SHARING SPACES

Abstract

How do you control noise levels in a building that houses both a gymnasium and study spaces? [...]it's a learning process every day at the East Arlington Library and Recreation Center - even five years after the facility first opened its doors - and it requires members of both staffs involved to be team-oriented and focused on community solutions. Case Study: Arlington, Texas From City of Arlington's perspective, the decision to co-locate recreation and library services in a single facility was a strategic response to a practical need. The area where the East Arlington Library and Recreation Center now stands was initially developed in the 1950s and fueled by economic growth generated by a nearby General Motors assembly plant.

Headnote

Combining recreation centers with other services

In November 2020, in the midst of the coronavirus (COVID-19) pandemic, representatives of the Houston Parks and Recreation Department, the Houston Public Library and the Houston Health Department broke ground in an urban park on a facility that would transform and revitalize the city's southwest suburb of Alief, Texas.

"The question was: How could we work together better?" says Joe Turner, who was director of the Houston Parks and Recreation Department from 2004 to 2017 and was heavily involved in the initial planning and development stages of the award-winning Alief Neighborhood Center and Park. "The answer was: Let's build a joint facility together."

That joint facility, in the works for years and funded by municipal bonds, opened in 2023 - thanks to cooperation between Turner, Houston Public Library Director Rhea Lawson and Houston Health Department Director Stephen Williams. It replaced aging and outgrown buildings for the parks and recreation department and the library system, as well as brought a new public health clinic to the area. It was built to reflect the different sectors it houses and the residents it serves. And, it happened in the wake of significant funding shortfalls a decade earlier, which prompted the idea of sharing spaces in the first place.

Today, Houston's Alief Neighborhood Center and Park is thriving in a previously long-underresourced community, and it's a prime example of how municipal park and recreation departments can partner with other public entities to share spaces.

Benefits and Challenges

One of the most common partnerships of this type is with libraries. The 47,000-square-foot East Arlington Library and Recreation Center in Texas, for example, opened in late 2020 with a shared spaces concept that has been wildly successful. The city's park and recreation department occupies 73 percent of the facility and splits utility costs accordingly.

Each department retains its own staffing structures. Recreation, aquatics and library staff all are hired and managed by their re- spective departments. However, one major staffing change that took place after the center opened was an upgrade in recreation center front-desk pay levels to align with new responsibilities that involve assisting patrons with both their recreation and library needs.

While the desire to save money and aggregate construction and operational costs typically drives the strategy to share spaces, it's also beneficial to consider the idea from a philosophical standpoint: How are you serving your constituents?

Take older municipalities, where many smaller recreation centers, libraries and other facilities might be scattered in various locations. This can result in duplication of services. A prime example is computer classes, which can be held in libraries, recreation centers, senior centers or community centers - but are not necessary in all of those facilities. Public budgets often demand fiscally responsible approaches, which can include combining multiple departments and services into one building.

"Conceptually, the building functions as a versatile one-stop shop for various community needs, catering to different age groups. Grandparents can visit the senior center; parents can access WIC services; and children can enjoy the library, demonstrating the center's versatility," says Rodrigo Gallardo, author of "Mixing and Mingling," in Texas Architect magazine.

In the case of recreation and library services, those departments can share larger and better spaces - classrooms, meeting rooms, social areas - while also strengthening their relationship and advocating for each other. It's a natural and convenient fit to bring youths, families and older adults under the same roof.

Jonas Risén, design director at Page, now Stantec, the architectural firm for the project, calls the Alief Neighborhood Center and Park "the biggest front porch in Texas," in Texas Architect.

The sharing of not only a roof, but also operational spaces can create challenges, no doubt. What happens when both entities want to use the same space on the same day at the same time? How are budgets structured and access points secured? How do you control noise levels in a building that houses both a gymnasium and study spaces? Plus, you can't expect a librarian to provide instructions on how to use certain pieces of cardio or strength equipment. Likewise, don't anticipate that a lifeguard or personal trainer will necessarily be able to help someone find a rare book on, say, insect anatomy.

Savvy design and operation strategies can help, certainly, as do thorough planning and constant communication. But the art of sharing spaces with other municipal departments is an evolution that doesn't stop. In fact, it's a learning process every day at the East Arlington Library and Recreation Center - even five years after the facility first opened its doors - and it requires members of both staffs involved to be team-oriented and focused on community solutions.

Case Study: Arlington, Texas

From City of Arlington's perspective, the decision to co-locate recreation and library services in a single facility was a strategic response to a practical need. Both legacy buildings - the Hugh Smith Recreation Center and one of the city's six branch libraries - were at the end of their life cycles. Combining them into one modern facility made fiscal sense and allowed both departments to pool funding and maximize return on investment. The result is a shared space that enhances service delivery for residents while reducing redundancy in infrastructure costs.

The shared facility has significantly expanded access and exposure to both recreation and library services, making it one of the highest-volume facilities in the city's entire system. Residents who may have entered the building for one purpose - such as attending a fitness class or checking out a book - are often introduced to the full range of other services available. The library portion of the facility offers free tax-preparation services, author appearances and other events that bring greater awareness of the city's recreational offerings, which include everything from the gymnasium and sports leagues to the indoor pool and swimming lessons.

Intergenerational programming is abundant at the East Arlington facility too, as older adult programs naturally overlap with both library and recreation services. Older adults are common caregivers for grandchildren, and the center provides spaces and programs that align perfectly with community needs; the two generations can attend separate programs at the same time or each enjoy activities on their own. Older adults also like the socialization aspects that both the recreation center and library offer. Such organic crossover supports greater community engagement and broadens awareness of city offerings.

Sharing spaces also helps both park and recreation and library services staff members better work together to meet the needs of residents. Splash Tales, for example, is a free program that combines interactive storytelling with waterthemed crafts, all hosted on splash pads at another Arlington park. This creative cross-programming initiative brings together recreation and literacy in a fun, engaging environment that encourages families to enjoy physical activity and early learning. It's also a perfect illustration of the opportunities made possible through the city's shared facility model - even though Splash Tales programming is not hosted at the East Arlington Library and Recreation Center. This type of collaborative programming would be much more difficult to execute 1f departments operated within their own silos. The shared space makes it seamless to co-develop and co-deliver experiences that enrich the lives of residents.

Another convenience for residents is the ability to use a single membership card for both library and recreation services, reinforcing the concept of the East Arlington Library and Recreation Center as a single, integrated resource center for the community. The facility is one of six municipal recreation, athletic and/or senior centers in the city.

With a $26 million price tag, the project was financed via municipal bonds, which allowed city officials to make a long-term investment in a high-quality, community-serving facility without relying solely on annual departmental budgets. This funding model reduced financial pressure on operations and resulted in enhanced planning and construction standards.

What's more, locating the new shared facility to an undeveloped area within Bob Cooke Park allowed for uninterrupted public access to the existing Hugh Smith Recreation Center during construction and the eventual transition process. This strategy also provided the Arlington Parks and Recreation Department with a rare opportunity to reclaim and reinvest in the park space by making long-needed upgrades to amenities that directly benefit park users. Outdoor improvements included the renovation of a basketball court, the construction of a futsal court and the reclamation of the Hugh Smith site to green space. These outdoor spaces and a shared courtyard connected to the building also provide locations for programs hosted by either department.

This kind of dual-purpose planning - minimizing service disruption while modernizing the park - illustrates the broad longterm impacts a shared-use facility can have on a community and its residents.

The design of the building itself evokes the city's distinct history. The area where the East Arlington Library and Recreation Center now stands was initially developed in the 1950s and fueled by economic growth generated by a nearby General Motors assembly plant. The facility's exterior design is informed by a retro theme that incorporates the area's past with its present. While the inclusion of a gymnasium and natatorium led to the inherent boxiness of the recreation side of the building, the library's softer edges reflect a flowing mid-century modern aesthetic. The two components are visually connected via a structure reminiscent of a gas station canopy. And given that this library branch is extremely program driven, its mission ties in well with that of the recreation center.

The entire facility, inside and out, is intended to represent the physical, emotional, intellectual and practical needs of the community it serves.

Plan Everything But Remain Agile

Operating a shared-use facility naturally brings unique challenges and requires extensive coordination across departments. Here is a brief look at three key strategies implemented at the East Arlington Library and Recreation Center to ensure smooth operations.

Budget structures - The library is supported by the city's tax-based general fund, while recreation operates as an enterprise fund - meaning it must generate revenue to cover expenses. This fundamental difference influences programming and fee structures. Libraries typically offer free programming, while recreation must charge for many of its offerings. Intentional scheduling and coordination are necessary to avoid program overlap or participant confusion.

Hours of operation - The recreation center operates from 6 a.m. to 9 p.m., while the library is open from 10 a.m. to 8 p.m. Residents often view the building as one seamless service environment, so cross-training staff is essential. Early on, especially, front-desk staff had to be instructed about how to respond to library questions and expectations.

Noise levels - The library portion of the East Arlington Library and Recreation Center is not a traditional silent library. The presence of active recreational use results in a more dynamic, ambient environment. Over time, both staff and patrons have adapted to this reality. The library functions more as a transactional space - patrons check out materials and attend programs - rather than a quiet reading zone.

For cities considering shareduse facilities, the key is to not only plan thoroughly, but also remain agile. And no matter how detailed those plans may be, unexpected challenges will emerge. The ability to stay flexible, communicate openly across departments and adapt to changing needs is critical to success. Ultimately, the goal is to deliver a seamless and enriching experience for residents, and that requires collaborative leadership and a resident-first mindset.

"Remember, it's not your facility," says Houston's Turner, now retired. "It's the constituents' facility, and the key is providing the best services to them. I got together with the Пbrary director and the health department director, and we drew up plans for how we could all co-exist. We were forced into that co-existence because of a major funding cut, but we figured out how we could close various facilities while still operating in that part of the city. And it worked out really well."