Giving credit where credit is due: Bethpage State Park will host the 2002 US. Open Championship.

BYPASS ST. PETER:How to Have a Heavenly Municipal Golf Course!Taking out the politics can lead to a better public golf facility.

by PATRICK M. O'BRIEN

"Municipal golf is one of this country'sleast appreciated sports traditions.Instead of lavishing praise for thelatest and greatest upscale private club,we ought to think more about afford-able access to quality courses nearwhere many people actually live." -Bradley S. Klein, Editor, Golfweek'sSuperintendent News.

MUNICIPAL GOLF COURSEShave been filling the need foraffordable golf in the United

States for more than 100 years. Today,21 million of an estimated 26.5 milliongolfers in the United States play their

golf on public-access courses. Thedemand for green fees under $40 atmunicipal courses is staggering.

Unfortunately, a crisis exists todayat many municipal golf courses. Poormanagement and local politics haveresulted in unacceptable playing con-ditions. Excess golf revenues are beingdiverted to other recreational activitiesor into .the pockets of managementcompames.

Despite these problems, most mu-nicipal golf courses will continue tooffer good quality at fair prices. Thisarticle reviews the most common mis-takes made and examines four case

studies of municipal golf courses thathave turned things around. Finally, a listof suggestions is provided to help anymunicipal course get on the roadto success.

The History of Municipal GolfVan Cortlandt Park in the Bronx,

N.Y, was built in 1895 and is the oldestmunicipal golf course in the UnitedStates. Thousands of municipal courseshave been built since then, and theyhave provided millions of men, women,and children of all backgrounds with aplace to learn the game. Historically,municipal golf courses were operated

MARCH/APRIL 2001 1

by local parks and recreational depart-ments along with other field sportfacilities, swimming pools, tenniscourts, and area parks. These facilities,including golf courses, were viewedas recreational centers for the localcitizens and were supported by taxdollars.

As golf increased in popularity inthe 1980s and 1990s, revenues at golfcourses boomed. Local politicians be-gan to view their courses as a source ofrevenue to fund other local recreationalprograms and facilities. At the sametime, politicians bowed to publicpressure and reduced fees through theestablishment of under-priced annualpasses for local residents. Municipalgolf courses were directed to operate asbusinesses, but they were not allowed

to use their profits for course improve-ments, nor could they set fees that werecommensurate with. the service theywere providing. When this occurred,course conditions frequently began tospiral downward rapidly.

When a course hits bottom, the firstattempt by local officials at upgradingoften is to hire a professional manage-ment company to manage the entiregolf course and to minimize the politics..Surveys taken prior to 1995 by theReason Public Policy Institute indi-cate this trend. The number of pri-vately managed government coursesincreased 67% from 1987 to 1995,with approximately 25% of all citiesemploying a management company.

However, the latest trend is awayfrom management companies andtoward operation of the courses as amunicipal enterprise fund. An enter-prise fund is a process of funding the

2 USGA GREEN SECTION RECORD

golf course or other municipal servicesolely through the revenues it generatesand without the benefit of taxpayersupport. Quasi-independent golf courseadvisory boards are often established,and they control accounts funded bygolf course revenues. Cities are findingout that they can create more efficient,better-maintained courses with fewerpolitical disputes when using the enter-prise fund model. Here are a few real-life examples of successful municipalgolf courses:

Municipal Enterprise FundCase Studies

#1 Cottonwood Creek Golf Course(Texas)

The Cottonwood Creek Golf Coursein Waco, Texas, was built in the middle1980s by the city and immediately wasleased to a management company.

Public golfers are becoming moredemanding of better golf courseconditions at municipal facilities.

Over the last few years of the lease, thenumber of rounds of golf had shrunkfrom 40,000 to the mid-20s as thereputation of the facility diminished inthe community due to poor manage-ment. The city decided to take over thefacility again and formed the Cotton-wood Creek Citizens Advisory Board.Each Waco city council person ap-pointed two members to this inde-pendent board. A total of 12 personsserve two-year appointments, with sixappointments made each year. TheBoard is composed of all social andeconomic classes, and both public andprivate golfers. The perspectives andinput from this diverse group have beeninvaluable. Board meetings are heldmonthly, usually over lunch, andgenerally last 90 minutes. Agenda itemsare discussed and recommendationsmade to the staff and city council onall aspects of the golf facility.

The Advisory Board took a pro-active role and made a determinationto reestablish Cottonwood Creek GolfCourse as the premier municipal facilityin central Texas. The Advisory Board'sgoal was to set the standard in centralTexas for high quality, affordable golf.Amission statement was adopted thatreads, "To provide a high quality andaffordable golfing experience for centralTexas golfers and a.golfing facility thatprovides enjoyment and challenge forgolfers of all skill levels," according toMichael Copp, Advisory Board Chair-man. The Board then identified andprioritized areas of need and developeda five-year strategic plan to accomplishthis mission. The areas of concern in

$ 400,000 K;)

$ 300,000

":'\

$ 650,000ExpensesGolf CourseMaintenanceGeneral OperationsReserve Fund(will be spent infiscal year 2001)

Table 2Chicopee Woods

Fiscal Year 2000 Facility Budget

Income $1,350,000 Pi,\\ ';'(-~, '<B

#3 aIde Barnstable FairgroundsGolf Course (Massachusetts)

The Olde Barnstable FairgroundsGolf Course, built in 1991,has set up anEnterprise Account Fund to operatethis popular golf facility in the town

long-range plans, fees, and other topicsare discussed and reviewed by theGreen Committee. This "citizen com-mittee" system works at ChicopeeWoods and helps to insure quality golffor the public golfer. Chicopee Woodsis currently building a third nine holes,designed by course architect DennisGriffiths. This will be financed by abank loan and paid for within 13 yearsfrom generated revenues. Truly asuccess!

Table 1Chicopee Woods Golf Course Charter

. ".Our Charter is to provide a quality golf facility. for ,the public golfer. This '21

includes all citizens of Hall County and surrounding corrtmuhities. It shallbe our goal to provide a facility that is in very good condition.ata reasonable 'cost to our players.In addition, we pledge the following:',.1.We shall be financially self-supporting for operational expenses. "2. We Win be conscious of environmental concerns and op~rate the golf

. course in a manner that will not only protect the natural.envir~mrte;nt, butwill enhance the natural environment whenevev.anrl wherev~f:J>o~sible~'

,:~3.Wewill support the Chicopee Woods Park Commission 'Yith"a,percent:. age of our gross income each and every year. Jbis money will be, spent

in whatever manner the ,Chicopee ,Woods Park, Commission: deems .~;,appropriate.

4: We will always try to treat the customers of Chicopee Wpods Golf Coursewith friendly service that is beyond their expectations.

s 5.We will promote golf within our community as a healthy activity, especially, for younger people.6. We will attempt to provide our full-time employees with benefits that are" comparable to local government and/or local private 'enterprise:

, 7. To change. this Charter (after. initia! formulation) would require a,unanimous approval of the GreenConimittee:' "~...\

conditions, and it attracts over 45,000rounds of golf annually.

The key to the success of this golffacility has been the governing struc-ture under the direction of the GreenCommittee. All revenue from the golfcourse, including green fees, cart fees,and driving range fees, is deposited intoa reserve account. An income andexpense balance sheet for the 2000 golfseason is shown in Table 2. Funds froma special reserve account are used forgolf carts, landscaping, maintenanceequipment, capital improvements, golfcourse expansion, and golf cart paths.The Budget and Finance Committee,made up of the Vice Chairman and theTreasurer of the Green Committee,prepares the annual budget for' sub-mission to the Green Committee withassistance from Dave Feser, golf super-intendent, and Jim Arendt, golf pro-fessional. All financial information ispublic and given to the city and countyofficials, and is audited annually.

Overall, the Green Committee con-sists of nine members who live in thecommunity and have been appointedby the Parks Commission. Each mem-ber is appointed for a three-year term,and each member may serve a secondterm. The Chairman serves a two-yearterm. The Green Committee also hiresthe golf course superintendent and golfprofessional. At the monthly meetings,

order of priority were: (1) reconstruc-tion of all putting greens, (2) installationof concrete cart paths throughout all18 holes, (3) renovation of all bunkers,(4) new maintenance equipmentacqui-sition, (5) update and improve theirrigation system, (6) tree plantingand entrance beautification, and (7)new perimeter fencing in select areas.The putting green renovation andreconstruction was completed withinmonths. Cart paths have been installedon the front nine holes, and the backnine holes are nearing completion.Some trees were removed and in otherareas new trees were planted. A beauti-ful new entrance gate and landscapingwere put in place. Course maintenancepersonnel have begun bunker renova-tion, with several of the bunkers alreadycompleted. The irrigation system isnext in line to be addressed.

The General Manager at Cotton-wood Creek Golf Course, a cityemployee in the Department of Parksand Recreation, is responsible for thebudget. All revenues from the golfcourse are reallocated back into thefacility. The city has been providingtemporary subsidies due to the majorcapital expenditures needed to rejuve-nate the course. The annual operationalstatements are brought to the AdvisoryBoard for recommendations. The CityCouncil ultimately approves the finalbudget and capital expenditures andgenerally approves the recommen-dations of the Advisory Board.

The changes in conditions havemade a dramatic turnaround. In lessthan two years time, the number ofrounds of golf has increased again toover 43,000, with a continuing steadymonthly increase trend.

#2 Chicopee Woods Golf Course(Georgia)

Hall County is a major metropolitanarea northeast of Atlanta, Georgia. An18-hole golf course was built in 1991on land given to the county by theJohnson & Johnson Company. Overthe past 10 years, the golf course hasoperated with no tax dollars under thejurisdiction of the Chicopee WoodsParks Commission, a subdivision of theState of Georgia. A Green Committeeset up by the Parks Commission acts asthe governing board that establishesfees, rules, and regulations for the golfcourse. A charter (Table 1)provides thebasic philosophies that the Green Com-mittee carries out. Chicopee Woods iswell known in the Atlanta area for itsaffordable green fees and quality turf

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Whether the golf course is a municipal or private facility, periodic renovations areimportant. A new concrete cart path project was financed at Chicopee Woods G. C.by revenues from the reserve account.

of Barnstable, Massachusetts, on CapeCod. aIde Barnstable Fairgrounds hasa reputation as one of the best munici-pal facilities in the Northeast. Thecourse averages over 63,000 roundsper year and has a modest budget ofapproximately $550,000 annually. Thetown oversees the Enterprise Accountand an independent Golf AdvisoryCommittee made up of concerned citi-zens of the town meets monthly to dis-cuss potential issues facing the facility.The seven-member Golf AdvisoryCommittee has several sub-committeesto deal with tournaments, fee sched-ules, budgetary issues, etc., and makesrecommendations regarding long- andshort-range planning.

The golf course is operated withoutany tax-generated revenue and spendswhat it makes. It is fully responsible forall debt service and bonds. The golffacility charter includes a goal to pro-vide reasonable green fees for theresidents of the community. Non-resi-dents are charged higher fees, andapproximately 25% of the annual playcomes from this income source thatgenerates a significant portion of theannual revenue. With the popularity ofgolf in this resort town, a certain per-centage of the daily tee times areallocated for non-resident play due totheir income value. Every holiday andweekend day in the summer typically issold out for these tee times, and if any

openings come about, they are offeredto residents first.

The golf course operates out of theDepartment of Recreation, with thePro/Manager at the golf facility, GaryPhilbrick, PGA professional, reportingto the Recreation Director. BruceMcIntyre, CGCS, is the golf superin-tendent who carries out the capital im-provements and directs the daily courseoperations. The Pro/Manager and GolfCourse Superintendent develop theannual budget and make recommen-dations for how to spend the money inthe Enterprise Account through theRecreation Director. After the Recrea-tion Director and Golf Advisory Boardreview the budget, it is passed on tothe Town Manager, who generallyapproves the proposed budget. TheTown Manager will then take thebudget to the Town Council for finalapproval. In 1999, capital improve-ments for cart paths, new equipment,and irrigation improvements totalingover $200,000 were completed, with anapproximate $100,000 surplus left inthe Enterprise Account. These fundswill be spent next year for additionalcourse improvements or debt service.

One major decision that really haspromoted quality turf conditions withthe high play is the fee system. Greenfees for residents average between $29and $36 for 18 holes, while non-resi-dent fees are between $55 and $69.

Annual passes and discounts are avail-able for residents of the town for $595,and a "punch ticket" for 10 rounds canbe purchased for $225. Junior passesare also available for $195 annually, andthis includes college students. Seniorspurchase 70% of the annual passes.

#4 Monmouth County Golf Courses(New Jersey)

The Monmouth County Park Systemin central New Jersey has seven golfcourses, including two facilities(Hominy Hill and Howell Park) in theGolf Digest Top 50 Public Courses.Dave Pease, General Manager of theMCPS Golf Courses, places a premiumon course conditions. This manage-ment philosophy provides the bestplaying conditions possible for thedaily-fee patron. Every facility is oper-ated with annual budgets in the rangeof $700,000 to $800,000. The successesof the management programs are basedon the continuous support from alldepartments and administrations. Mostimportantly, the Board of RecreationCommissioners, an independent com-mission within the Department ofParks, has been a big plus for thefamous conditions at these facilities.

This board consists of 10 membersappointed by the Board of ChosenFreeholders, who are elected countyofficials. Since the appointment is fora lifetime and without pay, only indi-viduals who have a vested interest inthe county are chosen. The appointeescome from all types of backgrounds,including blue-collar workers and pro-fessionals. The lifetime appointmentshelp to insure a stable infrastructure.

The Board of Recreational Commi-sioners is primarily a policy-makingboard rather than a working board.This board meets twice monthly andsets the direction not only for the golffacilities, but also the rest of the Mon-mouth County park system. A few oftheir important responsibilities includeapproving course policies, operationaland capital budgets, contract approval,and long-range plans. The golf coursestaff drafts all golf course budget issuesfor the Board of Recreation Commi-sioners, and Mr. Pease serves as atechnical advisor for golf course opera-tions. "I keep the wheel greased forgolf expenditures," explained Mr. Pease,"as all the recreational heads want apiece of the pie." Final decisions re-garding the budget rest with the Boardof Recreational Commissioners, butthey must operate within the budget setby the Board of Chosen Freeholders.

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Make some improvements on the golf course each year. Criticallyevaluate expenditures to allocate money to the appropriate area.

Funds to operate the golf coursescome from the green fees, cart fees, andpro shop sales, and are deposited intothe county treasury, but several trustfunds also exist that retain a percentageof certain revenues for capital improve-ments. Non-resident green fees aredouble those of the county residentsat each of the seven golf courses, andthese fees usually generate 40% of thetotal revenue, even though non-resi-dents are only 15% to 20% of the totalplay. Overall, every dollar generated bythe seven golf facilities is returned togolf from the county treasury and trustfunds.

The system works very well inMonmouth County, and over 50,000rounds are played annually at eachfacility. The major complaint from thepublic is that "you can't get a tee time"and not that "there isn't any turf onthe tees."

Other Tips for Successfor Public Golf Courses

Municipal golf courses are a bigbusiness today, but they still offer thebest opportunity to introduce newgolfers to the game. The municipalfacilities profiled in this article haveexperienced firsthand the challengesencountered with the operation of golfcourses and have shared a few tips tohelp others stay on the road to success.

Administrative• Find public-spirited golfers who

play on your course and live in yourcommunity to serve on your advisoryboard.

• Appoint citizens with varying play-ing ability.

• Consider small business people,accountants, superintendents, attor-neys, and others who may have skillsthat you could draw upon.

• Select as your first chairperson avery strong individual with strongorganizational skills.

• Appoint positive people to yourgoverning board, not those who justcomplain.

• Write a charter with your purposeclearly stated.

• Hire the very best employees youcan afford. Remember, excellent em-ployees will pay their way, while pooremployees will not be cost effective.

• Make the playability of the golfcourse your top priority when budget-ing any funds, either operational or forcapital improvements. Eventually, thegolf course reputation and consequentplay will be able to pay for a few frills.

• Keep "clubhouse" operations to aminimum! Remember, golfers come toplay golf.

• Remember that you are in acompetitive situation with other golfcourses and, as government or munici-pal operations, your only conflict mightbe that you have a community obliga-tion to provide for the young, theold, and the disadvantaged. This doesnot mean cheap golf for the averageplayer.

• Raise your income through an in-crease in fees each year - perhaps a

minimum of 3% to 5%, and slightlymore if you want to make some capitalimprovements.

• Consider a discount for peoplefrom your political jurisdiction.

• Stay strictly daily fee.• Do not issue season tickets.• Do not "yo-yo" prices, i.e., not

increase fees for three or four yearsand then make a 20% increase.

• Do not spend money for "fancy"when you don't have the basics.

• Keep track of financial ratios anddifferences from year to year. Example:

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Chicopee Woods Golf Course (Georgia) operates under the jurisdiction of the ChicopeeWoods Parks Commission. A Green Committee, established by the Parks Commission,conducts monthly meetings to establish fees and rules, review current activities on thegolf course, and discuss long-range plans.

Total income divided by rounds playedequals dollars brought in by an averagecustomer. Is this number going up ordown from year to year? This can bedone with many different sets ofnumbers and tracked.

• Remember to act as much as pos-sible as any for-profit business would.

• Price yourself at an optimum, i.e.,not so high you can't attract players andnot so low that you either leave moneyon the table or can't give a reasonablequality product.

• Be flexible with issues regardingunions, bureaucracy, and difficultclientele.

• Hire rangers to police the playersand ensure that customers follow thephilosophies of the facility.

Golf Maintenance• Make golf course maintenance the

highest priority.• Keep uniform playing conditions

throughout the golf course.• Do not attempt to have the "per-

fect" conditions of TV golf, but do havegood playing conditions throughoutthe golf course, in this order: puttinggreens, tees, bunkers, fairways, andrough.

• Make fertilizer applications some-where between adequate and optimumfor turf growth. Too much is a waste,and too little will not give the resultsdesired and therefore is almost a waste,too!

6 USGA GREEN SECfION RECORD

• Chemical plant protectant applica-tions should be made only if absolutelyneeded.

• Accept some turf damage or weedinfestations before initiating controlmeasures.

• Consider spot applications of fer-tilizers, herbicides and other plantprotectants.

• Hire an excellent mechanic andmake equipment maintenance a veryhigh priority.

• Do not plant roses if you don't havegood turf!

• Dream but be practical.• Make some course improvements

each year.• Decide where to spend capital

monies by evaluating if this expenditurewill tend to increase or decrease opera-tional budgets. This is not always easy,but it is very important if funds are hardto come by. For instance, permanentlycorrecting a bunker that is routinelyeroded by washouts will reduce opera-tional costs while a pretty flower bed orfountain will tend to raise operatingcosts. Those kinds of expendituresmay be needed, but consider themcarefully!

• Remember that golfers come toyour course to play golf. Invest as muchas possible in the golf course turfconditions.

• Don't spend large amounts ofmoney on architectural improvementsif they are really not needed.

• Consult annually with a USGAagronomist to find out the latest infor-mation about turfgrass management,new products, and trends.

• Use the largest turf equipmentpractical. This helps to keep labor costsdown.

• Have backups for your most impor-tant pieces of equipment.

• Don't compromise on the necessi-ties of fertilization, weed control, aerifi-cation, and divot repair.

• Hire a top-notch assistant super-intendent.

• Don't let the attitude of "I don'tcare" develop. Superintendents must bemotivated and they, in turn, motivatethe crew.

• As a superintendent, be seen andcommunicate with the golfers. There isa need for constant education.

• Don't give in to the vocal minority.Develop a good agronomic plan andstick to it.

• Mandate the use of non-metalspikes to reduce wear on the course.

• Set up maintenance work schedulesto avoid conflict between the workersand golfers during the course of normaldaily grooming activities.

ConclusionThe public has a deep-rooted per-

ception that municipal golf is lowquality. Times have changed, and manymunicipalities are providing affordable,accessible, and better-conditioned golfcourses for the public golfer. In fact, the2002 U.S. Open will be played at theBlack Course at Bethpage State Park,a state-operated golf course.

There is hope for any municipalfacility in need of improvements byfollowing the advice and case studies inthis article. Municipal golf courses arestill the perfect venue to teach newgolfers the traditions and proper eti-quette of play in an affordable andsafe environment. Today's governmentofficials might not be able to get youto heaven, but there is no reason whythey can't provide a heavenly golfcourse.

Acknowledgements: The author wouldlike to thank Dave Feser, Dave Pease,Angelo Palermo, Bruce McIntyre, andMichael Copp for their assistance with thisarticle.

PATRICK M. O'BRIEN is Director of theUSGA Green Section's Southeast Region.His golf career started at the North ParkMunicipal Golf Course, owned by AlleganyCounty, Pennsylvania, near Pittsburgh.