Appendix A to Part 72 - Criteria for Eligibility
36:1.0.1.1.35.7.81.1.2 : Appendix A
Appendix A to Part 72 - Criteria for Eligibility
Jurisdictions were considered for eligibility if they were
functioning general purpose local governments in one of three
categories:
1. Central cities of Standard Metropolitan Statistical Areas in
either 1970 or 1976 (1970 data derived from U.S. Bureau of the
Census, Census of Population: 1970, 1976 data derived from U.S.
Bureau of the Census, 1976 Revenue Sharing Estimates File).
2. Cities and townships with Populations of 40,000 or more in
either 1970 or 1976 (1970 data derived from U.S. Bureau of the
Census, Census of Population: 1970, 1976 data derived from U.S.
Bureau of the Census, 1976 Revenue Sharing Estimates File).
3. Counties with populations of 250,000 or more in either 1970
or 1976 (1970 data derived from U.S. Bureau of the Census, Census
of Population: 1970; 1976 data derived from 1976 Revenue Sharing
Estimates File).
Indicators (variables) of distress and need were selected to
determine eligibility for the program and were chosen for
timeliness, reliability, and relevance to the Act. Certain
variables were not used due to duplication, others because they
were not available for all jurisdictions, and some because they
were unrelated to the purposes of the Act. (Section 1002 of the Act
states that the Congress finds that (a) the quality of life in
urban areas is closely related to the availability of fully
functional park and recreation systems including land, facilities,
and service programs; (b) residents of cities need close-to-home
recreational opportunities that are adequate to specialized urban
demands, with parks and facilities properly located, developed, and
well maintained; (c) the greatest recreational deficiencies with
respect to land, facilities, and programs are found in many large
cities, especially at the neighborhood level; (d) inadequate
financing of urban recreation programs due to fiscal difficulties
in many large cities has led to the deterioration of facilities,
nonavailability of recreation services, and an inability to adapt
recreational programs to changing circumstances; and (e) there is
no existing Federal assistance program which fully addresses the
needs for physical rehabilitation and revitalization of these park
and recreation systems.)
The National Park Service asked the Bureau of the Census to
assist in the analysis of national data in order to ensure that
reliable, timely and applicable indicators of distress were used in
determining eligibility for the program. NPS received comments from
a number of interested individuals on what they considered, in
their best judgment, to be the criteria that should be used in the
program. NPS also received numerous position papers from national
interest groups on what they thought were suitable indicators for
the program. NPS then began a narrowing process intended to select
the most appropriate criteria for eligibility in the program.
Listed below are the six variables selected for eligibility
criteria:
Population Per Square Mile
This variable is commonly termed population density, and it is
defined as the number of persons per square mile of land. It
provides an indication of the extent to which an area is urbanized.
Highly urbanized areas are most lacking in land set aside for
recreation and park facilities and are experiencing difficulty in
maintaining existing facilities. Highly dense areas tend to have
the greatest need for assistance in revitalization of their
neighborhood park and recreation facilities. Therefore,
jurisdictions having high values for density would be favored by
this variable, based on 1975 data of the U.S. Bureau of the
Census.
Net Change in Per Capita Income 1969-75
Per capita income is the estimated average amount of total money
income per person. It is derived by dividing the total income of a
particular group by the total population in that group. Comparison
of change in per capita income between urban jurisdictions provides
an indication of each jurisdiction's economic growth. If the income
of a city is growing more slowly than another city, the city with
slower growth is in a relatively weaker economic position. As cited
in the “Report on the Fiscal Impact of the Economic Stimulus
Package on 48 Large Urban Governments (1978),” income growth is a
determinant of taxable wealth and level of economic activity, and
indicates a jurisdiction's capability to finance its own recreation
and other projects. This measure of financial capacity is related
to the Act which stipulates that the Secretary of the Interior
consider factors related to economic distress. Therefore,
jurisdictions with either negative or low relative growth in per
capita income would be favored by this variable, based on 1976 data
of the U.S. Bureau of the Census.
Percent Unemployed, 1977
Percent unemployed, commonly termed the unemployment rate is
defined as the number of people unemployed as a percent of the
civilian labor force. The unemployment data are the product of a
Federal/State cooperative program in which State Employment
Security agencies prepare labor force and unemployment estimates
using concepts, definitions, and technical procedures established
by the Bureau of Labor Statistics. The National Urban Recreation
Study found that recreation and leisure time opportunities are
most limited for the economically disadvantaged, including the
unemployed. The 17 field studies of the National Urban
Recreation Study reveal that low-income neighborhoods have less
program diversity, little, if any, commercial recreation
opportunities, and fewer year-round programs than higher income
neighborhoods. Consideration of this variable is consistent with
the mandate of the Act which requires that criteria be considered
related to physical and economic distress. Therefore, this variable
would tend to favor jurisdictions having high unemployment
rates.
Percent of Households Without Automobiles Available, 1970
Automobile availability, as defined by the Bureau of the Census,
represents the number of passenger automobiles, including station
wagons, which are owned or regularly used by any member of the
household and which are ordinarily kept at home. Taxicabs, pickups,
or larger trucks were not counted. Lack of automobile availability
is closely related to lack of recreation opportunity. The
Recreation Access Study (U.S. Department of Transportation, 1975)
found that access to a diversity of recreation opportunities is
generally assured for those who have automobiles and are willing to
travel reasonable distances, but such opportunities are often
severely limited for people without cars. In addition, the 17 field
studies of the National Urban Recreation Study concluded
that most recreation opportunities for those without access to a
personal auto is limited to immediate neighborhoods or place of
residence. This variable is relevant to the Act in that the
transportation disadvantaged households are the group that has the
greatest need for expanded opportunities to enjoy their close to
home resources.
Therefore, jurisdictions having a high proportion of households
without automobiles would be favored by this variable, based on
1970 data of the U.S. Bureau of the Census.
Total Population Under 18 Years of Age, and 60 Years and Over, 1970
This variable identifies those persons most likely to be the
most frequent users of public park and recreation facilities. While
many senior citizens have adequate incomes, they tend to be
considerably less affluent and less mobile than the general
population. Younger and older children also need public recreation
facilities, especially in highly urbanized areas, where recreation
facilities are most lacking. This variable was selected to favor
areas with greater concentrations of the dependent population where
need for recreation would be the greatest, and where rehabilitation
of existing facilities the most pressing, in accordance with the
Act. The variable was used in its absolute rate to give an
indication of the size of the client populations in each
jurisdiction, based on 1970 data of the U.S. Bureau of the
Census.
Percent Persons With Income Below 125 Percent Poverty Level, 1970
In 1970, percent of population below poverty level was
calculated by the Bureau of the Census as the proportion of the
total population which reported income below the poverty level.
This variable is the most current available indicator of poverty
status for the jurisdictions in question. To accommodate the needs
of economically disadvantaged people whose incomes are somewhat
above the poverty level, such as those employed part-time, or those
in very low-paid jobs, persons with incomes up to 125% of poverty
are included in this variable. The poor and near-poor have the
greatest need for public recreation opportunities and services in
proximity to their homes. This variable is also related to that
part of the Act which stipulates that the Secretary of the Interior
consider “deficiencies in access to neighborhood recreation
facilities, particularly for . . . low- and moderate-income
residents,” and the extent to which park and recreation recovery
efforts would provide employment opportunities for low- and
moderate-income residents. Rehabilitation of parks is a relatively
labor intensive activity having the potential for providing
short-term jobs with low-skill requirements. Persons with poverty
level incomes tend to lack skills and jobs. Therefore, this
variable was selected to favor jurisdictions having a large
percentage of its population in poverty. The poverty level of
income is based on an index developed by the Social Security
Administration in 1964 and subsequently modified by a Federal
Interagency Committee. In 1969, the poverty thresholds ranged from
$1,487 for a female unrelated individual 65 years old and over
living on a farm to $6,116 for a nonfarm family with a male head
and with seven or more persons. The average poverty threshold for a
nonfarm family of four headed by a male was $3,745.
Determination of Eligibility
The method used to combine the variables had four steps. First,
all values for each of the six variables were expressed in common
or standard units. Second, for each jurisdiction, the standardized
values for the six variables were added to produce a score. Third,
the scores were ranked from high values (most eligible) to low
values (least eligible). Fourth jurisdictions having scores above
the median score for all jurisdictions were designated
“eligible.”
County Eligibility
The Administration stated before the Senate Subcommittee on
Parks and Recreation on June 27, 1978, that it would ensure fair
consideration of urban counties for eligibility under the Urban
Park and Recreation Recovery Program. The Administration has kept
this commitment by subjecting urban county data to the same
eligibility standards as cities and including urban counties which
meet those standards on the eligibility list. All urban counties
with a population over 250,000 were considered under the same
criteria (indicators of distress and need) as the city
counterparts. Counties within and SMSA not on the eligibility list
may compete for assistance as discretionary applicants.
The history of the Administration's UPARR proposal clearly
indicates that this program is part of an overall national urban
policy. Therefore, in accordance with the legislative mandate,
project selection criteria will require that county projects be
justified in terms of direct service to identifiable urban
neighborhoods (residential areas), and that there must be evidence
of cooperation between a county and its major city.
Discretionary Grants
Section 1005(b) of the Bill states that at the Secretary's
discretion, up to 15 percent of the program funds annually may be
granted to local governments which do not meet eligibility
criteria, but are located in Standard Metropolitan Statistical
Areas, provided that these grants to general purpose governments
are in accord with the intent of the program. These governments may
apply for grants under the program regardless of whether or not
they are included on the list of eligible jurisdictions.
[44 FR 58091, Oct. 9, 1979. Redesignated at 46 FR 34329, July 1,
1981, and correctly redesignated at 46 FR 43045, Aug. 26, 1981]