City staff requests direction to place a parks, recreation and trails bond on the November 7, 2023, ballot.  Because this is a Council Work Session, you cannot take final action, therefore we recommend you direct staff to schedule a public hearing and present a bond resolution on the July 10 regular meeting agenda.  At that time, the City Council can take formal action.

This memo and our discussions highlight the critical importance of our city parks and public safety and to propose actionable solutions that will contribute to a safer and more vibrant community. 

In addition to a commitment to improve the safety of Billings, the Council has adopted priorities that included improved investments into parks, recreation and trails since 2020.  
 
March 9, 2020 - Council adopted priorities for the upcoming year that included: Create a Park Development Fund
April 12, 2021 - Council adopted priorities that included under the "High" category: Create a park and trail development program and analyze all park and trail funding options to build excellent parks and trails throughout the City.
May 9, 2022 - Council adopted the following strategy and priority: Increase parks, trails, recreation, and cultural investments.

• Determine level of capital investment to be proposed to voters in 2023 for the multi-generational recreation center and a corresponding strategy for executing on those capital investments.
• Determine level of capital investment to be proposed to voters in 2023 for additional park and trail development and a corresponding strategy for executing on those capital investments.
• Determine level of maintenance and operation expenses for parks, trails, and recreation facilities to be proposed to voters in 2023 to meet the needs of our community long term.

As a result, over the last several years, staff, community stakeholders and the Council have discussed the funding needs for city parks, trails, and recreation assets.  The 2017 Comprehensive Parks and Recreation Plan along with each of the adopted parks and recreation master plans were used to help guide our deliberations.  Added to these discussions was the action taken during the 2021 Legislature to place an automatic "sunset" date to Park District 1 (PD1) in 2024.  PD1 makes up roughly one third (1/3) of the parks, recreation, public lands (PRPL) department's revenue.  On a positive note, since the comprehensive master plan was completed in 2017, park amenities have increased, but unfortunately resources have not kept up with the increased demand for staffing to care for the added amenities.

The funding options available to Council include extending PD1 or creating a new district; submitting a question to voters to increase the mill levy through an amendment to the city charter; and/or submitting a question to the voters to issue general obligation bonds to make capital investments into PRPL.  To the question of PD1 - on Monday June 12 the Council voted to move all funding out of PD1 and into the general fund when they adopted the fiscal year 2024 budget.  Therefore, the issue of the operational levy has been resolved over the near term (4+ years depending on costs and increased taxable values for the city).  This leaves the issue of significant capital investment yet to be resolved.  Our team will present a series of capital investments in parks, recreation and trails assets after dozens of meetings that have taken place throughout the community (see enclosed power point presentation).

During our efforts to improve public safety, it has become evident that public health and public safety are deeply interconnected.  Our crime problem is fundamentally rooted in trauma, substance abuse, and a loss of hope.  Over the past half century our community shifted away from substantial public investments in additional public parks and recreation even though our population has doubled.  Fortunately, we have preserved our parkland rather than selling it off for development.  However, investment are necessary to activate public spaces throughout our 43 sq mile city if we are to improve the health and safety of Billings.  Therefore, the following remarks from Chief St. John, emphasizing the link between public health, public safety, and the significance of parks, are highly relevant:

• Developed and improved parks attract people, creating "social capital or infrastructure" for the community, which fosters a sense of safety.
• Appealing and useful parks reduce crime in and around the area.
• Quality parks serve as community hubs, empowering neighborhoods and enhancing overall quality of life.
• Well-designed and well-maintained parks eliminate signs of disorder and communicate the city and community's value for the area.
• Properly managed parks act as deterrents, showcasing active resident and business involvement in the community.
• Violent crime is a public health concern, and parks play a critical role in improving and supporting public health.
• When more people gather in parks, it increases community surveillance and deters criminals from targeting park neighborhoods.
• Reports demonstrate an overall reduction in crime, especially gun crime, in well-kept parks.
• Adequate lighting in parks is a proven deterrent against criminal activities.
• Positive activities and programs held after dark contribute to crime reduction.
• Parks designed for safety, with heavy programming and proper maintenance, attract residents and serve as deterrents.
• Deteriorating parks develop negative reputations and attract criminal activity.
• While parks alone cannot solve criminal activity, they are an integral part of the solution.

To address the need for capital investment, issuing general obligation bonds remains a viable option.  General obligation bonds may be issued for any public or governmental purpose and specific authority exists for various parks and recreational purposes in Section 7-16-4104, MCA. To issue general obligation bonds, the issue must be submitted to the registered electors and the total amount of indebtedness may not exceed 0.9% of the total assessed value of taxable property for cultural, social and recreational purposes.  Based on our estimated taxable value for 2023 we cannot borrow more than $149.9 million for this purpose.   

To have an election in conjunction with the November 7, 2023, general election, Council needs to pass a resolution with appropriate ballot language at least 85 days prior to the election. Therefore, the latest date at which Council could call an election is August 14, 2023, and the resolution must be dated on or before August 14, 2023. However, staff recommends we do not wait until the deadline in August, so the County election administrator has sufficient time to prepare the ballot and our community stakeholders have more time to prepare for the election. 

In conclusion, Council is being asked to provide direction during the June 19 work session to allow staff adequate time to prepare a resolution and to provide notice of a public hearing to be held on July 10, 2023.  By investing in our parks recreation and trail assets and addressing public safety concerns, we can create a community that thrives with social cohesion, improved health, and enhances our quality of life.

City Council may:

• Approve; or,
• Not Approve

If the City Council, after holding a public hearing, passes a resolution placing a bond election on the ballot November 7, 2023, as proposed, bonds exceeding $142.8 million would be sold over the next five years.  The cost to the median homeowner will likely be in the range of $158 - $163 per year.

City Council is being asked to direct staff to schedule and public hearing and present a bond resolution to invest approximately $142.8 million into the community's parks, recreation, and trails assets.