The Partnership Paradigm- IP July 2005

"There are many ways of going forward, but only one way of standing still." — Franklin Delano Roosevelt

Gone are the days when the local park district or recreation agency could count on property taxes to support all the facilities and programs the public requested.

Today, agency administrators often have to assume the role of diviners, locating new revenue streams and tapping wells that allow park and recreation agencies to gain the resources necessary to carry their missions forward.

One way to build new economic wellsprings is to get together with organizations and individuals with similar goals. This "partnership paradigm" can produce mutually beneficial outcomes. But each partnership must be carefully analyzed, cultivated and maintained.

Theoretical treatments of public partnerships certainly abound. But the Frankfort Park District has for years been actively pursuing partnerships as a necessary means of tapping into resources. The Frankfort Park story may not be the perfect model of partnering, but it is a success story: a model that can be replicated — and perhaps perfected - by your agency.

by Rachel Gilmore

www.ilparks.org July/August 2005 24-25

Show Me the Money—NOT!

In the last two general elections Illinois voters rejected eight of the 11 tax-related referenda questions relating to park, recreation and conservation agencies. The Frankfort Park District shared in that same agony of defeat as recently as 2003. Between 1999 and 2003, Frankfort voters refused to grant a ten-cent increase in the tax rate four separate times. This increase would have been the first since the park district was created in 1967.

"I'm amazed at how resistant folks are to paying taxes...an increase in taxes, one almost can't even go there," says Dr. Dan Yoder, a Western Illinois University professor of recreation, park and tourism administration. "Citizens still want those services (without an increase)."

Where Do We Go from Here?

By the end of summer 2003, in the wake of a fourth referendum defeat in the spring, the Frankfort Park District found itself facing an uphill battle of obtaining adequate funding for capital expenditures. It also had to tend to a public image that was naturally battered by those four unsuccessful ballot propositions. Unwilling to give up a 37-year history of providing quality recreation programs and facilities, the park board instead looked inward and made a few key decisions that would help move the district forward.

First, the board contracted with a consulting firm to help secure grant funding. Within months, the park received word that they had been awarded a $3,200 PowerPlay grant, and, in early 2004, the park was notified that it would be awarded a $371,000 OSLAD grant to finish the development of Commissioners Park, the district's flagship recreation area both in acreage and potential amenities. Another OSLAD grant in the amount of $221,000 was awarded this past winter to help put amenities in place at Jackson Creek Park, a recreational area started by an area housing developer and park partner.

In addition to receiving grants, in December 2003 the board retired a number of bonds issued in the 1990s. "We then sold bonds in February 2004," says Frankfort Park District Executive Director Jeff Boubelik. "By getting grants, now we're able to do twice as much development through matching grants."

However, with grant funding very dependent on economic conditions and Illinois experiencing its own budget woes, the park commissioners knew that they needed to find even more new streams of revenue to proceed with planned capital expenditures. The district rededicated itself to forming partnerships as a way to increase its capital and its capacity to serve the public.

PR, PR & More PR

"With a partner, a park district can be as effective and efficient as possible," says Yoder. "It sends a powerful message to residents when we partner." As a result, following the partnership paradigm has proven to be a critical factor in the Frankfort park board's quest for additional revenue. This cooperative model has allowed the park to use all available resources and maximize the number of people served while operating on a fairly fixed income. "We have to make the public aware of partnerships," advises Yoder. "It's easy for park districts to get lost and not get the credit due them in serving the public and doing great things. It's the business of accountability. All the time taxpayers are looking at those public agencies. A poorly informed public may think, 'I don't see them doing anything.'"

Accordingly, the park board first took stock of all existing relationships and publicized a list of partnerships in Park Perks, the district-wide newsletter that is mailed to all households three times a year. Future articles then highlighted service organizations: the Lincolnway Special Recreation Association, the Frankfort elementary and high school districts, the Frankfort Preservation Foundation, Operation Playground, the Lincolnway Area Parks Cooperative and other partners.

The park district also took advantage of a monthly program on Frankfort cable television called "Our Town." A representative from the park district attended each taping to highlight park happenings and praise the partners involved. When another local cable television show called "Frankfort News" started in the fall of 2004, the park district jumped at the chance to participate with a regular video version of the Park Perks newsletter that once again highlighted various partners and partnership projects.

The goal is to make the public more aware of the ways the park district networks with other local organizations to better serve Frankfort residents. The publicity not only re-enforces the existing partnerships, it also shows potential partners that the district understands how to promote itself and its affiliates.

Tapping the Community Organization Partnership Well

Getting capital development projects completed, though, is another challenge altogether. "Obviously, different agencies have different kinds of resources," Yoder explains. "And that's probably one of the biggest kinds of benefits. Park districts may not have as much liquidity as the private sector has or has the opportunity to have." So, in Frankfort, following the partnership paradigm meant that the park district needed to work with partners who had the cold, hard cash to get park projects done.

The first such project was the new concession and washroom facility at the district's Main Park. In February 2004, the newly formed Frankfort Falcons Football organization contacted the park about building a concession and washroom building in exchange for the park creating a football field at Main Park. With opening day set for early August, the park district and the Falcons worked tirelessly to meet their partner goals. A ribbon cutting ceremony was held on August 7 for the brick two-story concession and washroom facility that is open for all park patrons from April through October. As the $200,000 building was not in the park district budget for several years, this community organization partnership made full use of private donor dollars to achieve public park district goals. In addition, while the development of the permanent football field meant that the park district soccer program had to move to a new location on Grand Prairie Elementary School land, the long-term lease that was negotiated with the school district will allow for plans to turn the area into a full-fledged soccer complex in the coming years.

26 Illinois Parks and Recreation www.ILipra.org

The $200,000 brick two-story concession and washroom facility at the district's Main Park was not in the park district budget for several years. But a community organization partnership mode full use of private donor dollars to achieve public park district goals in record time.

Interestingly, this football project started a ripple effect in the park partnership well. Soon after the concession and washroom facility was completed at Main Park, Frankfort Boys Baseball and Frankfort Girls Softball approached the park district about constructing a similar building at Commissioners Park, where the two organizations use several lighted fields. Negotiations are currently underway among the park, the sports organizations and a private investor, but the Frankfort Park District is hopeful that by summer 2006, Commissioners Park will have permanent, modern washroom facilities, thanks to the latest privately funded community organization partnership.

Still another community group has approached the park and offered its resources in a unique fundraising proposal that is being considered by the park board. After renting space in the park's Founders Center building year after year for auditions, rehearsals and even shows, the Curtain Call Community Theater approached the board with a moneymaking idea. If the park would provide the space, the theater group would provide all manpower and resources to run a cabaret/casino weekend. Their multi-talented membership would provide entertainment for the event, while an outside vendor would provide the gambling equipment and all food and drinks. The park would then split any profits with the group in exchange for facility rental and minimal help with publicity and set up and clean up. While the theater group was hopeful this event would take place in spring 2005, they were unable to secure a liquor license for the dates needed. They remain hopeful that they will be able to secure the necessary license for spring 2006 and be ready to move forward in this venture.

Tapping the Local Government Well

Thanks to a change in Village leadership this past spring, the park district and the Village of Frankfort have opened discussions on a jointly funded renovation concept for Main Park, the district's oldest facility. The plans include a complete overhaul of the existing picnic shelter, as well as adding a second shelter in the southern end of the park. All new playground equipment would be added, along with new tennis courts, a new washroom facility and a seniors area with permanent chess and checkers game tables, bocce ball and a garden seating area. Officials held a community meeting to gather input in late May, and the talks between the village and the park continue with more optimism than in previous years.

www.ilparks.org July/August 2005 27

Frankfort Park District formally recognized Will County developer Keith Blais of V3 Realty with the park district's Distinguished Developer Award. John Sloger and Lyman Tieman of Slager-Tieman Development were also recognized for their contributions.

Tapping the local Business Partnership Well

Wanting to further accelerate new park development without excessive spending, the park commissioners have taken a "positive reinforcement" approach to partnering with housing developers. Frankfort is located in Will County, the fastest growing county in Illinois. Homebuilding is going on at a rapid pace, and open land is disappearing just as quickly. To recognize developers who have demonstrated their commitment to the community by dedicating land in new subdivisions for the preservation of open space and recreation, the commissioners created the Distinguished Developer Award. Plaques have been presented to four builders and developers since 2003. The first two awards were presented last fall to Mike Flaherty of Flaherty Construction for Kohlhagen Park and Misty Falls Park and to Jim Paul of Alps Development for Jackson Creek Park. This spring, Keith Blais of V3 Realty and John Slager and Lyman Tieman of Slager-Tieman Development were presented with Distinguished Developer Awards for the creation of Windy Hill Park and Timbers Edge Park, respectively.

"There are good developers out there who are easy to work with and who build parks even before anyone moves in. Now we've seen three or four good developers in Frankfort create beautiful parks. It helps us immensely," explains Boubelik. "We decided to be proactive and publicize the good developers. We're hoping it will generate a sense of 'Let's do it right!'"

Not only are these developers setting aside quality land for parks, they are grading and seeding and installing walking paths, park equipment and shelters. All that is left to do is to deed the land over to the park district, which the park readily accepts. Private funds again benefit the entire community in a positive way by tapping this local business partnership well.

Prairie Core is one of the value-added benefits of the school district-park district partnership. The district provides the staff and programming for before- and after-school care for students in kindergarten through fifth grade at Grand Prairie Elementary School. Students can use the gym and outdoor playground equipment, do crafts, have a nutritional snack, play games and get help with homework in a supervised setting, in addition to facility use, the school district provides bus transportation for fourth and fifth graders coming from another building.

Tapping the Local School Partnership Well

"I certainly see the benefits from the school side," says Frankfort 157-C Superintendent Dr. Bob Madonia. "There's assistance with facility upkeep, and by having the park in here with their programs they facilitate getting the public in here to use this space their tax dollars pay for." However, the first thing Madonia recommends is that potential partners sit down and discuss what their respective missions are and determine what they have in common.

Clearly, though, a park and recreation agency and a school district have similar missions, which revolve around serving community residents. This shared focus makes for good partners, says Yoder. "We are never going to find an organization that has the same mission as us, but we need to be really careful not to drift away from our mission to serve all of our constituents," he explains.

Madonia also emphasizes the importance of communication, including regular meetings between park and school administrators, a master schedule for all events and use of email as reminders. Regular communication helps build and keep the trust needed for both partners to feel comfortable using the other's space and property.

Being a park partner also meant that when Madonia formed a coalition of local taxing bodies to challenge assessment reduction for commercial property in Frankfort, the park district was invited to join. "We are trying to be proactive," says Madonia. "We will share the costs of legal fees and independent reviews. It will help us all cut costs in the long run." Currently in Frankfort, there are 14 appeals at the review level of the Property Tax Appeal Board. This would mean thousands of dollars in lost revenue that must be rebated from local taxing bodies into commercial coffers. Madonia's coalition hopes to stem the tide as much as possible.

28 Illinois Parks and Recreation www.ILipro.org

Frankfort developer Keith Blais of V3 Realty incorporated Windy Hill Park into the plans for his subdivision.

Tapping the Individual Resident Partnership Well

Opening another potential revenue stream, a Frankfort couple stepped up to the plate and made a generous $3,500 donation in memory of their daughter Peggy Lee to fund the continuation of the park's Hang Time, a PowerPlay grant program, which was slated to end in December 2004. Mr. and Mrs. Walter Mark, longtime Frankfort residents, saw a story in a community newspaper in November about the end of grant funding for Hang Time. Wanting to keep a good thing going, the Marks presented their check to Boubelik in early January, surrounded by a group of Hang Time regulars. "We just thought we'd light a fire under other people," shares Walter Mark. "We just thought maybe it would inspire people to do the same next year or the year after." Press releases and press coverage about the donation ran in several local papers in December, and it was also mentioned on Chicago's NBC affiliate 10:00 p.m. news broadcast on December 30. The park followed up the check presentation ceremony on January 6, 2005, with a press release and photos sent to area papers.

Just three months later in March 2005, the park district reached a land agreement with another local family who had sold most of their family farm to a housing developer. In addition to the land, the Janssen family made a $400,000 cash donation to the park district for the development of the Roy E. and Dorothy Janssen Park, in honor of their parents. The park district was delighted by the family's generosity and has hired a park architect to ensure that this money is used for amenities that will benefit the broadest range of users. Once again, the public will benefit because of private dollars.

Tips for Tapping the Partnership Wells

"We need to send a message to our constituents that we're interested in partnerships, but these partnerships take time and resources. And there are pitfalls," Yoder advises. He cautions, too, that agencies entering into partnerships should be aware of issues that can arise from sharing authority, from not getting credit for their contributions and from an unequal distribution of costs and benefits. Agencies also need to watch out for mission drift, especially when partnering with commercial entities, simply because a commercial partner is accountable to its own bottom line, not the taxpaying public. In addition, Yoder recommends that partnerships be formalized as much as possible with written agreements, especially in regard to liability issues.

Overall, though, park district partnerships provide new streams of revenue when the traditional taxpayer well runs dry.

Making the Partnership Paradigm work for you...
1. Take stock of all existing partnerships.
2.Meet as needed to formalize these existing partnerships or re-establish them.
3. Publicize these existing partnerships and all partnership projects and programs in newsletters, local press, local radio and local cable.
4. Explore possible new partners: local businesses, local community organizations, local school districts and local residents.
5. Repeat steps 2 and 3 as needed to formalize and publicize these new partnerships.
6. Maintain regular, open and honest communication with all partners for as long as the relationship exists.

When Frankfort residents Mr. and Mrs. Walter Mark heard that the funding was running out for the district's after-school program, they donated $3,500 to keep Hang Time going.

Rachel Gilmore is the Frankfort Park District public relations coordinator. She has freelanced for national magazines and local newspapers since 1998 with a focus on not-for-profit, community-based organizations and programs.