Following the leaders: parks and recreation in Lee's Summit thrived when citizens were put in control

Lee's Summit, Mo., is undergoing a transformation that's truly for the people and by the people. Massive street improvements, water and sewer expansion, a new public works maintenance facility, hundreds of acres of new park land, a new recreation center, new neighborhood parks, a 38-mile greenway and new schools are among the new community assets gained since Lee's Summit implemented a management model that moves responsibility of the city's future directly into the hands of its citizens.

The growth of the community in the last two decades has had a profound effect on its citizens, their public services and their city's infrastructure. During the 1990s, more than 1,000 building permits were issued each year, and the schools added more than 600 school children per year. The community's population grew from 40,000 to more than 60,000 in under a decade. There was also a marked public apathy toward issues. Tax initiatives for schools and the city had met with marginal success. It was difficult to engage citizen groups to address issues. This was in part caused by the unfamiliarity of issues to the new residents. Because most of the growth was from young families, there was also a marked lack of engagement in community issues owing to their family and work responsibilities. It was evident that a new approach was needed to encourage citizens to address the challenges the community faced.

The city's past practices in addressing planning treated citizens as passive consumers of information. The approach fostered a mistrust of government despite its worthy intentions to meet community needs. There was no ownership and a lack of real understanding of not only the problems, but also the solutions required to create the desired changes.

As a result of failed initiatives that indicated an increasing mistrust of local government, Lee's Summit recognized a different approach was needed. Rather than telling the citizens what problems they were facing as a community and selling them on the solutions to address them, the city turned the process around--it asked the citizens about the problems and what the potential solutions may be.

Role Reversal

This participatory approach resulted in startling successes and developed an equal partnership among the citizens (stakeholders), elected officials and city staff. The solution to the problems were "owned" by all the partners. The citizens became a part of the solution through their active participation. The credo, "I Hear I Forget, I Read I Remember, I Do and I Understand" resonated among all the stakeholders. New relationships between citizens and local government staff were created. Citizens understood the issues and the challenges city staff faced in addressing them. The process of working together became as important as the results achieved.

This concept of extensive citizen participation in Lee's Summit was fostered by former city administrator Ken Murray, and then implemented by his successor, Art Davis. Having observed the city's successes with the process, the Parks and Recreation Board decided to also use this method to develop a 10-year vision for parks and recreation. The board challenged the staff to use this process to create a vision that would be representative of a high-quality parks and recreation operation.

The board selected a focus group of volunteers (board members, staff and citizens at large) to oversee the process. This group selected a core group of stakeholders (about 40 individuals) that held a strong interest in the direction of the Parks and Recreation Department. More than 200 citizens were invited to participate, and more than 100 citizens maintained involvement throughout the year. The focus group convened after each meeting to assess the process and content, identify any problems or challenges, develop solutions and implement them, (e.g., needs for research in certain areas, personality conflicts, turf problems between groups, etc.).

The focus group also selected a chair and facilitator for the visionary group of stakeholders called The Visionary Task Force. The chair was a volunteer community leader, and the facilitator came from the National Civic League (NCL), a 107-year-old national organization that has pioneered this community-oriented approach for several years. NCL and the project chair were key players because they provided leadership, ensured consistency in the process and protected citizen involvement.

The first session set the stage for the process by explaining the importance of this effort and the ground rules for the process. In subsequent meetings, areas of need were identified, stakeholders were assigned to investigate and development action plans to address them were formulated. Each monthly meeting became a review session with further refinement of the group's work and development of a consensus of support from the stakeholders as a whole. There was no voting, but there were times when minority reports were prepared. These were not used in the final report. At the conclusion of the work effort a year later, a writing team was selected, and the results were published in a document still in use today.

Overcoming Doubt

The Parks and Recreation staff initially didn't believe that Lee's Summit citizens would be able to accurately assess the problems or develop the solutions to address them. What staff overlooked was the power of the group to transcend each other's limitations and achieve a significant increase in the capability of the group as a whole. The plan that resulted from the citizens far exceeded the professional staff's expectations in every area. A significant learning that occurred for all staff is that "there's always more value associated with things we do for ourselves than what others do for us." That is, the community will support what it helps create.

Why This Approach?

The reality is that times have never been harder for appointed and elected leaders to get things done. Thirty years ago, it was much easier for leaders to tell their constituents what the problems were and what needed to be done to address those problems, and then receive their proxy to act.

Today, a host of realities has changed the context in how we address community challenges. Appointed and elected leaders can't use the approaches of so years ago without provoking a fight that would use up valuable time and energy that could have been used in a far more productive manner. In addition, other realities--funding challenges, a number of complex issues screaming for attention, a lack of trust among citizens and government, and entrenched community factions--have changed the rules of getting things done.

Successful efforts have recognized that how a community addresses a community challenge is just as important as what they want to accomplish. Where government used to own the public agenda, today the public agenda is jointly held. Where progress used to be based on zero-sum politics, today it's based on coming to agreement despite other differences that may exist. Where few voices mattered and only like-thinkers worked together, today many voices matter, and different thinkers must work together on common goals. Thus, to fulfill the dreams of the community in the area of parks and recreation, the different perspectives needed to come together, make tough choices and create common goals and the means to achieve them.

This new model is messy and time-consuming. Building agreements among individuals with different points of view requires patience and strong listening abilities. Building agreement across diverse perspectives takes time. However, communities that use this model have found that people will support what they help create. Buy-in and support are key ingredients to getting things done. Although unforeseen barriers will undoubtedly arise, broad-based support up front was key to making the dream a reality.

Key Factors for Success

Lee's Summit Parks and Recreation experienced abundant learning from this process. There were a number of key factors that had to be in place for this effort to work. These factors included:

* The process had to be credible. Credibility was enhanced by having broad-based participation developed early and continued on an ongoing basis through implementation. Both mainstream "powerbrokers" and non-powerbrokers had to be included in the process.

* This diverse coalition had to be given the power to implement its recommendations.

* Specific recommendations, some which could be implemented almost immediately, had to be developed.

* The project had to cultivate working relationships based on trust and respect. It was crucial for the credibility of the effort that the stakeholders knew that we would work together to implement the action plans they developed.

* During times of frustration, cynicism and hopelessness, the project leadership and new leaders had to emerge from the group to sustain momentum. For example, work on a mandatory dedication of parkland mechanism became divisive and polarized the group assigned to it. One member attempted to sabotage the group work. The team transcended this problem by communicating directly with the individual rather than denying the behavior. The group then moved on and a plan was developed.

* Listening, patience and perseverance had to be practiced by the core stakeholder group and staff.

* Timing was important. People saw a real need for this type of process. Our need for facilities for both indoor and outdoor youth sports activities was made painfully clear when teams began to have conflicts with each other over scheduling. Some conflicts became violent.

* Stakeholders and leadership made serious commitments to see things through to the end.

* Consensus had to be a goal on all key areas of the project plan. Where agreements couldn't be reached, they were set aside and energy was spent on areas of common interest.

* The stakeholder group avoided jumping straight to issues and solutions, gave time to the bigger picture and looked at the "how" not just the "what." Our community's sensitivity to taxes and lack of support for them caused us to spend considerable time on innovative methods to implement our "solutions."

* All participants had to be willing to accept tough self-evaluation. This included not only the services of our department but also our various youth associations, schools and city government.

* Participants understood that the process outcome could not be predetermined. The final results had to emerge from the stakeholder group themselves.

These key factors played a significant role in creating success. None of these factors stood alone; instead, they were intertwined throughout the entire process of planning and implementation. We can't emphasize enough the importance of leadership throughout the process. High-quality and committed leadership will much more likely lead to a high-quality result than poor, unaccountable leadership.

Challenges and Pitfalls to Avoid

It's important to remember that challenges will constantly emerge in processes like Legacy for Tomorrow, which is what we called our plan. We were fortunate to have committed participants throughout the entire group. Challenges will define the group. Some will throw up their hands and say, "We've tried it and it can't work." Others will become overwhelmed and withdraw. But when a strong stakeholder group is present, others will rise to the occasion and focus the group not on what's wrong, but what needs to be done to address the issue. All of the challenges below are things to be aware of; also recognize that each can be prevented or addressed during the process.

* Avoid having the "usual suspects" in charge of the project from start to finish. This can be addressed early and throughout the process by selecting a broad-based group to start the project and actively recruiting new participants as others drop off.

* Keep the process open. Don't allow the stakeholder process and its meetings to be closed to the broader community. Credible projects must be open to the public. To do otherwise would spawn suspicion and the urge to block any recommendations among those excluded from the project.

* Directly address the fear that one interest group (baseball versus soccer, developers versus homeowners, etc.) will gain an advantage over another by capitalizing the common benefits of working together. It was amazing how quickly these issues evaporated as stakeholders began to assume their roles as the caretakers of the greater good of the entire community.

* The stakeholder group, not the project leadership, must make the final decisions on action-planning content. Why convene a diverse group if the decisions are already made? Doing so invites credibility attacks on the process, a lack of buy-in on the results and a serious step back in trust building.

* Follow-through is crucial. Project leadership and staff must follow through with responsibilities once the plan is developed. The biggest tragedy would be for a plan to sit on the bookshelf. Implementation has to be a focus from the beginning. Commitments for moving the plans forward must be in place. Support for those parties responsible for implementation must also be in place throughout implementation.

* Spend time on common goals, not just areas of disagreement. Common goals must be identified. Without taking the time to agree on common goals, the plan is guaranteed to be unfocused and fragmented.

* Recognize that conflict is a normal part of the process. Participants initially will avoid conflict at all costs. But conflict can be a sign of progress. Through conflict comes understanding--understanding that builds agreements or uncovers areas when agreement isn't possible (which is okay). Conflict is a natural part of the process and, when handled well, can help build a sense of team.

* Put things on the table for discussion. Communication lacking honesty and truth will lead nowhere. For this project to work, people have to be willing to bring up the tough issues within the stakeholder group--not during breaks, in-between sessions or behind people's backs. When communication has openness, honesty, and truth, then trust and commitment result.

* Strong, dominating personalities are another challenge for this type of process. Unchecked, they can skew the work of the group and stifle participation and creativity. Monitoring and protecting against this is an important role of not only the facilitator, but also the chair and group as a whole. Once empowered, the group did a good job of self-policing.

* Unleash the power of the group. Too many times, the participants will depend on others, rather than themselves, to get things done. The group must understand that to accomplish the desired results, they will have to play a continuing role in making it happen. Indeed, with Legacy for Tomorrow, new partnerships were created where citizens help the Lee's Summit's Parks and Recreation Department move the plan into implementation.

Results

There were many positive outcomes for our community. The direction that our stakeholders provided to the staff, board, elected officials and community at large will take years to implement. The road map is now in place, and our recently passed sales tax provides the vehicle to take us there.

The following is a listing of our most tangible results.

* Broad participation of citizens.

* Diversity of thought.

* Community empowerment.

* Written plan that's measurable.

* Sales tax passage ($27 million for parks).

* 700-acre park purchased and now in the development stage.

* 38-mile greenway with 100 miles of connectors in development (more than 12 miles completed to date).

* $6 million waterpark in planning stage.

* 40,000+-square feet community center funded and in the planning and design stage.

* Neighborhood park development initiative--four 20+-acre sites acquired, two developed and one in development now.

* Neighborhood park renovations initiative, with four parks renovated to date.

* Mandatory dedication of park land model designed.

* More than 120 acres donated (one 50-acre parcel valued at more than $750,000).

Our investment of time and money has paid incredible dividends in not only successful tax initiatives, but also in involving our citizens in meaningful ways in the governance of their community. Members from our stakeholders group have gone on to become city councilmen, school board members, park board members and leaders in other similar processes for our community.

Lee's Summit is a community of 75,000 residents, located 30 minutes via interstate highway from Kansas City. One of the fastest growing cities in Missouri, Lee's Summit has a charter form of government, with a mayor and council, city administrator, appointed administrative park board and an elected school hoard. City services include police, fire, water and sewer utilities, community planning and development, airport, codes administration, streets, law, human resources, finance, engineering and administration. The Parks and Recreation Department has a separate funding source from the city, a department administrator and a board of directors that's appointed by the mayor and approved by the city council.

J. Thomas Lovell, Jr., CPRP, is administrator of parks and recreation for Lee's Summit Parks and Recreation. Derek Okubo is the director of the national headquarters of the National Civic League.

COPYRIGHT 2002 National Recreation and Park Association
COPYRIGHT 2003 Gale Group