An indirect approach to economic development
by Mike Kroll
In
corporate America it is common for large, established industry behemoth
corporations to become entrenched and resistant to change, even when that
change is clearly in their self-interest to embrace. When young, upstart
competitors who don't suffer from this inertia begin nipping at their heels as
small but real competitors it is common practice for those corporations to
resort to a strategy of instilling Fear, Uncertainty and Doubt
in their customer base with regard to these small competitors with “risky” new
ideas or products. They employ the FUD strategy because it often works with
risk-adverse customers even though the products and services offered by the new
companies may very well be superior and economically advantageous.
When the
leaders of the Galesburg Regional Economic Development Association were first
challenged by local elected officials and citizens they promptly adopted the
FUD strategy, as did their supporters and apologists. When it became clear that
most thoughtful people would no longer believe their claims of success that
contrasted sharply with all available evidence and their strict adherence to
absolute secrecy precluded them from offering credible alternative data of either
process or outcome GREDA appeared to be in trouble. But FUD had never before
failed them so they and their supporters came back with the argument that in
essence stated that having an established group such as theirs was essential
despite a total lack of success (and at great cost cost I might add) so there
was no credible alternative to holding one's nose and blindly continuing their
reign.
When the
Galesburg city council last month narrowly voted first not to approve a new
“improved” GREDA contract that actually included no substantial changes from
the existing contract and then voted to terminate the existing GREDA contract at
the same city council meeting everyone was shocked. The GREDA officials and
their supporters threw their hands up in disgust and dismay at how stupid and
fooling the city council had been. Immediately the PR rescue battle was begun
as GREDA and their supporters told anyone who would listen that these
irresponsible fools booted GREDA out without any alternative in place! Even the
Register-Mail got on-board this propaganda wagon with editorials pleading with
the city council to work out their differences with GREDA so local economic
development critical to this community's survival wouldn't be rudderless.
This entire
argument is of course bullshit. A much stronger case could be made that GREDA
was worse then merely ineffective -- it was actually counterproductive to the
Galesburg area's economic development success.
By
continuing to pursue a false and outdated strategy focused on attracting medium
to large manufacturers to relocate here; by attempting to promote an
ill-conceived, misplaced Logistics Park/intermodal facility; and by adopting a
marketing plan reliant solely on incentives and the false promise of an ample
available low-cost skilled workforce – realistically there was no way GREDA
could ever be successful. To have continued employing a clueless GREDA the city
council would not only be throwing good money after bad but wasting precious
time. We can ill-afford to squander as the local situation steadily deteriorates. Sad as it is, this
community has little to lose by attempting almost any other approach. Expecting
GREDA to suddenly change its ways would be delusional.
Galesburg
needs a plan that is both realistic and doable. A plan that recognizes that
economic development is really a community-wide effort and not just the
playground for a privileged few. A plan that begins by shedding a whole pile of
misassumptions and misrepresentations of just what the Galesburg community is or
realistically can become. A plan that places much more emphasis on improving
city infrastructure, services and quality of life and relies on indirect rather
than direct incentives to attract new people or businesses to Galesburg. A plan
that recognizes the time and place that this community currently sits upon;
with a declining population and tax base coupled with a national recession we
must act very soon before the resources to support any plan are no longer
available and Galesburg becomes unsustainable as a community.
Candid reassessment and community
reinvestment
We need to
begin with a realistic appraisal of the Galesburg community. What are our
strengths and what are our weaknesses? Strengths are aspects of the area we
need to bolster and promote but we must be careful that we are honest with both
ourselves and outsiders about just what are strengths. The Galesburg community
has a long history of looking at itself through rose-colored glasses and retain
the illusion that all was wonderful. Whenever anyone seriously suggested the
existence of problems or the value of reflection and remediation they have been
systematically undermined, discredited, muzzled and ignored. This attitude is
responsible for much of the dilemma
currently faced by our community. Ignorantly denying the existence of
problems won't make them disappear but it will provide more time for them to
fester and grow. Blind complacency
also undermines the community's credibility with outsiders who see for
themselves the weaknesses we deny to ourselves.
Now is the
time for honest community self-examination and a commitment to begin correcting
for past mistakes while we explicitly recognize the value and importance of
properly maintaining public services and infrastructure even if that requires
higher taxes or fees. We can no longer placate those who argue that bad
economic times necessitate a massive tightening of government belts if
Galesburg is to have any chance at all to recover. But such taxes and fees must
be fairly applied to all just as public services and infrastructure must be
designed and maintained for the benefit of the entire community.
Geography
-- A realistic self-appraisal will help us target better our
business attraction efforts while simultaneously helping to direct the most
effective and efficient use of tax dollars for community development. For
example, if we ignore GREDA's propaganda and study the geography of Galesburg
closely we can see that the intermodal facility idea was little more than a
pipe-dream just as the notion of becoming an attractive location for regional
distribution. Not only is Galesburg too far removed from the metropolitan
Chicago area to compete with the bevy of new and existing intermodal facilities
that ring that area the interstate highway serving us (I-74) is not a
first-tier interstate that directly connects us to any significant urban area
or a sufficient number of smaller communities to make Galesburg a practical
location for regional distribution. Communities located astride I-80 or I-55 are
in a much stronger position for such sites.
Another
important geographical weakness of Galesburg is that we are not adjacent to a
major waterway or lake. Not only does this greatly diminish our distribution
potential for commodities such as agricultural products but it also limits the
types of manufacturing businesses that we can realistically support. Any
business that utilizes massive quantities of water that are not cost effective
to recycle within the plant itself will pose major problems for our wastewater
treatment system. While the Galesburg Sanitary District can properly treat a
much larger amount of wastewater than currently goes through their plant the
GSD's Achilles' heel is in the strict limitation on the amount of treated
wastewater they can release into the Ceder Fork Creek. This would be
particularly true for a major food processor or manufacturer.
Workforce
-- Beyond geography there are some very real demographic issues
that should impact our economic development plans. Not only is the Galesburg
area losing population but the population that remains is not the wonderful
skilled workforce that GREDA has been claiming for years. If this area is going
to attract new businesses they will either have to bring their employees with
them or we must work to resurrect the demographic base of the Galesburg
community itself.
Most of the
employees at Maytag or Butler or Briggs were not highly skilled or educated.
For the most part these were low-skill manufacturing jobs that simply don't
exist in Galesburg's future. The best, most skilled and educated of the
employees who once worked at Maytag or Butler have either long since found
other work elsewhere or are retired. A good number have moved from the
Galesburg area in search of suitable employment. If we could attract even a
modest number of new manufacturing jobs to Galesburg they would need far more
skilled employees than we have available at this time. This is one of the
reasons Galesburg was never seriously in consideration when Pella Windows went
to Macomb.
We cannot
ignore the value of an educated and skilled workforce in the rebuilding of the
local economy. Currently one in five local adults have neither a high school
diploma nor a GED while less than 16 percent of our adults have a bachelors
degree or better. Unfortunately at the present time the best and the brightest
of our children leave for college and never come back while the most talented
and most educated adults are frequently leaving Galesburg for better employment
opportunities elsewhere. In essence what remains of our available work force
are a small cadre of professionals and self-employed, educators and health care
workers, a small group of skilled workers and a much larger group of
low-skilled or unskilled or unmotivated adults. It should come as no surprise
that the Galesburg area has had so little success in attracting new businesses
to relocate here.
Finally,
for years we have touted this city as a great place to live and raise a family
– and it is. However, our inattention to city services and infrastructure as
well as inability to come to grips with weaknesses in our public schools are
undermining this “strength.” Galesburg remains a good place to live but the
quality of life here is moving in the wrong direction. To be successful we must
reverse this trend and make the types of investments that will make Galesburg
more attractive and inviting.
Infrastructure
-- Much of Galesburg's infrastructure has been allowed to decay
from inattention over the last few decades as our city officials worked hard
not to commit tax dollars to such mundane needs as our water system, storm
sewer system, streets and sidewalks, and parks. Today Galesburg is in the midst
of the largest, costliest public works project in the city's history because we
could no longer ignore maintenance of our water system. While we have completed
much ballyhooed storm sewer upgrades along Main Street and Henderson Street
much of the remaining storm sewers in Galesburg have been ignored for decades
and a number of neighborhoods have no storm sewers at all. Ditto for sidewalks
despite a few small sidewalk projects conducted in recent years.
Galesburg's
streets are becoming a huge problem. Today city public works officials have a
declining amount of funding with which to maintain city streets and much of
that is devoted to completely replacing streets that have become too bad to
cost effectively repair. In the meantime more and more Galesburg streets are
deteriorating before our eyes but the city no longer has either the manpower nor
the resources to properly conduct either regular or preventative maintenance on
our streets. If you don't think this is a priority for economic development you
don't understand just how bad an impression this crumbling infrastructure has
on anyone contemplating moving their business or family to Galesburg. But just
as importantly, as the city infrastructure declines so too does the
attractiveness of Galesburg as a place to live. Not only must we attract new
residents but we must work hard to stem the ongoing population loss.
Education
-- Too many of us assume that high quality local schools are an
unquestioned existing Galesburg advantage but realistically our local schools
have numerous deficiencies that are not being acknowledged or addressed in any
real terms. The argument that the state school funding formula short-changes
communities like Galesburg while true does not negate our community's
responsibility to our children. For the large of mass of children in the middle
of the bell curve Galesburg schools do an adequate job. It is the students who
make up the two tails of this curve that we regularly fail.
It is
obvious to most that low performing students are not educationally successful,
but it is seemingly less clear how many of the best and brightest of our local
children fail to perform because the school system doesn't adequately challenge
them or command their interest. The result is expressed by the exceptionally
low graduation rates in Galesburg. Local school officials constantly try to
play statistical games to artificially inflate the graduation rate but the
simplest indicator is the difference between the number of students who enter
Galesburg High School as freshmen and the number who graduate four years later.
By this simple calculation we find GHS graduation rates between 70-75 percent
in recent years.
An
effective school system cannot operate on the overriding philosophy that
governs School District 205, that all students must be treated exactly the
same. The fact is that no two students are exactly the same and to effectively
educate them we must acknowledge these differences and adjust our schools as
much as possible to accommodate the individual needs of each student. The
further removed from the norm a student finds oneself the greater the need for
extra resources. The current system leads many of those on both ends of the
curve to act out and misbehave and the most common solution employed in our
schools in such instances is disciplinary suspension or expulsion (unless the
student in question is the son or daughter of a key community member where the
overriding philosophy does not apply). Galesburg public schools today
apparently prefer to cull the outliers from the heard.
Our schools
must focus instead on keeping kids in school and graduating them with
meaningful diplomas. This means making adjustments to staffing and curriculum
to permit a slower pace for the struggling student in those subjects where
required and simultaneously reducing frustration and boredom for students need
more challenges and a faster pace. Interestingly, these two opposite approaches
may be applicable to the same student across differing subjects. The weak math
student may be a great reader for example. And finally we must recognize that
the undue focus on only reading and math scores in the No Child Left Behind
program is a great disservice to our children who need to be knowledgeable and
proficient in science, history, geography, communication (written and oral),
and so much more to be successful and employable adults.
Community – A city is
much more than streets, sewers and schools. An attractive city offers quality
parks and recreation, a modern spacious public library, arts and culture.
Galesburg has some of all these things at present but most are just as much in
need of attention as the infrastructure mentioned above. If you don't think an
outsider evaluating Galesburg as a place to live or bring her business doesn't
notice the deteriorating state of our local parks or the cramped quarters of
the Library your not being honest with yourself. All of these are high profile
checklist items for most discerning evaluators.
So too is
the general state of our private infrastructure. Visitors do notice litter and
junk. They notice poorly maintained homes and business buildings and they
certainly notice vacant and abandoned buildings. Just as a prospective employee
is judged by his appearance so to is a prospective new hometown. In recent
years Galesburg has begun to deal with this problem but mostly by penalizing
offenders. This approach has hardly been a success and it has resulted in an
escalating number of demolished homes. At present very little consideration has
been given to offering assistance and/or incentives to property owners to
cleanup and renovate their properties. In the 2009 city budget a whole $10,000
was earmarked for such programs, but only after a skeptical penny-pinching city
council was shamed into doing so.
The first
and most important economic development priority must be community development
efforts to fix what ails Galesburg. We absolutely must rebuild this community,
including its population, if we are to expect any significant business
investment from the outside.
The city
has very real resource limitations, however, while more than $500,000 was squandered
on the “China Initiative” and nearly a million dollars has already been spent
on the hapless Logistics Park the city has actually reduced its investment in
both capital projects (excluding the water system) the staff of public works,
water, parks and recreation to a near critical level that precludes adequate
maintenance. While the city council has eagerly put more and more money into
GREDA they have become increasingly penny-pinching when it comes to properly
maintaining city services and infrastructure. There is little doubt in my mind
which approach would have been a better investment. Look at it this way,
investing additional funds into local infrastructure, even if we need to sell
bonds to do it, is a localized version of an economic stimulus package for
Galesburg that offers a real return on our investment (very unlike GREDA).
Traditional
economic development
The traditional approach to economic
development focuses on luring existing businesses to relocate manufacturing
plants to your community and the focus is nearly always on those employing
hundreds or workers. And the most common attraction method has been to dangle
incentives (read bribes) before the eyes of potential new businesses. This has
been the prevailing strategy of GREDA and it predecessors. The weakness of this
approach is that there is little evidence that it ever pays off.
There are
two major reasons for this lack of success: and exceedingly small number of
opportunities combined with covert nature of the process that limits a community's
opportunity to proactively participate.
City
manager Dane Bragg, an economic development guy himself, noted just this Monday
afternoon that there are maybe 200 “big fish” industrial economic development
opportunities nationwide each year and “Illinois typically sees maybe three or
four of those.” Furthermore, “the focus of most of these opportunities is going
to be concentrated in the greater Chicagoland region and few will even consider
downstate communities like Galesburg,” noted Bragg. “In many cases a small
community like Galesburg is unlikely to even be aware of many of these
opportunities unless we are approached.” And it should also be noted that
Galesburg would need to be lucky for even one of these opportunities to be a
good fit for us.
By “big
fish” we are talking about plants or operations employing 250 or more. Smaller
opportunities are even less likely to pop up on the radar of a community like
Galesburg. If you are unaware of specific potential opportunities it is
impossible to cost effectively operate in a targeted proactive recruiting mode.
Instead, GREDA and its predecessors have engaged in a much less efficient
scattergun approach to marketing where any success would almost have to be due
to pure chance alone.
While the
traditional secrecy surrounding everything about local economic development
makes such analysis exceedingly difficult, to my knowledge every one of the
small number of local economic development successes have been with businesses
that approached GREDA or the EDC rather than the other way around. While a
certain amount of active recruiting seems necessary, if only to enhance
awareness of the Galesburg area as a potential site it seems clear to me that
most of the money spent in proactive economic development marketing is most
likely a poor investment of resources.
“Economic
development is almost all relationship-based,” observed Bragg. “I believe you
have to be very strong in relationship building to be successful and you have
to need to understand the industry segments you are best positioned to compete
in. In Galesburg's case those two segments are agriculture and rail. They offer
our greatest chance of success but any number of other communities in Illinois
are in much the same position as Galesburg in this regard.”
The
relationships Bragg believes we must build aren't with prospective new
companies themselves but rather with middlemen such as banks and Realtors and
consultants who are in a position to insert Galesburg into consideration. This
would be a hit or miss proposition at best for cold calling and can probably be
accomplished sufficiently by attending targeted trade shows at relatively modest cost.
“Incentives”
-- Once a potential business is considering Galesburg the next
issue is what makes us attractive. While GREDA has always trumpeted all the
usual community characteristics when you get right down to brass tacks they
have always viewed competitiveness as a function of available incentives.
Generally this amounts to free or drastically reduced real estate costs, tax
reductions and outright cash gifts.
Even if a
community is successful in luring a new business through such incentives at
what cost were you successful and what real benefits will your community see
from the effort? Jobs are just one measure of economic development, an
important one surely but just as surely not the only measure. Just like other
citizens, businesses have civic obligations of good citizenship. They must not
only contribute to the local employment rolls but also pay their share of local
taxes and fees and make their share of contributions to the betterment of the
community.
Most
incentives are based on eliminating or minimizing those other civic
responsibilities of business and as such most often undo any gains from that
business’s arrival. As an illustrative example look at what Maytag did. Over
the course of many years the company and its predecessors systematically
extorted every single possible economic development incentive available only to
leave just as those benefits expired. Businesses, just like individuals or
families, should choose to make Galesburg their home because of the inherent
qualities of the community itself not because of the comparative size of the
bribe. Because when incentives are the primary motivation you must expect that
businesses commitment to the community to only last until another community
dangles a more lucrative bribe.
Strong
communities grow from the longterm commitment and investments made by the
businesses and citizens alike and through the responsible governing and
investments made by the elected leaders of that community as well. The failure
of any of these three groups will undermine the success of the community as a
whole.
Responsive
economic development – While most direct economic development is likely a
poor use of resources it seems just as clear that having a strong and
responsive staff in place to properly handle inquiries is an essential and
necessary expense. If Galesburg is to handle economic development directly then
clearly it will be necessary to hire at least two staff to assist economic
development director Cesar Suarez. One of these would be a professional level
assistant who is capable of handling prospects directly while the second would
be essentially an administrative assistant to handle correspondence, record
keeping and the necessary databases. In all likelihood these clerical tasks may
require at least an additional part-time person brining the staff to about 2
1/2 plus Suarez.
The $75,000
currently paid to GREDA would clearly be insufficient to cover this extra
personnel cost alone much less the other necessary operational expenses.
However, it must be remembered that GREDA received much more than just that
$75,000 from the city to cover its costs. The additional personnel costs beyond
Suarez's own (which are already included in the city budget) would most likely
not exceed $125,000 including benefits. Estimating non-personnel costs is a bit
more difficult particularly because of a shortage of available office space in
City Hall. Much of the half-million dollar extra cost to the city estimated by
Bragg is related to acquiring and outfitting the necessary additional office
space but it does seem like an unnecessarily lavish budget even by city
budgeting standards.
In 2007 the
quarter-cent economic development sales tax netted more than $815,000 in
revenue of which about $287,000 went to paying off the Logistics Park bonds. In
2008 the sales tax revenue was nearly $844,000 and $283,000 was paid on those
bonds. The 2009 city budget estimates sales tax revenues at more than $885,000
and bond payments of $281,000. As you can see there is a substantial difference
between the amount of tax revenue collected and the direct cost of paying back
the bonds. In past years it was this difference that paid for the other GREDA
expenses and the city could just as easily use it to pay for those direct
expenses of its own.
Retail
recruitment and consultants – The city's 2009 budget already
includes planned expenses of more than $105,000 just for consultants. More than
half of this is to support the ill-conceived program of retail recruitment
while the remainder is to fund downtown marketing and the feasibility of
second-story loft apartments as well as a housing study.
The money
and time currently devoted to retail recruitment is very hard to justify as
such recruitment is merely a sham effort to appease some aldermen. Retailers
will locate here only when their research shows that they will most likely be
economically successful in the Galesburg market. A declining population coupled
with declining household incomes (nearly one in five residents live at or below
the Federal poverty level, 60 percent of local households had an income of less
than $50,000 last year and the median household income has been declining in
Galesburg in recent years) do not make Galesburg an especially attractive
location for retail investment at this time. Spending money on high-priced
consultants will not change these circumstances.
People
ponder why Galesburg doesn't have more dedicated apparel stores or why our only
bookstore just announced that it was closing but the declining community
demographics hold the key. When proponents of retail recruitment point to the
vast area surrounding Galesburg as home to many more potential shoppers they
myopically misread the situation. You see the declining demographics are not
just in Galesburg proper but throughout the area surrounding us. If anything
Galesburg has been an island amidst a sea of demographic despair and our own
situation has been somewhat bolstered by a small influx of rural migration into
the city itself. Fewer and fewer small communities can even support convenience
stores and even bars in small towns are suffering the decline in both
population and affluence.
Of the four
planned consultant projects the only one that may not be a waste of tax dollars
is the housing study, but given the city's history with consultants' reports it
seems unlikely that this would be of much real value either. I would estimate
that by canning these consultant projects this money would more than pay most
of the realistic non-personnel expenses of a city run economic development
operation and therefore not break the city budget.
Not only do
I believe that the city can run its own economic development operation better
than that of GREDA's the majority of the most critical investment isn't in
direct economic development expenses. The largest, most important expenses must
be in the community development expenses summarized at the top of this article.
Not only will such investment do wonders to make Galesburg more attractive to
outside businesses, it will also make Galesburg a much nicer place in which to
live for both current and prospective residents.
1/8/09