Parks Maintenance Operations Plan

PREPARED BY:

OCTOBER 2015
 Park Maintenance Operations Plan

Table of Contents

CHAPTER ONE EXECUTIVE SUMMARY .............................................................................. 1

1.1 PROJECT PROCESS ..................................................................................................................... 1
1.2 KEY FINDINGS ................................................................................................................................ 2
CHAPTER TWO PARK CLASSIFICATION ............................................................................. 3
2.1 PARK CLASSIFICATIONS ............................................................................................................ 3
CHAPTER THREE TASK TIME ANALYSIS ............................................................................ 6
3.1 GENERAL PARKS AND GROUNDS MAINTENANCE ............................................................. 6
3.2 AQUATICS MAINTENANCE ......................................................................................................... 6
3.3 ATHLETIC FIELD MAINTENANCE .............................................................................................. 7
3.4 SPORTS PARK MAINTENANCE ................................................................................................. 8
3.5 EVENT CENTER MAINTENANCE ............................................................................................... 8
3.6 GOLF COURSE MAINTENANCE ................................................................................................. 9
3.7 RINGGOLD CIVIC PAVILION ....................................................................................................... 9
3.8 PARKS DIVISION SUMMARY .................................................................................................... 10
CHAPTER FOUR HIGH PRIORITY RECOMMENDATIONS ............................................. 11
4.1 WORK ORDER MANAGEMENT SYSTEM ............................................................................... 11
4.2 WORK PLANS BASED ON MAINTENANCE STANDARDS .................................................. 11
4.3 SYSTEMATIC APPROACH TO THIRD PARTY CONTRACTING OF SERVICES ............ 15
4.4 DEVELOPMENT OF PERFORMANCE MEASURES.............................................................. 15
4.5 ORGANIZATIONAL FUNCTIONALITY AND STRUCTURE ................................................... 18
CHAPTER FIVE MEDIUM PRIORITY RECOMMENDATIONS ......................................... 20
CHAPTER SIX - LOW PRIORITY BUT NECESSARY RECOMMENDATIONS.............. 23
CHAPTER SEVEN - MAINTENANCE STANDARDS COST ANALYSIS ........................ 24
7.1 COST ANALYSIS .......................................................................................................................... 24
CHAPTER EIGHT FUNDING OPTIONS................................................................................ 25
CHAPTER NINE CONCLUSION ............................................................................................. 30

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 Park Maintenance Operations Plan

CHAPTER ONE EXECUTIVE SUMMARY

1.1 PROJECT PROCESS

The process for developing the Maintenance Operations Plan for the Parks Division consisted of the
following elements:

1.1.1 REVIEW OF ORGANIZATIONAL DATA

Data has been provided to PROS by the City and this information can be broken down into five key sources
that are detailed below:
1. City of Brownsville Parks Division Policies
2. Management and Staff Input
3. Park Inventory and Assessment
4. Business operations information such as work plans, organizational charts and alternate service
provisions
5. Financial Information including budgets and high level task time analysis.

1.1.2 EVALUATION OF SERVICES

The Parks Division as whole and each of their functional lines of service were evaluated and
assessed. This evaluation has focused on the affirmation of the management practice and
organizational data review including but not limited to where the Brownsville Parks Division
stands on the following:
• Community values and level of community engagement;
• Operational philosophy;
• Contracting for services;
• Staffing levels;
• Work plans and maintenance standards;
• Business practices in the delivery of service;
• Internal working relationships and organizational structure;
• Planning and implementation efforts;
• Developing earned income strategies to off-set operational costs for the Division to operate in a
progressive manner.

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1.2 KEY FINDINGS

The objective of the Maintenance Operations Plan is to provide guidance for the staff involved in parks
and grounds maintenance to manage forward in an efficient manner. Changes will be required within the
City’s Parks Division to increase efficiency and effectiveness.
The following are the key findings that need to be addressed:
1. Work Order Management System - The Parks Division does not have a Work Order Management
System that identifies maintenance and asset replacement schedules. The lack of such a system
creates uncertainty around:
a. The longevity and replacement costs of the assets in the parks system because work being
performed is not quantitatively tracked.
b. The development of consistent preventative maintenance work plans.
c. The “actual unit cost” of park maintenance work being performed.
2. Maintenance Standards and Development of Work Plans – Through the review of limited data,
the PROS Consulting team determined that the Parks Division does have institutional and informal
routine maintenance practices in place. However, the maintenance practices have limited written
standards, are based on “one-size-fits-all” approach to parks maintenance and are inconsistently
applied in the field. Additionally, the high volume of special projects that are accommodated on
an annual basis makes it difficult for staff to adhere to these practices.
3. Systematic Approach to Third Party Contracting of Services - Given the varying cycles of
Brownville’s economy, it is imperative that the Division continually evaluate the capacity and cost
of service in the private sector. Currently without a work order management system, the Parks
Division cannot track unit activity costs and therefore cannot analyze the unit cost to perform
work internally against the unit cost to perform work by a third party vendor. Without this level
of analysis the division is unable to determine if it is more effective and efficient to perform work
in-house or to contract it out.
4. Organizational Functionality and Structure - The Parks Division does not have a process to tie
staffing levels to maintenance task frequency requirements. The key is to tie the right staff person
with the right skill set and pay level to the right maintenance requirement to achieve the
outcomes desired with the right equipment at the most efficient costs. A stronger more flexible
organizational structure is needed for the Division that gives them the ability to complete routine
maintenance within the system per the standards while being able to respond to the community
for every day requests and special projects.
5. Development of Performance Measures - Currently, the Parks Division does not have
performance measures in place. Without quantitative data and analysis, the Parks Division cannot
accurately determine how successful their services are in meeting their intended outcomes, as
well as the processes that produce them.

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 Park Maintenance Operations Plan

CHAPTER TWO PARK CLASSIFICATION

2.1 PARK CLASSIFICATIONS

PROS Consulting utilizes the following National Recreation and Park Association guidelines in classifying
park typology. It is important to be consistent in the classification of parks as maintenance standards for
parks are typically tied to its typology. PROS Consulting recommends that the City of Brownsville consider
reclassifying its park system according to the following definitions.

2.1.1 NEIGHBORHOOD PARKS

PURPOSE
This general classification of parks includes parks that serve neighborhoods and other residential areas of
the City. Neighborhood parks primarily offer a variety of active or passive recreation opportunities, or a
combination of both, in close proximity to residents and employment centers. Areas designated for
natural and/or cultural resource protection may also be included within these parks.

LOCATION & ACCESS

Neighborhood parks should be located to serve local residential neighborhoods, broader residential
communities and/or urban employment or mixed-use centers. Pedestrian, bicycle and/or car access is
appropriate depending on the setting and access features. School grounds also serve as neighborhood
parks and should be treated with the same experiences and length of stay.

CHARACTER & EXTENT OF DEVELOPMENT

Neighborhood parks primarily provide facilities for active or passive recreation, or both; areas for
scheduled and unscheduled recreation activities and social gathering places; and serve residential,
employment and mixed-use centers. In the City, park size will typically be at least ½ acre and less than 25
acres. Visits to neighborhood parks are typically less than two hours.
The character of Neighborhood parks may vary depending on their location within the City. In residential
settings, neighborhood parks will generally be larger than in urban parts of the City. Neighborhood parks
offer open space to those with little or no yards. Typical facilities may include open play areas,
playgrounds, courts, athletic fields, game areas, trails, trail connections, natural areas, picnic facilities and
facility lighting. The service area for Neighborhood parks is typically no more than 1 mile.
The user experience at neighborhood parks may be casual and informal, geared toward social interaction,
play and outdoor enjoyment, or may be more structured to support organized sports and park programs.
Co-Location of a mix of park uses and facilities that support both informal and structured activities is
increasingly necessary to meet the City’s diverse and varied recreation and leisure needs with minimal
available land. To the extent possible, facilities should be planned so that areas that address different
needs are compatible.

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2.1.2 URBAN PARKS AND GROUNDS

PURPOSE
Publicly accessible urban parks and grounds should include facilities that are pedestrian-oriented and
provide visual enhancement, a sense of identity, opportunities for social interaction, enjoyment of
outdoor open space and performing and visual arts.

LOCATION & ACCESS

Urban parks and grounds are generally integrated into mixed use developments or major employment
centers in areas of the City that are planned or developed at an urban scale. Primary elements of urban-
scale local parks are ease of non-motorized access and a location that complements, or is integrated with,
surrounding uses. Features may include urban style plazas, mini-parks, water features and trail
connections, oriented to pedestrian and/or bicycle use by employees and residents. Short-term, informal
activities and programmed events during lunch hours and after-work hours are intended to foster social
interactions among users, provide leisure opportunities, and create a visual identity to strengthen sense
of place and orientation.

CHARACTER & EXTENT OF DEVELOPMENT

Urban parks and grounds size is typically less than three (3) acres and can be as small as ½ acre. Service
area is generally within a 5-10 minute walking distance from nearby offices, retail and residences. To be
successful urban parks need high visibility, easy access, lots of pedestrian traffic, immediacy of casual food
service, access to basic utilities, landscaped vegetated areas, ample seating, high quality materials, a focal
point or identity, regular custodial maintenance, and an inviting and safe atmosphere. Visits to Urban
parks are typically one hour or less.

2.1.3 COMMUNITY PARKS

PURPOSE
Community Parks include larger parks that serve larger geographic areas of the City and provide a variety
of indoor and/or outdoor recreation facilities and park experiences. Portions of these parks may be
designated for natural and/or cultural resource protection.

LOCATION AND ACCESS

These parks are located throughout the City. Access should be available by the major roads and the
regional greenway network to encourage pedestrian and bicycle trips; public transit access is also
desirable. The service area can range from 3 to 6 miles. Size can range from 5 to 30 acres. Parking must
be provided.

CHARACTER AND EXTENT OF DEVELOPMENT

Community parks provide diverse opportunities for passive and active recreation uses. Generally,
facilities in these parks are larger in number and scale than at neighborhood Parks and support a longer
visit. Community parks may combine recreation-oriented complexes of developed facilities with areas of
the park that are undeveloped. The extent of development will depend on actual site conditions, such as

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 Park Maintenance Operations Plan

topography, amount of developable acreage, and access. Appropriate facilities include those that support
active and passive recreation, often clustered together, areas for programmed activities and gathering
places and areas designated for resource protection. Lighted facilities and extended hours of operation
are also present in these parks.
These parks offer diverse experiences and activities that typically involve an individual or group for a time
period of up to a half day and may attract spectators or participants. Typical recreation activities at
Community Parks include athletics, trail usage, swimming, gardening, skating, special events and
performing arts. Additionally, woodlands, open space, trails and open play areas are highly desirable
features. Sensitive environmental areas and cultural resource sites within the parks will be managed as
Natural or Cultural Resource Areas. Visits to Community parks are can range from two (2) to six (6) hours.

2.1.4 REGIONAL PARKS

PURPOSE
This park classification includes larger parks that serve regionally and provide a variety of large-scale
indoor or outdoor recreation facilities, or both, and facilities that are unique within the City. Areas
designated for natural and/or cultural resource protection may also be included within these parks.

LOCATION AND ACCESS

These parks may be located in an area of the City where available land can support a large-scale park
facility. Access should be available by the major arterials and the regional greenway network to encourage
pedestrian and bicycle trips; public transit is required. The service area is typically larger than 10 miles,
including areas outside the City limits. Park size is a minimum of 50 acres. Parking must be provided.

CHARACTER AND EXTENT OF DEVELOPMENT

Regional Parks provide diverse opportunities for passive and active recreation uses to a wide range of
simultaneous users. Generally, these parks provide complexes of intensively developed activity areas. The
complexes may include multiple facilities for the same activity, an assortment of different activity focuses
in one or more areas of the park, and/or unique facilities found in only one or a few parks within the entire
park system. Facilities in these parks are larger in scale than those found in Community Parks.
Regional Parks may combine larger complexes of developed areas with extensive natural areas. The extent
of development will depend on actual site conditions, such as topography, amount of developable
acreage, access and intensity of adjacent land uses. Appropriate facilities include those typically found in
Community Parks as well as the facilities unique to Regional Parks and the support uses necessary for a
full day activity such as concessions, lighting and restrooms. Formally scheduled community gathering
places and areas for large programmed activities and events are also typical.
These parks offer diverse experiences and activities that typically involve an individual or group for a time
period of up to a day and which may attract large numbers of spectators or participants. Typical activities
include those found in Regional Parks as well as facilities such as athletic complexes, recreation centers,
nature centers, golf courses, indoor gymnasiums, and indoor aquatic facilities. Sensitive environmental
areas and cultural resource sites within the parks will be managed as Natural or Cultural Resource Areas.
Visits to Regional parks are can range from two (2) to eight (8) hours.

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CHAPTER THREE TASK TIME ANALYSIS
As part of the development of the Maintenance Operations Plan, the Brownsville Parks Division conducted
a high-level task time analysis for the core areas in which it performs regular routine maintenance. The
following provides a summary of the results of this effort.

3.1 GENERAL PARKS AND GROUNDS MAINTENANCE

Brownsville Parks & Grounds

Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load 29.00 0.25 Day 1812.50 3%
Windshield Time 29.00 2.50 Day 18125.00 31%
Park Grounds Scheduled Maintenance 23.00 4.00 Day 23000.00 40%
Park Facility Scheduled Maintenance 23.00 1.00 Day 1150.00 2%
Recreation Facility Scheduled Maintenance Day 0.00 0%
Repair 5.00 1300.00 Year 6500.00 11%
Special Events 35.00 161.00 Year 5635.00 10%
Meetings/Training/Misc. Year 0.00 0%
End of Day Unload 29.00 0.25 Day 1812.50 3%
TOTAL 58035.00 100%

TOTAL WINDSHIELD and LOAD/UNLOAD 3.00 21750.00 37%

• 42% of all labor efforts for general parks and grounds maintenance is attributed to scheduled
maintenance. This equates to only 3.36 hours of every 8 hour day per person.
• 37% of all labor efforts for general parks and grounds maintenance is expended on traveling from
location to location as well as “loading and unloading” of equipment at the beginning and end of
each work day. This equates to 2.96 hours of every 8 hour day per person.
• Overall, approximately 5.06 hours (or 63%) of every 8 hour work day per person is spent
performing actual work. This falls slightly below the best practice guideline of 5.5 hours.
• Achieving the best practice guideline would equate to an additional 3,336 hours of actual work
performed annually.

3.2 AQUATICS MAINTENANCE

Aquatics
Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load 2.00 0.25 Day 125.00 3%
Windshield Time 2.00 0.50 Day 250.00 6%
Park Grounds Scheduled Maintenance 2.00 2.00 Day 1000.00 23%
Park Facility Scheduled Maintenance 2.00 4.00 Day 2000.00 45%
Recreation Facility Scheduled Maintenance 2.00 1.00 Day 500.00 11%
Repair 2.00 0.00 Year 0.00 0%
Special Events 2.00 175.00 Year 350.00 8%
Meetings/Training/Misc. 2.00 36.00 Year 72.00 2%
End of Day Unload 2.00 0.25 Day 125.00 3%
TOTAL 4422.00 100%

TOTAL WINDSHIELD and LOAD/UNLOAD 1.00 500.00 11%

• 68% of all labor efforts for aquatic maintenance is attributed to scheduled maintenance. This
equates to 5.44 hours of every 8 hour day per person.
• Only 11% of all labor efforts for aquatic maintenance is expended on traveling from location to
location as well as “loading and unloading” of equipment at the beginning and end of each work
day. This equates to ONLY 0.88 hours of every 8 hour day per person.

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• Overall, approximately 7.12 hours (or 89%) of every 8 hour work day per person is spent
performing actual work. This actual work rate is well above the best practice guideline for
aquatics of 6.5 hours.

3.3 ATHLETIC FIELD MAINTENANCE

Athletics
Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load 2.00 0.50 Day 250.00 6%
Windshield Time 2.00 2.00 Day 1000.00 24%
Park Grounds Scheduled Maintenance 2.00 4.50 Day 2250.00 54%
Park Facility Scheduled Maintenance 2.00 0.00 Day 0.00 0%
Recreation Facility Scheduled Maintenance 2.00 0.00 Day 0.00 0%
Repair 2.00 0.00 Year 0.00 0%
Special Events 2.00 208.00 Year 416.00 10%
Meetings/Training/Misc. 2.00 12.00 Year 24.00 1%
End of Day Unload 2.00 0.50 Day 250.00 6%
TOTAL 4190.00 100%

TOTAL WINDSHIELD and LOAD/UNLOAD 3.00 1500.00 36%

• 54% of all labor efforts for athletic field maintenance is attributed to scheduled maintenance. This
equates to only 4.32 hours of every 8 hour day per person.
• 36% of all labor efforts for athletic field maintenance is expended on traveling from location to
location as well as “loading and unloading” of equipment at the beginning and end of each work
day. This equates to 2.88 hours of every 8 hour day per person.
• Overall, approximately 5.12 hours (or 64%) of every 8 hour work day per person is spent
performing actual work. This falls slightly below the best practice guideline of 5.5 hours.
• Achieving the best practice guideline would equate to an additional 630 hours of actual work
performed annually.

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3.4 SPORTS PARK MAINTENANCE

Brownsville Sports Park

Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load Day 0.00 0%
Time in Shop (equip. checks, cleaning equip., etc) 4.00 1.00 Day 1000.00 3%
Windshield Time Day 0.00 0%
Park Grounds Scheduled Maintenance 4.00 12.00 Day 12000.00 33%
Park Facility Scheduled Maintenance 4.00 8.00 Day 8000.00 22%
Recreation Facility Scheduled Maintenance 4.00 8.00 Day 8000.00 22%
Repair Year 0.00 0%
Special Events 6.00 1150.32 Year 6901.92 19%
Meetings/Training/Misc. 6.00 12.00 Year 72.00 0%
End of Day Unload Day 0.00 0%
TOTAL 35973.92 100%

TOTAL WINDSHIELD, LOAD/UNLOAD, and SHOP 1.00 1000.00 3%

• 77% of all labor efforts for sports park maintenance is attributed to scheduled maintenance. This
equates to 6.16 hours of every 8 hour day per person.
• Only 3% of all labor efforts for sports park maintenance is expended on daily preparation. This is
to be expected as maintenance operations are all “contained” on-site at the sports park. This
equates to only 0.24 hours of every 8 hour day per person.
• Overall, approximately 7.76 hours (or 97%) of every 8 hour work day per person is spent
performing actual work. This actual work rate is well above the best practice guideline for on-site
sports complex maintenance of 7.0 hours.

3.5 EVENT CENTER MAINTENANCE

Brownsville Events Center
Maintenance Matrix
Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load Day 0.00 0%
Time in Shop (equip. checks, cleaning equip., etc) 7.00 0.50 Day 875.00 5%
Windshield Time Day 0.00 0%
Park Grounds Scheduled Maintenance 1.00 8.00 Day 2000.00 12%
Park Facility Scheduled Maintenance 7 6 Day 9625.00 58%
Recreation Facility Scheduled Maintenance 7.00 2.00 Day 3500.00 21%
Repair Year 0.00 0%
Special Events 2 280 Year 560.00 3%
Meetings/Training/Misc. Year 0.00 0%
End of Day Unload Day 0.00 0%
TOTAL 16560.00 100%

TOTAL WINDSHIELD, LOAD/UNLOAD, and SHOP 0.50 875.00 5%

• 92% of all labor efforts for event center maintenance is attributed to scheduled maintenance.
This equates to 7.36 hours of every 8 hour day per person.
• Only 5% of all labor efforts for event center maintenance is expended on daily preparation at the
beginning and end of each work day. This is to be expected as maintenance operations are all
“contained” on-site at the event center. This equates to only 0.4 hours of every 8 hour day per
person.
• Overall, approximately 7.6 hours (or 95%) of every 8 hour work day per person is spent performing
actual work. This actual work rate is well above the best practice guideline for on-site event center
maintenance of 7.0 hours.

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3.6 GOLF COURSE MAINTENANCE

Brownsville Golf Course

Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load Day 0.00 0%
Time in Shop (equip. checks, cleaning equip., etc) 5.00 0.50 Day 625.00 5%
Windshield Time Day 0.00 0%
Park Grounds Scheduled Maintenance 4.00 7.50 Day 7500.00 62%
Park Facility Scheduled Maintenance 2.00 7.50 Day 3750.00 31%
Recreation Facility Scheduled Maintenance Day 0.00 0%
Repair 3.00 60.00 Year 180.00 1%
Special Events Year 0.00 0%
Meetings/Training/Misc. Year 0.00 0%
End of Day Unload Day 0.00 0%
TOTAL 12055.00 100%

TOTAL WINDSHIELD, LOAD/UNLOAD, and SHOP 0.50 625.00 5%

• 93% of all labor efforts for golf course maintenance is attributed to scheduled maintenance. This
equates to 7.44 hours of every 8 hour day per person.
• Only 5% of all labor efforts for event center maintenance is expended on daily preparation at the
beginning and end of each work day. This is to be expected as maintenance operations are all
“contained” on-site at the golf course. This equates to only 0.4 hours of every 8 hour day per
person.
• Overall, approximately 7.6 hours (or 95%) of every 8 hour work day per person is spent performing
actual work. This actual work rate is well above the best practice guideline for golf course
maintenance of 7.0 hours.

3.7 RINGGOLD CIVIC PAVILION

Ringgold Civic Pavilion

Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load Day 0.00 0%
Time in Shop (equip. checks, cleaning equip., etc) 5.00 0.50 Day 625.00 5%
Windshield Time Day 0.00 0%
Park Grounds Scheduled Maintenance Day 0.00 0%
Park Facility Scheduled Maintenance 5.00 7.50 Day 9375.00 75%
Recreation Facility Scheduled Maintenance Day 0.00 0%
Repair Year 0.00 0%
Special Events 3.00 832.00 Year 2496.00 20%
Meetings/Training/Misc. Year 0.00 0%
End of Day Unload Day 0.00 0%
TOTAL 12496.00 100%

TOTAL WINDSHIELD, LOAD/UNLOAD, and SHOP 0.50 625.00 5%

• 75% of all labor efforts for the Ringgold Civic Pavilion maintenance is attributed to scheduled
maintenance with another 20% being attributed to special events. This equates to 7.6 hours (or
95%) of every 8 hour day per person. This is to be expected as maintenance operations are all
“contained” on-site at the pavilion. This equates to only 0.4 hours of every 8 hour day per person
being spent on daily preparation.

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3.8 PARKS DIVISION SUMMARY

Brownsville Parks Division Summary

Maintenance Matrix
Task # of Staff Hours Spent Per Total Annual Manhours Percentage of Time
Morning Load 33.00 1.00 Day 2187.50 2%
Windshield Time 33.00 5.00 Day 19375.00 14%
Park Grounds Scheduled Maintenance 36.00 38.00 Day 47750.00 34%
Park Facility Scheduled Maintenance 45.00 33.50 Day 33900.00 24%
Recreation Facility Scheduled Maintenance 15.00 11.00 Day 12000.00 9%
Repair 12.00 1360.00 Year 6680.00 5%
Special Events 50.00 2806.32 Year 16358.92 12%
Meetings/Training/Misc. 10.00 60.00 Year 168.00 0%
End of Day Unload 33.00 1.00 Day 2187.50 2%
TOTAL 140606.92 100%

TOTAL WINDSHIELD and LOAD/UNLOAD 7.00 23750.00 17%

• Given that “on-site” maintenance operations exist at four of the seven core areas in which the
Parks Division performs maintenance, the potential for “unproductive work time” (travel time and
load/unload) has been greatly minimized.
• Opportunities to further reduce “unproductive time” exists within Parks and Grounds and Athletic
Field Maintenance. Efforts to meet best practice guidelines can increase actual work performed
by nearly 4,000 hours (or the near equivalent of 2 FTE).

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 Park Maintenance Operations Plan

CHAPTER FOUR HIGH PRIORITY RECOMMENDATIONS

4.1 WORK ORDER MANAGEMENT SYSTEM

The Parks Division does not have a Work Order Management System that identifies maintenance and
asset replacement schedules. The lack of such a system creates uncertainty around:
• The longevity and replacement costs of the assets in the parks system because work being
performed is not quantitatively tracked.
• The development of consistent preventative maintenance work plans.
• The “actual unit cost” of work being performed.
• Task-time data for work that is being performed.
The Division should consider a system such as Lucity, Cityworks, or Cartegraph. These examples are asset
and work order management software systems that could be include a work order system for the park
maintenance operation program. This work order system will be used to track lifecycle maintenance
requirements that are tied to weekly and monthly work order requirements. This will help the staff to
stay ahead of preventative maintenance requirements and limit breakdowns. Further, the system will
also provide staff the necessary “actual cost” data for work being performed. The costing process allows
the staff to track the cost of maintenance at a unit cost level – costs on a per function basis based on
staffing costs, level of task frequency, the type of equipment and supplies used, as well as the utility costs.
Primary functions of work where the determination of actual costs will be beneficial in future strategic
operational planning and where opportunities exist to recover costs through user fees are as follows:
• Special Projects
• Athletic Field Maintenance
• Landscape Beautification
It will be necessary to dedicate one full-time employee to the management of the system to ensure proper
implementation, utilization, training, data integrity and reporting.

4.2 WORK PLANS BASED ON MAINTENANCE STANDARDS

Through the review of limited data, PROS Consulting determined that the Parks Division does have
“institutional and informal” routine maintenance practices in place. However, the maintenance practices
have limited written standards, are based on “one-size-fits-all” approach to system wide community,
neighborhood, and Urban Parks maintenance and are inconsistently applied in the field. Additionally, the
high volume of special projects that are accommodated on an annual basis makes it difficult for staff to
adhere to these practices. The maintenance standards, as detailed on the following pages, are based on
a Level (1), (2) and (3) modes (tasks and frequencies of each task) and follow best practices as established
by the National Recreation and Park Association. The Division can customize the standards based on the
park and recreation values of the Brownsville community and need to be adopted and implemented by
staff and followed regardless of whether work is performed by City staff or third party contractors.

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4.2.1 GENERAL PARK MAINTENANCE
GENERAL PARKS MAINTENANCE
Both the frequency and timeframe vary for each level.
Level 1 Level 2 Level 3
Task Frequency Frequency Frequency

Turf

Mow/Trim/Blow Clippings 1x/5 days 1x/7 to 10 days 1 or 2x/year

Aerate 2x/year 1x/year As needed

Overseed 1x/year As needed Not performed

Fertilize 2 to 4x/year 1x/year Not performed

Apply weed control 1x/year and as needed As needed As needed

1x/month and as
Trim Shrubs needed
1x/year As needed

Pick up trash prior to mowing 1x/5 days 1x/10 days 1x/10 days

Control pests As needed As needed As needed

Manage leaves 2x/year and as needed 2x/year and as needed 1x/year

Line Trim 1x/week 1x/week Monthly

Edge 1x/month 1x/year As needed

Pavilion/Shelters

Clean and sweep 1x/week As needed As needed

Remove and/or replace Garbage Bags and

Daily As needed As needed
Trash cans
Paint Pavilion 1x/year 1x/2 years As needed

Power wash 1x/week 2x/year As needed

Inspect Electrical System Limited to

1x/year 1x/year 1x/year
Power Supply
Inspect Picnic Tables 1x/week 1x/week or as needed Monthly

Restrooms
2x/day (weekdays); 1x/day (weekdays);
Clean and restock 2x/day (weekends) 2x/day (weekends)
Daily

Odor removal 7x/week 7x/week Weekly

Repair vandalism As needed As needed As needed

Remove and/or replace Garbage Bags and

7x/week 7x/week 2x/week
Trash cans
Mechanical Inspection (plumbing) 1x/month 1x/month 1x/month

Schedule Lighting, Mechanical Systems 1x/week 1x/week 1x/year

Seasonal start-up and close-up 2x/year 2x/year 1x/year

Fence
1x/year and following 1x/year and following
Inspect 1x/week
storms storms

Repair As needed As needed As needed

Replace As needed As needed As needed

Repaint As needed As needed As needed

Vegetation Control 1x/year and as needed 1x/year and as needed 1x/year and as needed

Mulching

Apply Mulch 2x/year 1x/year As needed

Weed Control 2x/year 1x/year As needed

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4.2.2 PLAYGROUNDS

PLAYGROUNDS
The difference in levels is the frequency of the task. Timeframes are the same for every level.
Level 1 Level 2 Level 3
Task Frequency Frequency Frequency

Inspect and document Weekly Monthly (7x/year) Bi-Monthly(4x/year)

Major Annual Inspection Annually Annually Annually

Repair As needed Monthly As needed

Clean and pickup trash Daily Weekly Weekly

Remove graffiti As needed As needed As needed

Inspect water fountains, where applicable Weekly Monthly As needed

Rake fiber mulch Weekly Monthly Monthly

Seal rubberized, poured in place Annually Annually Every 2 years

Supplementing Fiber Mulch Annually Every two years As needed

Replace Every 15 years Every 15 years As needed

Inspect for Pests/Bees/etc Weekly Monthly As needed

4.2.3 FLORAL

FLORAL
Both the frequency and timeframe vary for each level.
Level 1 Level 2 Level 3
Task Frequency Frequency Frequency
Plant landscape flowers (perennial) 2x/year 1x/year 1x/year

Flowerbed preparation 1-2x/year 1x/year 1x/year

Mulch 1x/year and as needed 1x/year 1x/year

Aeration, Fertilizer, Weed Control 1x/2 weeks or as needed 1x/monthly Annually

Create floral display 3x/year 1-2x/year As needed/requested

Clean weeds from beds 1x/week or as needed Monthly 2x/year

Prune and deadhead flowers 1x/week Monthly Bi-Monthly

Edge Beds 1x/year and as needed Every 2 years Every 2 years

Cut back ornamental grasses and plants 1x/year 1x/year Annually

Water (hand watering) As needed As needed As needed

Inspect and adjust irrigation heads 1x/week Monthly As needed

Replace/supplement Bulbs 1x/2 years 1x/3 years 1x/3 years

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4.2.4 GROUNDS MAINTENANCE

GROUNDS MAINTENANCE
Both the frequency and timeframe vary for each level.
Level 1 Level 2 Level 3
Task Frequency Frequency Frequency

General Maintenance
Mow/Trim/Blow Clippings 1x/5 days 1x/7 to 10 days 1 or 2x/year

Aerate 2x/year 1x/year As needed

Overseed 1x/year As needed Not performed

Fertilize 2 to 4x/year 1x/year Not performed

Apply weed control 1x/year and as needed As needed As needed

1x/month and as
Trim Shrubs needed
1x/year As needed

Pick up trash prior to mowing 1x/5 days 1x/10 days 1x/10 days

Control pests As needed As needed As needed

Manage leaves 2x/year and as needed 2x/year and as needed 1x/year

Line Trim 1x/week 1x/week Monthly

Edge 1x/month 1x/year As needed

Monuments
4x/year and following 1x/year and following
Inspect 1x/week
storms storms

Repair As needed As needed As needed

Replace As needed As needed As needed

Graffiti Removal As needed As needed As needed

Vegetation/Weed Control 4x/year 2x/year 1x/year and as needed

Mulching

Apply Mulch 2x/year 1x/year As needed

Weed Control 2x/year 1x/year As needed

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 Park Maintenance Operations Plan

4.3 SYSTEMATIC APPROACH TO THIRD PARTY CONTRACTING OF SERVICES

Given the service and special project requests that the City of Brownsville Parks Division receives, the
need for Parks staff to be flexible and reactive to citizens is high. Currently, priority is often placed on the
resolution of citizen requests which in turn “pulls Parks staff away” from the routine planned work. By
expanding contracting services in areas where routine work is able to be planned and the scope of work
defined, not only can potential cost savings be realized, but an even greater level of customer satisfaction
can be achieved as not only will the routine work be completed as scheduled but Parks will be even more
responsive to citizen requests. Opportunities exist to expand third party contracting across all
neighborhood and community parks.
Given the “varying” cycles of Brownsville’s economy, it is imperative that Parks continually evaluate the
capacity and cost of service in the private sector. Through the development of a managed competition
process, the Parks Business Unit must begin to track unit activity costs through the implementation of a
work order management system and in turn, would internally analyze each fall the unit cost to perform
work internally against the unit cost to perform work by a third party vendor. The introduction of
managed competition will reinforce the concept of performing work in an effective and efficient manner
by striving to meet unit cost and level of productivity targets as established by new performance
measures. This will provide The City with the opportunity to strike a balance of total work performed
between City staff and that of a contractor.
As the Parks Division continues to turn to the private sector for park maintenance services, quality control
processes must be developed and institutionalized. The establishment of these processes and the cost of
implementing them must be considered. It is recommended that the Agronomy Specialist provide direct
oversight of contract administration for every function the city chooses to pursue with the private sector.
The processes will hold the vendor accountable to the standards set forth in the scope of work, and also
result in a consistent level of maintenance across the system. Most importantly, the “park experience”
will meet the expectations of citizens of Brownsville.

4.4 DEVELOPMENT OF PERFORMANCE MEASURES

Currently, the Parks Division does not have true performance measures in place to measure the
effectiveness or efficiency of the operation.
Performance measures should quantitatively inform organizations about how successful their services are
in meeting their intended outcomes, as well as the processes that produce them. They are a critical tool
that assists in the understanding, management, and improvement of organizations. Performance
measures provide organizations with the information necessary to make intelligent decisions about work
that is performed.
Performance measures can tell us:
• How successful work is being performed
• If processes are in statistical control
• If goals are being met
• If and where improvements are necessary
• If customers are satisfied

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Performance measures in recent years have become the backbone of successful organizations and moved
beyond the simple collection of facts that measure volume of work. The key components of modern
performance measurement are:
• Outcomes are the benefits or changes for participants in programs or recipients of services during
or after the program or strategy is implemented.
• Inputs are the physical, financial and human resources allocated to or consumed to do work
• Activities are what the program or strategy does with the inputs provided. Activities include the
tasks, steps, methods, techniques and operations performed
• Outputs are the elements of operation or level of effort, the products or services resulting from
the implementation or accomplishment of work.
• Efficiency is measured by the unit cost required to perform the work in terms of dollars. “How
well did you “use” your budget to perform work?”
• Effectiveness is a service quality measure of the work that you performed. Effectiveness is
measured in % of work you set out to perform.
The performance measures on the following page are an example of the type of measures that the Parks
Division should develop and implement to determine the level of success in which it is accomplishing
work.

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 Park Maintenance Operations Plan

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4.5 ORGANIZATIONAL FUNCTIONALITY AND STRUCTURE

The Parks Division does not have a process to tie staffing levels to maintenance task frequency
requirements. The key is to tie the right staff person with the right skill set and pay level to the right
maintenance requirement to achieve the outcomes desired with the right equipment at the most efficient
costs. By developing a plan that focuses on organizational sustainability, the division will not only be able
to further develop a highly professional staff, but also ensure that the division can seamlessly manage
itself forward. Brownsville’s workforce management planning must be a conscious effort to build and
sustain a competent workforce, a process that begins with intake. The building of organizational
competence to both create a competitive pool of talent and preserve levels of performance is ultimately
dependent on specific internal and external actions that achieve workforce planning outcomes. The
following table outlines the key components to building organizational sustainability
A stronger more flexible organizational structure is needed for the Division that gives them the ability to
complete routine maintenance within the system per the standards while being able to respond to the
highly engaged Brownsville community for every day requests and special projects.

BUILDING
WORKFORCE
INTAKE ORGANIZATIONAL
SUSTAINABILITY
COMPETENCE
Recruitment Leadership Training
Infrastructure (cross-dept. Individual Development
Interview process
task mgmt.) Plans
Pre-hire skills & Focus on skills, knowledge
Mentoring
attitude assessment and productive attitude
New employee Community & Inter-Agency
Post separation consulting
orientation engagements
Culturally competent
Probation review programs, services and Experiential learning
workplace
Teaching/learning
Performance-based modeling
experiences
Operational adaptability
Creative problem solving
Training

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 Park Maintenance Operations Plan

If it is necessary to develop a process to fully realize the benefits of a concentrated focus on the effective
and efficient development and implementation of special projects, PROS Consulting recommends the
following proactive process:
• September – meet with community stakeholders to gather input for special project
requests for the following fiscal year.
• September-November – Develop concepts for special projects, including budget.
• December-January – Affirm concepts with community stakeholders and submit as
part of annual budget process
• May – Report back to community stakeholders which projects can be implemented
based on budget appropriation and communicate details of project including
conceptual designs, timelines, communication process.
• July – Begin implementation of special projects

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CHAPTER FIVE MEDIUM PRIORITY RECOMMENDATIONS
Based on the site visits and discussions with the Director, the Superintendent and staff the following other
recommendations should be considered for implementation in the future.

5.1.1 EMERGENCY RESPONSE PRACTICES

PROS did not observe a detailed emergency response plan in the data provided to them by the staff. All
staff have cell phones to access emergency work teams such as police and fire. PROS did not observe a
HAZMAT plan for the division, but the City of Brownsville has a plan that could be modified and adopted
by Parks.

5.1.2 MAINTENANCE AND POLICY AND PROCEDURES MANAGEMENT

The staff has limited maintenance policy and procedures manuals in place with the exception of human
resources policies on managing full-time, part-time and seasonal staff. Policy and Procedure Manuals
should be developed to address the following:
• Training for staff and volunteers
• Standards for Park Maintenance, Landscape Maintenance
• Equipment Management
• Supply Inventory and control
• Equipment Inventory and Control
• Storage of Equipment
• Emergency Management Practices
• HAZMAT requirements
• Security Requirements
• First Aid and Injury
• Communication and Use of Radios
• Work Orders
• Repair of Equipment Requirements
• Preventative Care of Equipment Requirements
• Technology Use and Management
• Small Tools Management
• Data Tracking Requirements
• Inspection Management
• Asset Management and Preventative Care of Equipment

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 Park Maintenance Operations Plan

5.1.3 STAFF TRAINING BY JOB FUNCTION

The staff indicates they get training on a scheduled basis for first aide and hazardous materials. Other
training is supplied by equipment dealers for training on equipment purchased. Most of the training is on
the job training which is accomplished by working with or next to full-time staff. Each maintenance staff
person should have a training matrix of what the Administrator and Superintendent desires from them
and checked off as completed or not completed as part of their annual evaluation. Training for
maintenance employees should be in the following areas:
• Use of equipment training
• Customer service
• First Aide
• HAZMAT - Emergency Response
• All human resource training such as working with difficult people, diversity, etc.
• Plant and tree care training
• Working with seasonal, part-time and volunteers
• Technology training
• Fire Training
• Incident reporting training
• Non-native species training
• Preventative maintenance training
• Work order training

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5.1.4 CAPITAL IMPROVEMENT CRITERIA AND DECISION MAKING
The Parks Division has a loosely defined capital improvement criteria and decision making process they
follow. The capital improvements plans are developed as part of the annual budget based on the needs
of the various parks in the system. Developing criteria for what capital improvements make the most
sense to invest in will help the City achieve the goals they desire.
The purpose of the Capital Projects Evaluation Model (CPEM) is to evaluate proposed capital projects
across numerous financial and business variables, while accounting for measures of public need, health
and safety, regulatory, and mission‐oriented priorities of the City.
This model should not be used as a sole determination of the priority of capital projects, but can be utilized
as a component of the evaluation process to determine those priorities.

RESULTS
The results of the model are produced in two phases:
• Cost Benefit Ratio (Cost Benefit Model)
• Total Project Prioritization

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 Park Maintenance Operations Plan

CHAPTER SIX - LOW PRIORITY BUT NECESSARY RECOMMENDATIONS

• Implement a consistent, multi-faceted communication process that continually communicates

expectations and progress for the outcomes that the division is trying to achieve.
• On-site intercept surveys of user satisfaction levels should be conducted at least 3 times a year
during the months of February, May and October to capture comments from all park users.
• Improve signage in some parks and trails.
• Develop design standards and principles to support reduced operational costs.

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CHAPTER SEVEN - MAINTENANCE STANDARDS COST ANALYSIS
PROS created appropriate frequency standards for mowing, edging, restroom cleaning, trash removal,
turf care, trail maintenance, and natural area care against current practices. From this information, PROS
has provided functional cost of service targets that include direct costs and indirect costs associated with
providing maintenance tasks to assist in measuring the allocation of costs to results derived. These results
are to be compared to the current unit cost of services provided by third party contractors.

7.1 COST ANALYSIS

The City of Brownsville currently does not track costs of service beyond a “rolled-up” line item budget and
a true cost of service is not provided in this plan.
As Brownsville Parks develops a work order management system, it is imperative that it track costs for
the following major functions of work to determine its true annual cost of service:
• Sports Park
• Brownsville Event Center
• Dean Porter Park overall and the enterprises within (e.g., Ringgold Civic Pavilion, Children’s
Museum, Camille Playhouse, Sam’s Memorial Pool, etc.)
• Aquatics
• Athletic Fields
• Neighborhood Parks
• Community Parks
• Regional Park Conservation Areas
• Trails
• Irrigation
• Special Projects and Citizen Requests
Once actual unit costs are established for the major functions, Brownsville Parks can begin tracking costs
at a task level (mowing, restroom cleaning, trash removal and begin making data-driven, informed
decisions on what is the more efficient way to provide services: in-house or expanding third party
contracting.
The following represent annual cost per acre targets in Southern California as derived from the National
Recreation and Parks Association for the following park classifications:
• Natural Turf Athletic Fields maintained at a Level 1 maintenance standard - $12,500/acre
• Natural Turf Athletic Fields maintained at a Level 2 maintenance standard - $9,000/acre
• All Weather Turf Athletic Fields - $4,000/acre
• Community Parks maintained at a Level 2 maintenance standard - $8,500/acre
• Neighborhood Parks maintained at a Level 2 maintenance standard - $5,000/acre
• Regional Park Conservation Areas maintained at a Level 3 maintenance standard - $3,500 per acre

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 Park Maintenance Operations Plan

CHAPTER EIGHT FUNDING OPTIONS

In order to continue to build and maintain the park system, the Division should pursue funding sources
for operations and capital improvement projects, such as those presented in this section.
New, sustainable funding sources are essential to creating a sustainable system. The Division has relied
heavily on taxes and impact fees to support the system. The key to the future is to diversify the sources
of funding. However, these sources need to be committed on a long-term basis to assure a continuing
income stream. There is substantial potential for increasing revenues for the park system while still
providing affordable public recreation opportunities. The following are suggested funding options:

8.1.1 EXTERNAL FUNDING SOURCES

Each of these sources can be evaluated in more detail to determine the level of funding they would yield
if pursued aggressively. External funding sources are those that leverage funding from outside the
traditional revenue and debt-service sources.

FOUNDATION
A foundation partnership is a joint-development funding source or operational funding source between a
foundation and a government agency. The foundation operates as a non-profit organization, working on
behalf of the public agency to raise needed dollars to support its vision and operational needs.
The dollars raised by the conservancy are tax-exempt. Foundations promote specific causes, activities, or
issues that a park-and-recreation system needs to address. They offer a variety of means to fund capital
projects, including capital campaigns, gifts catalogs, fundraisers, endowments, sales of park-related
memorabilia, etc.
Private donations may be received in the form of cash, securities, land, facilities, recreation equipment,
art, or in-kind services. Donations from local and regional businesses as sponsors of events or facilities
should be pursued.

FRIENDS ASSOCIATION
Friends associations are a foundation that typically are formed to raise money for a single purpose, such
as a park facility or program that will better the community as a whole and, at the same time, meet special
interests.

IRREVOCABLE REMAINDER TRUSTS

These trusts are established for individuals who typically have more than $1 million in wealth. They agree
to leave a portion of their wealth to a park-and-recreation system in a trust fund that grows over time.
The system is able to use a portion of the interest to support specific facilities or programs that are
designated by the trustee.

CORPORATE AND PERSONAL LEAD GIVING

Corporate and personal giving involves the Division seeking corporate lead funds or personal lead gifts via
a foundation partner or through personal contacts that are used to catalyze wider giving in support of a
specific project or operation. The lead donations set the precedent for additional giving over a period of
one year up to five years. Often those who have given or pledged contributions are invited to a recognition
event, which may include additional opportunities for contribution through auctions, for example.

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GRANTS
The grant market continues to grow annually. Grant writers and researchers are essential if the Division
is to pursue grants. Matching dollars are required for most federal grants and many state grants. The
types of grants available to the Division include:
• Safe Routes to Schools
• Federal Transportation Enhancement Grants (FHWA)
• Land and Water Conservation Fund (LWCF) Grants
• Community Development Block Grants (CDBG)
• Economic Development Administration (EDA) Grants
• Storm-water grants that limit the storm-water runoff in and through parks
• Trail Enhancement Grants for regional trails systems
• Development grants from community foundations to support specific park projects
• Redevelopment grants to support parks and facilities that will increase revenue from the
enhanced value of property or from activities that create sales and tourism taxes

DONATIONS
Private donations are a popular form of fundraising by public agencies, particularly for facilities and
services that are highly visible and valued by the public. Donations can either be received directly by the
City or channeled through a foundation or conservancy aligned with the City’s park, recreation, and trail
priorities. Donations can be made through one or more of the following methods:
• Donations of cash to a specific park or trail segment by community members and businesses
• Donations of services by large corporations to reduce the cost of park or trail implementation,
including equipment and labor to construct and install elements of a specific park or trail
• Reductions in the cost of materials purchased from local businesses that support parks and trails
implementation, and can supply essential products for facilities

ADOPT-A-TRAIL PROGRAMS
These are typically small-grant programs that fund new
construction, repair or renovation, maps, trail brochures, and
facilities (bike racks, picnic areas, birding equipment, etc.), as
well as providing maintenance support. These programs are
similar to the popular “adopt-a-mile” highway programs most
states utilize. Adopt-a-trail programs can also take the form of
cash contributions in the range of $12,000 to $16,000 per mile
to cover operational costs.

ADOPT-A-PARK PROGRAMS
These are small-grant programs that fund new construction and
provide maintenance support. Adopt-A-Park programs can also take the form of cash contributions in the
range of $1,000 to $5,000 per acre to cover operational costs.

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 Park Maintenance Operations Plan

PARTNERSHIPS – DEVELOPMENT AND/OR OPERATION

Partnerships are joint-development funding sources or operational funding sources formed from two
separate agencies, such as two government entities, a non-profit and a public agency, or a private business
and a public agency. Two partners jointly develop revenue-producing park and recreation facilities and
share risk, operational costs, responsibilities, and asset management based on the strengths of each
partner.

8.1.2 INTERNAL FUNDING SOURCES

The following examples of internal-funding opportunities can be evaluated in more detail to determine
the level of funding they would yield if pursued aggressively. Such sources involve the expansion or
enhancement of the traditional revenue and debt-service means of the municipality, that is, they derive
from already-existing financial capabilities.

DEDICATED FUNDING SOURCES

Municipalities can dedicate a percentage of sales tax, various fees, or millage to park and trail projects.
The percentage can be increased or maintained every 10 years. The revenues generated from dedicated
funding sources typically go toward operations-and-maintenance costs of managing park sites, programs
and trails in accordance with the community’s expectations. These sources can also offset the costs of
incremental upgrading and replacement of existing park-and-recreation amenities.

DEDICATED MILLAGE
This source provides the opportunity for the park-and-recreation system to demonstrate how well it is
meeting the community’s needs through a voter-approved millage. In the last five years in the United
States, 93% of all park-related bond and millage issues have passed. Communities demonstrate the value
of parks when given the opportunity to vote on an increase.

PARK, OPEN SPACE, AND TRAIL BOND ISSUES

Cities typically seek park bonds to meet park-related needs. The key is to use debt financing through bonds
to address needs that are both unmet and clearly a community priority. It is best to propose a capital-
bond project that serves a variety of users and needs. Even in the worst economic downturn, bond issues
have been passing because communities are the direct recipient of the money, and it benefits families on
a personal basis.

8.1.3 FEES, LAND LEASES, AND TAX-INCREMENT FINANCE OPPORTUNITIES

USER FEES
User fees are fees paid by a user of recreational facilities or programs to offset the costs of services
provided by the Division in operating a park or a recreation facility, or in delivering programs. A perception
of “value” needs to be instilled in the community for the benefits the City is providing to the user for
exclusive use. Future fees could be charged by the Division based on cost-recovery goals for the parks and
core recreation services, based on the level of exclusivity the user receives compared to the general
taxpayer. The consultant highly recommends that user fees for programs and facilities continue to be
charged in order to create value and provide operational revenues. If the City feels that it cannot increase
user fees, then it might consider contracting with a non-profit entity to manage its recreation facilities

27
and programs. The City then could take the dollars it has invested in staff members and in subsidized
recreation facilities, and use those dollars to support an improvement bond for existing parks and to build
new parks and recreation facilities. This would change the role of the City to that of a facility provider only
versus a facility provider and program operator. The cost savings could be substantial.

CAPITAL-IMPROVEMENT FEES
Many park-and-recreation systems add a capital-improvement fee onto an existing user fee when they
develop or enhance major recreation facilities. This is usually applied to golf courses, aquatic facilities,
recreation centers, ice rinks, amphitheaters, and special-use facilities like sports complexes. The dollars
gained either offset the cost of the capital improvement or the revenue bond that was used to develop or
enhance the special-use facility. Once the capital improvement is paid off, the fee typically expires and is
discontinued.

CATERING PERMITS AND SERVICES

This allows caterers to work in the park-and-recreation system on a permit basis with a set fee or a
percentage of food sales returning to the Division. Many Divisions have their own catering-service
contracts and receive a percentage (10-15%) from the sale of food and drinks. This may be most suitable
for large or special events occurring on City-owned properties. Another form of fee income is the
temporary business license.

PRIVATE CONCESSIONAIRES OPERATING WITHIN A LAND LEASE

Contracts with private businesses to provide and operate desirable recreational activities provide
compensation to the Division through a land lease. Contractors may include coffee shops, grill and food
concessions, small restaurants, ice cream shops, bicycle shops, farmers markets, and small l businesses.
Land leases are usually based on 15% of the value of the land plus a percentage of gross revenues from
the contractor on an annual basis.

REGIONAL “CANNED” EVENTS

Many city and county park-and-recreation systems have contracted for special events that produce large
revenues. The City can support the event with volunteers, and the event is managed by the private,
franchised agency for a set access fee that is paid by either the City or its partners, who then receive a
percentage of gross revenues from the event.

TAX-ALLOCATION OR TAX-INCREMENT FINANCING DISTRICT

Commonly used for financing redevelopment projects, a Tax Allocation District (TAD) or a Tax Increment
Financing (TIF) District involves the issuance of tax-exempt bonds to pay front-end infrastructure and
eligible development costs in partnership with private developers and local businesses that benefit from
the improvement. As redevelopment occurs, the tax increment” resulting from redevelopment projects
is used to retire the debt that was issued to fund the eligible redevelopment costs. The public portion of
the redevelopment project funds itself using the additional taxes generated by the project. TADs or TIFs
can be used to fund park improvements and development as an essential infrastructure cost. This
approach works well in downtown redevelopment, regional park improvements, and in trail development.

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 Park Maintenance Operations Plan

ADVERTISING SALES
Advertising can occur with sports complexes, scoreboards, gym floors, trash cans, playgrounds, locker
rooms, dog parks, trails, flower pots, and as part of special events held in the city to pay for operational
costs.

MAINTENANCE ENDOWMENT FUND

This is a fund dedicated exclusively for a park’s maintenance and is funded by a percentage of user fees
from programs, events, and rentals. The fee is paid by players, teams, or other users and is added to a
dedicated fund for facility and equipment replacement, such as fitness equipment, water slides, lights,
artificial turf, and park-maintenance equipment.

PARK REVOLVING FUND

This is a dedicated fund replenished on an ongoing basis from various funding sources such as grants,
sponsorships, advertising, program-user fees, and rental fees within one or more parks. The City could
establish a revolving fund to supported maintenance at multiple parks.

PERMIT FEES
This fee could apply to the exclusive reservation of picnic shelters, sports fields, special events, and
competition tournaments held in the city by other organizations. Permit fees include a base fee for all
direct and indirect costs to provide the space on an exclusive basis plus a percentage of the gross
revenues. The income could be applied to the park revolving fund to support park improvements.

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CHAPTER NINE CONCLUSION
The City of Brownsville’s parks system is a defining asset and a key natural resource. The desirability and
value the parks system a key attractor for residents and visitors alike. Currently, Brownsville’s parks are
generally in good condition despite the lack of several key formal standard operating procedures.
This Maintenance Operations Plan provide key recommendations that if implemented will improve not
only the parks system as a whole, but create an even more efficient and effective service delivery model
that is financially more sustainable. The key is to align the goals for Brownsville’s parks system with
current and future resources as well as the expectations, values and recreational desires of the
community.
As the Division implements this plan additional areas of study are recommended and include the
following:
• Detailed Time-task Analysis
• Private Sector Market Analysis
• Business Plan for Dean Porter Park
• Development of managed competition process
• Work order management system development
• Performance measure development

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