SPECIAL FOCUS Citizens and Referendums Waukegan's "Save Our Parks" citizen committee was one of three components in the park district's successful '97 benefits-based referendum campaign Referendum. Now that word can be scary. It represents an opportunity, but at the same time it can be a threat. Nevertheless, the outcome of a referendum initiative is a measurement of how the public feels about a certain proposal. On November 4, 1997, the word "referendum" became an opportunity for the Waukegan Park District. It was then that the public overwhelmingly passed the park district's initiative that consisted of a $0.25 corporate rate increase. The proposition was necessary because of the legislative revisions to the original 1991 tax cap. In 1995, Senate Bill 368 created an inequitable situation for the Waukegan Park District, as well as other districts. Park districts that were fiscally conservative and did not have any outstanding long-term debt were penalized. Under the new tax cap formula, it was possible to operate within the 5 percent cap; however, Senate Bill 368 effectively eliminated the debt service portion of the Waukegan Park District budget because the district did not have any outstanding debt. According to the formula, whatever debt the district had in its 1991 extension, that served as the basis for future years. Although the future of the district was threatened by the tax cap and loss of funding, an opportunity did exist to initiate a proposal. The outcome would determine if our park district would die a slow death or thrive into the next millennium. The journey that lead to a successful passage of the referendum was stressful, rewarding, and one filled with many lessons. Several of these lessons are shared in this article for the benefit of others. They are categorized in the following three components: • Demonstrate the need • Build coalitions to support the issue • Develop and implement a political campaign strategy Demonstrate the Need Ask, "Why is the project or rate increase necessary?" Once you truly demonstrate through analysis and evaluation of your services, then propose the referendum question. We believe that to initiate the question on the ballot and then explain the "why" would be a formula for failure. Successful referendums have a rational and demonstrable outcome that is sellable right from the beginning. Using referendums as trial balloons and hopefully getting lucky are possible, but long shots. Waukegan's board of commissioners were reluctant to propose the idea of a referendum to the public. Conversely, they felt more comfortable that the public initiate the idea of a tax rate increase. To facilitate this direction, the staff of the Waukegan Park District created the "Community Parks and Recreation Development Strategy." Essentially, this approach examined our past, present and future. The Past The Waukegan Park District has a 80-year legacy of park and recreation services to the community. Over that period, our programs and services have been enjoyed by countless people and several generations. Unfortunately, over time we have not been able to obtain the funding necessary to maintain services, protect the interest we have in parks or keep up with the demands. Urban recreation had its roots in Waukegan with Jane Addams of the Hull House operating a summer camp in Bowen Park—our most notable park—for children from Chicago. Children were brought from blighted urban areas of Chicago into a structured recreational environment that would teach them lifelong leisure pursuits. The Present Demands for programs, services and facilities continue to grow as concerns for individual and family health and well-being increases. Youth at risk, child care, crime, racial problems, environmental problems, and economic renewal and self-sufficiency are the very basis for which parks and recreation services exist. These were the same reasons Jane Addams brought children from Chicago to Bowen Park. 34 | Illinois Parks and Recreaction The Property Tax Extension Limitation Act (or tax cap) curtailed the district's ability to obtain funding necessary to maintain traditional levels of services, care for parkland or keep up with the population growth. The operating portion of the agency's budget was constrained by the 5 percent cap, while the debt extension portion was eliminated by Senate Bill 368. The district would be able to continue its operation under the 5 percent cap on the aggregate extension. However, maintaining programs and services at current levels would be impossible. Capital improvements were curtailed and infrastructure was slowly deteriorating. The Future Even though many consider parks and recreation beneficial to our community, it is not considered an "essential" element of society. Looking back at Waukegan Park District's past, we realized where our future was. Just as Jane Addams helped improve the living conditions of many through play apparatus, sports and cultural activities, our carefully planned programs serve as a positive outlet for those facing the urban pressures found in Waukegan. Thus, in December of 1996, the board of commissioners adopted an operational philosophy of providing "benefits/outcome" based services. The reason was simple and is explained as follows by Carol Peterson in her article "Benefits Based Recreation: Awareness into Action," published by the Alberta (Canada) Recreation and Parks Association in 1996: "Anyone faced with making decisions about the allocation of time, money or other resources, will want to know about options, their value and benefit. Volunteers making decisions about their time, political leaden allocating tax dollars, citizens making choices for their leisure time, and recreation staff programs and services, all need to know what the benefits will be in choosing one option over another." At a series of public meetings, the Waukegan Park District reviewed its strategy toward the future. Public sentiment was strong to not only preserve what the district had, but to continue to serve the future generations with excellent programs and services. There was a cry for increasing the tax rate to at least a level what the district had before. Alas, but we were preaching to our own choir! Was this a false sense of security or was the support there? We had to find out. Several public meetings were held to explore future funding options and to gather public sentiment. With the loss of the debt extension, there was an inability to meet its capital replacement schedule and service demands. Several options for funding were identified and reviewed at our meetings. The following is a brief summary of those alternatives which could be implemented to provide the necessary revenue to restore our debt service and enhance our programs and services. Option 1: "Pay As You Go" • Due to rate limits and the tax cap, only a relatively small amount could be generated for capital. • Significant fee increases and/or reduction of services would be required to increase capital for operating funds. • The amount currently in reserve for capital represents a small fraction of total needs. • Once the reserve is used it is not easily replaceable. Option 2: Referendum to Establish Debt Service Base • Provides a fixed amount of debt service (principal and interest) available in future tax extensions. • Limited to principal and interest for limited tax bonds, would not provide funds for increased operating costs. • Would not increase based upon increase in equalized assessed valuation (EAV). • Bond issue subject to market conditions; as interested rate would increase, principal would decrease. • Once approved, base is always available. • Flexible as to structure and timing of bond issues. Option 3: Referendum for Specific Bond Issues • Authority limited to issuing one bond a year. • Referendum required for each bond issue, for specified one time purpose. • Limited to debt service, would not provide funds for increased operating costs. Option 4: Referendum for Corporate Tax Rate Increase • Corporate tax levy could be used for any lawful purpose. From Waukegan's Winter '97 Program Guide From the Executive Director Many of us think of the Park District as a collection of nicely landscaped areas. In a purely physical sense, this is true. But there is more than just beautiful scenery. People make up the essence of our parks and programs- The Park District is not just "parks." It's a place where children and families live their lives, explore and develop their futures. Our parks are oases within the city, where people have positive outlets for their leisure time. On the cover is a collate of people, parks and activities that bring together the past, present and future of the Waukegan Park District. Mike Stolarik became an accomplished golfer as a youth while learning his skills at Bonnie Brook Golf Course. Still an avid golfer, he volunteers at Bonnie Brook, helping others pursue the game. Past, present and future! Mayor Durkin and Mike Trigg, superintendent of parks, are working on the redevelopment of the beach. Plans for the future! Volunteer Anita Hanna has developed summer and weekend youth programs. Developing our future! Corrine Rose. lifelong resident, park district employee, director and commissioner, grew up in the parks. Now she volunteers her time with youth and seniors. One life has made an important difference in our future! Bob Morrison, patron and volunteer, has been an outspoken advocate of parks and programs. He believes that parks and recreation benefit our community tremendously! On Nov. 4,1997, a decision will be made whether or not to continue the excellent legacy of our parks system. Funds are needed to maintain our parks, facilities and programs tor today and the future. I encourage everyone to "Save Our Parks" on Nov. 4 by voting "yes." Punch #122. If this referendum fails, there will be a significant decline in the maintenance of our parks and elimination of programs and services provided to you. Please save our parks now and for the future by voting "yes" this Nov. 4. Thank you. If you have any questions, please feel free to contact me at 360-4721.

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Following the encouragement and recommendation of the public attending the meetings the board of commissioners resolved to present the public referendum question. After much discussion, consensus was reached to present a referendum to increase the corporate by $0.25. It was estimated that a taxpayer would be paying an additional $75 for every $ 100,000 of assessed valuation. The tax rate was projected to increase from $0.30 to $0.55.

Increasing the corporate rate would gather the most money and provide the greatest financial flexibility in the future. Thus the energy for this initiative came from the public, not from the governmental agency staff and/ or commissioners. Therefore, the presentations and public meetings were a tremendous way to gather public sentiment about the future of the park district and set the stage for support of the referendum.

Coalitions Are Needed to Support the Issue
After the board adopted a resolution to submit a proposal to levy an additional tax for corporate purposes, a call for volunteers was requested to work on a committee to organize the selling of the referendum.

We determined that someone from the community who was a prominent person, with no political baggage, was needed to head the effort. There was only one person who could fit that mold. Mr. Robert Morrison is a well-liked and respected businessman in the community who was not politically active. When asked to serve as chairperson of the committee, he gracefully accepted under one condition: that his longtime boyhood friend, John Delia Valle, serve with him as co-chair. Delia Valle is a retired police chief, politically active and well-known in the community. Morrison contended that the committee chairs should reflect the diversity and style of the community. Morrison style would reflect the white collar "north side" residents, and Delia Valle would relate to the blue collar voters.

The first meeting called brought together a select gathering of people who developed a committee an political strategy. "The Committee To Save Our Parks" was created with a group representing Mary Ellen Vanderventer, the mayor's daughter and Lake County Recorder of Deeds; Chris Hensley, a legislative aide to Representative Corinne Wood; park district commissioners; Greg Petry, executive director; Dan Drew, superintendent of finance and administration; Pat Dutcher, local accountant who served as the treasurer of the committee; Larry McShane, chair of the Waukegan Democratic Party; Bob Sabonjian and Anita Hanna rounded out the group as citizen members. The committees first meeting was held in July, then in August we began to meet every Thursday for lunch to strategize.

An outline of activities was created and put into a time line. A budget was also created, with $ 12,000 raised to support the committee s activities. The fund-raising effort targeted the "yes" voters and selected business entities. Funds raised supported the telephone survey, printing and postage.

Campaign Strategy
After much debate and discussion, the committee decided that the most effective strategy would be a low-profile campaign that focused on getting out the "yes" vote. The effort was to be as grassroots as possible and involve those who would be most likely to "benefit from or support" park district activities.

In determining our strategy, we first looked at voting trends in the past November local school district elections. Votes cast in 1883 totaled 5,001, while in 1995 the number had dropped to 2,850. We speculated that 4,000 votes would be cast in the 1997 election. Therefore, we needed to identify 2,001 "yes" votes. Our entire strategy then evolved and was based on the premise: we need 2001 "yes" votes! The following tactics were used to support the campaign strategy.

Database of "Yes" Voters
A database was created that identified and logged potential "yes" voters. The initial list contained park district patrons, volunteers, affiliate groups and users of the park district programs and services.

Telephone Survey
A telephone survey was conducted by Cherry Communications ofTallahassee, FL, to identify both positive and negative attitudes regarding the district and the upcoming referendum. The telephone survey utilized a database of families who voted in the last three local elections. The results of the survey provided a list of: people who highly regarded the park district; people for the referendum; people against the referendum; people undecided, but wanted more information; and, people who refused to answer.

We continued to cultivate, but not antagonize

36 | Illinois Parks and Recreation

Public Presentations
The public presentations were carefully thought out and orchestrated. The executive director of the district and a co-chair did all of the public speaking. The committee felt that presentations should be made to groups associated with the district such as the sports affiliates and grassroots community groups. Public agencies were not approached to support the referendum because there could be some negative concerns publicly voiced that would have fed the media frenzy. At the gathering, the executive director focused on facts and figures about the need for a referendum. Then the chair gave an emotional "from the heart" as a longtime resident and park user asking for support. Everyone in attendance received materials offering background and benefits of the referendum.

Flyers
The first flyer highlighted the benefits of parks and recreation. It also described the new direction the district was taking utilizing a benefits/outcome based philosophy, recapped the Parks and Recreation Community development Strategy, and reiterated the necessity for the referendum. The overall theme was that the referendum was important to our future and that of our children and families. The flyer was purely factual.

The second flyer, which outlined the necessity of the referendum, sought financial and volunteer support and was produced by the Committee to Save Our Parks. The flyer was personalized by the committee chairs and mailed out to identified "yes" voters.

Handbills
Handbills were created and distributed to identified "yes" voters and special interest groups. These handbills, produced by the Committee to Save Our Parks, highlighted the need to support the referendum. They also described how a family would benefit and what the consequences would be if the referendum failed. A slogan "Our Parks...Lets Save 'Em Waukegan!" was highlighted on each piece. These were distributed four weeks prior to the election.

Friends Cards
Standard-size postcards were distributed throughout the community, communicating personal messages to "please get out and vote yes." These cards were given to persons who were supporting of the referendum to address to friends, and if they wish make a personal note seeking their support. About 3,500 cards were mailed out the Friday prior to the election.

Personal Letter from the Alderman
Several members of the Waukegan City Council participated in a personal mailing. They signed a letter prepared by the Committee highlighting their support of the referendum. This mailing also included the benefits flyer highlighting the necessity of the referendum. These were mailed one week before the election. It should be noted that mailings were sent first class because of the specific timing of pieces. Also, once the ballots were created and the county released the referendum "punch number," that number was utilized extensively throughout the rest of the campaign. The slogan, "Punch #122 on Tuesday, November 4th," was used repeatedly on all promotional materials.

Phone Calls
Five days prior to the election, phone calls were made to identified undecided voters. They were asked how they were going to vote. If they were a "yes" vote, their name was placed in the database. If they were a "no" vote, we simply said thank you and avoided a protracted conversation. If they were unsure, we had someone with knowledge of the area they were questioning answer their questions. As a follow up, an information piece was personally mailed the next day to them. Two days before the election, volunteers began calling all of the "yes" voters to remind them to get out and vote.

Poll Watching
Volunteers were assigned to poll watching the day of the election. Their assignment was to observe who was coming out to vote and track the "yes" voter traffic. Throughout the day, they reported back and a phone bank was established to call people up to remind them to get out and vote if they hadn't yet.

The Victory
After countless efforts, the referendum passed 2,507 to 1,799—a 58 percent margin for victory! Coincidentally, five years ago in a community-wide survey a question was posed, "If a referendum was on the ballot for funding of specific capital improvements to parks and facilities, how would you vote?" The results back then were 58 percent "yes." ž

' "Benefits Based Recreation: Awareness Into Action" ©1996 written by Carol Peterson, published by Alberta (Canada) Recreation and Parks Association.

GREG PETRY
is the executive director of the Waukegan Park District.

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