Introduction

I was retained to perform the study of a possible park district consolidation in Berwyn through a professional services agreement dated February 2-23, 1999 (Attachment #1).
Following that agreement, and while approval was pending, I was given another document subtitled "Consolidation Issues for Feasibility Study" (Attachment #2).

The report that follows covers the scope of the original agreement. I have also attempted to the best of my ability to respond to the "issues" in Attachment #2, although in some cases a complete response is not totally practical. An example: "a complete financial analysis of the three entities..." is beyond the scope of the agreement. However, a section has been included that evaluates each park district based on standards of public financial management.

The consolidation issue is one on which strong feelings have been expressed by nearly everyone interviewed. There will be those who will therefore be opposed to the findings in this report, or believe that it should have been done differently. I have done the job as I felt it should be done, responding to requests for detail and expressing opinions based on my thirty-five years of public administration and management experience. Some of the sections of the report are not central to the issue of consolidation, but are included because they were requested. The opinions expressed are mine alone, and they are included if I believed them to be necessary.

If there is a bias or point of view in this study, it derives from the values of the field of public administration and management. Park district management is also a part of this field of values, even though park districts are not a part of general purpose government.

Berwyn is a landlocked city, and is entirely developed, meaning the only new land that is available for parks and recreation expansions is that which has been in some way the subject of a change in use. In some cases, properties are available for sale, and a change in use is possible. The point here is that the potentials for planning of new facilities of all kinds are limited to what land might happen to become available. This factor alters the application of standard planning and management criteria to the Berwyn park system.

I wish to thank particularly the executive directors of the two park districts, Pat Ryan and Jeff Janda, and City Recreation Director Paul Hruby, for their assistance and the information that they provided to this study. Members of their staffs have also been available and helpful at key times.

Chapter One: Data Accumulation and Analysis

Section 1: Meetings with governing bodies and with district employees

Meetings with the governing bodies were held as follows:

March 11, 1999, with the North Berwyn Park District Board
March 17, 1999, with the Recreation Committee of the Berwyn City Council
March 22, 1999, with the Berwyn Park District Board

May 5, 1999, with Mayor Thomas G. Shaughnessy, City of Berwyn

In addition, several telephone conversations were held with City Recreation Committee Chairman Michael O'Connor. In each case, the Consultant inquired into the policies of the individuals and governing bodies regarding the consolidation issue, and received frank statements of views.

Each of the two park districts are self sufficient; there are no financial, political or economic conditions forcing a possible consolidation. The only impetus is the possible individual and mutual advantage to consolidation, and that mutual advantage has been stated by park district representatives as a precondition to consolidation. A mutual advantage must take the form of an improvement in services at the same or a reduced cost, or the same level of service at reduced cost.

This Consultant is expected to utilize the highest possible level of objectivity; the subsequent policies made by each district will depend upon that objectivity. Therefore, the Consultant professes that his agenda is completely detached from any Berwyn-related bias, and his method is to let the data argue the position and the recommendations. The study is to therefore proceed with that kind of objectivity.

Section 2: A review of the facilities

To comprehend the scope of the assets that would be involved in a possible reorganization, and to assist in evaluating the feasibility of such a consolidation, these physical assets were visited, their condition noted, and the extent to which they provide a service was reviewed.
Visits were made to the facilities (parks, buildings, pools, and other land) of each of the parties. The following charts these facilities, with comments regarding their relative condition. Where a capital improvement or replacement is called for, it is noted.

Facility Name Jurisd. Comments re condition and costs of upgrade

Pools:
Pavek City Serves as a community park facility; 50-yard
length; bathhouse; concession stand; all in
acceptable condition; ADA-accessible#

Maple City Served by bathhouse in good condition; not
ADA-accessible#; costs of reconstruction for
ADA an estimated $5,000

Cuyler City Served by bathhouse in good condition; not
ADA-accessible#; costs estimated at $5,000;

The condition of the pool equipment is described in Section 3. The indication of ADA accessibility above was made by the Recreation Director. Cost estimates are those of this Consultant.
In an effort to more completely describe the safety-related conditions of each of the City pools, especially in case of any transfer to a district jurisdiction, the advice of Kevin J. Hoffman, Loss Control Manager of PDRMA (Park District Risk Management Agency, which provides risk insurance for both Berwyn park districts) was sought. An inspection of the three pools was conducted with him and City Aquatics Manager John Kmet on June 14, 1999. The following describes the results of these inspections:

No major capital improvements were required in any of the pools to bring them into line with the State Swimming Pool code, or possible OSHA rules and regulations, at least according to John Kmet and Kevin Hoffman. There were a number of minor items as follows:
1. Extension cords were used to power pieces of equipment in the treatment rooms. These need to be replaced with conduit and standard plugs.
2. Perimeter railings or guards need to be installed around the basins or tanks in which the treatment takes place, to provide safeguards for those times when the doors to these rooms are open.
3. The equipment is in some located elevated above the floor. This needs to be done with all of the equipment, to prevent hazardous accidental mixing of chemicals in case of spillage.
4. Signs need to be updated in compliance with new code standards, placed at the entrance to the pools, locker rooms, and in strategic locations within the pool areas.
5. At Cuyler Pool, the equipment building needs to be replaced. These are standard at large hardware stores, for an estimated $2,000. Also at Cuyler, all electrical wiring needs to be grounded properly.
6. At Pavek Pool, removal of the high dive structure will eventually be required. It is a hazard particularly when the pool is unsupervised or under-supervised. Also at Pavek, the missing link of fencing adjacent to the stairs to the slide needs to be installed.
7. Generally, there is a considerable need for an investment in "tender loving care" (Hoffman and Kmet), or "cosmetic" improvements, the cost of which is subject to further design/planning.

The City pools have been subject to annual inspections by the Cook County Health Department, delegated from the Illinois Department of Public Health. Those inspections have resulted in an annual licensure for each of the pools, without any indication of violations of the State swimming pool code. (Cook County Department of Public Health Swimming Pool Inspection Reports dated July 31, 1998-June 15, 1999.) However, it is acknowledged that night use of the pools would instigate the requirement for additional improvements, not evaluated in this report, and essential if the use of the pool is to be expanded. The Recreation Director, Paul Hruby, says that his recent experience indicates that usage of the pools declines as evening approaches, and to stay open into the evening and night time hours would not be cost effective.

Wading Pools:

Janura City In need of abandonment; no treatment
facilities; drainage into the street; condition
is poor; removal an operational expense
immediately appropriate

Cuyler City No treatment facilities; drainage into the street;
considerable demand recommends treatment
and drainage reconstruction; treatment and
piping equipment w/ installation estimated at
$5,000. (estimate of Central Pools, Peoria);
unscheduled

Smirz BPD New concrete base; walls in poor condition;
no treatment facilities; insufficient capacity;
replacement needed; cost of complete
replacement w/ restrooms and treatment
equipment: $725,000. (est. of Barclay and
Assoc. via Jeff Janda, E.D., BPD)

Pyrce NBPD Condition is good; treatment and piping
systems in good condition; some budgeted
replacement of piping in '99

Playgrounds:
Pavek (1) City* Functions as a neighborhood playground;
Rotary-donated in good condition; indicated
as ADA- accessible (per Paul Hruby, City Rec.
Dir.)

Maple (2) City* New neighborhood playgrounds in good
condition; indicated as ADA- accessible
(Hruby)

Freedom BPD Neighborhood park reconstruction required;
planned but not yet scheduled; trapezoid
climbing apparatus to be replaced

Proksa(2) BPD Neighborhood and community park facilities
in good condition

Hessler BPD New neighborhood playground equipment;
new installation in '99

Smirz BPD Expansion scheduled in 1999 for
neighborhood playground facilities

Sunshine(2) BPD Neighborhood facility; sand base to be
modified for ADA-accessibility in '99;
wooden features are high maintenance and
need to be planned for replacement; newer
equipment in good condition; estimated cost:
$10,000 (per Janda)

Unity BPD On grounds of Komensky School; equipment
and grounds in good condition; functions as
school and neighborhood playground

Friendship BPD On grounds of Piper School; equipment and
grounds in good condition; functions as
neighborhood and school playground

Pyrce NBPD Neighborhood and community park on
community center grounds; equipment
and grounds in good condition.

Berwyn NBPD Neighborhood and community park; new
Gardens (2) equipment in good condition

*No Consumer Product Safety Audits have been performed on City facilities, nor has any other review been performed by a qualified third-party agency of safety or ADA- compliance.
The Executive Director of the North Berwyn Park District has indicated that "all of our facilities are up to code... we utilize weekly reports that identify hazardous conditions and needed repairs in accordance with ASTM guidelines. We address vandalism, graffiti etc." (5/13/99)
The Berwyn Park District director provided a copy of the Consumer Product Safety Commission Safety Audit, which was used in this report.
The City Berwyn Recreation Director indicated that the new park installations were architecturally designed to be ADA accessible.

Soccer fields:

Janura City Outfield of softball fields used for soccer

Unnamed City On "physicians' record property", to be
Park accessed via tunnel from Pavek Park;
planned to include one soccer field

Ball fields:

Pavek City Baseball fields adjacent to community
center to be preempted for police building

Unnamed City Two diamonds planned on "physician's
park record" property, accessible from Pavek
Park

Janura (3) City Softball capacity; adequate condition
(workable with considerable maintenance)

Freedom BPD Baseball capacity; in adequate condition

Proksa (2) BPD Baseball capacity; in adequate condition

In-line hockey courts:

Pavek City Surface in good durable condition

Berwyn NBPD Surface in good condition used for multiple
Gardens purposes

Parks general:

Karban City Small; bench; passive use only

Mraz BPD Passive recreation w/ fountain, seating and
landscape development

Berwyn NBPD Lineal park in good condition; multi-use area
Gardens used for basketball, soccer, T-ball, and other
sports for younger people; gazebo for concerts
and plays; benches, game tables and walking
path.

1227 NBPD Recent acquisition; clearing and development
Kenilworth being planned

Freedom BPD Community and neighborhood multi-use;
older park improvements underway/ planned;
walking paths in need of resurfacing;
additional land considered for expansion to
permit playground construction; parking
needs to be increased; all needs subject to
planning; composite estimate of all planned
park improvements: $1.3 million (est.: Janda)

Proksa BPD Neighborhood, community park with
paths in need of phased resurfacing ($5,000/yr.
for three years; nursery needs replacement or
elimination (no estimated cost-- see comments
in Chapter Two); creek and pond construction
work required at cost of $120,000; Veteran's
Memorial upgrade; est. cost: $10,000; all
unscheduled; (est.: Janda)

Sunshine BPD Recreation areas and walking paths; good
condition

Note: no consideration has been given to the possible need for additional landscaping treatment, intensified, reduced planting beds or the reconstructing of any parks beyond information and planning that has been made available. There has been no attempt in this report to impose any planning, landscape design, or architectural judgments on any of the park facilities, nor is the author qualified to do so.

Basketball courts:

Pavek City Full gym court with 3 half-courts and stage in
good condition; locker rooms in satisfactory
shape with some maintenance required (costs
not available); removable padding needed for
half court goals (source: Hoffman)

Freedom BPD Goals and pad in poor condition; requires
relocation; sight to be determined; demand is
questioned

Berwyn NBPD One of the multiple uses of this park
Gardens

Tennis courts:

Kriz (2) City Courts require resurfacing; fencing is adequate
cost estimate: $50,000 if demand can be
supported

Janura (4) City Surfaces in poor condition; replacement
required; preference indicated for a multi-
use surface; cost estimates subject to further
planning and determination of demand

Freedom (2) BPD Surfaces, fencing in poor condition;
reconstruction recommended if demand is
adequate; cost estimate: $50,000 (est.: Janda)

Proksa (3) BPD In good condition.

Volleyball courts:

Berwyn Sand surface in good condition
Gardens

Janura City Sand surface requires upgrade; cost estimated
at $1,000

Freedom BPD Reconstruction recommended, and relocation
if demand requires; estimated cost: $5,000;

Sunshine BPD Sand surface in good condition.

Horseshoe courts:

Proksa (6) BPD In good condition.

Multi-purpose rooms:

Pavek (3) City Kitchen facilities; good condition.

Proksa(3) BPD Meeting rooms in good condition; carpet
replacement required in south room;
budgeted in '99

Pyrce(2) NBPD Rooms in good condition with kitchen
facilities
Picnic areas:

Berwyn NBPD
Gardens
Freedom BPD
Hessler BPD
Proksa (2) BPD
Smirz BPD
Sunshine BPD

Other recreation:

Sunshine BPD Bocci ball court; "spray seal"

Support facilities:

Pavek City Recreation administrative offices are
sufficient for requirements; garage
maintenance sufficient for requirements;
building needs a general remodeling; no
estimate available; ADA accessibility
completed with architectural assistance

Proksa BPD West sidewalk in front of building needs
south extension; crowded offices for
personnel, equipment, storage, and
recreation/ pre-school activities

Janura Restroom and office facilities at softball
site; poor condition and in need of
replacement; cost estimate if required for
restroom only: $50,000 (source: general
literature)

Freedom BPD Administrative office is cramped and
insufficient; upgrade needs to be
planned; crafts studio.

Sunshine BPD Maintenance building in good condition;
offices are crowded and combined with
supplies; 5000 sq.ft w/ yard

Berwyn NBPD Maintenance and storage bldg. w/offices
Gardens planned for 1999 construction; 3000 sq.ft.

The Consultant found a high level of pride in the facilities on the part of each entity, or a constructive approach to improvement. Capital improvements or replacements noted above have been carried over to Chapter Two, Section 5.
It is noted that the "condition" of the parks described above is the judgment of the author, and not a result of the any interagency audit or application of any other standard, except where noted.

Section 3: A review of the operating and maintenance equipment

A. Pools

A review of the City pools included a discussion with John Kmet, Aquatic Director for the City's Recreation Department, and resulted in the following:

1. Pavek Pool: This is an aluminum pool, and is described as "virtually indestructible". The filtration system was rebuilt "eight years ago", and is now in "very good condition". It is repainted about every five years, depending upon the availability of part-time help. All other operating systems are in "very good condition". According to City Recreation Director Paul Hruby and John Kmet, the aluminum pools develop small leaks which they are equipped to repair with an individual skilled in welding.

2. Cuyler Pool is in "very good condition" with all operating systems, including a filtration system rebuilt "five years ago". To bring the pool to excellent condition, a "fiberglassing of the filter pits would be recommended", for an estimated cost of "$6-10,000". Some piping under the deck needs to be replaced, by cutting a limited part of the deck, locating the leak, replacing it, and replacing the deck section, for an estimated cost of "$2,000". As indicated above, the treatment equipment building also needs to be replaced, for an additional cost of $2,000. (est.: Kmet)

3. Maple Pool is in "very good condition" as a result of the "overhaul of filters five to six years ago", and the "generally good condition of the equipment".

There is no condition in any of the pools that could be described as "bandaided", according to Kmet, although that comment was heard during the research. Many of the less than ideal conditions require "cosmetic" improvement, such as painting and concrete deck replacement. According to Kmet, there are "no structural problems" with any of the pools.

A review was made of the purchase orders and statements made by contractors in repairs to the Pavek, Maple and Cuyler pools in 1990-1991. At Maple pool, pump repairs were listed. At Cuyler, a chlorine regulator was installed. At Pavek, installations were recorded of pool filtration equipment, pipe installations, butterfly valves, circulating pumps and a heating system manifold, two chlorinating pumps, and piping to wastewater pits. There was no subsequent outside evaluation of the condition of the pools or their equipment. Should a transfer of responsibility for the pools be recommended, a technical evaluation by a pool technician would be advisable. And where repairs are found to be needed, an intergovernmental agreement ought to be negotiated in which the City makes these repairs prior to transfer. In a May 5, 1999 meeting, Berwyn Mayor Shaughnessy indicated as "reasonable" the concept that City facilities should be "placed in good condition" prior to any possible transfer to a consolidated district. Recreation Committee Chairman O'Connor agreed with that statement provided no major capital improvements were involved, and no such improvements appear to be required.

B. Vehicles, tractors and related equipment

The Berwyn Park District: the following is an inventory of the significant rolling stock (trucks, vans, tractors, riding mowers), but excluding minor equipment such as push mowers, edgers, trimmers etc.

Item Age Condition Replacement schedule*

F-350 dump truck 1989 Good
F-350 lift truck 1988 Good
F-250 H.D. pickup 1991 Good ("great"*)
F-150 pickup 1992 Good
Ranger pickup 1994 Good ("great"*)
Aerostar mini-van 1991 Good ("great"*)
Caravan mini-van 1994 Good ("great"*)
Ford tractor 1985 Good
Deere tractor 1993 Good ("excellent"*)
N.H. skid-steer 1997 Good ("great"*)
Excel tractor 1995 Good
Excel tractor 1993 Fair
Cushman utility veh. 1993 Good
Cushman utility veh. 1987 "Fair"*
Excel shortcut mower 1998 Good

The preceding is taken from a list of all district equipment assembled by Joseph J. Bzdyl, Maintenance Forman, BPD, entitled "Vehicle/Equipment Mileage and Hour Tracker.. August 1995 thru March 1999, and printed in March 1999. Indications of the condition of the equipment are taken from that list; when Mr. Bzdyl's indications were greater than "good", those are listed in parenthesis above. The original list includes both major and minor equipment, and includes no equipment in a "poor" or other condition below "fair".
*There is no replacement schedule for equipment in the Berwyn Park District. The
District evaluates its equipment on a year-to-year basis, and plans for required replacements based on condition and costs of repair more than on age or mileage. A dump truck, for example, may lose an engine but the bed may still be useable, requiring replacement of the engine rather than the entire truck.

The North Berwyn Park District lists the following:

Ford Taurus 1999 New 2008
Pickup truck w/ 1998 Good 2003
crew cab
15-passenger van 1997 Good 2001

The City of Berwyn, Recreation Department list of equipment was assembled by Recreation Director Paul Hruby as follows:

Ford pickup 1999 City "to be delivered"
Chevrolet pickup 1989 City "to be junked"
Deere tractors (3) 1989 City "set for overhaul; require major work"
Bob-cat mower, not avail. City "excellent"
snow broom
Ford tractor, 4-w not avail. City "good"
Mowers, tiller, plow
Van 9-pass. w/lift City "OK"
Automobiles (2) City "retired squad cars" used for routine
errands; condition: "limited"
(A Chevrolet dump truck was recently in the possession of the Recreation Department, was recently transferred to Public Works, and according to Paul Hruby, "junked".)

C. Other equipment

Pool pass data card printer* City new, complete system
(* Pool pass data card printer currently used for printing City public safety personnel identifications; should transfer of Recreation Department functions and equipment take place, this equipment needs to be specified as transferring as well, but with a provision in the agreement that the City be allowed to use the system.)

AT&T MLS 18-D phone NBPD good
system

Security camera NBPD good; purchased in 1998;
system replacement scheduled in 2013

Radio communication system BPD acquired in 1995; in good condition
(Motorola)

Radio communication system City approximately ten years old and in
(Motorola) good condition

Section 4: Recreation program comments

Both park districts offer recreation and pre-school education/ recreation programming, based on demonstrated need and demand. Programs are offered and run if the people show up to participate. The City's Recreation Department does much the same thing, but with programs more of an athletic orientation. This section speaks to the question of financing of these programs.

In the 1998 fiscal year, the North Berwyn Park District's Recreation Fund:

Total revenues: $371,159
Property tax revenues: 116,340
Other revenues (fees, concessions and rentals): 254,819
Expenditures for recreation: 342,154
Expenditures for recreation dependent on property tax revenues: 87,335

In the Berwyn Park District's 1998 fiscal year Recreation Fund:

Total revenues: $254,581
Property taxes: 140,235
Other revenues (fees, concessions and rentals): 114,346
Expenditures for recreation: 266,460
Expenditures for recreation dependent on property tax revenues: 152,114

Summary

User fees do not cover recreation and educational program costs for either district, nor are they expected to do so.

One of the expectations for this study was an "analysis of current user fee structures of each agency" (Attachment 2, #16). Such an analysis is not deemed central to the study and has not been done. The policy of each district is to offer programs that are needed and/or demanded by the people to the best of the district's financial, training, supervisory and administrative ability. Based on the numbers above, if the fees were equal to the costs of the programs, the programs would be largely unaffordable and participation would be drastically reduced. The numbers above do not include indirect costs such as liability insurance, audit expenses, and other expenses in separate funds supportive of the recreation functions. Continued separation or consolidation of the districts will have no effect on this fact.

Section 5: Personnel

This study involved a review of job descriptions for the two park districts, and interviews with employees regarding their duties in comparison with the job descriptions.
Details of the job description review have been shared with the district executive directors, but are not considered relevant to this study. What is relevant to the subject of consolidation are the salaries paid to district employees, and whether the salaries paid are competitive with the market.

A. Compensation

In order to do meaningful and useful comparisons of the salaries of key and
representative salaries of the park districts with the market, four factors were used. The comparables had to be 1) Chicago metropolitan; 2) within a similar range of operating budget responsibility; and 3) for a district with a similar equalized assessed valuation; and 4) a park and/or recreation district and not a municipal parks and/or recreation department.

Six positions were compared with data provided by the Illinois Park and Recreation Association. Only six were compared because they were in fact the only comparable positions with the available data. Even then there were apparent differences in job descriptions from district to district. With each position compared below, the park districts with which they were compared are listed.
The annual operating budget range that was chosen to limit comparables was $.5 -$1.5 million. The comparable for equalized assessed valuation (EAV) was $100- $300 million.
There will be a time delay factor with the data. The salaries of the North Berwyn and Berwyn Park District employees are current. The survey data was taken in 1998 and may no longer be correct. But the relevance of the data is the disparities shown if any.

Position Salary

Executive director
NBPD $48,500.00
BPD 45,300.00
Average based on budgets: 52,344.00
Average based on EAV: 50,465.00
Overall average: 51,406.00

Park districts compared for budget purposes: Clarendon Hills, Winfield, Medinah, Marengo, Grayslake, Westchester, LaGrange, Plainfield, Roselle, Darien and Cary.
Park districts compared for EAV: Warrenville, Olympia Fields, Clarendon Hills, Winfield, Medinah, LaGrange, Roselle, Pleasant Dale, and Sycamore.

Administrative assistant
NBPD $31,173.00

Business manager
BPD $26,300.45
The job deemed most comparable in the survey was the "Finance Administrator".
Average based on budgets: $34,224.00
Average based on EAV: 32,487.00
Overall average: 32,487.00

Park districts compared for budget purposes: Winfield, Byron Forest Preserve District, LaGrange, Darien, and Cary.
Park districts compared for EAV: Winfield and LaGrange.

Superintendent of Parks

BPD: $28,500.00
The surveyed position of "Park Operations Administrator" was used for comparison:

Average based on budgets: $35,085.00
Average based on EAV: 36,739.00
Overall average: 35,912.00

Park districts compared for budget purposes: Clarendon Hills, Medinah, Grayslake, Byron Forest Preserve District, Westchester, LaGrange, and Roselle.
Park districts compared for EAV: Clarendon Hills, Medinah, LaGrange, Roselle, Pleasant Dale, and Sycamore.

Superintendent of Recreation

BPD: $28,972.00
The position in the survey chosen for comparison was the "Recreation Administrator".
Average based on budget: $36,914.00
Average based on EAV: $36,219.00
Overall average: $36,567.00

Park districts compared for budget purposes: Winfield, Medinah, Grayslake, Westchester, LaGrange, Roselle, Darien, Lincolnwood, and Cary.
Park districts compared for EAV: Winfield, Medinah, Belleville, LaGrange, Roselle, Pleasant Dale, and Sycamore.

Program Supervisor
NBPD $23,483.00

The same title is available in the comparables.

Average based on budget: $25,391.00
Average based on EAV: $25,150.00
Overall average: $25,271.00

Park districts compared for budget purposes: Clarendon Hills, Darien, Winfield, Medinah, Roselle, Morengo, Bourbonnaise, Grayslake, and Westchester.
Park districts compared for EAV: Warrenville, Clarendon Hills, Winfield, Medinah, LaGrange, Rosse, Pleasant Dale, and Sycamore.

Park Maintenance Foreman

BPD: $26,577.86

The comparable chosen was "Park Supervisor/ Foreman".

Average based on budget: $24,195.00
Average based on EAV: 24,750.00
Overall average: 24,473.00*

*This disparity between the current salary and the comparable averages is discussed in the organization section of this report.

Maintenance Supervisor

NBPD $23,415.00

There is no comparable with NBPD position-- a job that supervises as well as functions as the lead worker in park maintenance functions, and is the community center building maintenance supervisor as well, in addition to several other duties. In the IPRA survey, only Westchester had a Recreation Center Supervisor whose duties comprised at least half of those in the NBPD, and that salary was $22,000.

Recreation Supervisor
BPD $18,972.00
Head, Pre-school
NBPD $23,865.00
Lead instructor, ELCP
BPD $25,454.00
Youth Supervisor
NBPD $18,489.00

Although the IPRA survey tabulated comparisons for "Program Specialist/ Leader", there were no comparables in sufficient number within the adopted restraints of this study to be of assistance.

Registrar/clerk
NBPD $17,585.00
ECLP Aides
BPD $7.-8.00/hr.

There were no comparables for either of these positions.

Parks Maintenance Worker

BPD $18,756.00 ($9.02/hr.)

A review of area salaries for maintenance workers was attempted. The closest comparable was found in the Chicago Forest Preserve District, where laborers were paid at $13.78/hr. ($28,662), and "Light Maintenance Worker" at $$14.29/hr. ($29,723).

B. Organizational discussion

The North Berwyn Park District administrative organization is headed by an
executive director. Subordinate to the director are four positions-- the administrative assistant (the financial person), two program and one maintenance supervisor. The program supervisor in turn has responsibility for all program leaders, including the head pre-school teacher. The program leaders are part-time or seasonal personnel. It is a small but simple and workable organization. The only question is the extent to which the program supervisor is capable of giving effective supervision to the head pre-school teacher, or whether that subordination is necessary.

The Berwyn Park District organization is headed by an executive director, with the following immediate subordinates: the business manager (responsible for finance and accounting), the superintendent of parks, the superintendent of recreation, and part-time positions for custodial and police work. The superintendent of parks has another level of supervision below him-- the foreman. The maintenance workers report to the foreman. For an organization this small, this structure seemed "top-heavy", particularly with only five maintenance workers, and four-five additional seasonal workers.

Section 6. Plans for operations and capital improvements

A review and comparison has been done of the "Strategic Plan, 1997-1999" for the North Berwyn Park District, and the "Open Space and Outdoor Facilities Master Plan" of the Berwyn Park District. An inquiry was made of the City of Berwyn for any plans that encompass the recreation function, and none were identified.

The plans of NBPD and the BPD are very different documents, prepared with entirely different approaches. The NBPD plan is a staff-written strategic plan, while the BPD plan was written by Municipal Planning and Funding Consultants, and follows more the traditional "master planning concept" and methodology. The NBPD plan expires in the year in which this study is being conducted; the BPD plan was done in 1996. Both are in need of update. It is also noted that the NBPD plans a retreat in the fall of 1999, to formalize a strategic plan for the years 2000-2002.

The following deals with the manner in which issues have been identified and dealt with, and a comparison of these policies in the two plans identified above. The purpose is to provide a perspective on which planning for a possible consolidation might be built.

Issue #1, the lack of adequate park space to accommodate uses and services.

The Berwyn Park District plan noted a ratio of .85 acres per 1,000 persons, compared
to what that plan consultant termed the "generally recommended standard of 10 acres
per 1,000 persons. "The Berwyn Park District has decided to adopt a more realistic
standard of 2 acres per 1,000". (p. 29) The consultant included City park facilities in
his calculation, and identified additional acreage of 15.5 acres of land in the
"community park category". The acquisition of the physicians' record property would
have raised the standard accomplished by the BPD to a "respectable 1.71 acres per
1,000 ratio". (p. 32) It is understood that this property has been acquired by the City of
Berwyn.

The Berwyn Park District plan calls for two acres of neighborhood park space for
every 1,000 people. With three parks in the district totaling six acres, the consultant
recommended an additional 20 acres be acquired. There is no specific recommendation
of where these parks need to be located to best serve the unserved population.

The North Berwyn Park District Plan notes that the 10/1,000 standard "will never be
achieved", but intends to "identify all potential properties", "catalog" all such
"potential" properties, "pursue annexation (it is thought to mean "acquisition") of two
sites to "enlarge current acreage", and to "acquire two properties" during 1999. Absent
are specific strategic goals indicating the amount of acreage required, the most
desirable locations, the facilities needed on these parks, or the end result of these
acquisitions. (Lets say hypothetically that twenty residential properties suddenly go on
the market on a given day, scattered throughout north Berwyn, all of the same
approximate size, and all approximately the same cost. Which of these are going to be
given the first offers?)

This Consultant chooses to disregard for this study the nationally recognized standards for park development, the categories for their classification, and the criteria by which they are located. Berwyn is a developed community; the park districts do not have the ability to locate certain categories of parks according to some recommended criteria. More important, certain Berwyn parks serve multiple roles, of playground, neighborhood, community, and even perhaps regional facilities. ( Proksa and Pyrce Parks are examples.) Both districts need to be opportunistic, and acquire land when it is available in the areas of greatest need. Therefore, the search for available properties needs to be concentrated in the areas most under-served. That process is well underway by both districts; a geographic audit of this effort has not been done, and may be a worthwhile planning activity.

Issue #2, the lack of sufficient indoor space for recreation programs

The approaches of the two districts are different. The Berwyn Park District is planning an eventual building program on Freedom Park, to accommodate its programming requirements, supplementing that space at Proksa Park, as well as serving the more southern part of the district. Since an April 13, 1999 referendum was negative on this issue, further planning and public education will be necessary before this kind of authorization is possible. Meanwhile, other methods of accomplishing the objective are being explored. The district takes advantage of space in School District 100 buildings.
The Master Plan for the Berwyn Park District does not provide for indoor space for recreation or other activities. Revisions to the plan need to include indoor recreation space.

The North Berwyn District houses its programs in its main center at Pyrce Park, and has studied the feasibility of acquiring additional space to accommodate recreation programming. It also makes use of space in four different schools of District 98, and at Morton West High School. The plan calls for a systematic analysis of the needs of programs, staff and citizens for space, and a comparison of leasing and purchase of spaces available.

The need for additional recreation space is common for both districts. Yet a partial solution is not a common large facility, but buildings which can be in closer proximity to the demand. Whether the districts remain separate or consolidated, the recreation space needs to be separated by area, so there is no more than approximately five (maybe ten minutes maximum) to travel to reach the point at which the programs are offered. Only in this way will citizens believe that they are being served. Only in this way would any consolidation avoid the accusation of depriving a neighborhood of service. (See the recommendations in Chapter Three below.)

Issue #3, capital expenditure financing: The keys here are the 5 percent maximum annual tax increase, and the Consumer Price Index which has defined the tax cap at a rate of approximately 2 percent or less. These limitations require a maximum use of the levy in certain funds, while using what might be excess in carry-over for capital expenditures. That is the approach in the NBPD. The point is that capital expenditures must be planned over several years in realistic cost detail to anticipate the need for expenditures by the time the money will accumulate in investments to a sufficient extent to make the expenditure affordable.
The Berwyn Park District plan is silent on methods of financing capital expenditures.

Additional planning issues: capital expenditures for vehicles, computers and computer programs are dealt with in the NBPD plan; these are budget issues that have and are being dealt with on an annual basis as funds and priorities are resolved.
Section 7: Policy statements, documents: ordinances and resolutions

A. Personnel Policies

A review has been made of the personnel policies of the two park districts. This is in
response to the "Issues" document (Attachment #2), and particularly #24 in which various policy areas were mentioned and questions raised in the event of consolidation. Between the two park districts, the North Berwyn policy was written more recently and is more up-to-date. The Berwyn Park District policy was written in 1992, and acknowledged to be in need of revision. Whether it is for the purpose of consolidation, or mere updating by the BPD, it is recommended that the NBPD policy be the basis for revision. The details below contain many of the more significant policy differences, and recommendations for upgrade by one or both districts.

Purpose and philosophy: The NB statement reminds employees that the policies and procedures "apply in most situations", and is therefore a "guide, but is non-binding", particularly if the District "deems it necessary in a given situation". Personnel situations always have a degree of uniqueness, demanding this kind of qualification. Note also the emphasized non-contract nature of the policies at IV.H.

The NB EEO statement indicates that each employee is to be "treated fairly, with
respect, and is recognized as an individual". Otherwise, statements of philosophy and purpose are comparable; the BPD requirement: "to treat every employee with respect and consideration".

The NB policy includes a separate statement on merit in employment; the BPD
statement: "to employ all personnel solely on their competence to perform the duties prescribed". The NB statement describes "merit" as inclusive of "experience, education, ability and job performance". It would be useful to take these statements another step, by referring to the importance of objectively measuring performance in as many work areas as is objectively possible.

Anyone who has ever been turned down for a job appreciates the NB statement that
all applicants for a position shall be notified of their status, and not just the person selected. (F.1.c.)

The statements on "Self initiative" (G) and "Employment Efficiency" (E) in the
NB policy are unusual. They need to be duplicated in job descriptions, as a matter of form, and in performance reviews, to the extent that they can be defined. Otherwise, the statements are open for the interpretation of the individual.

The NBPD "academic interaction" statement is a misnomer. While it is okay to have
such a statement like the first sentence in the paragraph, it also belongs in job descriptions. And the second statement is totally "out of sync" with the first. There is also nothing in the paragraph defining "academic interaction".

The BPD policies cover a number of useful areas not in the NB version having to do
with personnel files, light duty, board meeting attendance, all of which explain a heading which should read "Employment" rather then "Classification". Nothing in fact in the BPD section on Classification has anything to do with classification.

The NB policy clearly places responsibility for administration of the personnel
policy on the executive director. (Section I) It also requires an employee sign-off. Both are good basic provisions. (I.2. and further developed at IV.H.)

The NB "definition of employees" section (II) is comparable to the BPD section "C.
Classification". But the NB version provides more detail defining the "full-time", "part-time" and "temporary employee".

Job descriptions are important to an employee's multi-year understanding of
parameters, scope and expectations of the job. Both policies require job descriptions, but do not say why. The preceding language is recommended. Job descriptions are also subject to regular review for accuracy and adequate scope, as indicated by NB.

Residency within the NB district is encouraged but "not a condition of
employment", and gives a preference among new applicants to a resident, other factors being equal. (III.G.) The BPD policy does not require residency, and is otherwise silent.

The BPD policy on the employee probation period provides for a necessary
performance evaluation during the period. NB provides medical and life insurance, holidays, and sick days during probation; BPD does not. It is questionable whether these "benefits" have to or should be granted during the probation period.
The NB statement on "at will employment" is extremely useful, avoids frequent
misunderstandings, and is recommended.

The NB policy refers to "reclassification of job positions". "Reclassification refers
to moving a job class to a different grade level, and therefore a different rate of pay. The substance of classification and compensation as a policy tool and function of management is not dealt with in the BPD policy.

The entire issue of working schedules is best defined in the NB version (Section IV).

The NB Employee Performance Appraisal section (F): a review was done of the current format. It requires evaluation of key areas of performance such as creativity, initiative and responsibility. These are useful criteria. But whether the system works well or not depends upon how it is put to use, and particularly how the supervisor implements each section. For example, under the section on "productivity", does the supervisor begin with setting with each employee a set of performance goals and objectives for the year about to begin, making as many of these realistic and measurable as possible, then periodically during the year checking progress. Then at the end of the year, is there a reviewing of performance and documenting for the personnel file the extent of achievement, being explicit as to how and why objectives were or were not attained? This does not occur, according to the employees interviewed. More detail on how to accomplish this can be provided if desired.
The BPD section (M) needs similar improvement.

BPD has a unique section on punctuality, with disciplinary provisions for late
arrival. The NB provision at IV.C.2. may infer discipline.

There is a difference in the work week between the two park districts. NB has 37.5
hours (IV.B.b.), while the BPD requires a 40 hr. week (I.E.3.)

Uniforms: the NB policy specifies that where a uniform is required, the District will
provide and the employee will maintain. NB also provides a shoe allowance. The BPD requires certain employees to wear uniforms, but does not detail responsibility.

Salaries and compensation: The NB policy charges the executive director with
developing the pay plan. BPD needs to similarly locate responsibility.

Section V on the compensation schedule in the NB policy is a good statement;
however, it begs the question of objectivity by presuming that the executive director will always be objective. To add a statement that every five years or so an outside classification/ compensation review be conducted may be of interest.

Particularly appreciated is the NB statement at V.A.3. and 4., which makes pay
increase decisions dependent on performance evaluations. But as indicated above, the policies must give further guidelines as to how to do so. If the policy is to tie pay to performance, then a linkage needs to be clearly defined that the employee can understand, and in a form that has the support of the board. Pay plans need not have defined steps within the range, but may have a simple range in which advancement in pay is linked to measured performance improvement.

The NBPD distinguishes between who can get compensatory time and who cannot.
It also limits some of the conditions for taking "comp" time. The BPD policy needs some of this kind of detail.

Gifts and awards: the NB provision is an improvement on the BPD provision at I.H.

Travel expenses: III.F. in BPD, #2 needs to be developed. Setting dollar limits to
expenses is not as realistic as general guidelines, given major regional differences in the cost of travel. Pre-planning travel wherever possible, including method of travel and lodging, subject to the approval of the executive director, can accomplish much of this.

Overtime compensation: there is a clear statement from NB in Section B. The
compensatory time statement also needs clarity, because new people to the exempt ranks often decline to understand or accept this limitation.

Group insurance: NB has a unique and potentially hazardous provision at VI.A.1., giving the executive director discretion to "defray the employee's costs for such benefits", and "will pay some or all of the premium". The provision is subject to board approval, but is not described as being based on any specific criteria. The concern is with accusations of arbitrariness in applying this provision.
Insurance is also available two months after full-time employment begins in NB. Generally accepted practice makes insurance available after the probationary period. The BPD provision is brief with no details as to eligibility or coverage. (III.A.)

The NBPD provides life insurance coverage with limits (VI.A.3.b.). The BPD also provides for life and dental coverage. The NB dental, vision and EAP insurance may also be unique.

Sick time: The NB policy provides sick leave for certain part-time workers-- a unique provision. The remainder of the provision is appropriately stringent. The first paragraph of the BPD provision is well worded. In that policy, the time period for eligibility is questioned.
The banking of sick time is provided by NB; no such provision is in BPD. The NB limit of forty days is regarded as insufficient, particularly in the event of a major illness or personal time accident. Note also the service credit provision on retirement-- also not in BPD. I appreciate a creative provision at VI.B.7.a.and b., in which unused sick days may be converted to personal days and a "Happy Day". The BPD grants three personal days each calendar year (III.J.)

The worker's compensation provision in NB is standard, except for the provision permitting the employee to receive a week's pay after the injury and eligibility is established. Light duty and return to work procedures are included in the worker's compensation and medical leave section. The BPD provision is procedural and not as liberal.

The continuing education statement in the BPD policy provides the executive director with discretion on course selection, reimbursement within budget restraints, and selection of employees to attend. NB provides more guidelines and more restrictions.

Vacation: NB says: "use it or lose it", referring to accrued time; the BPD is silent on the issue. NB employees working a minimum of 20 hours/week and 800 hours per year are eligible for paid vacation. Only full-time BPD employees are eligible for paid vacation. Without duplicating the charts from both policies, the BN policy provides more vacation earlier in tenure than does the BPD.

A full-time or 20 hr./week, 800 hrs./yr. part-time employee with NB may receive pay for holidays not worked, consisting of eleven designated days, although two of these are at the discretion of the executive director. Only full-time employees of the BPD receive holiday pay. There are seven such days, plus three "floating holidays", presumed to be designated by the employee with the approval of the supervisor.

The NBPD has a summary provision at VI.L. regarding "fringe benefits" for part-time employees, and recognizing their contribution. The employee's use of facilities, programs and equipment of the NBPD is detailed at VI.M. In some cases, fees are waived, or set at a "resident rate". This is a positive employee relations provision.

Leaves of absence: Funeral leave: NB: three days with flexibility
BPD: three days for specified immediate family
members
Jury duty: NB: regular pay continues; jury compensation to be paid to the District.
BPD: district makes up the difference between jury pay and regular pay.
In addition, the NB policy speaks of weddings, as events in which to use personal days, vacation leave, or leave without pay. Voting time may be drawn from work time only when personal time is not available.
Maternity/paternity/adoption leave is provided on a flexible "case-by-case" basis by the BPD, following IMRF where applicable. Advance notice for approval is required in anticipated paternity situations. The NB policy is much differently worded, referring to time off for maternity as "medical leave", and instigating an approval and return to work process that does not distinguish maternity from any other medical condition requiring significant time off (nor is it necessary that it should). Wages and benefits are expected to be suspended during a medical leave of absence, as it is also in the BPD.
Family leave is granted in NB for family illnesses, temporary disabilities, births, adoptions, without pay for a temporary period, with restoration of pay and benefits upon return. There is no equivalent specific provision in the BPD, although it could be inferred from more broadly described categories.
Military leave, a state legal requirement: NB pay will make up the difference between regular pay and military pay, for a period up to ten working days per year. The BPD grants leave without pay for military purposes, although summer camp may entitle the employee to a difference between the pay of the district and the military, on approval of the board.

Discipline and grievances: The NB policy is explicit about progressive discipline, without being restrictive or rigid. It defines the procedure without attempting to describe when to use each stage. Drug and alcohol use is mentioned as an example of a behavior that might instigate discipline. The policy encourages employees to seek voluntary treatment, and takes this as a positive step. In addition, absence without permission, employee harassment, damage to district property, solicitations/distributions, driving without a license, are mentioned as behaviors that might instigate discipline. The BPD details certain kinds of behavior as instigating dismissal only. The BPD mentions the required documentation of each disciplinary measure, which mention is lacking in the NB policy. The NB descriptions are more complete to the extent they exist, but the lists of the two districts are quite different.

The grievance procedures for the districts are similar and traditional in nature. However, in NB, the president of the board is involved if the immediate supervisor of the grievant is the executive director. This procedure does not occur in the BPD, where the decision of the executive director stands unless appealed to the board.

In the general rules of the NBPD, separate provisions encourage employee suggestions, welcome employee attendance at board meetings, require staff meeting attendance, require the notification of change of address, dedicate efforts to providing a healthy and hazard-free work place, refer to adoption of a safety policy, prescribe a smoke-free workplace, and establish committees on personnel policies, employee recognition, safety and other committees as necessary.
The BPD establishes in its policy an "open door" policy of the executive director.
Both policies prohibit political activity on the job or on district time

The preceding review was not inclusive of all the detail that might be compared or on which comments might be generated. The review indicates that there are two very different policies in effect, one of which is older and more in need of revision than the other, and one which is positioned to become the basis for that revision. What needs to be done is for the districts to work together to create the best possible set of up-to-date policies. Then, if consolidation is to occur, the effort will already be well advanced.

B. Other policy documents

The North Berwyn Park District has a significant number of written policy documents. The asterisk (*) indicates a policy on the same subject in both districts.
1. Investment policy
2. Child Abuse Suspect Policy*
3. Behavior Standards and Contract (for program participants)
4. Acceptable Acreage Standards Within the Territorial Boundaries
5. Agency Safety Manual; Safety Incentive Policy*
6. Statement of Autonomous Governance
7. Intent... to Support and Provide Inclusion Opportunities for Citizens with
Disabilities*
8. ADA Transition Plan
ADA Inclusion/Accommodation Policy*
9. Promotion of a Safe Work Environment*
10. Sponsorship Program*
11. Dispensing of Medications Policy
12. Vandalism Notification Restitution
13. Communicable Disease Policy
14. Drug Free Workplace*
15. Transportation Policy
16. "Hot Work Guidelines"
17. Internal Automation Policy
18. External Usage Automation Policy
19. Communication Policy
20. Crisis Management Plan
21. Employee Orientation Policy
22. Abusive Behavior Guidelines
23. School District 98 Participation Guidelines
24. Phone Dialogue Procedures
25. Employee Code of Ethics
26. Commissioner Guidelines and Procedures

The Berwyn Park District has the following policies:

1. Accounting Policy
2. Safety Incentive Policy*
3. Welding/ Cutting Permit Policy
4. ADA Policy*
5. Sexual Harassment Policy*
6. Financial Assistance Policy*
7. Abused and Neglected Children Reporting Guidelines
8. Behavior Standards for Program Participants
9. Acceptable Acreage Standards within Territorial Boundaries
10. Vandalism Restitution Notification
11. Communicable Disease Policy
12. "Hot Work" guidelines
13. Crisis Management Plan
14. Employee Orientation Policy

Section 8: Demographic considerations

The City of Berwyn reached its peak population of 54,224 in 1960, and has since been in a slow but steady decline:

1970: 52,502 (-3.2%)
1980: 46,849 (-10.8%)
1990: 45,426 (-3%)
1998: 43,057 (-5.2%) (estimate provided by MDR Demographics, Inc.)

The demographic analysts with MDR gave the following reasons for the decline: 1) a low birth rate during the depression years, causing those currently in their senior years to be smaller in number; 2) in the early to mid-1970s, there was a trend toward delayed marriages and smaller families; the young people who resulted are now entering school age, and bringing a declining enrollment and fewer available qualified employees to the workplace; 3) although the Hispanic population is growing, the birth rate is declining to more resemble that of the rest of the population, and as Hispanics are assimilated into the population. (Source: Ron Skupien, Partner, MDR Demographics Inc.)

More informally, various authorities have attributed the population decline to the attraction elsewhere of jobs and other "quality of life" opportunities, such as recreation and available land on which to build new housing or begin a business, as reasons for a family or individual to leave Berwyn.

The number of households and the number of families has also declined, according to DMR data:

1970: information is not available 18,638 families
1980: 19,831 households 13,094 (-29.7%)
1990: 19,298 households (-2.7%) 11,986 " (-8.5%)
1998: 18,004 households (-6.7%) 11,070 " (-7.6%)

At this point, one must be skeptical of the data, and the ability of the U.S. Bureau of the Census to correctly tabulate households in Berwyn where there is a significant number of households with working adults and where the elderly make up a significant percentage. Many of these neighborhoods have been driven, just to tabulate the number of apparent vacancies, for-sale signs, and transitional characteristics. Discussions were held with each school superintendent regarding the current and trending school population. There are no indications of a declining population. In fact, there is every indication of a city rejuvenating itself with younger families as housing is left by older persons.

Further data was requested from the Northeast Illinois Planning Commission. Sources there confirm major undercounting among inner city suburbs, including Berwyn. They support the observation that while older couples vacate their single-family homes, they are replaced by younger families, with an average of four-to-five members in a household. In some areas of Berwyn, anywhere from one to four families might be crowded into a single-family residence, each with several children. On that basis, NIPC projects a population for Berwyn of 63,767 people in the year 2020, and a population that is highly diverse ethnically and economically. Although that increase seems extravagant, any significant increase will require much more attention to park and recreation facilities, to contribute to the necessary quality of life in the community. (Source: "Population, Household and Employment Forecasts for Northeastern Illinois 1990-2020", endorsed 11/6/97 by the Northeastern Illinois Planning Commission; and NIPC staff member Sandi Radke)

While the Census Bureau tabulates a decline in the number of housing units since 1980, it also notes a relative stability in the household size, as follows: 2.35 in 1980; 2.34 in 1990, and DMR projects 2.38 in 1998. The NIPC, however, projects a gradual increase above 3.0 over the next twenty years.

Age and ethnic groupings:

There may be only one significant number in age group information. That is a significant drop in the Berwyn population of senior citizens, from 17,216 in 1980, to 9,739 in 1990, or a drop of 43 percent. Other categories have changed less, including the 0-5 age group in all races, the 5-9 group, which is gradually increasing, and the 25-44 group which is the most stable.

African-Americans, American Indians, and Asian Americans remain small minorities from 1970 to the present, each taking less than two percent of the total population. The growing minority is the Hispanic group, encompassing those of Mexican, Puerto Rican, Cuban and other national origins. The U.S. Census reports the following numbers of Hispanic residents:

1970: 47 (.08%)
1980: 1,128 (2.4%)
1990: 3,573 (7.9%)
1998: 5,884 (est.) (13.7%)

The Northeast Illinois Planning Commission expects the Hispanic family population to continue these increases, and at about the same rate, and take advantage of the majority of the housing vacated by elderly couples. Other sources indicate that much of the influx of Hispanic population is from rural Mexico, and is undereducated and has a high illiteracy level. This population group resists being counted by the census, according to NEIPC representatives, inhabits single-family homes with two to four families, and takes on basic laboring and service occupations. The same population group will initially be more dependent upon public services such as those provided by a park district, and expect it to be free or at low cost, according to various authoritative sources in the community who did not want to be identified.

Other information provided by NIPC:
1) the majority of low and moderate income persons live with the NPBD; 2) the highest percentage of individuals in poverty is in the NBPD; 3) the highest densities of population in Berwyn are in the NBPD; 4) although the African American population is small, the largest part of this population is in the northern half of the NBPD; 5) by far the highest percentage of Hispanic population is in the NBPD; 6) the average household size is somewhat higher in the NBPD; 7) the larger number of persons over age 65 is in the NBPD; 8) the largest number of duplex units is by far in the NBPD; 9) the number of 3-4 family residential units in a structure is highest in the NBPD; 10) the number of 5 -family residential units in a structure is higher in the NBPD.

Berwyn has been and will continue to be an ethnically diverse community. The public policy issue is whether the community can maintain its quality of life, tax base, service levels, neighborhood and commercial area maintenance while it receives a larger and more diverse population. This challenge argues for a united rather than a fragmented policy effort.

Section 9: Consolidations of park districts in Illinois

There is no example in the Illinois experience of consolidation of two park districts within a single municipality, except in the City of Chicago, or that consolidation and the subsequent transfer of the City's recreation and park functions into the consolidated district. Therefore, the possible consolidation that this study seeks to evaluate is without applicable precedent.

There are examples of transfers of park functions between a municipality and a park district, however, and those are summarized below. There is only limited wisdom that can be transferred from these experiences to the Berwyn study.

Oak Park, Illinois: The issue was whether to consolidate the single park district into the City of Oak Park. The village president forced a limited "merger" in the form of a contract for services between the home rule city of Oak Park and the park district. This enabled the park district to stay in business, augmented by the city's bond amortization authority to finance the park district's debt and levy for park functions. The park district is required by inter-local agreement to provide services, now including the formerly city recreation functions which were transferred to the park district. Primary source: Cliff Osborne, former village president who provided the leadership for structure which resulted.

There was said to have been a consolidation effort involving the Village of Forest Park and Forest Park Park District. The authority to which everyone in the community deferred was the twenty-five year veteran executive director of the park district. There had not been a serious effort during his tenure, beyond campaign talk that was stopped by potential "turf battles". There was similar discussion in the mid-to-late 1960s. The Park District and the Village remain separate. The operation by the Village of two "tot lots" has been retained, because the District could not afford to assume that responsibility. The Village operates a senior center and all senior programming, while the District operates the parks, and there is no formal organizational linkage between the agencies. Source: Dave Novak, Executive Director, Forest Park Park District.

In the Village of Niles, in 1992, a citizen referendum was instigated by 100 signatures on a petition, to consolidate the park district functions into the City of Niles. The referendum was successful on an approximate 5-1 basis. However, the park commission appealed and got an appeals judge to hold that the consolidation referendum had to be approved by a majority of the registered voters, not a majority of those voting. On that basis, the election was thrown out. The consolidation did not occur. The Village appealed to the State Supreme Court, which refused to hear the case. The case has had the effect of causing a change in the law, according to the source. And the issue is still open. Source: Abe Selman, Village Manager, Village of Niles

In Cicero, Clyde Park Park District makes up approximately 80 percent of the city; Hawthorne Park District about 20 percent. Consideration was given to consolidation, but the effort was abandoned when it was seen as non-beneficial to the community as a whole. The reasons given were the likely reduced grant funding (two grants now per year would be reduced to one since only one per year was granted per district), and the lack of any financial or service advantage. The result was that the issue was pulled from a referendum ballot. Source: Lucy Schmidt, Clyde Park Park District

The Chicago area in the late 1800s had three park commissions for three separate areas that were created by State legislation. A State law in 1895 created an additional nineteen park districts for a total of twenty-two, and they remained in existence until 1934. Many studies of consolidation took place. The political conflict behind these studies was said to be intense. Then the Depression made it obvious that many of these districts were highly inefficient, resulting in a park district consolidation act of 1934 that created the Chicago Park District.
While the Chicago Park District moved forward in the creation and maintenance of parks, with the help of the WPA (Work Progress Administration), the City of Chicago was also building parkways, boulevards and mini-parks. In 1959, another State law re-divided responsibilities. All street related parks, such as boulevards and associated greenways went to the City; all parks, including the mini-park responsibility went to the Chicago Park District.
According to the source, Julia Bachrach, Planning Supervisor, preservationist and historian for the Chicago Park District, cooperation between the City of Chicago and the Chicago Park District is extensive and essential to the operation of both.

According to Bill McKinney at the University of Illinois, other park and recreation reorganizations that have occurred in the state have been between a single district and a city, either consolidating functions into a city organization, or creating a district into which previously municipal functions are transferred. The examples provided by Bill McKinney are described above.

Section 10: Intergovernmental agreements currently active, their effects, terms, services and programs

A. Agreements between the park districts

Intergovernmental Cooperation Agreement for "Shared Services" between the Berwyn Park District and the North Berwyn Park District. This agreement was executed June 23, 1994 and terminated on April 30, 1995; there was no documentation of the written authorization to continue the agreement on a year-to-year basis. The agreement provided for the parties to share their respective strengths, and therefore was a positive and healthy approach to cooperation.

Intergovernmental Cooperation Agreement, Berwyn Park District and the North Berwyn Park District, effective September 1, 1996, to be "continuous unless written notification is tendered by one district to the other..." Since no documentation was provided to the contrary, it is assumed that this agreement is in effect.
The main provision was that "all Berwyn residents will be eligible for in-district fees as established by BPD and NBPD".

Intergovernmental Cooperation Agreement, Berwyn Park District and the City of Berwyn, effective April 1, 1998. The agreement provided for the BPD baseball diamonds at Proksa Park and the City's swimming pool at Pavek Recreational Center.
The agreement provided for the City's Recreation Department to administer baseball programs at Proksa Park, the BPD being able to retain scheduling approval. The BPD was allowed to use the Pavek Pool for its day camp program, at times approved by the City.
The agreement was for one year, and was to automatically renew unless written notification was given by one party of its intent to let the contract expire.

B. Agreements with the school districts

1.The North Berwyn Park District and Berwyn (North) School District #98
Intergovernmental Cooperation Agreement
Term: November, 1990- October, 2015
Purpose: "construct a playground with appropriate landscaping on ... the Custer
School site..."
Location: 16th Street and Gunderson Avenue
Obligations of the District: "buy and install playground equipment..."
Subsequent ownership and daily maintenance responsibility: the school district
Status of construction as of the date of this study: complete
Park district access to school facilities: "right to use... gymnasiums, dressing rooms, classrooms and outside areas...serving school age children before regular school hours in the morning and after regular school hours in the afternoons on days when school is in session". (pp. 2-3)
Costs/ fees: "no rental charges or custodial fees shall be chargeable to and paid by
Park District for use of School District's facilities except for periods of time when
custodial services are not normally provided... The Park District shall reimburse
the School District for expenditures by the School District, including utilities and
custodial services provided specially for, or as a result of, the Park District
programs when said expenditures are in addition to those customarily incurred by
the School District."

2. Intergovernmental Agreement between the Berwyn Park District and Berwyn
South School District No. 100
Term: April 1,1990 through March 31, 2010 (no provision for renewal)
Purpose: The Park District "shall construct a playground with appropriate
landscaping"; the School District "shall maintain the playground and
equipment"; "the Park District shall have the right to use the facilities of the
School District" and without a rental charge.
Location: Friendship Park at Piper School
Obligations of the Park District: "buy and install playground equipment with
appropriate landscaping".
Subsequent ownership and maintenance responsibility: "The School District
shall maintain"; however, the District replaces and adds surface material,
replaces components on the playground equipment etc., leaving only very
minor but daily maintenance to the School District.
Status of construction: completed.
Park District access to School facilities: "right to use the facilities... in the
manner set forth in the school Board's Open Rental Policy"; no further
restrictions.

4. Intergovernmental Cooperation Agreement, Berwyn Park District and the
Berwyn South School District No. 100
Term: August 1, 1986 through July 31, 2006, with no provision for renewal.
Purpose: The Park District "shall construct a playground with appropriate
landscaping...appropriate playground equipment for use of children from
pre-school ages through the age of 14 years."
Location: Unity Park, and Komensky School
Obligations of the Park District: to "buy and install playground equipment...
with appropriate landscaping..."
Subsequent ownership and maintenance responsibility: "The school district shall
maintain... and the Park District shall provide advice... as requested... for a
period of one year..."
Status of construction: complete.
Park district access to school facilities: "the right to use the facilities of the
School District in the manner set forth in the school Board's Open Rental
Policy..."

5. Intergovernmental Cooperation Agreement; Berwyn Park District and Berwyn
South School District No. 100
Term: "five years" from either March 17 or April 22, 1998.
Purpose: "cooperative agreement for the purchase, installation and operation of
cable television generation equipment to allow and provide access to a local
public access cable channel..."
Location: LaVergne Administrative Building
Obligations of the Park District: "shall equally share the costs for purchase, start
up costs, and use of the equipment... shall provide information to be entered
and viewed... in a timely manner"
Subsequent ownership and maintenance responsibility: No mention in the
agreement of ownership, which could be a problem; the School District "shall
maintain and operate the equipment at its sole cost with the exception that
phone line usage costs shall be split equally between both parties."
Status of acquisition/ construction: complete
Park District access: "The BPD shall provide information to be entered and
viewed... in a timely manner... and the School District shall enter the
information provided in a timely manner".
Other: the agreement provides a buy-out opportunity for either party.

C. Other Agreements

6. Insurance Agreement, between the Berwyn Park District and the City of Berwyn
Term: May 1, 1997 through May 31, 1998 (to evidence provided as to extension)
Purpose: through the City's self insurance, the BPD will be insured and covered
by a hold-harmless agreement for all youth athletic programs held on District premises.
Obligations of the District: To provide written notice and details of every occurrence where an injury has taken place and/or a claim might be filed, and to assist in aiding settlements of claims.

7. Agreements between the NBPD, the BPD, and the West Suburban Special
Recreation Association
Term: Effective July 8, 1997, and extended automatically "year to year".
Purpose: "to provide year round recreation programs for all persons with
disabilities... including the provision of integration support to partners..."
It also provides for the appointment of a Board of Directors, representing each
district.
Obligations of the districts: to share in the cost of implementing the agreement
pursuant to a formula in the agreement.

Section 11: The financial condition of the park districts

According to Treasurer Gerald J. Sebesta, "both park districts are in good financial condition". He declined to provide any further details or do any further analysis, despite the "Issues" Attachment (#2) that states: "It is requested that an independent opinion of the financial position of each park district be included within the report, provided by Gerald Sebesta, the Treasurer of each entity." (#15)

The financial administration and management of a public agency is evaluated by the author of this report according to the following criteria:

A. Does the entity have a sufficient revenue base to support its continuing costs of operations, plus dedicate sufficient money annually to support a reserve of at least ten and preferably as much as twenty-five percent of regularly reoccurring expenditures, and to support an on-going capital replacement and improvement program?

The Berwyn Park District board has followed a conservative policy of levying for a reserve below recommended levels, and usually below ten percent. The tax cap has placed limitations on the district's ability to finance needed capital expenditures, and forced a policy of relying on bond issues to finance these expenditures. The tax cap and the levy policy has placed a limitation on the ability of the agency to grow in response to service needs of citizens.

The NBPD increases its levy annually within the limits of the tax cap, and carries a reserve forward in excess of that operating cost level, to anticipate the costs of unforeseen expenses or capital expenditures. That reserve is shown each year in the carry-over from one fiscal year to the next. The NBPD has the ability to tie its planned capital expenditures into annual budget planning.

B. Does the entity cultivate inter-local and intergovernmental relationships to the extent that additional revenues can be derived from these relationships to augment those generated through its own authority?

The NBPD and the BPD have sought out opportunities to acquire additional indoor
space for recreation programs. The agreements with the school districts are
evidence of that. The question is whether there are other opportunities in the
service sector for cooperative agreements and joint programming, such as with the
YMCA, which offers many recreation programs, additional off-hour use of the
school space, and with other entities.

C. Is the entity organized in such a way as to permit the use of modern accounting and financial management techniques, with the proper skills available to administer these techniques?

The BPD is organized to provide such a service, has had a qualified bookkeeper,
the required software, and the support of the board and staff.

The NBPD is similarly organized and equipped with modern computer-assisted
accounting/ management tools and broad support.

D. Is the accounting system capable of providing cost accounting or program based accounting in support of the programs, management of the agency, and the policy-making function?

The NBPD has the capability to generate program-based accounting of revenues and expenditures for use by the staff and board, as either may have the need or demand. The board will access this information on an as-needed basis, or in response to the director's request for policy guidance.

The BPD's accounting system is capable of providing program-based accounting in support of management and the board. In certain program areas, fees and costs are monitored in this way to determine the condition of each program, but this is not generally required. The board does not make its decisions on the basis of whether a program "makes it" financially or not, but whether it feels that the program is a needed service to the community.

E. Does the purchasing/ bill-paying function work smoothly and without excessive bureaucracy, beginning with adequate policy controls on purchasing, an expeditious movement of PO's and bills to the payment process, a clear understanding of the authority to purchase at specified levels, and a payment process at the board level which moves without significant delays through the approval process?

The NBPD system is computer based purchase orders for all purchases up to the point of director review, at which point a hard copy is produced for signature. That system is to be modernized to permit the director's screen sign-off. The board receives a bill list in advance of a regular meeting, and except for individual member questions of staff, will consume minutes of a regular meeting for approval.

The BPD has a purchasing policy which makes purchasing guidelines and limitations clear to employees to which it is applicable, and miscommunications are minimal. The process is understood to work reasonably smoothly. The board has a special meeting for bill-paying purposes, the average length of which is 2-3 hours, meaning that each bill is scrutinized and authorization signatures made by board members themselves.

F. Is there a capital replacement and improvement program in position, at least annually updated, in which are contained all capital items for which the agency is responsible, and which items are scheduled for replacement at a scheduled time, with funding planned, including source of funds and method of acquisition? Do these funding requirements become then part of the annual budget in some manner?

The NBPD has produced a list of capital items, replacement of which is scheduled based on likely life. That list becomes input to the regular annual budget.

The BPD maintains an alertness to capital replacements which are to be financed as part of the budget (vehicles, for example), versus those larger items which are bonded (park construction, for example).

G. Is there a budget process in which all affected and responsible individuals are involved, including those responsible for initiating expenditures, and including the ability of the governing body to set policy guidelines for the development of the budget?

The BPD board organizes around major cost centers with committees which begin early in the budget process to set spending objectives. The director summons requests from subordinates, which then are reviewed by board committees as they graduate through the budget review process.

The NBPD director receives budget requests from staff members, reviews these
with staff prior to drafting a preliminary budget for a budget workshop of the board
at which discussion results in policy direction for the budget year.

H. Is there an annual audit, and is it independent and professionally done by a recognized auditing firm?

The NBPD audit is done by Knutte and Associates, P.C.
The BPD audit is done by Greg Miller, a CPA .
Both firms meet the criteria.

I. Is there a pension fund management process, and an appropriate affiliation?

Both park districts are affiliated with the Illinois public agency retirement system (IMRF).

J. Is there a cash management program in place that is generally understood and accepted for its controls and integrity?

The NBPD maintains controls of cash through the purchase order system, accounting for expenditures as they are made from petty cash.

The BPD program is controlled ultimately by the board. Cash on hand is managed with limitations and controls, utilization of the purchase order system, and is subject to regular accounting procedures.

K. Are there inventory controls for equipment parts, supplies, and materials used in operations?

The BPD can account for all equipment and supplies, and their consumption on an on-call basis; the maintenance department makes quarterly reports of usage and the in-stock inventory. The audit has recommended that the asset list be updated.

The NBPD has a similar capability to that of BPD.

L. Has a classification/compensation study been done for the agency by an objective outside source within the last five years, to place weighted values on each job class, assist in establishing the proper relationship between jobs, upgrading job descriptions as required to match actual duties, establishing the competitive ranges of salaries for each job class, and making associated recommendations for employee compensation?

No recent C/C studies as such have been done for either entity. However, it was found that directors for each entity had conducted surveys of salaries for various jobs in their organizations, and were aware of the market ranges compared with those paid by their organization.

M. Is there a risk management program?

The BPD and NBPD are participating members of the Park District Risk Management Association (PDRMA).

Summary

The two park districts are in sound financial condition in the short term. Jeopardizing the long-term are the declining values of property and, therefore, the tax base. If demographic projections for a significantly increased density are correct, and the City steps up its enforcement against multi-family use of single family homes, and private investment in multi-family housing occurs in order to house this increased population, with support businesses that follow, the tax base will turn around, begin recovery, and provide the basis for a level and then a declining tax rate for the park districts.

Section 12: Financial considerations of the City of Berwyn

The Berwyn City Council Recreation Committee stated to this Consultant the City's policy on the issues in this report during the meeting cited in Section 1 above. If the two Berwyn park districts were to consolidate, it would be the City's intent to divest its recreation function in favor of the new district. Whether the majority of the City Council would agree with the position was discussed. The committee expressed the opinion that the position would indeed be supported. That opinion was further supported by Mayor Shaughnessy in the later meeting.

Resolution No. 092893-1 dated September 28, 1993, was produced which states in part: "The City of Berwyn believes that the consolidation of the three park authorities into one park district is and should be a goal for our community...The City of Berwyn is willing to cooperate in this endeavor by pledging its properties and facilities to such a consolidated district... The City of Berwyn encourages the Berwyn Park District and North Berwyn Park District to work toward the goal of consolidation by instituting discussion, negotiations and public hearings... The City of Berwyn further offers its resources and personnel to mediate and /or moderate all such discussions between the parties."

The resolution will of course have to be updated when and if the issue is imminent, and in the form of an intergovernmental agreement. To say that it is a "goal" stops short of indicating intent or commitment. Pledging properties and facilities may be insufficient, as indicated below, and may have to be supplemented by transitional financial support, for the transfer to be feasible.

The total City revenues dedicated exclusively to Recreation Department use from the City General Fund are $624,245.89, according to Recreation Department Director Paul Hruby and City Comptroller Allen Zank. Those revenues cover 47 percent of anticipated expenditures; it is understood that the historic pattern in recent years is in the range of 46 to 50 percent of costs. (That would indicate that total expenditures range from $1,211,037 to $1,248,490. The budgeted expenditures in the current fiscal year of $888,361 do not represent the total real cost of operating the department. This estimation is explained below.

The City of Berwyn property tax levy extension is $149,180.00. Other General Fund revenues support the Recreation Department functions to the extent of $471,245. (not including a grant for $153,000. which is part of the current budget). It is clear that the City of Berwyn has considerable reason to divest itself of recreation programs and swimming pools, because it would free the tax levy and over $1/2 million in revenues for other municipal priorities. (Members of the Recreation Committee did in fact indicate to this Consultant that the tax levy revenues would not be transferred with the functions to a new district, but would be made available to other municipal priorities.)

The following is the City budget detail applicable to the Recreation Department:

Revenues
Athletics: $198,590.00
Adult programs 1,800.00
Children programs 66,803.50
Pool 112,689.41
Vending machine 2,227.89
Special events 2,005.00
Video machine 1,077.03
Concession stand 45,402.00
Youth Commission 40,472.59
Recreation grants 153,000.00*

Subtotal $624,067 (rounded)
Subtract the non-reoccurring(*) 153,000.
Total $471,067.

Expenditures
Salaries $531,261.00
Contract services 166,400.00 (see qualifications below)
Supplies 122,500.00
Other operating 23,200.00

Subtotal: $843,361.00
Subtract dedicated revenues: 471,067.00
Subtotal of expenses 372,294.00
Amount of current year's property tax levy 149,180.00
Subtotal of expenses of the City Recreation Department
subsidized by the City General Fund 223,114.00

It is believed that the actual cost of operating the department is greater than that shown above, as explained below.

It would be desirable if the individual program and facility costs of the City of Berwyn were known, in order that in the event of a consolidation, a decision might be made as to what facilities might be kept open and which needed to be closed, basing that decision in part on the cost of operations. Unfortunately such costs are not isolated, kept or available.
Recreation Director Paul Hruby believes that he is "close to accurate" when he estimates that it costs $120,000 per year to keep the three pools open, but according to the City Water Department, that figure does not include the metered cost of water, all of which would be billed to a district in the event of consolidation, nor is it a full cost accounting of water. City Water Department Chief Clerk Mel Ceci indicates that all water use of the department is indeed billed to the Recreation Department budget through inter-fund transfers, and in the most recent year is in the following amounts:

6501 W. 31st St., Pavek Pool: $5,956.68
6601 W. 28th St., Janura Park: 2,235.40
" 1,124.30
1500 Maple, Maple Ave. Pool: 11,586.20
1849 Cuyler, Cuyler Pool: 8,607.00
Total: $29,509.18

The amounts appear small, especially since Pavek Pool is considerably larger than Maple or Cuyler, yet show the smallest of readings except for the wading pool at Janura. The City Water Department claims that the charges are indeed made and implemented through inter-fund transfers. More detailed data is required to locate meters, the location of water lines actually metered, the readings averaged over a multi-year period, none of which were available to this study. It is believed that the actual cost of water is at least twice shown on the numbers above. For the benefit of the City, and a possible district that might survive in its responsibilities, there is sufficient evidence to support a close look at actual water being used and the extent to which it is actually metered and the funds accounted for.

There is no separate line item for pool chemicals or other pool-related expenses, other than a $3,000 item for "repair and maintenance pool/gym". It is unlikely that the required pool supplies could be purchased for that amount, and especially not have anything left over for the gym.

Personnel costs of the pools are mainly seasonal. The actual cost ranges between $123,920 and $143,457, according to a City document. It is impossible to determine the extent to which these numbers fall within the department-wide budgeted number for part time personnel of $339,289, for lack of program cost accounting. However, these numbers alone exceed the believed cost of pool costs estimated by Paul Hruby above.
Summary: For the purpose of this study, it is possible to estimate costs above the public budget for pool expenses by $40-50,000.

Are there sufficient redundant costs in the City Recreation Department that if cut could save significant expenses after transfer to a park district? Of course, the initial impression of possible savings is in the area of personnel and administrative costs. These revisions are reflected in the proposed budget in Chapter Three. The active and used recreation programs themselves are not redundant, nor are they operated at a cost that would hold much if any savings potential.

Are there revenue producing facilities, services and programs in the Recreation Department that could be further tapped, such as the building for needed recreation programming space, and is that space advantageously located? If the pool pass revenue estimate for the year of $112,689 from the Comptroller is accurate, then an increase in these fees must be considered after the true cost of the pools is known.

What are the currently "avoided costs" for maintenance of City facilities, that would have to be absorbed by a surviving district, both in its regular operating budget and a capital improvement program, or would such a transfer mean at least temporarily closing certain facilities until they could be brought up to a higher standard? (Ex.: the wading pool at Janura Park, and the diving facilities at Pavek Park.) The answer is approximately $40,000, based on estimates given in Section 2 above, plus approximately $10,000 for "cosmetic improvements".

There is the issue of costs of electricity. Commonwealth Edison has filed a letter indicating that the company will "supply without charge to the City of Berwyn, such an amount of electric energy as may be reasonably necessary for lighting and various other uses...", and park facilities in three locations are specifically itemized. (Letter of Com Ed Vice President John T. Costello dated July 10, 1998) According to Peter Trantow, Customer Relations Director of Com Ed, in a conversation April 16, 1999, the four City Recreation Department addresses will continue to not be charged (although they may continue to receive bills during a "computer software transition") for electrical service. The four addresses are 6540 W. 31st ( the "Recreation Facility"), 6610 W. 28th, 1500 Maple, and 6300 19th St.

Should the City divest itself of the recreation function and it be acquired by a park district, and these addresses remain hooked to electrical power, all electrical charges will be restored to active billing and the obligation of the new district. Com Ed will only provide non-charged electrical power to public entities with which it has a franchise agreement, such as the City of Berwyn. The service is technically not currently "free" to the City; the charges are spread out among other rate payers in the City of Berwyn, including the park districts. This is a policy utility-wide, and in other electric utilities as well. The method is simply one of not billing for the cost, and assuming the cost as a company cost of operations which is not identified, not available, and shared with the other rate payers as part of the cost of operations.
ComEd's Brian Weltyk of the Maywood Office, Regional Accounts, provided the following:
Pavek recreation facility: no meter; estimate: $10,000
6610 W. 28th St.: annual kwh: 63,000; annual billing: 8,600.
1500 Maple: annual kwh: 30,000; annual billing: 3,350.
6300 19th St.: annual kwh: 3,800; annual billing: 565.
Total: $22,515

Weltyk could not explain what might be included in these billings, and whether all electrical uses are metered. Since the only other meters that exist on City facilities are city hall, a city administrative building, two fire stations, two public works buildings and a library meter, the absence of meters in other areas must be questioned. One obvious example: street lights.

Summary: There are actual costs to operation of the City recreation facilities that appear to not be metered, billed, or accounted for. The recommendations at the end of this report deal with the difficulties created by this, and a partial solution. The actual cost of operating the department is an accumulation of the unaccounted and non-billed expenses, and probably exceeds $100,000.

Section 13: Legal considerations pertinent to the study of possible consolidation

Three law firms were contacted for assistance in the legal considerations. They were:

Ancel, Glink, Diamond, Cope and Bush, of Chicago (and specifically Robert K. Bush)
Wildman, Harrold, Allen and Dixon of Lisle, Illinois (and specifically Michael M. Roth)
Wyeth, Heitz and Bromberrek (and specifically John Wyeth)

Robert K. Bush and Michael M. Roth responded. John Wyeth did not respond.

The firms were asked the following questions:

The applicable statute is 70 ILCS 1205/3-11, in which it is required that one of the districts being consolidated be the "survivor" district, which district "shall assume the functions previously performed by the park districts..." This surviving district shall have the "power and authority to levy and collect such taxes at such rates as shall have been previously authorized, levied and collected by the designated survivor district".

1. Is it therefore correct that one of the two districts need to "survive", that is, remain in existence to assume the functions and responsibilities of both, as opposed to creating an entirely new district, into which both districts would be consolidated?

Answer: Bush replied, as shown in the attachment to this report
(paraphrased): although one of the two districts must survive, as one of its first acts it
may change its name to reflect the consolidation, especially for public and community
relations purposes.
Answer: Roth replied in agreement. He pointed out the requirement for referendum in
Section 3-11 but added that a "merger of functions" under Section 5-2a, and joint
intergovernmental cooperation under Section 8-18 "are possibilities".

2. The language of the statute regarding rates and levies appears to say that if District A is the survivor, with x levy, and acquires all of the responsibilities, functions and debt of District B, District A may only continue to levy in that particular year that amount which it had already levied for its own functions, programs and debt amortization, even though it would have acquired an expanded program of expenses and debt from District B.

Answer: law firm Bush replied that the aggregate tax levy extension (the sum total of the two dollar amounts) may be levied by the consolidated district, according to the Property Tax Code at 35 ILCS 200/18-215. In addition, the surviving district may continue to levy for the debt of the non-surviving district. This has been verified by the Cook County Clerk's office. (Note the additional Attorney General interpretations in the attachment, and the lack of any case law on this issue.)

Mr. Roth's response to the question agrees with that of Mr. Bush.

It is understood that the City may not provide any financial support for the recreation functions proposed to be transferred to the surviving district. Mr. Bush recommends an intergovernmental agreement between the City and the survivor district in which the proceeds of its recreation levy would be turned over to the District on a continuing basis, as a means of assisting in the financing of the transferred services. This issue will be dealt with under subsequent chapters.

Further, it has been determined with support from the Ancel Glink firm and with further legal assistance from Peter Murphy of the Illinois Association of Park Districts, that there are two alternative methods of accomplishing consolidation of two park districts. Of the statute, Article 2, Section 2-2.1 provides a method whereby the popular referendum is a crucial component. In other words, the elected officials are guided in this method by the public will. The alternative method, is Section 3-11. Paraphrasing that statute:

Two contiguous park districts may consolidate and become a single park district.
The park commissioners of each district desiring to consolidate shall adopt an
ordinance by a vote of not less than two-thirds of the commissioners of each district,
which ordinance shall state the intent to consolidate, shall designate the survivor
district, and shall designate the commissioners by name from one or both of the two
districts who shall become commissioners of the surviving district.

This alternative method is recommended in those instances when the commissioners believe the issue of consolidation to be of such complexity that a popular referendum is not practical, or that the will of the people is already well understood.

Section 14: A Review of the tax base value

The 1998 EAV (equalized assessed valuation) will be available in September or October, 1999, according to Bill Vaselopulos, of the Cook County tax extension department. He expects that an upcoming reassessment of properties in Cook County will result in an increase similar to that which took place in 1996, when the increase in the EAV was 4.9% in the case of the BPD, and 1.5% for the NBPD. (However, he was surprised when confronted with the nominal increase exhibited in 1996 for the NBPD.)
The average annual increase in the NBPD EAV from 1989 to 1997 was 4.7 percent. However, in the last four years, the average has been a -2.2 percent. In the BPD, the EAV has averaged a 1.13 percent annual increase over the last five years.

The average of the two districts is -1.07 percent annually, meaning the tax base on which the tax rate is calculated has been declining slightly in recent years. Only with significant private investment in taxable real estate can the budgets of park districts be allowed to grow without tax increases being required on property of declining value.

Section 15: The cultural issue

Throughout this study the argument has been made by individuals in Berwyn that north and south Berwyn are "worlds apart"; that Cermak is like the "Berlin Wall" or the Mason-Dixon Line. There are such great alleged cultural differences between north and south that consolidation of anything that is now separate would be somehow destructive of the needs of the people, or perhaps in the ability of people to determine their park and recreation services. These explanations have been laced with bits of history about how the strongest leaders of the community and the greatest wealth have come from the south, or part of the south, while the north was a 'step-child", or a "poor country cousin", or worse. These historical briefs provide the background for the creation of the North Berwyn Park District, and the pride that has resulted, but also the rivalry, suspicion, and resentments that undermine the thinking of many who were interviewed. The fear is that if consolidation were to take place around the Berwyn Park District in the south, history would repeat itself, and the "north would be deprived again".

An objective in this study has been to find out what factual information is available on the subject of cultural differences. The sources used in this section would not be quoted. In fact, it is important that they be referred to so indirectly as to not identify them by accident. Only the newspaper columns are cited below.

One important component of the differences between north and south is the nature of Hispanic migration into Berwyn. It was noted in the demographics section above that the population is growing faster than that of any other ethnic element of the Berwyn population. In fact, north Berwyn has and continues to experience the greatest in-migration of Hispanic population. These are the people who have joined with one or more families to inhabit a house that was built as a single-family dwelling unit. These are in many cases families from rural Mexico where living conditions were extremely poor by American standards. Anything better is as one source indicated, a "vast improvement".

The lower income element of the newer Hispanic population avoids being counted in the census, according to the previously quoted NIPSE source. Those who are preparing for the next year's 2000 census have a major challenge in acquiring an accurate count of Berwyn's population.

Despite what was stated above, those Hispanic families that have spent a number of years in Berwyn have tended to copy the values of the families that have been in Berwyn for generations. There is in fact a "melting pot" effect, but it takes many years to create, and is created only if the population remains diverse rather than unbalanced in favor of one ethnic group.

The "second class citizen" image that has been allegedly placed on north Berwyn in the past has been the source of challenge for many north Berwyn residents. That challenge has resulted in achievements that are often superior to those found in the south. As one source indicated, "it has turned around", meaning that the quality examples of performance in many business activities is now being provided by the north. There is in fact an equalizing taking place, although the competition will continue. The only challenge is that it be "healthy" rather than destructive or counter-productive.

To the point of this section: the further cultural diversification and widening of the income spectrum that has happened in north Berwyn is also happening in south Berwyn. There is no difference, except that south Berwyn is about three years behind in experiencing the impact, on the schools and the demand for recreation and park programs. Therefore, this research sees absolutely nothing pertinent in this cultural change that has anything to do with the study of possible consolidation of park districts, other than to point out that the demand for services will increase generally.

Source: Chicago Tribune story entitled "At Home in Berwyn", by Mary Maguire, a profile dated June 4, 1996; an Archival Snapshot dated May 12, 1990 by Lynn Van Matre; and an undated survey of schools in Berwyn with enrollments, each "district at a glance", "average test scores" by school, all of which appeared in the "Homes" section.

Chapter Two, the hypothetical consolidated park district.

Section 1. Goals and values statement

To proceed or not to proceed with a consolidation of park districts, and subsequent to that, the further consolidation of the Recreation Department of the City of Berwyn, depends on the ability to fulfill through that consolidation the following goals:

A. The maintenance of the same level of services and facilities of the two park districts, or an improvement of those services and facilities.

B. A continuation or reduction of the current tax rates for the two park districts and the City.

Section 2. The consolidation process

The statutes establish two alternative approaches to consolidation. The first, at 70 ILCS 1205/2-2.1(a) et al. provides for a petition process within each district, the filing of that petition with the circuit judge, and the subsequent referendum which requires a majority of votes cast within each district area.
The second alternative is at section 3-11, and is a simpler but less participative process. It provides that the consolidation may occur as a result of each district board enacting an ordinance by two-thirds of the commissioners, in favor of a consolidation, and designating a "surviving" district. "Upon the adoption of the ordinances by the park districts concerned the park district designated in the ordinances as the survivor of the consolidation shall assume the functions previously performed by the park districts and the surviving park district ..."

If the result of the financial and service evaluation described below is to proceed with consolidation, the recommendation in Chapter Three would be to utilize the second alternative, and for the reasons that will be explained.

The process therefore would involve the enactment by both district boards of an ordinance which would accomplish two things: support for the consolidation based on the factors described below, the designation of the surviving district, provisions for surviving board selection, and authorization for an intergovernmental agreement between the two districts making explicit the various details of the consolidation.

Section 3. Survey of the consolidated services, facilities and costs

The following is a description of the hypothetical district staff support, the facilities required, and the costs.

A. Park maintenance will require 1) expansion of the park system on a planned basis to the maximum possible extent, and 2) a program of maintenance of existing and expanded park and recreation facilities.

Subordinate to the executive director is a park maintenance superintendent, whose duties include the supervision of the work crew, minor non- contracted construction work supervision, contracted improvement construction, and delegated administrative responsibilities.

The workload of a consolidated district involves a requirement for a work crew, consisting of a lead worker and two or three maintenance workers, which is fully equipped to handle the maintenance and repair requirements at each park. The approach preferred is that of a well-paid seasonal group who are available well in advance of the season, experienced with the district, have sufficient pay rates to attract them back to the district each season, and who are sufficiently motivated and experienced to take on the workload and get it done at a quality level. This preference may have to be tempered by the current approach in the BPD at least, which is to keep some or all of the maintenance crew on all winter for equipment and facility maintenance.
Supplementing this crew is a repair person, who has a variety of skills, in carpentry,
basic plumbing, electrical and air handling equipment, and who can be called to any
of the facilities of the district-- building or park, to repair whatever is required.

B. Recreation programming requires a supervisory staff which plans program offerings, makes the offerings available to the Berwyn public, registers their level of interest and participation, establishes the necessary spaces, materials and equipment required, and arranges for the leadership, instruction, and supervision required. Beyond the continuing supervisory staff, the other personnel resources are not full-time, but a group of various skilled individuals who are a resource to the district and are available as demanded.

C. Facilities management: citizens/ recreation service users can be expected to demand proximity of facilities to their homes, if participation is to be maximized. Five-to-seven minutes or less travel time is the objective. For that reason, existing facilities would remain, and additional space would have to be made available as the population grows and with it, the demand for services. For that reason, the eventual recommendation would be for a facilities manager, under whose supervision would fall the maintenance of intergovernmental agreements for school spaces, the renting and upkeep of existing buildings, and the planning for upgrades/expansion as required. Initially, however, this is one of the responsibilities of the executive director in the hypothetical consolidated district. In each facility, the hours of the center manager would depend upon the required workload and hours of operation.

D. The aquatics manager would be responsible for the maintenance and repair of the
pools and wading pools, and recommend for hire the seasonal individuals for the operation of each facility, and recommend expenditures for each facility. Because of the seasonal nature of the position, there is anticipated overlap of responsibilities between this individual and the facilities management function in areas of non-seasonal repairs and pre-season hiring.

The costs of these positions are detailed below in the 5-year budget projection.

Section 4: Intergovernmental agreements

The ideal situation would be the availability of building space for all recreation programs, owned and managed by the district(s), and in the immediate proximity described above. Yet the voters in the past have not been receptive, even though the numbers indicate a si