Panther Creek State Park Strategic Management Plan

Park Purpose, History and Description

Panther Creek State Park is located in the Hamblen County community of Panther Springs which is one of the area’s oldest settlements. The park was officially established on August 10, 1967, after the Tennessee Valley Authority negotiated the transfer of 947 acres of land to the State of Tennessee to develop and maintain a public recreation area. The following year, the state purchased additional land which increased the park’s size to 1,444 acres and began planning the construction of the park’s infrastructure which took place in three phases from 1970 to 1986. Since that time, ongoing, smaller facilities and amenities have been added with the most recent being the construction of a professional grade, 18-hole disc golf course, and an aviary. The park is situated on Cherokee Lake six miles west of Morristown and offers a variety of recreational opportunities including: camping, fishing, boating, picnicking, disc-golf, hiking, biking, and horseback riding.

It is the mission of Panther Creek State Park to: provide professional, effective management and stewardship of the park and all its resources; present compelling interpretation of the park’s story and resources; provide the highest level of quality and service while affording all visitors opportunities for safe and enjoyable outdoor recreational experiences; and provide a safe and inspiring workplace for park employees and volunteers while managing all park operations as efficiently and cost-effectively as possible.

Goals, Objectives, and Action Plans

Resources

Visitor

Amenities

Operations

THE RESOURCES: Exemplary Natural and Cultural Stewardship

Goal: Tennessee State Parks will be nationally recognized for exemplary stewardship of natural and cultural resources.

Objective: More and better stewards: Increase internal and external stewards who share Tennessee State Parks core values and can contribute to the State Parks mission to preserve, protect, and share Tennessee’s natural and cultural resources.

Action Plan:

• Develop and conduct an ongoing series of high quality, park specific programs designed with the overarching goal of promoting TSP’s core values, fostering awareness and appreciation for the park’s unique natural and cultural resources, and educating the public on the responsible and sustainable use of Panther Creek State Park.
• Continue to promote awareness of and appreciation for the park’s natural and cultural resources while conducting off-site school programs, on-site school field trips, and scheduled free programs for the public at the park throughout the year.
• Promote stewardship of the park’s natural and cultural resources during the four ranger-led signature hikes and National Public Lands Day volunteer event held at the park each year.
• Promote and fully participate in TSP’s Junior Ranger Program at the park.
• Continue to conduct Junior Ranger camp and participate in TWRA’s Wild Child Camp each year.
• Continue to participate in local and regional fairs, festivals, and other highly visited special events such as Wilderness Wildlife Week, Secret City Festival, and the Cocke County Field Day event to promote and encourage appreciation for and responsible use of the park.
• Continue to provide yearly overviews of park accomplishments and challenges to organizations such as the Morristown Rotary, Kiwanis, and Women’s clubs, Hamblen County Commission and Morristown City Council as requested.

Objective: Better resource management practices: Identify, manage, and restore unique natural and cultural resources for generations to come.

Action Plan:

• Develop and implement a process to better identify, prioritize, conduct and document natural and cultural resource management activities at the park.
• Assure ranger and maintenance staff are engaged in beneficial resource management activities throughout the year by incorporating this requirement in individual performance plans and monitoring progress in monthly activity reports.
• Encourage staff participation in resource management training such as TSP’s Go Green, Resource Management, and GIS workshops, as well as web-based and off-site training opportunities provided by other resource management agencies and organizations.
• Take immediate, appropriate action when threats to park resources such as vandalism, encroachments, and illegal harvesting, dumping, or camping are encountered.
• Fully enforce park rules related to firewood, fires, metal detectors, ATV’s, backcountry travel, camping, hunting, fishing, and other regulated activities that have the potential for direct, negative impacts on park resources.
• Perform inspections of the park’s boundary, cultural features and rare, threatened, or unique species to identify, document and address any issues or problems a minimum of once per year.
• Review and update the park’s Resource Management Plan with new information including results of scientific studies conducted, resource management accomplishments, and emerging threats a minimum of twice per year.
• Continue to compile an inventory of plants, animals, and ecological communities within the park to foster better management of natural areas and ecological resources.
• Provide opportunities for individual and group volunteers such as Tennessee Promise Students, JTEKT Automotive, Civil Air Patrol, 4-H, Boy Scouts, Girl Scouts, Trout Unlimited, Carson-Newman University, Morristown West High School, The Avenue Church, Clayton Homes, Mahle, Macdermid Printing Solutions, Howmet Aerospace, and Friends of Panther Creek State Park to participate in safe, appropriate, and beneficial natural resource maintenance or enhancement projects at the park.
• Encourage, facilitate, and maintain records of departmental approved scientific research studies conducted on park flora and fauna by the US Forest Service, Tennessee Wildlife Resources Agency, Carson-Newman University, Tennessee Department of Environment and Conservation, University of Tennessee, Tennessee Environmental Council, and Morristown West High School’s Science Club.
• Promote and participate in regional and statewide conservation events and programs such as Weed Wrangle, Tennessee Environmental Council’s Tree Day, Keep Morristown Hamblen Beautiful Recycling Day, and TSP’s Go Green program.

Objective: Better data and technology: Leverage data and technology to help inform and guide decisions on natural and cultural resources stewardship.

Action Plan:

• Participate in all departmental GIS training events and work with GIS staff to develop a database inventory of the park’s valuable cultural and natural resources.
• Identify and utilize mapping and distribution databases of invasive, rare, threatened, and endangered species provided by organizations such as the US Department of Agriculture, University of Tennessee, University of Georgia, Tennessee Exotic Pest Plant Council, Tennessee Department of Environment and Conservation, and Tennessee Department of Agriculture to inform and guide natural resource management activity at the park.
• Solicit input from other land management agencies, educational institutions and other professionals to help inform and guide potential resource management activity at the park.
• Implement resource management strategies and practices provided by professionals conducting scientific research at the park.
• Explore the use of new tools such as drones to aid in resource management activity.

THE VISITOR: Welcoming and Inviting to All

Goal: Tennessee State Parks will be the most accessible, welcoming, and inviting system of parks that enriches Tennesseans and visitors through excellent interpretation, education, and resource-based recreation.

Objective: accessible, welcoming, and inviting to all: create quality and varied programs of interpretation, recreation, and outreach so that all audiences feel welcome and invited.

Action Plan:

• Park interpretive staff shall explore, market, and provide a variety of educational and interpretive programs using virtual platforms easily accessible to a broad audience such as Facebook Live, internet-based videos, MS Teams and QR Codes.
• Park interpretive staff shall be required to participate in inclusivity, sensitivity, and interpretive training events such as Telling Full Stories: Understanding Bias, Train the Trainer, Volunteer Coordinator Workshop and Respectful Workplace provided by IEP, DOHR and other organizations.
• Park interpretive staff shall develop, market, and conduct a series of ongoing interpretive programs specifically designed for visitors with physical, intellectual, or developmental disabilities that provide the best possible experience and exposure to park resources utilizing proven and effective forms of interpretation for those target audiences.
• Park interpretive staff shall continue to provide programs for disabled audiences during the Luke 14 Banquet and actively seek opportunities to engage other disabled audiences through this event. Interpretive staff will continue to provide educational and recreational opportunities for at-risk youth from the Helen Ross McNabb Center in Morristown and seek to engage other marginalized youth throughout the community.
• Park interpretive staff will work to develop programs that engages Morristown’s large Hispanic population that frequent the park throughout the year.
• Park interpretive staff will accept invitations and participate in as many off-site special events as possible to engage a wider audience and encourage participants to visit and take advantage of interpretive opportunities at Panther Creek State Park.
• Interpretive staff shall develop and advertise Equal Eligibility Criteria statements with each program offered at the park.

Objective: high-quality programming: develop and support mission-based and resource-relevant programs to engage visitors, empower staff, and develop community wellbeing.

Action Plan:

• Appropriate staff will review and update the park’s Interpretive Action Plan yearly to assure the document remains relevant and programs offered are consistent with the park’s primary and secondary interpretive themes.
• Park interpretive staff will research and develop programs that incorporate the elements of effective interpretation and organize program outlines and transcripts in the format established by IPE.
• Interpretive staff will engage the public at the park and during interactions in the community to obtain an understanding of the interpretive subjects about which they desire to gain greater understanding and incorporate those subjects in park programs whenever practicable.
• Rangers and other interpretive staff will complete all requirements to retain their status as Certified Interpretive Guides through the National Association of Interpretation.

Objective: resource-based outdoor recreation: provide resource-based outdoor recreation opportunities that ensure representation of Tennessee’s natural, scenic, and cultural resources.

Action Plan:

• Continue to conduct Junior Ranger camp at the park each summer.
• Increase opportunities for visitors to participate in programs that enhance outdoor skills such as fishing, canoeing, wilderness survival, astronomy, land navigation, campfire cooking, pioneering, foraging, tracking and wilderness first aid.
• Develop and conduct an overnight event designed to expose participants to the park’s natural, scenic, and cultural resources.
• Encourage appropriate use of the park by external groups such as athletic, civic and youth organizations and clubs for races, sports events, recreational activities, and camps.

THE AMENITIES: Well-Maintained Facilities and Amenities

Goal: Tennessee State Parks will be well maintained with facilities and amenities that delight visitors and make Tennesseans proud.

Objective: Improve maintenance: Improve overall maintenance and upkeep of all park facilities and amenities that contribute to meaningful visitor experiences.

Action Plan:

• Maintenance staff shall continue to use preventative maintenance software as a tool to prioritize, schedule, perform and document all relevant preventative and routine work activities at the park, and will continue to load new locations, vehicles, buildings and building equipment into the system as necessary.
• All plans, schematics, blueprints, operational, troubleshooting, repair and safety manuals, warranty, model, replacement part and service provider documents for park vehicles, equipment, buildings, and mechanical, plumbing, and electrical systems will be well-organized and housed in a designated central location for easy access when needed.
• The maintenance supervisor will review all purchase orders for work performed on the park by outside contractors. The maintenance supervisor will inspect the work of those contractors to assure they are adhering to written specifications, using appropriate building materials, and performing work that is safe and meets the standard of quality expected by the state of Tennessee.
• The park manager will commence weekly meetings with the maintenance supervisor to discuss maintenance priorities, concerns, and material and equipment needs to develop a plan for the subsequent week of work activities.
• The park manager and maintenance supervisor will collaborate to develop a Mowing Plan to identify priority areas to be mowed, establish a consistent mowing schedule, and, if possible, reduce the acreage mowed throughout the park.
• Maintenance staff should continue to use the campground and trail inspection forms monthly and the buildings inspection form every six months as a tool to identify and correct maintenance problems. Safety and Security Officer should continue to conduct inspections of the playground monthly and work with maintenance staff to promptly correct any problems discovered.
• Ranger and maintenance staff will continue to collaborate to perform inspections and removal of hazardous trees in accordance with the park’s Hazardous Tree Management Plan.
• Implement a system to better communicate maintenance issues or problems identified by visitors and overnight guests through State Park Guest Surveys directly to maintenance staff to facilitate quicker response to problems.
• Require maintenance staff to attend one training course per year relevant to their scope of work such as basic plumbing, carpentry, electrical repair, chainsaw safety, first aid, software or mechanics offered through the TDEC, Morristown TCAT, online courses, and other agencies, organizations, and educational institutions. Incorporate this requirement in individual performance plans and monitor progress in monthly activity reports.

Objective: Better park accessibility: ensure all visitors have opportunities for meaningful experiences in every Tennessee State Park.

Action Plan:

• Continue to work with East Tennessee Regional Maintenance Office to upgrade buildings, restrooms, sidewalks, and parking lots that have yet to be upgraded to ADA Standards.
• Facilitate the funded capital project to replace the existing playground.
• Facilitate the funded capital project to construct new recreation building to ADA accessibility standards.
• Assure park LEP Coordinator is fully trained and up to date on current procedures for facilitating communication between park staff and foreign language speaking visitors.
• Actively promote and facilitate free use of the park’s all-terrain wheelchair by visitors with mobility issues.

Objective: Quality and welcoming facilities and amenities: provide high-quality and well-planned facilities and amenities that enrich the visitor experience.

Action Plan:

• Park staff will work closely with the Office of Facilities Management and architects to assure the new playground, recreation lodge, and other future facilities conform with TSP’s Design and Landscaping Guidelines.
• Panther Creek State Park will continue to assure basic services such as daily restroom and shelter cleaning, daily trash removal, and weekly mowing is performed on a continual basis without disruptions.
• Panther Creek State Park staff will conduct daily inspections, review visitor comments, and interact with visitors to obtain timely information on buildings or grounds maintenance problems and work to resolve those issues in priority order as swiftly as possible.

THE OPERATIONS: Operational Excellence

Goal: Tennessee State Parks will be a national model for operational excellence in a state park system.

Objective: Support and empower our people: support and empower our workforce by creating a caring environment that encourages professional growth and great customer service.

Action Plan:

• All supervisors responsible for rating subordinates will be fully trained in the performance planning process and will consistently follow all steps in the process including the development of SMART work outcomes and action steps, drafting honest and constructive interim and final review comments, and conducting performance review meetings with subordinates.
• Employees struggling with their work responsibilities will be required to complete a Job Performance Improvement Plan and will be provided with ongoing coaching and support.
• All employees will be required to participate in Respectful Workplace and Customer Service training courses yearly by incorporating this requirement in individual performance plans.
• Every effort will be made to accommodate employee requests for training online, within the department or through outside educational institutions, agencies, or organizations.
• The park manager will work proactively to provide employees with information, access, and resources related to employee benefits, insurance, retirement, Tennessee State Employees Association, raises, bonuses, and new legislation and policies that affect staff.
• The park manager will continue to conduct relevant and meaningful monthly staff meetings where employees are offered an opportunity to freely discuss work-related issues, concerns, and solutions.
• The park manager will continue to maintain an open-door policy for employees to discuss (discretely if necessary) their needs and concerns.
• Park staff will be made aware of their co-worker’s service anniversaries and birthdays so they may recognize and honor those occasions. Special ceremonies will be held upon any employee’s retirement unless the employee wishes otherwise.

Objective: Efficient and effective operations: provide efficient, effective, and fiscally responsible service to Tennesseans and our visitors.

Action Step:

• The park will continue to fully participate in the Go Green program and adhere to the program’s guidelines for reducing material waste and conserving energy.
• The park will continue to use EnergyCap to monitor trends in electricity and water consumption and as a tool for alerting the park to potential maintenance problems.
• Preventative maintenance schedules on park vehicles, equipment, mechanical, electrical, plumbing and HVAC systems will be strictly adhered to and repairs to those systems will be assigned top priority upon discovery.
• The park will perform an annual review of all operations to identify strategies for increasing efficiency and revenue while reducing expenditures and waste.
• The park will fully support the department’s initiative that encourages the use of and build infrastructure for electric vehicles within the park.
• The park will actively seek volunteer assistance from Tennessee Promise Students, interns, and service organizations to provide labor support for park initiatives and projects.
• The park will seek alternate funding sources for programs and projects through grants, donations, and in-kind contributions.

Park Overview

Site Fact Sheet

¹Based on T.C.A. 11-3-305, Cost recovery of revenue-generating facilities

Key Attractions

The amenities or features listed below are those that seem to be most popular for visitors.

• Hiking, mountain biking and horseback riding trails
• RV and tent camping
• 18-hole disc golf course
• Access to picnicking facilities and covered pavilions
• Cherokee Lake access for fishing, recreational boating, and watersports
• Rental venues
• Tennis, pickleball, and basketball courts
• Field sports including baseball, softball, soccer, and football
• Playground access for children
• Opportunities to participate in organized athletic events, races, and competitions

Site and Operations Assessment

This site and operations assessment is a culmination of analyses and findings from a review of the condition of facilities, infrastructure, and operations at Panther Creek State Park. The findings and observations are not intended to be an exhaustive review of all issues present but provide a basic understanding of the predominant issues that contribute to the site’s current operating conditions. The assessment includes the following:

Site and Facility Assessment

Operational Assessment

Summary of Key Recommendations

Site and Facility Assessment

Methodology

Facility and asset conditions are rated using a differential scale of excellent, good, fair, or poor. Descriptions of conditions that are attributed to each of these findings are also provided.

Facility Inventory and Assessment

The table below is an inventory of facilities and amenities at Panther Creek State Park and provides the assessed condition of each as reviewed in September 2026.

Trail Inventory and Assessment

There is a well-established 28-mile trail system distributed among 17 official trails within the park. While hiking is permitted on all trails, horseback riding is restricted to two trails (9.5 miles), and mountain biking is restricted to eight trails (10.2 miles). The trail system is the park’s most popular public recreation amenity and special care is taken to maintain all trails in a condition that is safe, accessible, and enjoyable for users. Several athletic events and races are held on park trails each year, and countless visitors take advantage of the trail system for exercise, exploration, relaxation, seclusion, and nature observation.

Maintenance activities on park trails include the removal of litter, removal of downed limbs, trees and overgrown vegetation, the construction and installation of trail structures (bridges, boardwalks, erosion control structures, signs), obstruction of illegal spur or connector trails, and installation of trail surface hardening materials (gravel, tri-lock). Potential impacts on the park’s natural resources from careless or inappropriate trail use can be extensive and include soil compaction and erosion, decreased water quality, destruction of vegetation, litter, and the establishment of illegal spur or connector trails. To mitigate these negative impacts, ranger staff work diligently to educate the public on the appropriate use of park trails and enforce trail system rules when violations are discovered. It is not recommended that any additional trails be constructed on park grounds given the elaborate trail system that already exists.

New Assets Needed

List new assets and amenities that would fall under capital expenditures that are needed to improve visitor experience and operational efficiency.

Prioritized Facility Needs

Based on the facility inventory and assessment, these prioritized needs have been identified.

The table below provides brief descriptions and solutions for current and foreseeable facility maintenance needs in priority order.

Operational Assessment

The Operational Assessment includes:

1. An inventory and classification of programs and services being provided at the site,
2. A review of staffing at the site,
3. A review of concessionaires and partners operating at the site,
4. Visitation and customer satisfaction, and
5. Professional development and training.

Inventory and Classification of Programs and Services

Programs and services are classified into one of three major categories:

1. Core or Essential Services;
2. Important Services; and
3. Value added or Visitor Supported Services

Functions of the site are classified into these categories based in part on the mission and public mandates for both the site and the agency. For the programs and services in each of these categories, there are financial performance expectations that will define how services are funded and evaluated.

CATEGORY 1 – CORE SERVICES [Largely supported by public subsidies]

Core programs, services and facilities are those the agency must provide and/or are essential in order to capably govern and meet statutory requirements. The failure of the agency to provide Category 1 services at adequate levels could result in significant negative consequences for the public and the resources under protection. The criteria for programs or services to be classified as core or essential are:

• The services are mandated by the agency’s law or charter or are contractually obligated by agreement to provide the services.
• The services are essential to protecting and supporting the public’s health and safety.
• The services protect and maintain valuable assets and infrastructure.
• The services would generally and reasonably be expected and supported by residents, businesses, customers, and partners.
• The services are those that cannot or should not be provided by the private sector.
• The services provide a sound investment of public funds.

The following programs and services offered at Panther Creek State Park have been identified as core services:

• Support the mission of Tennessee State Parks which is, “To preserve, protect, and share Tennessee’s natural and cultural resources while providing safe, quality outdoor experiences.”
• Provide for public access to the park, the facilities, and the grounds.
• Provide public safety for visitors and protection of natural and cultural resources.
• Provide for maintenance of grounds, facilities, and infrastructure.
• Maintain facilities developed through the LWCF program to required standards.
• Provide for basic day-use activities informational signage, trash cans, and restroom facilities.
• Maintain park drinking water and wastewater programs to state standards.

CATEGORY 2 – IMPORTANT SERVICES [Supported by a balance of revenues and public subsidy]

Important programs, services and facilities are those the agency should provide, and are important to governing and effectively serving residents, businesses, customers and partners. Providing Category 2 services expands or enhances the agency’s ability to provide and sustain its core services. The criteria for programs or services to be classified as important are:

• The services expand, enhance or support identified core services.
• The services are broadly supported and utilized by the community, and are considered an appropriate, important, and valuable public good. Public support may be conditional upon the manner by which the services are paid for or funded.
• The services generate income or revenue that offsets some or all of the operating cost and/or are deemed to provide economic, social or environmental outcomes or results.

The following programs and services offered at Panther Creek State Park have been identified as important services:

• Provide a full range of environmental, cultural, and recreational programs.
• Offer park-specific information at the Visitor Center and Camp Store.
• Provide educational programs for schools and organized groups.
• Provide ongoing marketing, maintenance, and access to the park’s 18-hole disc golf course.
• Maintain aviary and Birds of Prey program at the park in compliance with TWRA rules and regulations and TSP policy.
• Conduct annual Junior Ranger camp to educate youth on outdoor skills and boating safety.
• Provide for basic day-use activities (such as hiking and picnicking) with trails, informational displays and picnic tables.

CATEGORY 3 – VISITOR SUPPORTED SERVICES [Almost exclusively supported by earned revenue]

Visitor supported programs, services and facilities are those discretionary services that the agency may provide when additional funding or revenue exists to offset the cost of providing those services. Category 3 services provide added value above and beyond what is required or expected. The criteria for programs or services to be classified as visitor supported are:

• The services expand, enhance or support Core Services, Important Services, and the quality of life of the visitors, community, or stakeholders.
• The services are supported, valued, and well utilized and provide an appropriate and valuable public benefit.
• The services generate income or funding from sponsorships, grants, user fees or other sources that offset some or all of their cost and/or provides a meaningful return on investment.
• The Services can possibly be provided through outsourcing or use of concessionaires, providing opportunities for community enterprise or services that may not otherwise be provided by the agency.

The following programs and services offered at Panther Creek State Park have been identified as visitor supported services:

• Operate and provide retail support services for the gift shop and camp store.
• Provide support services for 50 tent/RV campsites and bathhouses.
• Provide support services for picnic shelters and other rentable venues.
• Fee-based recreational and interpretive programs that are designed to generate more revenue than operating costs to provide.

Personnel / Staffing Review

Personnel and staffing at Panther Creek State Park represent the largest area of budgetary expense at an average of 68.7% of the total operating budget each year for the last three complete years, which is slightly more than the target of labor costs not exceeding 65% of total operating expenditures. The tables below and on the following page provide a basic review of the current staffing at the site.

Full-Time Equivalent Employees
*Law enforcement compensation confidential by TN law.

Part Time Employees

Labor Support

Total Labor Compensation Expense

Additional Future Positions Needed

Financial Performance

Revenue per available unit (Rev Per Unit) for the last four years in park facilities is detailed in the table below.

Current Rev Per Unit

Projected Rev Per Unit - Based on current Rev Per Unit trends at the park and any known developments over the next four years.

Customer Service

Professional Development and Training

The following professional development and training opportunities are being explored and planned for the staff and volunteers at this park:

• Park staff shall complete Title VI and Cyber Security training annually.
• Ranger staff shall complete all CEU, refresher, and training courses required to maintain law enforcement commission, Interpretive Guide and Emergency Medical Responder certifications.
• The park will ensure that one or more rangers participate in GIS, IPE, RMS, Go Green and Resource Management workshops and training events each month or as scheduled.
• The park will continue to participate in annual Maintenance Manager and Administrative conferences, Quarterly Administrative Meetings and Gift Shop Vendor Shows.
• Spanish Language Certificate training designed to teach English speaking professionals basic Spanish communication skills provided by Walters State Community College is being explored for the park ranger staff.
• Law Enforcement Leadership Certification training provided by the University of Tennessee is being explored for park ranger staff.
• Search Operations, Basic Visual Tracking, GPS/Land Navigation and Managing Search Operations courses provided by the Tennessee Emergency Management Agency is being explored for park ranger staff.
• Playground Inspector Certification training course offered by the National Recreation and Park Association is being explored for the park safety and security officer.
• Conflict Management, Planning and Priority Setting, Organization and Time Management, and Customer Service training courses provided through Edison are being explored for all park staff members.
• Digital Literacy Course provided by the Tennessee Department of Labor and Workforce Development is being explored for park maintenance staff.
• S-112 Introduction to Chainsaw Operations course provided by TN Department of Forestry or TDEC is being explored for park maintenance and ranger staff.
• Adult and Child First Aid, CPR and AED Certification training provided by the American Red Cross is being explored for park administrative and maintenance staff members.
• Commercial Applicator Certification (herbicides and pesticides) training provided by the University of Tennessee is being explored for the park maintenance manager.
• Note: All park staff members are encouraged to take advantage of the state employee Tuition Fee Waiver Program to participate in postsecondary educational opportunities.
• Routine management training.

Summary of Key Recommendations

Please provide short-term, mid-term, and long-term recommendations for addressing operational issues at the park and improving overall park performance.

Short Term Recommendations (Less than 1 year)

Site and Facilities

• Replace wooden bench seats on approximately 60 picnic tables throughout the park.
• Install graded banks along both sides of existing concrete boat ramp to improve safety and reduce potential for property damage.

Operations and Staffing

• Create a new Park Ranger position and hire an employee to fill new position.
• Improve trail signage.

Customer Service / Visitor Experience

• Continue to meet and exceed visitor expectations and maintain positive reviews, ratings, and Net Promoter Score.

Mid Term Recommendations (2-5 years)

Site and Facilities

• Construct new recreation lodge on old swimming pool site (project in progress).
• Replace visitor center roof support beams and exterior walls.
• Renovate maintenance building storage bay.
• Improve water drainage system in the campground.
• Replace drain tiles under park roadway.

Operations and Staffing

• Create a new TSP Maintenance Technician position and hire an employee to fill new position.

Customer Service / Visitor Experience

• Construct new playground on existing playground site (project in progress).
• Complete upgrades of all park buildings, sidewalks, and parking lots to ADA standards.
• Provide electric vehicle charging stations for visitors (project in progress).

Long Term Recommendations (5+ years)

Site and Facilities

• Repave and reline park roadway.
• Repave and reline Spoone, Smallman and playground parking lots.
• Pave and line horse trailer parking lot.

Operations and Staffing

• No long term operational or staffing recommendations.

Customer Service / Visitor Experience

• Convert an existing trail loop or segment to a paved, ADA accessible trail.
• Upgrade ten additional existing campsites to include sewer hookups.

Resource Management Plan

A resource management plan is a specific statement of the objectives you have for your land and natural resources, as well as any significant cultural and historic resources stewarded by the state park. This includes a defined series of priorities and activities that will take place in order to meet those objectives. This can include future potential land acquisitions or divestitures that are necessary to meet the park’s resource management goals and objectives.

The overall goal of Panther Creek State Park is to provide recreational opportunities for the visiting public while also protecting the delicate natural and cultural resources in the park. Great emphasis is placed on monitoring the activities of park users and correcting behaviors that are detrimental or destructive to park resources. Educating the public, enforcing park rules and policies, and taking law enforcement or legal action when necessary are all methods rangers use to fulfil this goal. However, fostering public appreciation for and stewardship of the park’s resources through education and interpretation is, by far, the preferred and most effective method to gain compliance and support for resources protection. The park’s holistic approach to resource management has many other important elements including administrative oversight, maintenance, resource restoration and enhancement, research, inventory, monitoring and public relations, but education and interpretation are paramount to success and thus the primary focus of park resources and energy.

The contents of this resource management plan are as follows:

Resource Management Objectives

Resource Inventory and Assessment

Management Strategies

Land Management Strategies

Resource Management Objectives

Goal

Tennessee State Parks will be nationally recognized for exemplary stewardship of natural and cultural resources.

Objectives

• More and better stewards: Increase internal and external stewards who share Tennessee State Parks core values and can contribute to the State Parks mission to steward Tennessee’s natural and cultural resources.
• Better resource management practices: Identify, manage, and restore unique natural and cultural resources for generations to come.
• Better data and technology: Leverage data and technology to help inform and guide decisions on natural and cultural resources stewardship.

Aligned with these objectives are specific strategies to achieve the desired outcomes for the natural, cultural, and historic resources of this park.

Strategies

A. Natural Resource Management Strategies

1. Administrative Oversight

a. Report resource management activities and issues to Area 6 Regional Parks Manager each month.

b. Update Resource Management Plan every six months.

c. Update Interpretive Action Plan yearly.

d. Improve system for identifying, prioritizing, conducting and documenting resource management activities.

e. Assure ranger and maintenance staff engage in ongoing resource management activities by incorporating this requirement in Individual Performance plans.f. Participate fully in the department’s Go Green program.

2. Training

a. Rangers shall participate in all departmental GIS training events.

b. Encourage staff participation in resource management training opportunities provided by the department, other agencies, and organizations.

c. Ranger staff shall maintain CIG certification.

3. Natural Resource Restoration, Maintenance and Enhancement

a. Conduct yearly park boundary inspections to identify and correct problems.

i. Replace missing park boundary signs.

ii. Fence areas if appropriate to address specific encroachments.

iii. Utilize game cameras, increased ranger patrols and other methods for identifying offenders as necessary.

b. Conduct yearly inspections of rare, threatened, or unique species to identify, document and address any issues discovered.

c. Continue to compile inventories of plants, animals, and ecological communities to improve management of natural areas and ecological resources.

i. Work with volunteers to update park floral and faunal lists.

ii. Periodically monitor state listed species.

d. Enforce park rules related to firewood, fires, metal detectors, ATV’s, backcountry travel, camping, hunting, fishing, geocaching, and other regulated activities that have potential for direct, negative impacts on park resources.

e. Take immediate, appropriate action when threats to park resources such as vandalism, encroachments, and illegal harvesting, dumping, or camping are encountered.

f. Develop and implement management strategies to control or eradicate invasive pest plants.

g. Comply with the guidelines and requirements set forth in the park’s Hazardous Tree Management Plan

h. Proactively investigate land acquisition opportunities and proposals from adjoining property owners that might serve to protect or enhance the park’s natural resources.

i. Panther Creek

i. Enforce TWRA fishing regulations.

ii. Address inappropriate activities such as illegal dumping, littering, or harvesting aquatic wildlife.

iii. Remove log jams, litter and sediment accumulated in tiles as needed.

j. Panther Creek Riparian Zone

i. Repair areas of soil compaction, vegetation loss and erosion.

ii. Remove illegally developed trail.

iii. Provide ongoing maintenance for designated public creek access points.

iv. Correct inappropriate activities such as littering, damaging, or harvesting vegetation.

k. Lake Shoreline

i. Conduct monthly inspection to address issues such as illegal camping, campfires, hunting, swimming, and dumping.

ii. Remove rope swings and diving platforms.

l. Deciduous Forest

i. Remove hazardous trees along trails, park boundary, campground and other heavily visited areas.

ii. Locate and remove unofficial trails.

iii. Collaborate with US Forest Service and TN Department of Forestry on tree disease and pest insect studies.

iv. Remove invasive plants and shrubs growing in pockets within and along margins of park forested areas.

v. Enforce firewood and campfire policies.

vi. Address illegal activities such as hunting or harvesting wood or valuable plant species.

m. Fescue Grass Fields

i. Maintain fields in mown and kempt conditions for appropriate public recreational activities.

ii. Repair areas of soil compaction and vegetation loss.

iii. Develop mowing plan to prioritize, schedule and reduce mowed acreage.

n. Native Wildflower Fields

i. Monitor for and remove undesirable plant species.

ii. Prepare for future controlled burns.

o. Caves

i. Monitor yearly for destruction or damage.

ii. Collaborate with TDEC and TWRA on bat population studies.

p. Scenic Observation Points

i. Annually remove overgrowth obstruction view.

ii. Remove litter around and below observation points as necessary.

iii. Assure observation deck is well maintained and safe for visitors.

4. Labor, Research and Technical Support

a. Provide ongoing opportunities for individual and group volunteers to participate in safe, appropriate, and beneficial natural resource maintenance or enhancement projects.

b. Collaborate with departmental GIS staff to develop a database inventory of the park’s valuable natural and cultural resources.

c. Utilize mapping and distribution databases of invasive, rare, threatened, and endangered species to inform and guide natural resource management activity.

d. Encourage and facilitate departmental approved scientific research on park flora and fauna.

i. Maintain records of scientific research results.

ii. Implement resource management strategies and practices provided by professionals conducting research on park resources.

e. Solicit input from other land management agencies, educational institutions, and other professionals to help inform and guide natural resource management activity.

f. Employ the use of drones for park resource management activities.

5. Interpretation and Education

a. Full-time interpretive staff.

i. Conduct a minimum of two high-quality interpretive programs each month.

ii. Promote awareness and appreciation for the park’s natural and cultural resources during school programs, field trips, signature hikes and volunteer events.

iii. Participate in local and regional fairs, festivals, and other highly visited special events to promote and encourage responsible use of the park.

iv. Conduct Junior Ranger camp each summer.

v. Promote and participate in regional and statewide conservation events.

vi. Develop and conduct an ongoing series of high, quality, park specific programs designed to promote TSP’s core values, foster awareness and appreciation for the park’s unique natural and cultural resources, and educate the public on the responsible and sustainable use of the park.

b. Promote and fully participate in TSP’s Junior Ranger program.

c. Increase access to park interpretive programs using digital platforms such as MS Teams and Facebook.

d. Develop additional interpretive displays and signage that promotes appreciation for and stewardship of park resources.

B. Cultural Resource Management Strategies

1. Cultural Resource Inventory, Research and Monitoring

a. Locate and inventory any unidentified cultural resources on park property.

i. Review historical maps and documents and conduct interviews with long-time residents to locate and identify cultural resources.

ii. Obtain GPS locations for all known cultural features and enter locations into park GIS database.

b. Conduct research to collect historical data on cultural resources on park property

i. Obtain available data on cultural resources by researching local historical archives, TVA records and conducting interviews with family members of former park residents.

ii. Compile data collected on park cultural resources into a reference document for use in the development of future interpretive displays and signage.

c. Springhouse Foundations

i. Open access by mowing and trimming around springhouses.

ii. Monitor for vandalism or damage.

iii. Remove litter around foundations.

d. Graveyards

i. Monitor for vandalism or damage.

ii. Conduct research to obtain more information about graveyards.

e. House Foundations

i. Monitor for vandalism or damage.

ii. Conduct research to obtain more information about house foundations.

Resource Inventory and Assessment

The significant natural, cultural and historic resources of the park requiring management are detailed below including a condition assessment rating for each. Condition assessments are selected from the following options based on what most describes the current condition of the resource:

1. Excellent – resource is in excellent condition; all potential threats to the integrity of the resource are currently managed and effectively mitigated.
2. Good – resource is generally in good condition and stable; threats to the integrity of the resource require regular management to mitigate.
3. Fair – resource is in stable condition but difficult to mitigate ongoing threats; additional management support is required.
4. Poor – resource is generally in poor condition with management support required to both improve existing conditions and address threats.
5. Critical – resource is highly threatened or deteriorated and requires immediate management prioritization.

Management Strategies

The management strategies outlined below are directly correlated to the resources identified previously in the Resource Inventory and Assessment section immediately above. These are general and overall management recommendations for each resource from which priority actions will be determined. Each resource has both a “Public Use” management strategy (which could include limited or no public access, or managed access with infrastructure and regulation) and a “General Management” strategy.
The priority assignments reflect the highest resource management priorities of the park over the next 1-5 years (High Priority) and 6-10 years (Moderate Priority)

Land Management Strategies

In some cases, strategic land acquisitions or divestitures are necessary to meet the overall resource management goals and objectives of the park. This can include opportunities to address buffers, watersheds, viewsheds, inholdings, and adjacent properties. The table below details general strategies for land management. Timelines refer to Short Term (1-3 years), Mid Term (4-6 years), and Long Term (7-10 years).

Interpretive Programming and Education Five-Year Action Plan

Tennessee State Parks’ Interpretation, Programming, and Education team is helping park staff set and achieve programming goals by developing Interpretive Action Plans. This process begins with conversations with Area Interpretive Rangers that prepare field staff for the Scoping Meeting. This meeting brings park staff and stakeholders together to identify audience(s), themes, resources, and set goals and objectives. This information then turns into the five-year Interpretive Action Plan.

Park Primary Interpretive Theme

The waters of Panther Creek have served as a natural meeting place, shaping human activity throughout history from the earliest inhabitants to the modern day.

Park Secondary Interpretive Themes

S.1. The culture and heritage of the early inhabitants of the area around Panther Creek shaped the modern community and surrounding areas.

S.2. The Panther Springs community provided essential resources to establish communities, past and present.

S.3. The impact of the TVA Dam construction dramatically shaped community, commerce, and recreation.

S.4. The flora and fauna of the Tennessee Valley has sustained communities, economies, and cultures, past and present.

S.5. The dark sky has inspired awe and wonder from early inhabitants to modern day.

Existing Audiences

Emerging Audiences

Park Programming Inventory Data

Key Park Natural, Cultural, and Recreational Resources

Key Park Interpretive Infrastructure

1. Aviary
2. Campground shelter
3. Overlook area
4. Playground parking area
5. Boat ramp
6. Spoone shelter
7. Chestnut tree restoration

Park Personnel Primarily Dedicated to Interpretation

Volunteer Hours and Numbers for Most Recent Fiscal Year

Park Interpretive Goals

Goal 1

Natural Resource Goal: increase visitor understanding of natural resources at PCSP.

Theme(s) Supported: S4, S5

• 2-Year Objective: Increase opportunities for engagement with natural resource programs by 5%
• 5-Year Objective: Increase opportunities for engagement with natural resource programs by 10%

Resources Assigned to Goal: Interpretive staff, maintenance staff, volunteer groups, Cherokee Lake, Panther Creek, trails, interactive interpretive infrastructure, Bortle class 4 sky, Point Lookout.

Strategy for Implementation: Park staff will maintain accurate PPI data, research the possible implementation of interactive exhibits, expansion of staff knowledge, ensure programming aligns with park interpretive themes, increase programming outreach to current and emerging audiences, evaluate and improve the existing self guided nature trail, and partner with TWRA.

Goal 2

Recreation Skill Development: Visitors will engage safely and responsibly in recreational activities.

Theme(s) Supported: P

• 2-Year Objective: park staff will see a decrease in trail emergency responses (carry outs, finding lost hikers).
• 5-Year Objective: Engage partners in public programming (recurring safety programming).

Resources Assigned to Goal: Programming staff, park maintenance staff and equipment, maps and mapping software, educational materials, safety equipment for visitor use, and park signage.

Strategy for Implementation: Update trail markers and increase awareness of digital maps, increase visitor skill through quality recreational programming, partner with local recreational groups for safety and recreational focused meetings/classes/volunteer days, create park safety equipment availability, partner with local rec stores for safety equipment, and partner with TWRA.

Goal 3

Cultural Resource Goal: Visitors will be aware of Panther Creek springs historic significance to the park.

Theme(s) Supported: S1-S4

• 2-Year Objective: 5% increase in engagement with non-personal historic interpretation.
• 5-Year Objective: Increase of attendance to ranger lead historic programming by 5%.

Resources Assigned to Goal: Park interpretive staff, interpretive signing, access to historical maps for interpretation, local historical records, local historians, and on park historical resources (Smallman spring, Spoone family cemetery, overlook area, and various backcountry homesites and remnants)

Strategy for Implementation: Increase staff knowledge on the park's historical and cultural elements, prioritize cultural and historical training opportunities, increase historical and cultural themes in existing and new programming, partner with local historians, assess a partnership with TVA, and increase historical and cultural based passive interpretation opportunities.

Goal 4

Education Goal: Educators will seek out experiences at PCSP

Theme(s) Supported: P, S1-S5

• 2-Year Objective: Increase in educator requests by 5%
• 5-Year Objective: Increase in educator requests by 10%

Resources Assigned to Goal: Park interpretive staff, aviary, overlook, pavilions, Panther Creek, Cherokee lake, Seven Sinkholes Geological area, trails, interactive interpretive infrastructure, and Bortle class 4 sky.

Strategy for Implementation: Increase educator knowledge of the park experiences and program request process, review and familiarize staff with state educational standards, publish education outlines to park programming library, conduct educator outreach, maintain updated list of park educational opportunities on the park website.

Goal 5

Volunteer Goal: Visitors who attend/engage with programs will participate in volunteer opportunities.

Theme(s) Supported: P, S1, S2, S3, S4, S5

• 2-Year Objective: Increase in number of volunteers by 5%
• 5-Year Objective: Increase in number of volunteers by 10%

Resources Assigned to Goal: Park staff, park equipment and tools, programming supplies, personal protective equipment, trails, boat ramp and shoreline, aviary and gardens

Strategy for Implementation: Ensure all staff are familiarized with Galaxy Digital and volunteer policy and procedure, partner with current recreation groups, hobbyist, and businesses, ensure volunteer input in Galaxy Digital, and increase volunteer opportunities.

Financial Performance Goals

Financial performance goals are a critical performance management tool of the Tennessee State Park System. While the financial performance of parks are managed more intently at the system level, individual parks are expected to recover a portion of their operating costs through the generation of earned revenues where appropriate and to contribute to the system goals. The majority of earned revenues at state parks are generated through facility usage (campsites, cabins, lodge rooms, rentable pavilions, etc.), the delivery of fee-based programs and services, equipment rental and usage, and retail sales. Other forms of revenue generation come from golf courses and restaurants where those amenities are present. That said, not all parks have the same ability to generate earned revenues because the availability of facilities or programs vary widely from one park to the next. The “recovery” of operational costs by earned revenues is referred to as “cost recovery”. Operating costs beyond those supported by earned revenues represents the extent to which state funding support operations at each park.

The table below represents the overall park cost recovery for this specific park for the most recent fiscal year and forecast estimates for the upcoming five years. These estimates are based on projection estimates for known and foreseeable costs and recovery figures.

Park Overall Cost Recovery Goals