Budget Implementation
After completing the reading, construct a two pageminimumpaper addressing the following:
1. What were some of the failures in the budget and budget process that led to the dire problems faced by Colorado Springs?
2. What role did the city’s tax & revenue structure play in the budget crisis?
3. How appropriate was the official response by the city to the crisis?
4. What lasting changes (if any) appear to have come about from the crisis?
5. What steps might the city have taken to reduce the severity of the crisis or avoid it altogether?
STATES IN CRISIS
Colorado Springs enjoys swift revival
By Tami Luhby @CNNMoney June 21, 2011: 5:34 AM ET
A sales tax revival in Colorado Springs means the city can take care of its parks again.
NEW YORK (CNNMoney) — The streetlights are on. The parks are being watered and weeded. The buses are
running on Saturdays.
What a difference a year makes in Colorado Springs.
Suffering from a steep decline in sales tax revenue, its main funding course, Colorado Springs had to take some
drastic and unpopular measures in 2010. It slashed more than $26 million in spending, or 11% of its budget.
Gone was Saturday bus service that many lower-income residents depended on to get to work or run errands.
Gone was regular maintenance of the city’s parks, their pride and joy. And gone were one-third of the
streetlights, turned off to save money.
That wasn’t it. Park restrooms were shut down. The police helicopter was sold. A local lake and three pools were
closed to swimmers. The police and fire departments did not recruit for vacant positions. Nearly 200 city positions
were eliminated.
It would have been worse had local residents and organizations not stepped up. Neighbors started collecting the
trash in parks because the city couldn’t afford it. And Colorado Springs formed partnerships with local churches to
operate or fund two community centers.
The change was very noticeable and very troubling, said Dave Munger, president of the Council of Neighbors and
Organizations.
“Colorado Springs residents are very proud of their city,” he said. “To have the streetlights and parks not being
kept as well as they should be was disconcerting.”
Colorado Springs had a swifter fall than many other municipalities nationwide because 53% of its funding comes
from sales tax revenues, which plummeted as people stopped shopping during the Great Recession. And the city
made more draconian cuts than many of its peers.
11 quirky budget cuts
Many cities are more reliant on property taxes, which were slower to collapse. These locales are only now seeing
the effects of the housing market implosion.
However, just as Colorado Springs’ leaders were imposing big budget cuts, the economy started to turn around.
Residents are spending more again, fueling a steady climb in tax revenue.
Sales tax revenue has increased steadily since Nov. 2009 and is up 3.25% year-to-date compared with the same
period in 2010. It is still running below pre-recession levels though.
But the recent uptick in sales tax revenue, along with the savings from trimming the city’s payroll and other cost-
containment measures, have allowed officials to restore many of the services they had eliminated only 12 months
before.
The buses are rolling again on Saturdays, and the streets are now illuminated at night. The police and fire
academies are training new recruits. The parks are being re-seeded and will be watered once again.
The budget crisis allowed Colorado Springs to get creative in the way it provides services too.
For instance, it formed a partnership with Greener Corners, a New Jersey-based environmental firm, to provide
recycling in the city’s parks and downtown areas. The city won’t pay extra to haul away the recycling, but will get
15% of the revenue from the advertising on the recycling bins.
Colorado Springs, like other cities, is still climbing its way out of the recession and continues to struggle to find
ways to fund much-needed infrastructure projects and restore other services.
But it is now able to shift its focus from damage control to economic revival, said Steve Cox, chief of staff to Mayor
Steve Bach. It hopes to boost job growth now that it is maintaining the area better.
“The parks are a huge component of selling our city to new employers,” Cox said.
Still, Colorado Springs needs to concentrate on job creation if it wants to fully climb out of the recession hole, said
Tom Zwirlein, director of the Southern Colorado Economic Forum, based in Colorado Springs.
“We’ve stabilized,” he said. “If we can create more jobs and higher-paying jobs, it will lead to an increase in tax
collections for the city. This will allow them to restore more city services.” Colorado Springs’ Do-It-Yourself Government
The citizens of Colorado Springs must decide how much they want from their government, and how much
they’re willing to pay for it.
BY ZACH PATTON | SEPTEMBER 2010
Colorado Springs has low sales taxes and gets almost no revenue from property taxes. So the city has been hit
especially hard by the recession. Rather than raise taxes, citizens have instead opted for drastic cuts in municipal
services. Photos by David Kidd.
On a hot afternoon in late summer, the city pool at Monument Valley Park
in Colorado Springs, Colo., usually would be teeming with children and
families — the kids splashing, swimming and soaking up the August sun.
But this year, the pool stayed quiet. Budget cuts forced the city to close all
its swimming facilities. A few of them were taken over by a private swim
club, but the ones that couldn’t find a backer, like Monument Valley,
remained shuttered.
“This place ought to be packed,” says Kim King, administration manager of the Parks, Recreation and Cultural
Services Department, as she stands outside the fenced-off pool in Monument Valley Park. “This should be
crawling with kids. But there’s nobody here.”
Nearby, King points to a set of public restrooms housed in a small Spanish-style building clad in yellow stucco.
Those are closed too, with signs on the door: “NOTICE: Due to budget reductions, this facility is closed
indefinitely.” Opposite that building is a moderate-sized pond with a small island in the middle. Today, the pond
stands empty. The city can’t afford to maintain it, and the water’s been reduced to a stagnant, scummy puddle.
Times are tough in the Springs, as veteran residents call it. Like cities throughout the country, this town has been
hit hard by the recession. But its fiscal problems are especially severe. The city is famously right-wing, and
property taxes here are some of the lowest in the nation — in 2008, the per capita property tax was about $55.
City revenue instead comes mostly from local sales taxes. As a consequence, Colorado Springs is feeling the
downturn’s effects faster and more sharply than other cities. At the close of 2009, the city found itself facing a
nearly $40 million revenue gap for this year.
So the Springs slashed its budget and enacted a series of severe service cuts to save money. One-third of the
city’s streetlights were turned off to reduce electricity costs. The city stopped mowing the medians in the streets.
(At one point earlier this summer, the medians were so overgrown with weeds that the city was in violation of its
own code for property maintenance.)
The parks department was hit especially hard — its budget was gutted from $17 million in 2009 to just $3 million
this year. In addition to closing the pools and restroom facilities, the city pulled out all the trash cans from its
parks, since it could no longer afford to collect the garbage. Four community centers and three museums were
put on the chopping block, although private donations and some emergency public funds are keeping them open
for the rest of the year. With maintenance money wiped out, the vast majority of the city’s parks were left to
wither and brown in the summer heat. Former flower beds downtown are now just messy tangles of weeds.
And it’s not just aesthetics. As money has gotten tighter over the past two years, the city has cut some 550
employees from its work force by eliminating positions or through outright layoffs. Of the 1,600 municipal
employees left, 1,200 are police officers or firefighters. Municipal bus service has been reduced by 100,000
hours, meaning buses no longer run in the evenings or on weekends — a problem in a place where the vast
majority of transit riders have no alternative way to get to work. The police department auctioned its three
helicopters on the Internet. Spending on infrastructure projects has essentially ceased, and the city faces a $700
million backlog in capital needs.
It’s a crisis, to be sure. But in this politically conservative, tax-averse town, it’s also something of an experiment.
After the impending cuts were announced in fall 2009, the city put a property tax increase on the November
ballot. The measure was soundly defeated. Thanks to Colorado Springs’ Taxpayer Bill of Rights (TABOR),
which actually predates the state of Colorado’s TABOR by a year, any proposed tax increase must be voted on by
the citizens. With their vote, residents made it clear they’d rather suffer service cuts than see their taxes raised.
As a result, other cities are watching, waiting to see if this exercise in stripped-down government might actually
serve as a model during tough economic times. City Councilmember Sean Paige is one person who thinks scaling
back government’s role in the Springs is a good thing. “People in this city want government sticking to the
fundamentals,” he says. “There’s a crybaby contention in town that says, ‘We need to raise taxes and we need to
get rid of TABOR.’ But I think the citizens have made it clear that this is the government people are willing to
pay for right now. So let’s make it work.”
Volunteer Efforts Replace Lost Services
Colorado Springs’ service cuts made national headlines when they were rolled out this past spring and summer.
After reading the media stories, one half-expects the city to look like some urban dystopia: fallen trees in the
streets, boarded-up buildings, roads left dark by switched-off streetlights, drivers swerving around giant, unfilled
potholes.
But when actually walking around Colorado Springs, things don’t look that bad. The city is hemmed in to the
west by Pikes Peak and other spires of the Front Range (the original “purple mountain majesties” in America the
Beautiful, which was written here in 1893). Take away the mountains, though, and Colorado Springs could be
any mid-sized American city. Downtown consists of a clutch of dun- and clay-colored mid-rises along broad, flat
avenues. There’s a small, walkable strip of bars and outdoor cafes.
This city of about 420,000 residents also has something of an earthy, hippie side: Acacia Park, a leafy square at
the north end of downtown, is ringed by art galleries, an indie music store, a Tibetan imports place, a hookah bar
and an Afghan kabob joint. There’s even a feeling of progressive urban planning that belies the town’s Libertarian
reputation. More than 70 miles of on-street bicycle lanes thread their way across the city, and the city manages
another 100 miles of urban trails for jogging and hiking. Green spaces downtown are filled with eclectic
sculptures by local artists.
In fact, it’s easy to walk around the place and wonder what all the fuss is about. So what if there are a few weeds
in the medians? Or if some of the streetlights have been turned off? Is that such a price to pay for low taxes and
limited government?
Colorado Springs may have gained a reputation as a bastion of right-wing values and small-government ideals,
but the city hasn’t always been quite so conservative. Thanks to several military bases nearby, as well as the
United States Air Force Academy, there’s long been a Republican bent to the area. But it wasn’t until about 20
years ago that the Springs began to shift to the Christian right. In the 1980s, in a bid to diversify the area’s
economy, the city began actively courting non-profit organizations to relocate to Colorado Springs. Dozens of
groups moved in, especially religious ones.
At one point, Colorado Springs was home to the national headquarters of more than 80 religious organizations,
including, most famously, the socially conservative Focus on the Family, which relocated there in 1991. By
1993, Focus on the Family ran a 45-acre campus on the north side of town, with 1,200 employees. Other, similar
groups followed, earning Colorado Springs the nickname of “the Evangelical Vatican.”
As local politics have swung to the right, Colorado Springs has become more virulently opposed to taxes: Since
1990, the local property tax rate has plunged 41 percent. The local TABOR law, implemented in 1991, imposes
an inflation-based cap on the amount of revenue the city can collect. Any revenue over that limit must be
returned to taxpayers. That’s kept the city government lean and small, even before the recent round of cuts.
The proliferation of non-profit groups has had another effect — a strong current of can-do volunteerism in the
community. As the government has scaled back its services, private organizations have, in many cases, stepped
in. In addition to the citizen groups that have taken over some of the pools and one of the city’s community
centers, companies and non-profit foundations have helped raise funds for visitors’ centers and other facilities. At
the Phantom Canyon Brewing Company in the center of town, the front of the menu implores diners to “Save the
Fountain!” by purchasing a new signature ale — some of the proceeds go to keeping the water turned on at The
Continuum – Julie Penrose Fountain, a giant metal loop that rains water down on kids in America the Beautiful
Park. The city cut funding for the fountain a couple years ago.
As the cuts worsened this year, the city has increasingly relied on these volunteers’ efforts. By lining up residents
to “adopt a trash can,” the city’s been able to return about one-third of the rubbish bins that were removed from
municipal parks. Citizens can “adopt a street light” on their block and have it turned it back on by paying a
donation — between $100 to $240, depending on the type of light. The city has even discussed an “adopt a
median” program, recruiting residents to trim the medians with their own lawnmowers.
“This city has really stepped up, and I’m proud of it,” Paige says. “It’s almost like we’re moving to a do-it-
yourself model.”
But that’s a concern for some, including Paige’s fellow City Councilmember Jan Martin, who authored last fall’s
proposed tax increase that would have covered this year’s shortfall and prevented the service cuts. “Right now, in
this crisis, we’ve sort of lost the sense of the common good,” she says. “There’s a real sense of, ‘I’ll take care of
mine. You take care of yours.'”
Look a few years down the road, she says, and the city’s rich areas will prosper while the poorer sections of town
will suffer. “The parts of the community that can’t afford services will continue to deteriorate,” Martin says. “And
the neighborhoods that can afford to pay for street lights, parks, trash removal and medians will continue to
prosper and be beautiful. I worry we’re creating a city of haves and have-nots.”
Budget Cuts and Public Safety Implications
For now, the outpouring of volunteer support has mitigated some of the most visible impacts of Colorado
Springs’ budget cuts. But there are bigger, longer-term issues, says Interim City Manager Steve Cox. “We get a
lot of attention for the trash cans and the street lights, but that’s just scratching the surface. There are deeper
problems than that.”
One of those problems is public safety. Everyone agrees that the police and fire departments should be last on the
list of cuts. Still, those departments have had to reduce services as well. In addition to selling off helicopters, the
police department has slashed its ranks, says Chief Richard Myers. Property detectives have been cut by one-
third, and the department has completely wiped out some units, including its fugitive-investigation group. “We’ve
eliminated entire street teams out of our regional drug unit. In 2011, we’re significantly shrinking the number of
school resource officers. Our specialty units are just imploding.”
All in all, the department is down about 80 officers, from a high of 689 a few years ago. That’s a significant cut,
but what’s worse is that the force already was stretched thin. “Most police departments in comparable cities
would have 750, 800, maybe 900 police officers,” Myers says. “Now we’re down in the low 600s, and the city
isn’t shrinking.” Even more challenging, Myers says, is that Colorado Springs covers such a large area of land.
Geographically, the city is huge: Boston, Miami, Minneapolis and San Francisco could all fit within its borders.
With a dwindling number of cops serving a growing population across a vast tract of land, residents are feeling
the cuts. Officers no longer can respond to as many incidents in person — if someone breaks into a car or steals a
kid’s bike, the police just take the crime report over the phone. And it’s unlikely they’ll have the resources to
follow up on it, Myers says. “We’re struggling with the fact that so many people can be victimized by property
crimes and have it treated more as an insurance report and a cursory tick mark on the tote board, rather than us
helping them try to solve their crime.”
Technology is a problem, too. The police department already was lagging in technology before the latest cuts.
Investing in them now would be impossible. For example, Myers points to in-car video cameras, a tech upgrade
he implemented at his previous two posts as police chief in other cities. “That’s standard in police departments;
it’s a routine tool in law enforcement,” he says. “We don’t have a single one in a squad car here.”
Despite all the reductions, Myers says he can’t point to an uptick in crime. But he worries about the longer-term
implications of a bare-bones force. Myers says he firmly believes that a proactive, decentralized style of policing,
as it was proven in the 1990s, reduces crime, increases the public’s confidence in the police and increases the
collaborative kind of policing where citizens and police work together for long-term solutions. “And to now see
us moving more and more and more to almost a completely reactive style of policing is just difficult for me to
tolerate.”
Still, he says he recognizes that tough times call for tough measures, and if this is the police department Colorado
Springs is willing to pay for, so be it. “My mourning period is over, and the focus now is on redefining the new
norm. We’re past doing more with less,” he says. “We’re doing less with less.”
A New Model of Government?
Colorado Springs’ fiscal day of reckoning has arrived. But the reason other cities are watching the Springs is
because what happens here isn’t necessarily just an extreme experiment in do-it-yourself government — it could
be the future.
Thanks to the city’s heavy reliance on sales taxes, the revenue crisis was brought to bear last year. In other
municipalities, where revenues rely more on property taxes, the problems may only be beginning. “Cities are
really going to be hard hit at least through 2011,” says Christiana McFarland, director of finance and economic
development programming for the National League of Cities (NLC). Because property taxes are based on
periodic assessments, there’s an 18-to-24-month lag before the city feels the full effect of the downturn. “We’re
anticipating property tax revenues will take a huge hit this coming year.”
And cities already have been making cuts, according to NLC surveys. More than two-thirds have delayed
investments in infrastructure or capital improvements. Another 22 percent have made cuts in public safety; 27
percent have reduced their spending in human services; and a full 71 percent have already been forced to make
cuts in personnel. “With the budgets already cut down to the bone,” McFarland says, “they’re going to start
digging into the marrow.”
The big question is whether the cuts are part of a crunch-time crisis, or whether they represent a new era in
smaller government. For her part, McFarland says she doesn’t think the Colorado Springs model can be a long-
term solution. “Cities need to get back to a basic level of delivering services, particularly in public safety.”
Meanwhile in Colorado Springs, the crisis is spawning broader conversations about what citizens expect
government to be. “It really brings you to some fundamental questions that elected representatives should be
asking themselves,” Martin says. “It forces you to prioritize and decide, what is the role of government? And
what services should the city be providing?”
One thing seems certain in the Springs: The service cuts are here to stay. Thanks to TABOR, it could be years
before the city is even able to return to 2009 spending levels. The pools may reopen and the medians may get
mowed, but those services will likely be performed by the private sector. As public funds start to trickle back in –
– and local sales tax revenues have been on the uptick so far this year — they’ll go toward rebuilding the police
department and adding back some of the bus routes. And for many, that’s just the way things should be. “I think
we’re plowing fertile new ground here,” Paige says. “And I think we can make it work.” DENVER AND THE WEST
Colorado Springs cuts into services
considered basic by many
By Michael Booth
The Denver Post
POSTED: 01/31/2010 01:00:00 AM MST353 COMMENTS| UPDATED: 6 YEARS AGO
Mar 4:
Taxis to patrol, reinforcing thinning ranks of Springs police
Jan 27:
Doug Bruce’s tenants circulated anti-tax petitions in Springs
COLORADO SPRINGS This tax-averse city is about to learn what it looks and feels like when budget
cuts slash services most Americans consider part of the urban fabric.
More than a third of the streetlights in Colorado Springs will go dark Monday. The police helicopters
are for sale on the Internet. The city is dumping firefighting jobs, a vice team, burglary investigators,
beat cops dozens of police and fire positions will go unfilled.
The parks department removed trash cans last week, replacing them with signs urging users to pack
out their own litter.
Neighbors are encouraged to bring their own lawn mowers to local green spaces, because parks
workers will mow them only once every two weeks. If that.
Water cutbacks mean most parks will be dead, brown turf by July; the flower and fertilizer budget is
zero.
City recreation centers, indoor and outdoor pools, and a handful of museums will close for good March
31 unless they find private funding to stay open. Buses no longer run on evenings and weekends. The
city won’t pay for any street paving, relying instead on a regional authority that can meet only about 10
percent of the need.
“I guess we’re going to find out what the tolerance level is for people,” said businessman Chuck Fowler,
who is helping lead a private task force brainstorming for city budget fixes. “It’s a new day.”
Some residents are less sanguine, arguing that cuts to bus services, drug enforcement and treatment
and job development are attacks on basic needs for the working class.
“How are people supposed to live? We’re not a ‘Mayberry R.F.D.’ anymore,” said Addy Hansen, a
criminal justice student who has spoken out about safety cuts. “We’re the second-largest city, and
growing, in Colorado. We’re in trouble. We’re in big trouble.”
Mayor flinches at revenue
Colorado Springs’ woes are more visceral versions of local and state cuts across the nation. Denver has
cut salaries and human services workers, trimmed library hours and raised fees; Aurora shuttered four
libraries; the state budget has seen round after round of wholesale cuts in education and personnel.
The deep recession bit into Colorado Springs sales-tax collections, while pension and health care costs
for city employees continued to soar. Sales-tax updates have become a regular exercise in flinching for
Mayor Lionel Rivera.
“Every month I open it up, and I look for a plus in front of the numbers instead of a minus,” he said.
The 2010 sales-tax forecast is almost $22 million less than 2007.
Voters in November said an emphatic no to a tripling of property tax that would have restored $27.6
million to the city’s $212 million general fund budget. Fowler and many other residents say voters
don’t trust city government to wisely spend a general tax increase and don’t believe the current cuts are
the only way to balance a budget.
Dead grass, dark streets
But the 2010 spending choices are complete, and local residents and businesses are preparing for a
slew of changes:
The steep parks and recreation cuts mean a radical reshifting of resources from more
than 100 neighborhood parks to a few popular regional parks. The city cut watering
drastically in 2009 but “got lucky” with weekly summer rains, said parks maintenance manager Kurt
Schroeder.
With even more watering cuts, “if we repeat the weather of 2008, we’re at risk of losing every bit of turf
we have in our neighborhood parks,” Schroeder said. Six city greenhouses are shut down. The city
spent $19.6 million on parks in 2007; this year it will spend $3.1 million.
“If a playground burns down, I can’t replace it,” Schroeder said. Park fans’ only hope is the possibility
of a new ballot tax pledged to recreation spending that might win over skeptical voters.
Community center and pool closures have parents worried about day-care costs, idle
teenagers and shut-in grandparents with nowhere to go.
Hillside Community Center, on the southeastern edge of downtown Colorado Springs in a low- to
moderate-income neighborhood, is scrambling to find private partners to stay open. Moms such as
Kirsten Williams doubt they can replace Hillside’s dedicated staff and preschool rates of $200 for six-
week sessions.
“It’s affordable, the program is phenomenal, and the staff all grew up here,” Williams said. “You can’t
re-create that kind of magic.”
Shutting down youth services is shortsighted, she argues. “You’re going to pay now, or you’re going to
pay later. There’s trouble if kids don’t have things to do.”
Though officials and citizens put public safety above all in the budget, police and
firefighting still lost more than $5.5 million this year. Positions that will go empty range from
a domestic violence specialist to a deputy chief to juvenile offender officers. Fire squad 108 loses three
firefighters. Putting the helicopters up for sale and eliminating the officers and a mechanic banked
$877,000.
Tourism outlets have attacked budget choices that hit them precisely as they’re
struggling to draw choosy visitors to the West.
The city cut three economic-development positions, land-use planning, long-range strategic planning
and zoning and neighborhood inspectors. It also repossessed a large portion of a dedicated lodgers and
car rental tax rather than transfer it to the visitors’ bureau.
“It’s going to hurt. If they don’t at least market Colorado Springs, it doesn’t get the people here,” said
Nancy Stovall, owner of Pine Creek Art Gallery on the tourism strip of Old Colorado City. Other states,
such as New Mexico and Wyoming, will continue to market, and tourism losses will further erode city
sales-tax revenue, merchants say.
Turning out the lights, literally, is one of the high-profile trims aggravating some
residents. The city-run Colorado Springs Utilities will shut down 8,000 to 10,000 of more than
24,000 streetlights, to save $1.2 million in energy and bulb replacement.
Hansen, the criminal-justice student, grows especially exasperated when recalling a scary incident a
few years ago as she waited for a bus. She said a carload of drunken men approached her until the
police helicopter that had been trailing them turned a spotlight on the men and chased them off. Now
the helicopter is gone, and the streetlight she was waiting under is threatened as well.
“I don’t know a person in this city who doesn’t think that’s just the stupidest thing on the planet,”
Hansen said. “Colorado Springs leaders put patches on problems and hope that will handle it.”
Employee pay criticized
Community business leaders have jumped into the budget debate, some questioning city spending on
what they see as “Ferrari”-level benefits for employees and high salaries in middle management.
Broadmoor luxury resort chief executive Steve Bartolin wrote an open letter asking why the city spends
$89,000 per employee, when his enterprise has a similar number of workers and spends only $24,000
on each.
Businessman Fowler, saying he is now speaking for the task force Bartolin supports, said the city
should study the Broadmoor’s use of seasonal employees and realistic manager pay.
“I don’t know if people are convinced that the water needed to be turned off in the parks, or the trash
cans need to come out, or the lights need to go off,” Fowler said. “I think we’ll have a big turnover in
City Council a year from April. Until we get a new group in there, people aren’t really going to believe
much of anything.”
Mayor and council are part-time jobs in Colorado Springs, points out Mayor Rivera, that pay $6,250 a
year ($250 extra for the mayor). “We have jobs, we pay taxes, we use services, just like they do,” Rivera
said, acknowledging there is a “level of distrust” of public officials at many levels.
Rivera said he welcomes help from Bartolin, the private task force and any other source volunteering to
rethink government. He is slightly encouraged, for now, that his monthly sales-tax reports are just
ahead of budget predictions.
Officials across the city know their phone lines will light up as parks go brown, trash gathers in the
weeds, and streets and alleys go dark.
“There’s a lot of anger, a lot of frustration about how governments spend their money,” Rivera said.
“It’s not unique to Colorado Springs.”
Michael Booth: 303-954-1686 or [emailprotected]
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