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Cooper Finalsynthesis
Cooper Finalsynthesis
Abstract:
Public lands are designed to be resources that all can use, regardless of background. However,
unfortunately today, many marginalized groups are underrepresented in the outdoors due to
social, cultural, and economic barriers. The aim of this study was to determine who uses
Washington State Department of Natural Resources (WA DNR) managed public lands, and if
these users reflect the racial diversity of the Washington public. Additionally, inclusive diversity
focused efforts were implemented to make recreation more accessible to underserved groups.
This project revolved around the creation of a statewide user survey of WA DNR users, to
determine who is currently coming to the agency’s managed lands. Additionally, based on the
findings of the survey, foreign language resources were created and in-community outreach was
conducted. Overall, the findings of the survey show that WA DNR users do not reflect the racial
makeup of Washington State, with only 8% of survey respondents indicating being racial
minorities and 92% of respondents reporting as white, despite the Washington public consisting
of an approximately 23% minority population (U.S. Census Bureau 2018). In-community
outreach and the foreign language resources proved to be a successful way to interact with
underserved communities. It is necessary that land managers ensure that public lands are
accessible to all, for the health and welfare of marginalized communities. Furthermore, the future
of public lands depends on increasing racial equity in a rapidly diversifying United States.
Context and Background:
Public lands, and the idea that nature should be both protected and accessible to all, is a
cornerstone belief in the American land ethic, and can be seen through initial land preservation
efforts of the early 20th century (Xiao et. al 2016). The concept of collective ownership of
recreation resources and natural areas influences the ways in which such landscapes are
distributed and utilized (Crompton et. al 2008). However, despite the noble origins of the notion
of collective use, public lands historically have proven to not be accessible to all members of the
American public, both through previous formal acts of exclusion, and through more subtle
socioeconomic and cultural inequities that persist today (Xiao et. al 2016). Specifically, the
United States’ most marginalized communities, including those of lower incomes, the disabled
community, and people of color have not been able to use the nation’s public lands proportional
While there have been efforts to make recreation more affordable and American
Disabilities Act (ADA) accessible; the idea of outdoor equity in regard to race is an emerging
topic. Racially diverse urban communities typically face the greatest barriers to outdoor
recreation, due to both limited access to local urban green space, and economic, transportation,
and cultural barriers to reaching more distant locally or federally managed primitive landscapes
(Flores et. al, 2018). Historically racial minorities have been excluded or greatly
underrepresented on U.S. public lands, and underrepresentation persists today, despite racial
minorities having a strong support for increasing public land resources (Amandi et. al 2016).
The inequities racial minorities have towards accessing public lands and their
underrepresentation on the landscapes, has both clearly evident negative consequences for these
communities, as well as land managers and the future of U.S. public lands as a whole. Racially
diverse communities, and specifically urban communities of racial and ethnic minorities tend to
face a greater burden of environmental health concerns: less accessible green spaces, inferior
public transportation networks, and an increased prominence of lifestyle related disease than
their white counterparts (Arakaki et. al 2019). These issues all directly tie into outdoor recreation
and access to clean, healthy environments which increased access to public lands could help
become a majority-minority nation by 2044, meaning it is crucial for the future usage and
funding of public lands that land managers are serving the diverse public (U.S. Census, 2010). If
the United States’ growing racial minority population follows the same barriers and
representation trends of today, public lands will not only have a limited user base but will also
not be fulfilling their central goal of providing valuable outdoor resources that can serve the
current and future American public. This can be seen in the National Parks Service’s mission
statement; “The National Park Service preserves unimpaired the natural and cultural resources
and values of the National Park System for the enjoyment, education, and inspiration of this and
future generations” (U.S. Department of the Interior, National Park Service, 2019). Many land
managers state similar missions, yet across the nation, racial minorities are often
Research Questions
To guide my research, I asked the following questions: Are Washington State recreation
lands adequately serving the diverse public? How can land managers better serve
In order to address the above questions, I used a three-pronged approach to assist the
Washington State Department of Natural Resources (WA DNR) in evaluating racial minority
usership of their over three million acres of recreation lands in Washington State. Firstly, I
focused on evaluating what the current racial minority usership was of WA DNR managed
landscapes. I used this information to create a profile of how both racial minority and white users
use WA DNR landscapes, and their associated perceived barriers to recreation. This was
completed through the creation of the WA DNR Statewide Recreation User Survey, which
behavior, barriers to recreation, and satisfaction with the WA DNR recreation experience based
on the WA DNR landscapes they had visited (Appendix B). The survey was modeled after the
United States Forest Service’s National Visitor Use Monitoring Survey (NVUM), which the
agency has used to gather visitor information for decades (U.S. Department of Agriculture Forest
Service 2016). The survey was conducted entirely online, and shared through WA DNR’s social
media channels, with approximately 30,000 followers on both Twitter and Facebook. The survey
was posted four times within a three-week period, and the results were then analyzed and
evaluated. This analysis focused on determining non-white users’ rates of visitation to WA DNR
managed recreation areas, as well as their recreation behavior and satisfaction, compared to
white users. Results were also analyzed at a county level, to determine how specific counties’
rates of minority respondents who indicated visiting a WA DNR site (as a proxy for estimated
minority visitors), compared to the counties’ overall racial minority populations. This analysis
led to a final cumulation of findings and recommendations for WA DNR, through the creation of
provided an introductory glance of WA DNR managed recreation within the greater Seattle area.
These documents highlighted recreation for a broad range of recreation interests and abilities, as
well as King County’s transit to trails system, Trailhead Direct, which helps people in Seattle’s
urban core, access WA DNR-managed recreation sites without a personal vehicle. These
documents were then translated into two target languages of Seattle’s racial minority population,
Simplified Chinese and Vietnamese. This was done in order to address some of the language
barriers that prevent non-English speaking communities from accessing information on nearby
The third main aspect of my project centered around the distribution of these brochures
and in-community outreach with Seattle’s Asian-American community. At the state and national
level, it is relatively uncommon for land managers to conduct outreach efforts within the
communities they serve. Instead they often rely on having events at the sites they manage and by
encouraging diverse communities to come to their landscapes. This can be seen through
partnerships with minority outdoor groups, cultural events, such as the Washington State Parks’
Folk and Traditional Arts program, or promotions such as free admission days at National Parks,
(Washington State Parks 2019), (U.S. Department of the Interior National Park Service 2019).
While these efforts can often be effective, in-community outreach was a selected strategy so that
WA DNR would have the opportunity to interact with community members in a setting that did
The Statewide WA DNR Recreation User Survey provided a sample size of 712
responses, distributed across nearly every county in Washington. Distribution of responses was
fairly even, with the greatest number of responses coming from highly populated Puget Sound
counties, specifically King and Pierce counties. However, rural counties with low populations
were most difficult to sample, making Southern and Eastern Washington underrepresented in the
final sample group. However, Washington’s minority population is most represented in the
metropolitan, Puget Sound counties, and agricultural counties of Central Washington, which are
adequately represented in the sample, based on their population sizes. The survey findings
helped to provide valuable insights into who currently uses public lands and followed the overall
trends as seen in similar analyses of federally managed lands in the Pacific Northwest.
One way to evaluate the diversity of recreational areas’ visitors is through the
taking the percentage of the minority population of a given geographic area, versus the
total population, and then comparing the percentage of minority visitors out of the total
Inequity Index= % DNR Visitor Minority - % Washington State or Specific County Minority
the remaining 92% identifying as white (Figure 2). This result was further analyzed
through the inequity index, which evaluated select counties’ racial proportions and the
color, leads to an inequity score of -14 (U.S. Census Bureau 2018). Additionally, similar
to the findings of Flores et. al 2018, more diverse counties had lower equity scores, and in
some cases, less diverse counties sometimes had a positive equity score (meaning an
overrepresentation of minorities), simply due to the fact that only a few minorities needed
to respond in order to make the inequity index score positive. These counties would likely
King County, the state’s most populous and racially diverse county had a lower
inequity score than the statewide result at -22, with 11% of survey respondents
identifying as racial minorities, despite a 33% county minority population (Figure 2).
Other Western Washington counties faced similar results, with Thurston County seeing
only 3% racial minority users, compared to the county’s 18% racial minority population
(Figure 2).
There are further nuances with the results of the inequity analysis, specifically regarding
counties with high Hispanic populations. For example, Yakima County has a 45%
Hispanic/Latinx population, however Yakima County has an 87.2% white population, meaning
the county has a high proportion of Hispanic whites. These Hispanic whites, who may not be
racial minorities, could likely have different needs than non-Hispanic whites, specifically
regarding Spanish language resources. This also means that non-Hispanic whites make up a
Overall, 11% of Yakima County respondents indicated being a person of color, and no
respondents indicated being of Hispanic, Latino, or Spanish ancestry. Compared to the overall
population of 12.8% racial minorities excluding Hispanic whites, there is little inequity among
these results. However, using a minority population in which Hispanic whites are included as
minorities, since no Yakima County respondents indicated having Hispanic, Latino, or Spanish
heritage, the inequity index shifts from -1.80 to -46.30. This is significantly lower than the state
average inequity score for WA DNR visitors of -13.6. This shows that it is it is likely the
lands at an expected rate, and that WA DNR may not be adequately engaging with Spanish
speaking communities. This trend was further seen in other Central Washington counties with
While these findings can provide predictions and baselines for potential usage of WA
DNR- managed lands, they cannot entirely depict the actual usage that in person surveying can
deliver. However, this survey does offer valuable insights into the demographics that WA DNR
online communication channels reach. As a whole, both white and non-white Hispanics of
communication networks. From 2000 to 2010, the Hispanic and Latino population of
Washington State has grown by 71.2%, and by 2030, Hispanics are expected to comprise over
15% of the state’s total population (Washington Office of Financial Management 2019).
Similarly, the Asian population of Washington is expected to grow from its current 9.3% of the
total population to 10.7% in 2030 (Washington Office of Financial Management 2019). Having
good relations and engaging with these growing minority groups will be crucial for the agency
moving forward.
The cited barriers to recreation for both white, and racial minority respondents are quite
similar. The minority respondents that are currently visiting WA DNR sites are satisfied with
their experience yet remain underrepresented. As a whole, lack of time, transportation issues, and
unfamiliarity of nearby recreation areas were the greatest limiting factors, preventing minorities
from recreating on WA DNR lands, reported by 30%, 20%, and 18% of minority respondents
Notably, expense proved to be a fairly low barrier to recreation for minority respondents
who took the survey. Recreation is often notorious for being an expensive pastime, even in its
most primitive forms, and this notion is backed by consumer spending reports in the outdoor
sector. In 2016, adult camping participants, spent an average of $546.41 on camping related gear
(The Outdoor Foundation 2017). Alongside the other associated costs of recreation such as
gasoline, recreation fees, etc., and even opportunity costs, outdoor recreation can be a cost
recreation pass, the Discover Pass, is below the national average state recreation pass fee
(Stenovec et. al 2017). This could help to explain why cost was seen as less of a barrier for
survey respondents than in other previous case studies. Additionally, the survey was reaching
individuals that were presumably already more disposed to outdoor recreation, due to their
engagement with WA DNR social media, and could see the costs associated with outdoor
recreation more worthwhile than those who are less involved with the outdoors.
Overall, while there are both limitations to the results of this survey, and nuanced
implications, these stated barriers to recreation help to provide areas for land managers,
including WA DNR, to focus diversity efforts on. Specifically, land managers have the capability
marketing efforts, in a way that addressing transportation needs, cultural differences, lack of
time, etc. would require more collaboration and planning. This was part of the rationale for the
in-community outreach, and creation of translated informational resources that was then
Based on the findings of the survey, in-community outreach was conducted with a major
racial minority population in Seattle, to help address the specific barriers minorities had to
recreation (Figure 1). Specifically, efforts were done to create more accessible and inclusive
brochures were created, highlighting WA DNR-managed recreation nearby Seattle, and Seattle’s
transit to trails system, Trailhead Direct. These brochures were translated into Simplified
Chinese and Vietnamese (Figure 4). Additionally, since WA DNR has no existing external
marketing materials depicting people recreating of Asian descent, the brochures specifically
portrayed an Asian-American family, in an effort to be more culturally relevant and inclusive for
members of Seattle’s International District/Chinatown community, which was selected for the
neighborhood’s ethnic diversity, and high Asian population. Through this effort, DNR staffed a
booth in the International District, providing informational resources, and the translated
materials, alongside free promotional items. During this event, DNR was able to interact with
people that otherwise would not have heard of the lands that the agency manages, or the
Broader Implications
While this project provided greater insight into who currently uses WA DNR managed
lands, it also highlighted a shortcoming in previous research on racial minority usage of state
recreation lands. Though there is a great emphasis on increasing diversity in federally managed
landscapes, as well as local parks/green spaces, these resources all have different usership
patterns, compared to state managed lands, due to varying barriers to entry, proximity, and
allocation. However, this project’s results provide valuable information for land managers to
better understand which user groups are not currently being served by state managed recreation
sites.
Additionally, this project highlighted the need for further efforts aimed at increasing
racial minority representation in outdoor recreation related media. This includes representing
racial minorities in advertising, making information more accessible and distributing it through
ethnically appropriate media channels, and by increasing the availability of foreign language
and is often most heavily distributed through agency platforms, ignoring ethnic media channels
(i.e. Spanish radio stations, Asian language local newspapers) (Xiao et al. 2016). Representing
people of color in outdoor recreation marketing materials, and recreation information resources
is important in order to help change the perceived ‘face of the outdoors’, which can prevent
marginalized communities from engaging with natural landscapes. This project attempted to
begin to address this issue by creating foreign language information resources, that also included
Moreover, inclusivity within the outdoors requires public land managers to actively
engage with underserved groups and ensure that racial minorities have seats at their discussion
tables. In-community outreach with minorities can provide land managers a better format for
engaging with people of color. As a collaborative process that respects the needs of each specific
cultural group, in-community outreach helps to break down the barriers marginalized groups
have to both accessing public lands, and information on public lands. This can provide a low-
stakes environment for individuals of diverse groups to learn more about the recreation areas
near them and raise the image of the land managing agency within that community. This was
seen greatly throughout the outreach event within Seattle’s International District, as previously,
WA DNR had essentially no previous connections, or targeted efforts with the community.
in order to truly adjust issues of recreation inequity. This will allow land managers to gain a
reputation as a trusted ally and ensures that minority concerns are being heard.
Beyond more inclusive marketing, representation and outreach efforts, there are many
more subtle efforts land managers can do to make the outdoors more equitable. Specifically,
hiring more diverse staff, and considering the role of uniforms and different cultural associations
of law enforcement are also important factors for land managers to further evaluate, and is
Departments and Agencies of 2017 (The White House, Office of the Press Secretary 2017).
While this study provides many strategies for land managers to integrate as the issue of
outdoor equity in regard to race becomes more prominent in the recreation sector, the process
towards creating an inclusive outdoors does not have one simple solution or path towards
success. However, by implementing more inclusivity efforts, and collaborating with underserved
communities, state, as well as local and federal land agencies will be able to better serve all
Figure 1: This graphic showcases minorities’ stated barriers to recreation as indicated in the WA
DNR Recreation User Survey results. Overall, these barriers were very similar to the barriers
expressed by white visitors, however transportation barriers played a greater role with minority
respondents. These stated barriers provide WA DNR, as well as other agencies, with a platform
to focus future diversity efforts towards. Notably however, nearly all of these stated barriers
require some form of either cross-agency, or cross-community efforts to address, yet programs
that address one barrier, often can help to address another simultaneously. For example, the
introduction of a transit to trails system, helps to both lessen transportation barriers, but also has
the ability to lower the cost of recreation (no car passes/fees needed). Indirectly, transit to trails
systems could also have the ability to raise awareness of nearby recreation areas, if advertised in
target communities.
Figure 2: This graphic showcases some of the major findings of the WA DNR Recreation User
Survey conducted, and the associated inequity index that was created. Overall, the more racially
diverse a county was, the greater inequity index score it had. These inequities are particularly
visible in Western Washington’s most populated and diverse counties, such as King, Thurston,
and Pierce counties, all of which had a higher inequity score than the Washington state average.
These inequities are more complex in counties with high populations of white Hispanics, who
while not necessarily racial minorities, proved to be greatly underreached by WA DNR’s media
channels, as very few Latinx/Hispanic individuals responded to the survey. This was seen
especially within majority or high proportion Latinx/Hispanic counties in central and eastern
Washington. While this survey was conducted online, the inequities seen were very similar to the
regional scores outlined in Flores et. al 2018, based on data collected in person, at USFS
recreation areas.
Figure 4: These images showcase the covers of the brochures created, translated into Simplified
Chinese and Vietnamese, and the inside page of the English version. Additionally, it was chosen
to depict an Asian family in the brochures since WA DNR did not have any images of Asian
people recreating on their website, or any print materials the agency has distributed. The
brochures focused on highlighting a variety of recreation opportunities, especially those that
were suitable for beginners and families. Additionally, sites were chosen that were within a 1-
hour drive of downtown Seattle or were accessible by public transit. Additionally, information
was included on outdoor safety/etiquette, as well as the Washington State Discover Pass.
Bibliography:
Amandi F. (2016). An Untapped Natural Resource Our National Public Lands and 'The New
America'. http://media.namx.org/images/editorial/2016/08/0822/pub_land_div_poll.pdf
Crompton, J., & West, S. (2008). The Role of Moral Philosophies, Operational Criteria and
Operational Strategies in Determining Equitable Allocation of Resources for Leisure
Services in the United States. Leisure Studies, 27(1), 35-58.
Flores D, Falco G, Roberts NS, Valenzuela FP. (2018). Recreation Equity: Is the Forest Service
Serving Its Diverse Publics? 116(3):266–272.
Nyaupane, G, Graefe, A & Burns, C. (2007). Understanding Equity in the Recreation User Fee
Context, Leisure Sciences, 29:5, 425-442, DOI: 10.1080/01490400701394899
The Outdoor Foundation. (2017). American Camper Report 2017. 1(1), 1- 54.
The White House, Office of the Press Secretary. (2017). Presidential Memorandum -- Promoting
Diversity and Inclusion in Our National Parks, National Forests, and Other Public Lands
and Waters. https://obamawhitehouse.archives.gov/the-press-
office/2017/01/12/presidential-memorandum-promoting-diversity-and-inclusion-our-
national
U.S. Department of Agriculture Forest Service. (2016). U.S. Forest Service National Visitor Use
Monitoring Survey Results National Summary Report.
U.S. Department of the Interior National Park Service. (2019). About Us.
https://www.nps.gov/aboutus/index.htm
U.S. Department of the Interior National Park Service. (2019). National Park Week.
https://www.nps.gov/subjects/npscelebrates/national-park-week.htm
Washington Office of Financial Management. (2019). Projections of the state population by age,
sex, race and Hispanic origin. https://www.ofm.wa.gov/washington-data-
research/population-demographics/population-forecasts-and-projections/projections-
state-population-age-sex-race-and-hispanic-origin
Washington State Parks. 2019. Washington State Parks Folk and Traditional Arts Program.
https://parks.state.wa.us/982/Folk-and-Traditional-Arts
West, S., & Crompton, J. (2013). Who ought to receive what? An instrument to assess a
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Table 1. Tangible products and other materials done as part of Capstone Experience in Spring
2019 and Summer 2019. Products specifically required in ENVIR 492 Post-Capstone are not
included.
APPENDIX B: 2019 WA DNR Recreation User Survey Questions (Sample Based on King
County Respondents)
1. Do you live in Washington State? (‘No’ responses get forwarded to a question asking them if
they have visited any WA DNR sites (similar to question 4), and then are further sorted from that
question)
Yes
No
2. Which county do you live in? (Question is not asked if respondent answers no to question 1)
3. Have you visited any of the following WA DNR managed recreation areas in King
County? (Specific to county response from Question 2)
4. Have you visited any WA DNR recreation sites outside your county of residence? Not
sure which WA DNR recreation areas are in your county? Here is a map of all WA DNR
managed recreation land: https://www.dnr.wa.gov/go (‘no and I’m not sure’ responses get
forwarded to only ask demographic questions and general recreation behavior questions
(questions 9 and below))
Yes
No
I’m not sure
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*Questions 5 through 8 only asked if respondents indicate that they have visited either WA DNR
recreation areas in their county, or in general*
5. How many times per year do you visit WA DNR recreation areas?
1 to 5 times
6 to 10 times
11 to 15 times
16 to 20 times
20+ times
7. How satisfied are you with WA DNR recreation amenities (i.e. toilets, picnic tables)?
8. How satisfied are you with WA DNR recreation services (i.e. signage, helpfulness of
staff)?
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9. What recreation activities do you primarily engage in? Select all that apply.
Hiking
Camping
Nature Viewing
Biking
Kayaking/boating
Skiing/snowshoeing
Hunting/fishing
Picnicking
Riding Off-Road Vehicles/ORVs
Horseback Riding
Other (please specify)
10. What are your largest barriers to visiting WA DNR recreation areas, or recreating in
general?
Transportation: recreation sites are too far/too difficult for me to get to.
I am not aware of what recreation opportunities are near me.
I do not have the proper gear/clothing, or it is too expensive to recreate.
I do not have the time.
I do not feel safe.
I do not feel welcome
I do not wish to recreate more often.
Other (please specify):
Under 18
18-24
25-34
35-44
45-54
55-64
65-74
75+
Prefer not to answer
Yes
No
Prefer not to answer
Female
Male
Other: ____________
Prefer not to answer
Yes
No
Prefer not to answer
Under $15,000
$15,000 to $34,999
$35,000 to $54,999
$55,000 to $74,999
$75,000 to $94,999
$95,000 to $114,999
$115,000 to $149,999
$150,000+
Prefer not to answer
17. (Optional) please use this space to provide any additional feedback or comments: