Proposed 2023 Minneapolis Park Board Budget focuses on serving youth, building safer communities, caring for park assets, and protecting the environment

Public comment opportunities scheduled Oct 26, Nov 2, 15, 30 and Dec 6

At the October 12 Board meeting, Superintendent Al Bangoura presented his Recommended 2023 Budget for the Minneapolis Park and Recreation Board (MPRB) that focuses on serving the youth of Minneapolis, building safer communities, caring for park assets, and protecting the environment.

Superintendent Al Bangoura’s Recommended 2023 Budget for the MPRB addresses the continued challenges caused by COVID-19, ensures equitable investments across the park system, focuses on ongoing need for capital investments, cares for the environment and continues the historic investment in the youth of Minneapolis.

In early 2022, the Board of Commissioners shared and discussed vision, values, project ideas, and priorities. This important work provided information and direction that was used to develop the strategic directions and performance goals that will be used over the term of this Board to guide the organization. The 2023 – 2026 Strategic Direction, Performance Goals, and Priority Comprehensive Plan Strategies, adopted in May 2022, drive the annual budget process, budget action development, and work plan development

In July 2022, the Board unanimously adopted Resolution 2022-241 requesting the Board of Estimate and Taxation (BET) set the MPRB maximum property tax levy at an estimated amount of $79,025,000, a 6.16 percent increase from 2022. The proposed tax levy included three distinct elements:

1. Maintain current service levels, including $260,000 needed to support the MPRB’s 2021 six-year arrangement with the city for the historic $2.6 million youth investment that began in 2022, and an estimated $576,000 to offset the State of Minnesota Local Government Aid (LGA) funding decrease due to the current legislative session ending without passage of a new tax bill.
2. $389,000 for system equity investment largely due to the introduction and activation of parks within the downtown service area and regional park system. This investment would provide for increased safety and security with an investment in sworn officers and non-sworn agents.
3. $443,000 to support the Board adopted Strategic Direction to care for park assets to meet evolving needs and practices. This investment would provide professional staff to enhance current work to identify and implement asset lifecycles to maximize maintenance, repair, rehabilitation, and capital investments.

The Superintendent took this message and request to Mayor Frey, BET members, and City of Minneapolis staff. Through collaboration and negotiation, the Mayor recommended, and the BET passed, the 2023 maximum tax levy increase for the MPRB at $78,456,285 a 5.40 percent increase from 2022 that includes the youth investment, LGA replacement, and system equity investment.

The Mayor and BET did not support the care for park assets request. Although this request was not supported during this budget cycle, the Superintendent is reflecting the Board’s commitment to this strategic direction within other elements of the 2023 recommended budget and within the MPRB’s five-year financial projections and will renew the ask during the 2024 budget process.

“We appreciate the City’s continued support for the investment in Minneapolis’ youth,” said Superintendent Bangoura. “We have already implemented some innovative programs and increased opportunities for youth employment in our system and this continued investment will allow us to amplify that work and reach even more youth. We are especially grateful for the City’s willingness to pick up the LGA shortfall that occurred due to the lack of a new tax bill being passed in the 2022 legislative session.”

The Superintendent’s recommended budget marks the seventh year of the 20-Year Neighborhood Park Plan (NPP20). This budget continues to support the operating costs related to implementing NPP20 and sustaining service levels for a range of maintenance practices through the MPRB General Fund property tax levy of $3.9 million. NPP20 also includes a total of $11.9 million for investments in rehabilitation and capital for neighborhood parks and uses, using a criteria-based system and a racial equity lens for budget allocations and decisions.

This proposed budget also marks the second year of the historic $2.6 million investment in youth. In 2021, the Mayor recommended and the BET passed a 2022 maximum property tax levy for the MPRB that included a $1.3 million youth investment. The Mayor further committed to a gradual increase in property taxes to support the full $2.6 million youth investment by 2027 with American Rescue Plan Act (ARPA) one-time funding allocated to the MPRB for youth investment in years 2022-2024. With this approach, the MPRB will need to identify additional one-time funding in 2025 and 2026 to keep the youth investment whole until the full amount is realized through the property levy in 2027. The Superintendent’s recommended budget includes the 2023 gradual increase in property taxes.

Additionally, to begin progress towards meeting the performance goals laid out by the Board in the 2023-2026 Strategic Direction, this budget includes the introduction of department budget actions directly tied to the MPRB’s 2021-2036 Parks for All Comprehensive Plan and the 2023-2026 Strategic Directions, Performance Goals, and Priority Comprehensive Plan Strategies. If applicable, the department budget actions are also tied to the MPRB Racial Equity Action Plan.

The Superintendent’s Recommended 2023 Budget proposes a maximum tax levy increase for the MPRB at $78,456,285 a 5.40 percent increase from 2022. The proposed 5.40 percent property tax increase will result in an estimated annual increase in property taxes of $24 for the owner of a median-value $319,000 house due to growth in the tax base.

The Superintendent’s Recommended 2023 Budget totals $142 million, including $99.8 million for the general operating fund, $15.5 million for the enterprise operating fund, $1.9 million for the special revenue fund and $24.8 million for capital project funding.

This proposed budget also supports the MPRB’s commitment to strategic long-term planning. It signifies the first budget year under the guidance of the 2023-2026 Strategic Directions, Performance Goals, and Priority Comprehensive Plan Strategies adopted by the Board in May 2022. The five strategic directions are:

act boldly for our climate; cultivate each community’s place and honor cultural traditions in Minneapolis parks; implement quality youth and intergenerational programs; care for park assets to meet evolving needs and practices; and steward our natural resources. 

Strategic Direction A – Act boldly for our climate future

The Board is committed to act boldly for our climate future through a reduction of carbon footprint, implementing resiliency projects in service area master plans and the ecological system plan and by analyzing park visitor modes of park access to create baseline data for future decision-making. This budget supports these goals through the department budget actions, the construction of the Graco Park building which will be the first net-zero building in the MPRB system, and the continued use of formal criteria for evaluating new equipment purchases and replacements to reduce fuel consumption, minimize pollution and emissions, and improve operations.

Strategic Direction B – Cultivate each community’s place and honor cultural traditions in Minneapolis parks

The MPRB mission looks to dismantle historic inequities in the provision of park and recreation opportunities for all people and the Board seeks to cultivate each community’s place and honor cultural traditions in Minneapolis parks through enhanced and unified organization-wide volunteer management and through enhanced community safety and Park Police engagement activities. This budget supports these goals through the department budget actions, the addition of two Park Police Officer positions, the conversion of Part-Time Park Patrol Agent hours to two full-time Park Patrol Agents, and 2022 position conversions that add a Multicultural Communications position and an ADA Administrator position. This budget also supports the development and delivery of Indigenous Acknowledgement training and the development of an Indigenous Reconciliation Plan.

Strategic Direction C – Implement quality youth and intergenerational programs

In 2021, through the culmination of significant work and collaboration with the Mayor and City staff, a historic $2.6 million investment in youth was realized through a six-year funding agreement that includes a combination of property tax levy and American Rescue Plan Act (ARPA) funding. This budget provides for year two of this agreement and includes a property tax levy increase of $260,000 and continuation of the ARPA funding in 2023. This Board is committed to implement quality youth and intergenerational programs and ensure its success through program capacity measurement, multi-tiered program evaluation, and enrollment tracking. This budget supports these goals through the department budget actions and the continuation of free youth programming in areas of the city with the greatest need. This budget also includes an increase to Rec Plus fees based on market and the addition of two full-time Child Care Specialists to implement a pilot program designed to stabilize Rec Plus staffing with the option of a standard non-split shift schedule.

Strategic Direction D – Care for park assets to meet evolving needs and practices

One of the most consistent messages received from all Commissioners is the desire to care for park assets to meet evolving needs and practices. The Board is committed to increase the rate of parkway repaving or reconstruction, increase the percentage of assets that are within their expected lifespan, establish the level of service standards for the top assets within the park system, and increase the advancement of policy items identified in the system-wide master plan implementation tracker. This budget supports these goals through the department budget actions and continues the exploratory work that began in 2022 to identify alternative funding strategies. This budget includes parkway sealcoating through the MPRB capital improvement program and a 2022 position conversion to add a Design and Project Engineer. This budget also supports the review of the current asset management system (VueWorks) to support bid for the next generation of software with enhanced capabilities.

Strategic Direction E – Steward our natural resources

The Board acknowledges its role as the steward of the park system’s natural resources and commits to natural area management, growing the public tree canopy, and improving water quality through BMP management. This budget supports these goals through the department budget actions and the planting of at least two trees for every tree removed focused in the two major heat islands within the city through the ARPA funding received in 2023 and 2024. This budget also supports alternative funding strategies, including the participation in the Urban Tree Carbon Offset Program through the partnership with Green Minneapolis, and the continuation of exploratory work related to water quality alternative funding.

“This budget is the culmination of a great deal of work, including thoughtful consideration and input from the Board of Commissioners and staff,” said Bangoura. “I look forward to obtaining further input from the Board of Commissioners and public on this Recommended 2023 Budget in October and November.”

Public Comment Opportunities

The proposed budget and related documents are available for viewing at www.minneapolisparks.org/budget. The public may comment on the proposed budget during the times listed below. To minimize the risk of exposure to or potential spread of COVID-19, the MPRB has added options for comments to be submitted for its public meetings and hearings. See www.minneapolisparks.org/board_meetings for details.

• October 26, Public Comment Session – Administration and Finance Committee meeting, 2117 West River Road, Minneapolis. The Committee meeting will follow the Board’s regular meeting, which begins at 5 pm. Comments may be made during the Budget Comment period scheduled for 6 pm.
• November 2, Public Comment Session – Regular Board meeting, MPRB Headquarters, 2117 West River Road, Minneapolis, which starts at 5 pm. Comments may be made during the Budget Comment period scheduled for 6 pm.
• November 15, Public Hearing – City of Minneapolis public hearing on 2023 tax levy and 2023 Budget, City Hall, Council Chambers Room 317, 350 South 5^th Street, Minneapolis. Comments may be made during the 6:05 pm public hearing.
• November 30, Administration & Finance Committee Approval of 2023 Budget – MPRB Headquarters, 2117 West River Road, Minneapolis. Comments may be made during 5:30 pm regularly scheduled Open Time session.
• December 6, Public Hearing and Board Approval of 2023 Budget – City of Minneapolis public hearing on 2023 tax levy and 2023 Budget, City Hall, Council Chambers Room 317, 350 South 5^th Street, Minneapolis. Comments may be made during the 6:05 pm public hearing.

“I want to thank all the members of the Board and staff for their efforts during this year’s budget process,” Bangoura concluded. “Through it all, we have done great work and together we can dramatically impact people’s lives by building communities, delivering meaningful services, and meeting the diverse needs of Minneapolis residents.”

Financial and Service Challenges

There are multiple financial and services challenges impacting the MPRB:

• Coronavirus pandemic (COVID-19) impacts

It’s been slightly more than two-years since the MPRB first responded to the COVID pandemic and staff continue their efforts to stay safe while delivering important recreation services and facilities to the public. COVID Community Levels remain low, but COVID is still here. The MPRB continues to track data with a focused priority on the health and safety of its park visitors and employees. The MPRB has remained responsive and flexible, continues to adjust service delivery when necessary, and continues to manage the financial and economic impacts related to the pandemic.

• System Equity Investment

The MPRB’s system is experiencing growth in both the regional and neighborhood systems. As parks and amenities are added to new residential areas that were traditionally non-residential in support of the City’s growth patterns and other development, improvements and expansion occur within the park system, service delivery models will need to be analyzed, adjusted, or changed to support the needs of these areas. Consideration needs to be given to how current service levels associated with this growth is built into the annual budget process and communicated and supported by the City, BET, and the public.

• Capital investment needs

The MPRB has many capital needs throughout the system including security and alarm upgrades, parkway paving and parkway lighting, RiverFirst development and acquisition, reinvesting in operation facilities, below grade infrastructure and utilities, Enterprise Fund capital investment, support for the Land acquisition fund, and investment in legacy infrastructure.

Other key financial challenges include union negotiated settlements, minimum wage increases, inflationary increases, and the continued work to stabilize the Enterprise Fund.

Departmental initiatives and changes for 2023 include:

• Asset Management – includes the use of one-time funds to procure equipment for Market Square Park and a review of the current asset management system (VueWorks) to support bid for the next generation of software with enhanced capabilities.
• Athletic Programs, Aquatics, Golf & Ice Arenas – includes an increase to golf fees and establish two tiers based on market rates; shifts the Director position (25%) to the Enterprise Fund to better reflect time allocation between functions; increase to ice rental fees based on market rates; addition of one full-time Ice-Resurface Operator.
• Communications and Marketing – supports a position conversion to a Multicultural Communications position.
• Community Connections and Violence Prevention –supports position conversions that address the evolving needs of the organization to serve the community in areas of ADA and multicultural communications through redistribution of resources resulting in the elimination of two vacant Community Connection Coordinator positions.
• Deputy Superintendent’s Office – General Fund activities include a slight increase to the Archivist and Records Specialist position from a .50 FTE to a .60 FTE; supports a position conversion to add an ADA Administrator position; Water Works, a micro-enterprise includes an increase to revenue as Owamni restaurant continues to perform at higher levels than projected in the business plan and the planned addition of special services attendant hours to provide adequate service to residents and visitors at this location.
• Design and Project Management – supports position conversion to add a Design and Engineer position to support CIP implementation; Indigenous Acknowledgement training; and the development of an Indigenous Reconciliation plan.
• Environmental Management – sustains the one-time allocation made in 2022 for the Cedar Lake and Lake Nokomis blue-green algae reduction diagnostic study and plan which will be completed in 2023.
• Forestry – supports the use of one-time ARPA funding to augment the procurement of trees to allow for the planting of two trees for every tree removed during 2023 and 2024 and the establishment of a special revenue fund reserve for the proceeds received through the Urban Tree Carbon Offset Program.
• Park Police – supports system equity investment with the addition of two Police Officers; the conversion of 4,160 hours of part-time park patrol agent hours to fund two full-time park patrol agents; and the addition of 1,560 part-time park patrol agent hours to support the activation of the Downtown Service Area and regional park system.
• Visitor Services (formerly Customer Service) – the General Fund activities includes a slight increase in revenue and expenditures for operating the Commons Park food truck lunch permit process; new fees including busker/street performer fee and MPRB market fee; an increase to picnic rental fees based on market rates; and increased revenue due to additional canoe/kayak rack storage and sailboat buoys and the use of the Regional Park Amenity Fund to procure the canoe/kayak rack storage units and sailboat buoys; and supports system equity investment with the addition of Front Desk hours to support the activation in the Downtown Service Area, specifically for the Commons Park and North Loop Park. The Enterprise Fund activities include a decrease in revenue based on actual experience, Bde Maka Ska building constructions, and changes in vendor relationships; an increase to special services attendant hours to explore creating a team of staff that will serve as event marshals as a point of contact for event participants and organizers; and an increase in revenue for new fees including mobile wellness permit, stage fee, locate fee, sampling and promotions permit, and the event marshal program fee.
• Youth and Recreation Center Programs – continues the implementation of the historic youth investment in Youth and Intergenerational Programming including department budget actions to develop a capacity measurement, multi-tiered program evaluation tool, and enrollment tracking to ensure successful implementation of quality programs; also includes an increase to Rec Plus fees based on market rates and the addition of two full-time Child Care Specialist positions to allow for a pilot program to offer two non-split shift schedules in hopes of improving overall staff retention.

The budget and related documents are available for viewing at www.minneapolisparks.org/budget.