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IAPD at 75 Years Celebrating the Power of Citizen Advocacy by Ted Flickinger, Ph.D. & Ann M. Londrigan It's so very American, our system of local government for parks and recreation. It's democratic and political; idealistic yet held to task by hundreds of laws and policies; and driven by men and women who want to make things better for future generations. Citizen advocates for parks, open space and recreation are central to the history of Illinois park districts and forest preserves. In the city of Chicago in the 1850s, groups of residents campaigned for park development and against a growing lakeside cemetery in order to create Lake Park (now called Lincoln Park). These citizen groups started what has become one of the nation's best citywide public park systems. Downstate in Urbana, the initial drive to preserve green space was led by a man who purchased 39 acres of forestland to save the trees from a lumber mill. He opened the area for steamboat rides and picnicking. Renamed Crystal Lake Park, this became one of the first parcels of land donated to the Urbana Park District when it was established in 1902. So it's no surprise that today's elected officials from park districts and forest preserves reflect the same spirit of grassroots activism regarding state and national issues as their predecessors. In fact, park officials from Cook County and other counties in the state discovered each other in the halls of the State Capitol in 1927, seeking legislation for their various and similar interests. There the idea to form a statewide organization started but nothing formal was done until A.D. McLarty, secretary of the Illinois Municipal League, used a letter-writing campaign a year later to rally the cause for creating a statewide association for park officials. The Illinois Association of Park Districts marks its 75th year in 2003, celebrating the power of citizen advocacy. Here's a look back at some of the milestones of the association and the efforts of its early leaders. A more comprehensive history will be published in May of this year to commemorate IAPD's diamond anniversary. But even in this excerpt for IP&R, you'll discover, as we did, that some things never change. History indeed repeats itself and IAPD's core mission remains unchanged over time. We can be thankful for the tremendous work of the early leaders as we celebrate the power of citizen advocacy today. 24 Illinois Parks and Recreation
1928 According to the 1929 president's address of Fred J. Bohn, IAPD's second president and a park official from Chicago's River Park District, the "progressive founders" of the Illinois Association of Park Districts met in the halls of the State Capitol in Springfield as early as 1927. Representatives from the Small Parks Association of Cook County, established in 1922, and park officials from other counties of the state were there seeking legislation to change several laws that affect park districts. (The law enabling creation of special districts called park districts became effective June 1, 1893.) Bohn says that nothing formal was done, however, until the services of A.D. McLarty, secretary of the Illinois Municipal League, were secured to organize the association in 1928. The historian for the Illinois Municipal League paints the picture of McLarty as entrepreneurial in his interest to start a separate association for park districts. It was difficult to do business at the State Capitol, meeting with a legislator one day wearing a hat for city municipalities and the next wearing one for park district issues.
Regardless of motive, McLarty's efforts to create a statewide organization of park district officials met with great enthusiasm from leaders of Illinois park districts. McLarty sent a questionnaire to park district officials on March 9, 1928. A summary of results from these communications was published and sent to park officials on March 30 of that year with an invitation to attend an organizational meeting May 17 and 18 in the Rose Room of the Hotel Sherman in Chicago. The State of Illinois' James R. Thompson Center now stands on the site of the Sherman Hotel, which was demolished in 1980. The resolution approved at this meeting called for formal creation of a "Parks Organization Section" of the Illinois Municipal League, with separate officers and committees. The association operated in this way, as a section, for the first two years of its existence. McLarty became the association's first secretary and he served continuously in this capacity until July 1,1943, when he resigned to enter the U.S. Navy during World War II. The association's first president, Dr. Joseph Cullen Blair, was head of the University of Illinois Department of Horticulture and president of the Urbana Park District. Blair also served as IAPD's treasurer from 1931 to 1933 and maintained a "fatherly interest" in the association throughout his lifetime.
The first annual conference of the newly organized statewide organization was held in Joliet and attended by 38 representatives from 16 park districts. According to a published report from the event, there was "open discussion on problems of park districts, which brought some interesting facts" plus "valuable time for park district officials to become better acquainted and address legislation." These components—education, networking, discussions among board members and legislative updates—remain mainstays of IAPD's annual conference.
1930 The Illinois Association of Park Districts gets its name with the 1930 constitution, adopted and amended on October 17,1930, at the annual conference held in Springfield. The purpose of IAPD was stated as follows: "to serve as a mutual agency for cooperation among park districts of the State in the practical study and in the opportunity for discussion of park district problems; park policy and administration; gather and circulate information and experience on park district affairs; to secure legislation beneficial to and to oppose legislation injurious to the park districts." 1937
IAPD holds its first regional meeting in Oak Park on February 16, 1937, attended by officials from 25 park boards. Designed to foster networking among neighboring agencies and as a way to bring non-members into the association, these roundtables were held throughout the state. In 1977 they
26 Illinois Parks and Recreation
were called "Drive-ins." In 1994, they became "Regional Roundtables," a term still used today. The Illinois Park Board Bulletin is first published as the statewide newsletter for the Illinois Association of Park Districts. Previous publications were limited to reports published in the Park Board Section of the Illinois Municipal Review and copies of convention summaries. 1941 On July 15, 1941, the association lobbied for Senate Bill 184, which authorized park districts to levy the .05% recreation tax. It was approved by Governor Dwight Herbert Green. 1946 For the first time, the Illinois Recreation Association or IRA (now called the Illinois Park and Recreation Association) held its annual convention at the same time and place as the IAPD with several joint sessions. It wasn't until 1960 that the two associations continuously held joint conferences. "Women began attending annual meetings with their commissioner husbands in 1937." - from IAPD's 50th anniversary publication 1948 In June of 1948, the association's publication was renamed as Illinois Parks and January/February 2003 27 resized to smaller format. The new size was not as well accepted as anticipated, so two years later the traditional magazine size of 8 1/2 inches by 11 inches was re-instituted. 1951 On May 17, 1951, Governor Adlai Stevenson signed the historic Park Law Codification Bill, combining all the laws relating to park districts in one section of state law. The legislation was initiated six years earlier by the members of the IAPD Codification Committee. The number of IAPD member districts organized in the 55-year-period (1896 to 1950) before codification was 94; in the 37 years after codification (1951-1988), 150 districts were organized.
1953
On June 1,1953, the association became a full-time organization
with a full-time executive director, Marjorie M. Dickinson. Dickinson is recognized as giving the most continuous and valuable service to the early days of the organization. From 1928 to 1943 she served as assistant to A.D. McLarty, then as secretary of the association until October 1, 1944. She served as executive director until 1965, and was named Executive Director Emeritus upon her retirement in 1966.
1954 On September 22,1954, the association organized its Past Presidents' Club. The group was composed of past presidents still active as park commissioners. Later, membership extended to any interested past presidents. The club, reportedly, was not as active as it was hoped to be. A Past Presidents Breakfast has been held each year at the association's conference. Past IAPD board members now are loosely organized as the "Ambassadors Club" and serve as advisors and representatives and in new member recruitment.
28 Illinois Parks and Recreation 1957 IAPD begins to sell exhibit space at its annual conference for park equipment, supply and service firms. At the 1957 conference, there were 18 exhibitors; 280 exhibitors are registered for the 2003 conference. 1959 Tort liability becomes one of the most frequently asked questions of IAPD members. Until the Illinois Supreme Court handed down on May 22,1959, Molitor vs. Kaneland Community Unit School District No. 302 (18 III. 2d 11), Illinois park districts were to be held immune from tort liability by the courts under the common law rule, and the courts indicated that the park district was wholly lacking in its authority to use park district funds to pay premiums on liability insurance.
1960 IAPD and IPRA hold their annual conferences jointly in Joliet and then in Springfield. In a 1962 publication of the IAPD, it was noted: "simultaneous meetings have provided more varied programs perhaps than otherwise, have broadened the attendance and given a larger field for exhibitors. Such meetings no doubt helped to support the idea of consolidation of recreation departments/commissions with park districts." 1961 Governor Otto Kerner appoints the association's legal-legislative consultant, Robert A. Stuart, to serve as a member of the Torts Law Commission, created by the 72" General Assembly to codify and make uniform the various statues relating to immunity of liability of the various municipalities and quasi-municipalities of the state. Sections 5-2(a) and 5-2(b) were added to the Park District Code to permit the functions of a municipal recreation commission to be merged with and assumed by a park district. At the 1961 annual conference, the association adopted a report on standards for professional park and recreation personnel. The study, headed by IAPD president Henry O. Gleiss, president of the Skokie Park District, was undertaken to give park and recreation boards guidance in the selection of personnel; to give colleges and universities guidance in developing curricula for better preparation of professional personnel; and to encourage men and women to seek a career in parks and recreation. 1966 IAPD holds the first annual IAPD Commissioners Seminar, a training opportunity for newly elected park officials.
1970 IAPD and IPRA agree by resolution to jointly produce the statewide bimonthly magazine, renamed Illinois Parks & Recreation and to jointly sponsor the annual conference. These resolutions marked the first of many formal agreements between IAPD and IPRA. 1973 Park districts receive authorization to levy a tax for joint recreational programs for the disabled and authorization to levy a tax for the organization and maintenance of a park police system. 1976 Legislation passed adding article 11.2 to the Park District Code, authorizing creation of a working cash fund and the levy of .025%. 1978 IAPD celebrates its 50th anniversary with a dinner program held at Forum 30 in Springfield. A telegram from President Jimmy Carter was read as well as a letter from Governor James R. Thompson in "appreciation for the great contribution of IAPD to the success of parks and recreation in Illinois." The first IAPD/1PRA Legislative Golf Outing is held at Wheeling Park District's Chevy Chase Golf Course, January/February 2003 29
which since has grown to host 280 golfers each year. 1979 Robert M. Artz, nationally recognized park and recreation professional and the newly hired IAPD executive director, tragically dies in a DC-10 plane crash in Chicago. Legislation passes increasing the additional corporate tax from .05% to .25% 1980 Ted Flickinger, Ph.D., CAE, becomes executive director of the association. Flickinger, a certified park and recreation professional, former professor of parks and recreation and park director, is the longest serving director of the association and the only state association leader to become a certified association executive. IAPD's legal counsel Peter M. Murphy joins the association as director of governmental services. Previously he served as staff attorney for the Legislative Reference Bureau of the Illinois General Assembly. Also a certified association executive, he begins the first annual IAPD Legal Symposium this year as well as the annual Legislative Conference and Reception. Legislation passes increasing the non-referendum bonding ability of park districts 15%. From 1980 to 1988 the IAPD passed more legislation than was passed in the previous 52 years of its existence.
1982 Legislation passes doubling the museum tax. 1982 The first Allan A. Weissburg "Commissioner of the Year" Award is presented to Robert Nichols of Bensenville Park District, Considered IAPD's highest honor, the award recognizes commissioner involvement on the local, state and national levels. Weissburg, a commissioner from the Skolde Park District, was the IAPD president in 1974.
1983 The "Life. Be in It." campaign debuts in Illinois, stressing the importance of being active every day. June 4, 1983, was declared "Life. Be In It." Day by Governor Thompson. 1986 IAPD spearheads the efforts of a number of groups to seek funding from the Build Illinois program to support grants to units of local government under the Open Space Lands Acquisition Act or OSLA (renamed OSLAD in 1989). For the fiscal year beginning July 1, 1986, $4 million was designated for the OSLA. Legislation passes to create the Illinois Park District Liquid Asset Fund Plus (IPDLAF+), which provides comprehensive financial services exclusively for Illinois park districts. As of August 2002, the fund had assets of more than $165 million and 111 participants. IAPD took a leadership role as a founding member of the Illinois Coalition on the Insurance Crisis, which resulted in passage of Senate Bill 1200 and major tort reform. As a result of a study conducted by IAPD (in cooperation with the Illinois Department of Conservation, the University of Illinois and Illinois State University), the Governor's Conference on the Economic Significance of Recreation—the first meeting of its kind in the nation—is held in Illinois. 1987 Legislation was initiated and passes doubling the Special Recreation Association (SRA) tax and removing the referendum requirement, increasing the bid limit from $4,000 to $19,000. 30 Illinois Parks and Recreation
IAPD became a member of Governor Thompson's newly formed Partners in Conservation coalition, which ultimately developed into the Conservation Congress. The Department of Conservation's publication, Outdoor Highlights, began its presence in Illinois Parks & Recreation magazine as an occasional insert. IAPD occupies its new headquarters at 211 East Monroe Street, located 100 yards from the State Capitol. Partners in Progress contributions to the building by agencies and individuals totals $20,000, and the mortgage is paid off in three years. 1988 In April the first Governor's Conference on Tourism is co-sponsored by IAPD and the Illinois Travel and Tourism Council, and Flickinger becomes president of the council to raise awareness for the tourism impact of park districts and forest preserves.
One thousand people attend the first Partners in Conservation rally held on May 18 at the State Capitol in support of OSLAD funding. IAPD produces its grass-roots legislative advocacy video. The awareness campaign "Fitness Is Leading the Way" begins with four teams (one running, one bicycling, one in wheelchairs and one walking) traveling 565 miles to bring the scissors and banner for the opening ceremonies at the Illinois State Fair on August 11. The campaign continues its state fair run through 1993. 1989
IAPD lobbies successfully to pass legislation for the Bicycle Path Grants program, Public Act 86-925, which creates a dedicated source of funding for acquisition and development of bike paths. OSLAD and the Natural Areas Acquisition funds get a dedicated funding—a portion of the real estate transfer tax—through Public Act 86-925. To date $174.6 million has been allocated to 981 local outdoor recreation projects: 177 land acquisition projects and 804 development (construction) projects. The statewide marketing campaign Take Time for Fun! debuts. 1991 IAPD publishes "The Economic Benefits of Illinois Park District Leisure Services," prepared by professors from Western Illinois University. The Illinois Parks Association Risk Services (IPARKS) program is created January/February 2003 31
as a governmental group self-insurance pool to provide park districts with an alternative to traditional property and casualty insurance coverage. In 2002, this program was used by 154 IAPD members. 1992 Chicago Bear football great Mike Singletary becomes the Take Time for Fun! celebrity spokesperson. The campaign, developed by the IAPD/IPRA Joint Public Awareness committee, runs for several years. IAPD creates the Director Search Program to provide cost-effective, professional and confidential assistance to park boards in their search for qualified directors. In 11 years, 47 agencies have used the service. Governor Jim Edgar sponsors the Governor's Conference on New Horizons for Conservation, Park and Recreation. The first manual for park board leadership, Are You on Board: A leadership Guide for Agency Executives and Board Members, authored by Flickinger, is published by Sagamore Publishing District. House Bill 1924 protects Illinois park districts from frivolous dissolution attempts. Public Act 88-91 authorizes park districts to establish fees for resident and nonresident participation. 1994 Governor Edgar designates the second Saturday of the Illinois State Fair "Park District Conservation Day," to promote the positive impact of the state's park districts, forest preserve, recreation and natural resource agencies. Co-sponsored with the Illinois Department of Conservation (renamed the Department of Natural Resources in 1995) and IPRA, the event showcases park district entertainment and recreation, and environmental and wildlife displays. Parks Day at the Capitol debuts in conjunction with the Legislative Conference, and it has grown to an event that lines the halls of the State Capitol Rotunda with park and forest preserve displays. IAPD publishes its first Handbook on Illinois Park District Law and the Park Commissioners Handbook.
1995 On June 29, Governor Jim Edgar signs Public Act 89-49 creating the Conservation 2000 fund to be used to establish a comprehensive program to protect Illinois natural resources through cooperative partnerships among state government, public and private land owners. IAPD develops its first Public Relations Committee to emphasize public relations in parks and recreation and begins a series of media relations workshops. On March 23, IAPD presents with the Illinois Department on Aging (IDOA) the first Leisure and Aging Summit, which earns Silver Eagle Corps Recognition from The President's Council on Physical Fitness and Sports for promoting recreation and wellness for older Americans. Senate Bill 368 passes, restoring bonding authority to districts under the tax cap legislation of 1991. 32 ¦ Illinois Parks and Recreation
1996 IAPD champions the cause of at-risk youth in partnership with Attorney General Jim Ryan to foster partnerships among police, schools, park districts and nonprofit organizations. IAPD forms the Research Advisory Council to fund trend-focused and benefits-based research for parks and recreation, which received contributions from 88 member agencies. IAPD's first Web site goes live online. 1997 James Heberer of the Kewanee Park District receives IAPD's first Rising Star Award for new commissioners of note. IAPD stops legislative non-compete initiative of the YMCAs and begins partnership-building with heads of Illinois YMCAs. Senate Bill 476 amends the Child Labor Law to permit 14- and 15-year olds to work later in the parks. 1998 IAPD partners with the Illinois Arts Council to offer special funds for park district art programs, and the association promotes a popular statewide art contest involving 3,000 Illinois school children. The nonprofit fund-raising arm of IAPD, Friends of Illinois Parks, is established to involve citizens in IAPD's mission to preserve land and expand recreational opportunities for youth after-school programs. IAPD advocates for the Museum Grant Program, which becomes Public Act 90-604. 1999 IAPD lobbies for the Open Land Trust to fund local open space preservation projects. During Governor George Ryan's administration this program provided just under $64 million for 63 local projects to preserve more than 8,700 acres of land for preservation and resource-based outdoor recreation use. The millennium campaign "2000 Trees by the Year 2000" results in 6,600 new trees planted by park districts. IAPD leaders appointed to key task forces including Governor Ryan's Transition Team, First Lady Ryan's Futures For Kids Advisory Panel and the Department of Public Health's Cardiovascular Disease Prevention Program. IAPD aggressively takes part in a nationwide campaign for the Conservation Area Reinvestment Act or CARA, an effort that ultimately restores funding to the Land and Water Conservation Fund. Flickinger becomes president of the National Recreation and Park Association. 2000 IAPD reinvigorates the Eagle Eye Neighborhood Park Watch program, with honorary chair Attorney General Jim Ryan. IAPD is a founding member of the statewide advocacy group called the Kids Share Coalition. January/February 2003 33 2001 The first scholarships awarded for the Donald F. Bresnan Commissioner Scholarship Fund, named for Bresnan, a longtime commissioner for the Champaign Park District. The first Mike Cassidy Commissioner Community Service Award, named for Mike Cassidy of Freeport Park District, is awarded to Harris Agnew of the Rockford Park District. Executive director Flickinger is named to the Attorney General's Select Committee on Recreation for People with Disabilities. Strategic alliances are formed with Voices for Illinois Children, the National Tree Trust and the Champion Tree Project, and the Illinois Senior Center Coalition. 2002 In July, Governor Ryan signs Public Act 92-697, creating the park district youth license plate, which will generate funds to assist IAPD members in youth programming. With funding from the Research Advisory Council, IAPD produces two key reports: the "Statewide Attitude and Awareness Survey" by Richard Day Research and "Illinois Land at Risk," published jointly with partner The Trust for Public Land. Using a grant from the Vitamin Anti-Trust Settlement, IAPD funds development of the RecreationAccess Illinois Web site, www.recreationaccessillinois.org. IAPD receives a second grant from the setdement for "Power Play!", a new grant program for park district fitness and nutrition-based programming. Beyond the Boardroom newsletter debuts, replacing the Leisure Review and focusing on board member education.
34 Illinois Parks and Recreation Ted Flickinger, Ph.D., CAE is the executive director of the Illinois Association of Park Districts Ann M. Londrigan is the publications director for the Illinois Association of Park Districts. Photographs on pages 24 and 25 courtesy of: Brook Coffins, Chicago Park District Birgit Olson, Carol stream Park District Pam Sonhamel, Woodridge Park District Beth Preis, Northbrook Park District Photo on page 33 courtesy of: Brook McDonald, Chicago Park District
2003 Events for IAPD's Diamond Anniversary
January 24
January
April 29 and 30
May
June 20
IAPD Summer Golf Tour Events:
October
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