Implementation of Visitor Activity Management Program to Kangaroo Point Parkland

Danang Nizar 42105277

Table of Contents
Purpose ............................................................................................................................................ 2 Background ..................................................................................................................................... 2 Site Context ................................................................................................................................. 2 Spatial ...................................................................................................................................... 2 Social and culture .................................................................................................................... 3 Site Management ........................................................................................................................ 4 Management Issues ........................................................................................................................ 5 Management Tools ......................................................................................................................... 6 Visitor Activity Management Program (VAMP) ....................................................................... 7 Application .................................................................................................................................. 7 Step 1: Set visitor activity objectives ...................................................................................... 8 Step 2: Set terms of reference ................................................................................................ 9 Step 3: Identify visitor management issues .......................................................................... 9 Step 4: Analyse visitor management issues ........................................................................ 10 Step 5: Develop options for visitor activities and services .................................................. 11 Conclusion..................................................................................................................................... 13 References ..................................................................................................................................... 15

Purpose
Urban parks have received a greater attention both from scholars and government officials over the past decades, because of its significance in promoting the active lifestyle and urban tourism (Edwards, Griffin & Hayllar 2007; Kaczynski & Henderson 2007). In Australia, this trend culminates with the International Healthy Parks Healthy People Congress 2010 in Victoria which was endorsed by Parks Australia (DSEWPC 2012). This commitment from Federal government then translated further into sets of policies and strategies in the State and Local government level. For example, Queensland Government formalized this commitment in the Queensland Greenspace Strategy 2011-2020 which refined into a number of urban park management objectives outlined by Brisbane City Council in the City Plan 2000. The main purpose of this report is to investigate the management issues occurred in Kangaroo Point Parklandwill be referred as Parkland onwardsand the application of Visitor Activity Management Program (VAMP) as a means to resolve these issues. This report will start by explaining the background context of Parkland, including the site management and visitor use, then move to the management issues in the Parkland. VAMP as a visitor management and planning tool will be then applied and discussed regarding its suitability.

Background
It is essential to understand the background context of Parkland, before jumping further to discussion of site management issues. Every urban park has their own distinct characteristic influenced by the location, social and cultural elements of the communities in proximity of the park. This information will help us to identify the rationale behind the site management objectives and comprehend the underlying cause of the management issues. Furthermore, the application of VAMP and discussion regarding its suitability will be conducted based on these data.

Site Context
Spatial
Parkland is located in the thriving and vibrant suburb of Kangaroo Point, which complements the CBD and Woolloongabba Centre as seen in Figure 1 (BCC 2012). In the neighbourhood context, Parkland is included within the medium density River Terrace Precinct and recognized as a high amenity location of city -wide significance (BB 2012a, p. 87c). Being located at the top of Kangaroo Point cliffs, makes Parkland is an ideal lookout for
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Figure 1. Location of Kangaroo Point in relation to Brisbane CBD and Woolloonggabba

the panoramic views of CBD and Brisbane River, which is an important quality for any parks as outlined in Queensland Greenspace Strategy 2011-2020. Furthermore, Parkland is also included in the Art and the River Public Art Trail; a 2.7km trail that allow people to take a walk or bike ride while enjoying the public arts along the trail (BCC 2012b). With these unique characteristics and qualities, combined with easy access of public transport and sufficient parking space, Parkland is an ideal urban oasis for people to spend their leisure activities and valuable recreational resources both for the local and neighbouring communities (Scott & Mowen 2010; Teck-Yong & Outi 2005).

Social and culture

Parkland is renowned for its five public artworks. Since the beginning, this park was already designated to become a civic space for the promotion of new public arts (DHPW 2010). Along with the inclusion of Parkland within Public Art Trail, it shows the attempt done by Brisbane City Councilwill be referred as Council onwardsto create Parkland as the cultural node of the city. Public artworks within the cityscape are indeed important in the notion of placemaking and promote the community identity (Decker 2011; Martin 2013). Although Parkland is not designated as an active park by the Council, this park is often used for exercising activities (BCC 2012c). This might be caused by the combination of spatial and
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Figure 2. Kangaroo Points population pyramid (adapted from ABS 2010)

demography factors (Pigram & Jenkins 2006). In terms of spatial, Parkland location in proximity to Riverlife Brisbane, who offers variety of outdoor activities (e.g. rock climbing, canoeing), plus becoming part of the Public Art Trail make Parkland is ideal for transit place after exercising. In addition, distinct physical features of this park such as stair structure and combination between hard and grass surface, also influence peoples decision to exercise in this park (Shores & West 2008). In terms of demography, Kangaroo Point is fairly a young neighbourhood with the median age of 35 years old, one year younger than Queensland population (ABS 2010). According to Participation in Exercise, Recreation and Sport: Annual Report 2010 the biggest participation of sporting activities in Queensland was from the age group of 25-34 years old (76.2%); and as can be seen in Figure 2, this age group is dominant in the Kangaroo Point suburb. Furthermore, walking and aerobics/fitness were the top activities with the highest participation in Queensland, and these two activities are dominant in Parkland (ASC 2010). The preference over these types of activities was influenced by its simplicity and short time requirement (ABS 2007; Krenichyn 2006; Marcus & Forsyth 1999). Therefore, the combination of spatial, physical features, demographic composition and activity preference shape the visitor use in Parkland.

Site Management
As mentioned before, urban park had been recognized for its role in promoting the active and healthy lifestyle, not just physically but also mentally by enhancing the opportunity for public interaction, social cohesion, community identity and the provision of significant cultural values (Godbey et al. 2005; Kaczynski & Henderson 2007; Sampson & Raudenbush
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1999; West & Merriam 2009). In response, government agencies then start to incorporate the significance of urban park within their strategies and policies, including Queensland Government. Although the main responsibility of Parkland management lies in the Council, but all of the management strategies set out by Council are subsidiary and guided by the policies at the State level. Figure 3 shows the hierarchy of site management and policy documents relevant to Parkland. General documents such as Toward Q2: Tomorrows Queensland and South East Queensland Regional Plan 2009-31 paved the way for the policies at the local level to further recognize the importance of urban park. This attempt also supported by the release of specific policy document such as Queensland Greenspace Strategy 2011-2020.

Queensland

Toward Q2: Tomorrow's Queensland Queensland Greenspace Strategy 2011-2020

South East Queensland

South East Regional Queensland Regional Plan 2009-2031 South East Queensland Outdoor Recreation Strategy 2010

Brisbane

Brisbane City Plan 2000 Public Art Trail: Art and the River

Figure 3. Management Framework of Kangaroo Point Parkland

Parkland was acknowledged as an important entity within this framework, as seen in Queensland Greenspace Strategy 2011-2020 where Parkland was listed as one of the major projects to address the identified shortfall in urban greenspace in the state capital (p. 4). In the local level, the decision to include Parkland into the Public Art Trailalong with its promotional activitiesshows the awareness of Council to manage the visitors whole experience, from anticipation to recollection, instead of just the on-site experience (Pigram & Jenkins 2006; William & Joseph 2001). Furthermore the incorporation of public artworks within the Parkland, which is the first time in Brisbane, shows the Councils attempt to utilize the experience marketing as the response to the changing nature of society in Brisbane (DHPW 2010; Ellen 1999).

Management Issues
Parkland has a challenging objective to become the first public arts park in Brisbane, however at present Parkland is instead more commonly known as an active park.

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Figure 4. Sign in Kangaroo Point Parkland

Consequently this brings the issues of interpretation and visitor use conflict. Interpretation becomes an issue in Parkland because some visitors choose to ignore the signs that prohibit visitor to attach equipment to park furniture or use it for exercising as shown in Figure 4. Moreover, this issue eventually result in the conflict of use between visitors who want to exercise and visitors who want to appreciate the public arts; which in turn affecting the satisfaction level of visitors (Teck-Yong & Outi 2005). Council, as the Parkland manager, has used the interpretation to alternate the visitors behaviour thus it will complement the site management objective. However the signs in Parkland are merely act as an instruction or information, instead of as a stimulator for visitors awareness (Tilden 1977; Wearing et al. 2008). As a communication tool, interpretation should convey the message effectively hence visitor will understand the reasoning behind the required behaviour, since mostly the misbehaviour is occurred because of ignorance rather than as a malicious intent (Ballantyne, Packer & Beckmann 1998; Pigram & Jenkins 2006). In the case of Parkland, as can be seen in Figure 4, the signs are lacking of these qualities. The inappropriate use of art works for exercising purpose results in a potential conflict between the active and artsy visitors. It is well recognized that conflicting uses might decrease visitors satisfaction since it will limits the visitors expected and desired on-site experience (Godbey et al. 2005; William & Joseph 2001). Therefore, it is essential for Council to address this issue properly especially because Parkland is intended to complement the Brisbanes major parklands such as the Roma Street and South Bank Parklands (DLGP 2011, p. ii).

Management Tools
Management frameworks are vital in guiding the park managers to define what experiences visitors will have, the experiences they want to produce, the visitors they want to attract and
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the limits to environmental modification deemed acceptable (Newsome, Moore & Dowling 2002, p. 147). This section will justify the implementation of VAMP in Parkland and discuss thoroughly the application and its suitability.

Visitor Activity Management Program (VAMP)

Compared to other management tools, VAMP offers a different perspective by shifting the focus from supply to demand basis which is a market-sensitive approach (Graham, Nilsen & Payne 1988). Consequently, park managers are encouraged to develop visitor experiences based on the specific market segments, by connecting the visitor interests and the recreation opportunities on the site (Eagles et al. 2002; Pigram & Jenkins 2006). According to Moore (2010), the application of VAMP in Queensland is less popular among other management tools, such as Limits of Acceptable Change and Recreation Opportunity Spectrum. Although VAMP was developed by Canadian Parks Service based on the model of Canadas national parks, the implementation of VAMP to Parkland is suitable because it may assist park managers to take necessary action to promote and encourage the required behaviour on the site (Graham, Nilsen & Payne 1988; Pigram & Jenkins 2006). This quality is important in the case of Parkland because one of the main issues is the ineffective interpretation approach which result in the undesirable visitors behaviour. Furthermore VAMP also encourages the integration of socio-economic aspects within the broader strategies; hence enables the park managers to identify the motivations underlying the visitors behaviour (Eagles et al. 2002; Wearing et al. 2008). Moreover, VAMP is suitable for the purpose of this report because the application of VAMP would be problem and issue rather than data-driven (Graham, Nilsen & Payne 1988, p. 50). This condition is highly favourable for this report given the limited data availability regarding the management of Parkland.

Application
In general, the generic process of VAMP consists of the following steps: 1. 2. 3. 4. 5. 6. 7. Set visitor activity objectives Set terms of reference Identify visitor management issues Analyse visitor management issues Develop options for visitor activities and services Provide recommendations and seek approval of activity Implement recommended options (Graham, Nilsen & Payne 1988; Pigram & Jenkins 2006)

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However in the case of this report, the application of VAMP is only possible from Step 1 to 5. This is because the last two steps require major intervention that is outside the scope of this report. The responsibility to provide recommendations and the final plan execution are lies in the hand of park manager, which in this case is Council. Therefore, since the purpose of this report is to have a better understanding of management issues in Parkland, the application of Step 1 to 4 is sufficient. Furthermore, Table 1 shows the steps of specific VAMP application to Parkland including the method of data collection.
Table 1. VAMP application to Parkland (adapted from Pigram & Jenkins 2006) No. 1 VAMP steps Set visitor activity objectives Specific application Parkland management objectives Purpose of report Market segmentation Data collection City Plan 2000; Queensland Greenspace Strategy 2011-2020 N/A Handbook on Tourism Market Segmentation; Site observation Australian Bureau of Statistics; Site observation Various documents analysis

2 3

Set terms of reference Identify visitor management issues Analyse visitor management issues Develop options for visitor activities and services

Spatial and socio-economic context; Parkland existing service and visitor opportunities Alternative solutions based on the comparison between Step 1 and 4

Step 1: Set visitor activity objectives

As shown in Figure 3, there are several relevant policy documents that assist the site management of Parkland, from the Federal to local level. From this vast range of documents, City Plan 2000 and Queensland Greenspace Strategy 2011-2020 play a major role in determining the management objectives for Parkland. The following are Parklands management objectives synthesized from these two policy documents: 1. Parkland should provide seamless connections between the outdoors and the built environment, by taking advantage of the Queensland tropical climate 2. Parkland should serve the recreational needs on local, district and Citywide scales by providing a visual relief and retreat from developed areas. 3. Parkland should serve the needs of communities to access a range of outdoor recreation opportunities 4. Parkland should provide a wide range of cultural and educational recreation opportunities 5. Parkland should become the civic space for the promotion of public artworks in Brisbane (BCC 2004; DLGP 2011)

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Step 2: Set terms of reference

The main purpose of this report is to have a better understanding on the management issues in Parkland by implementing VAMP as the management tool. Therefore, the three remaining steps (Step 3-5) will be conducted as a means to achieve this purpose.

Step 3: Identify visitor management issues

As mentioned earlier, there are two main issues currently occurred in Parkland that become the focus of this report. First is the problem of ineffective interpretation which results in the undesirable behaviour for visitors (i.e. misuse of Parkland assets, such as the public artworks). Moreover, this problem leads to the second issue which is the conflicting use between visitors. Since these management issues are strongly correlated with visitors, it is important to develop market segmentation for Parkland. Market segmentation will help to determine the different needs and perceptions of each market segment, hence assist the park managers to tailor specific strategies based on these different demands (Ballantyne, Packer & Beckmann 1998; Carol, Doran & Michel 2002). Since currently there are no models of market segmentation that suit the distinct characteristics of Parkland, a specific model will be developed based on site observation and guided by the Handbook on Tourism Market Segmentation. A posteriori approach is chosen to assist the process because it has more focus on the psychological and behavioural aspects of visitors, which appropriate to resolve the management issues in Parkland (UNWTO & ETC 2007). Table 2 shows the final market segmentation outlining the service requirements (i.e. demand) and the potential management issues. This segmentation was build upon the Activity Segmentation because one of the present issues in Parkland is the conflicting use which is activity-based. Moreover, Activity Segmentation is useful to understand the nature of the trip experience, evaluate its main components and improve facilities for the key activities (UNWTO & ETC 2007, p. 43).
Table 2. Market segmentation for Kangaroo Point Parkland Market Segment Active Visitors The main activity done by this group in Parkland is exercising The exercise activities can be both organized and non-organized Visit alone or in a group Visit frequently on the afternoon during weekdays and the Art Visitors The main activity done by this group in Parkland is enjoying the art works Varied in terms of spatial origins (e.g. Kangaroo Point residents, overseas tourists) Visit alone or in a group Generally a first-timer visitor General Visitors Spend a longer time in the Parkland compared to other market segment Visit alone or with family and friends Generally a return visitor Visit frequently on weekends or holidays Page 9 of 18

Definition

Service requirements

morning during weekends Sufficient space for exercising Supporting facilities for exercising Basic water provision

Conducive environment for enjoying the artworks Professionally maintained artworks Effective interpretation facilities Conflicting use with the active visitor who misuse the artworks Perceive Parkland as an active park, which is in contrast with the management objective

General recreation provision (e.g. BBQ facilities, toilet) Scenic views Interpretation facilities Conflicting use with the active visitor who misuse the Parkland assets Minimize the available space that can be used by active visitor

Potential Management Issues

Ignore the interpretation facilities Misuse of Parkland assets and artworks for exercising purpose Noise nuisance, especially in organized exercise activities

Step 4: Analyse visitor management issues

In order to analyse further the issues outlined in Step 3, it is important to explore the spatial and socio-economic context surrounding the area and the existing facilities in Parkland. As discussed in the earlier section, the age structure of Kangaroo Points residents may explain the increasing trend of active visitors in Parkland as shown in Figure 2. Moreover, this trend is also the result of massive campaigns done by government in promoting the active and healthy lifestyle (BCC 2012c; Fraser 2013). According to Australian Sports Commission (2010), walking and aerobic/fitness are the types of exercise that have the highest increasing participation rate in Queensland; and the majority of active visitors in Parkland are doing these types of activities. As presented by Sampson and Raudenbush (1999) and Krenichyn (2006) location is essential in determining the successful of site management, especially in terms of visitation. As can be seen in Figure 5, actually there are great numbers of green space spread across the Kangaroo Point and surrounding neighbourhoods. Apart from this wide range of greenspace options, it is evident from its high visitation that Parkland is a major urban park in the area; in line with the management objectives (DLGP 2011). This good opportunity needs to be managed carefully because high visitation rate is susceptible to management issues such as conflicting use, as occurred in Parkland (Godbey et al. 2005; Scott & Mowen 2010). In terms of existing facilities, Parkland is equipped with basic urban park facilities such as public toilet, water fountain, playground and BBQ facilities. Figure 6 shows the spread of activities in Parkland based on the existing facilities and market segmentation. It can be seen that spatially there are some potential conflicting use between visitors (e.g. active visitors vs.

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Figure 5. Greenspace surroundings Kangaroo Point Parkland

general visitors) because of overlapping activities. This problem also exacerbates by ineffective interpretation facilities, which result in undesirable behaviours particularly from active visitors (Wearing et al. 2008). Although zoning approach may not be suitable for Parkland due to the small site size, but Figure 6 can assist park managers to mapped the spread of activities in the site which can be used to prioritize which part of the Parkland needs urgent strategies (Eagles et al. 2002; Pigram & Jenkins 2006).

Figure 6. Spread of activities based on market segmentation Page 11 of 18

Step 5: Develop options for visitor activities and services

The options of solutions for Parkland is developed based on the analysis in the previous steps, especially by comparing Step 1 and 4 hence the options are not just act as a means to resolve the issues, but also as a means to achieve the management objectives. For this purpose, several options have been developed by focusing on the interpretation approach.
Table 3. Effectiveness of education to assist in solving site management issues (Eagles et al. 2002)

This approach was chosen because as seen in Table 3, provision of interpretation facilities has moderate effectiveness for careless actions (Eagles et al. 2002). Misuse of assets and artworks in Parkland can be categorized as careless actions because it is the result of lack of knowledge in the visitors regarding the prohibition of certain behaviour (Ballantyne, Packer & Beckmann 1998). Furthermore, the potential conflicting also can be prevented through effective interpretation since it will increase the visitors awareness regarding the Parklands management objectives. Following are the alternative options: 1. Improving the plate signs As mentioned earlier, the signs in Parkland are lack of stimulation to the visitors and merely act as an instruction to prohibit certain behaviour (Tilden 1977). This is because there is no information that explains the reasoning behind that prohibition. Furthermore, in terms of design, the current signs are standard and lack of innovation hence hard to attract the attention from visitors. In order to become an effective tool, Ham and Weiler (2003) explain that interpretation need to be enjoyable, relevant, organized and thematic or more widely known as EROT model. This model can be used by Council to improve the current signs and using the market segmentation analysis as the basis for targeting the message to certain visitor group (Ballantyne, Packer & Beckmann 1998; Wearing et al. 2008). Moreover, effective
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signs not only will alleviate the behaviour but also improving the visitors satisfaction by increasing the awareness of artworks existence in Parkland; in line with the site management objectives (BCC 2004; Pigram & Jenkins 2006) 2. Developing information panel In relation to improving the current signs, Council can act further by creating information panel that comprehensively explains the history of Parklands development and the public artworks. This is important because currently the information that accompanies each artwork is very limited. Therefore, comprehensive information panel is necessary to provide sufficient information for the visitors hence improving their satisfaction (Tilden 1977; Wearing et al. 2008). The increasing awareness of visitor towards the artworks will also help Parkland to establish its image as an art park, instead of active park (DLGP 2011). In terms of potential conflicting use, this information panel can give a better understanding to the visitor that Parkland is intended to become an art park, thus other activities such as exercising is not a priority. Therefore, it is expected that visitor will have a different expectation regarding certain activities when visiting Parkland (Eagles et al. 2002). 3. Developing voluntary guide program In order to increase the public participation and inclusion within the site management while improving the interpretation facilities, Council may develop a voluntary guide program. This program enables the public to be a voluntary tour guide who explains the Parklands features to the visitors, especially the artworks. Therefore, public will be more actively engaged in managing the Parkland hence enhance their sense of ownership. According to Teck-Yong and Outi (2005) strong sense of ownership from the surrounding communities may improve the quality of urban park, because the communities feel obligated to maintain the urban park; such as to combat vandalism (Pigram & Jenkins 2006). This program has been implemented in Roma Street Parkland and received a great support from the public (Queensland Government 2011). By conducting this program, Council may improve the education provision on the site while enhance the social cohesion in the neighbourhood through Parkland management.

Conclusion
The significance of public park provision in urban areas has been widely recognized both by scholars and government officials. The development of Parkland in 2010 was part of the commitment from Queensland government and Brisbane City Council to balance greenspace provision with the urban growth. Different from other existing urban parks in Brisbane,
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Parkland is intended to become a civic space for the promotion of public artworks. Unfortunately, this objective has not been met as currently the majority visitors of Parkland use the park of exercising purpose, which also result in the potential conflicting use between different market segments. VAMP as a management tool was applied to Parkland as a means to resolve these management issues. However, it is only the first five steps of VAMP that is implemented because the two remaining steps are requiring intervention and data that are beyond the scope of this report. Therefore, this report only provide a better understanding and analysis of the current management issues in Parkland along with some alternative solutions. This report should be used by Council as a basis to conduct the whole process of VAMP implementation hence result in a complete set of strategies and policies for Parkland. Nonetheless since this report was developed based on limited time and data resources, Council may fill the data void thus improve the final quality of the management strategies.

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