91,866 29,262 176,214 Construction Oversight 6% 54,144 942 91,866 29,262 176,214

TOTAL INITIAL/ COLLATERAL COST 1,011,000$ 18,000$ 1,715,000$ 546,000$ 3,290,000$

II. OPERATING COSTS BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND BEACH AREA TOTAL

Number of Facilities 2 1 26 1 Operating days per year 180 180 100 180 Estimated Seasonal Hours 360 180 650 180 Hourly Rate $15.00 $15.00 $15.00 $15.00 Total Seasonal Wages 5,400$ 2,700$ 9,750$ 2,700$ 20,550$ Benefits 7.5% 400 200 700 200 1,500 Total Incremental Labor 5,800$ 2,900$ 10,450$ 2,900$ 22,050$ Operating Supplies/Maintenance 200 500 520 200 1,420 Utilities 10,400 10,400 Marketing Costs Other Costs - Overhead 20.0% 1,200 700 4,300 600 6,800

Total Incremental Costs 7,200$ 4,100$ 25,670$ 3,700$ 40,670$

III. REVENUE BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND BEACH AREA TOTAL

Number of Facilities 2 1 26 1 Days used per year 100 180 100 180 Fee per use $7.00 $2.50 $27.00 $7.00 Number of Fees per facility per day 30 30 1 10

Total Incremental Revenue 42,000$ 13,500$ 70,200$ 12,600$ 138,300$

IV. INVESTMENT ANALYSIS BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND BEACH AREA TOTAL

Net Cash Flow 34,800$ 9,400$ 44,530$ 8,900$ 97,630$ Initial Investment 1,011,000 18,000 1,715,000 546,000 3,290,000 Pay Back (years) 29 2 39 61 34 Return on Investment (ROI) 3.44% 52.22% 2.60% 1.63% 2.97% Internal Rate of Return (IRR) 0.21% 52.22% -1.54% -4.11% -0.73% Net Present Value (NPV) (311,000)$ 171,000$ (819,000)$ (367,000)$ (1,326,000)$

V. BREAK-EVEN ANALYSIS BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND BEACH AREA TOTAL

Break-Even Revenue 57,456$ 4,995$ 110,921$ 30,841$ 204,213$ Break-Even Days used per year per facility 137 67 158 441 Break-Even Fee $9.58 $0.92 $42.66 $17.13 Break-Even Daily Usage 41.0 11.1 1.6 24.5

BREAKDOWN BY FACILITY

STEWART LAKE STATE PARK (MOUNTAIN VIEW AREA)

LIFE CYCLE COST ANALYSIS FOR ALTERNATIVE 1

A-1 A-1

ITEM DESCRIPTION UNIT PRICE UNIT BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND CL. PAVILION PARK CABINS BEACH AREA TOTAL 1 Roads (paved) $1.64 SQ FT 24,000 39,360$ 2 Parking $1.64 SQ FT 16,500 27,060 3 Water $14.50 LF 3,000 4,000 101,500 4 Dry Boat Storage $11,400.00 LS 1 11,400 5 Docks/Gangways $8,000.00 EA 5 40,000 6 Restrooms/Showers (4 Unit) $180,000.00 EA 1 1 1 1 720,000 7 Restrooms/Showers (6 Unit) $220,000.00 EA 1 220,000 8 Campgrounds (Urban) $18,000.00 EA 12 216,000 9 Enclosed Pavilion $42,000.00 EA 4 168,000

10 Park Cabins $50,000.00 EA 21 1,050,000 11 Launch Ramp $115,000.00 LS 1 115,000 12 Beach area $2.04 CU FT 85,000 173,400 13 Boat ramp jetty $25.00 CU YD 5,500 137,500

SUBTOTAL 538,920$ 11,400$ 439,500$ 568,000$ 1,108,000$ 353,400$ 3,019,220$

Mobilization 5% 26,946 570 21,975 28,400 55,400 17,670 150,961

Unlisted Items 10% 53,892 1,140 43,950 56,800 110,800 35,340 301,922

CONTRACT COST 619,758$ 13,110$ 505,425$ 653,200$ 1,274,200$ 406,410$ 3,472,103$

Contingencies 20% 123,952 2,622 101,085 130,640 254,840 81,282 694,421

FIELD COST 743,700$ 15,700$ 606,500$ 783,800$ 1,529,000$ 487,700$ 4,166,400$

Design 6% 44,622 942 36,390 47,028 91,740 29,262 249,984 Construction Oversight 6% 44,622 942 36,390 47,028 91,740 29,262 249,984

TOTAL INITIAL/ COLLATERAL COST 833,000$ 18,000$ 679,000$ 878,000$ 1,712,000$ 546,000$ 4,666,000$

II. OPERATING COSTS BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND CL. PAVILION PARK CABINS BEACH AREA TOTAL

Number of Facilities 1 1 12 4 21 1 Operating days per year 180 180 100 160 180 180 Estimated Seasonal Hours 180 180 300 640 9450 180 Hourly Rate $15.00 $15.00 $15.00 $15.00 $11.00 $15.00 Total Seasonal Wages 2,700$ 2,700$ 4,500$ 9,600$ 103,950$ 2,700$ 126,150$ Benefits 7.5% 200 200 300 700 7,800 200 9,400 Total Incremental Labor 2,900$ 2,900$ 4,800$ 10,300$ 111,750$ 2,900$ 135,550$ Operating Supplies/Maintenance 200 500 240 200 84,000 200 85,340 Utilities 4,800 18,900 23,700 Marketing Costs Other Costs 7,350 7,350 Overhead 20.0% 600 700 2,000 2,100 44,400 600 50,400

Total Incremental Costs 3,700$ 4,100$ 11,840$ 12,600$ 266,400$ 3,700$ 302,340$

III. REVENUE BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND CL. PAVILION PARK CABINS BEACH AREA TOTAL

Number of Facilities 1 1 12 7 21 1 Days used per year 180 180 100 160 180 180 Fee per use $7.00 $2.50 $27.00 $60.00 $100.00 $7.00 Number of Fees per facility per day 30 30 1 1 1 10

Total Incremental Revenue 37,800$ 13,500$ 32,400$ 67,200$ 378,000$ 12,600$ 541,500$

IV. INVESTMENT ANALYSIS BOAT RAMP/PARKING BOAT STORAGE CAMPGROUND CL. PAVILION PARK CABINS BEACH AREA TOTAL

Net Cash Flow 34,100$ 9,400$ 20,560$ 54,600$ 111,600$ 8,900$ 239,160$ Initial Investment 833,000 18,000 679,000 878,000 1,712,000 546,000 4,666,000 Pay Back (years) 24 2 33 16 15 61 20 Return on Investment (ROI) 4.09% 52.22% 3.03% 6.22% 6.52% 1.63% 5.13% Internal Rate of Return (IRR) 1.38% 52.22% -0.61% 4.61% 5.02% -4.11% 3.04% Net Present Value (NPV) (147,000)$ 171,000$ (265,000)$ 220,000$ 533,000$ (367,000)$ 145,000$

V. BREAK-EVEN ANALYSIS BOAT…