Reports, Whitepapers, Articles, and Other Publications

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WEI Colleges Performance Report; FY21 Closeout

Yolanda J. Clark, Andy Blanke, and Brian Richard

The purpose of this report is to examine how Workforce Equity Initiatives (WEI) colleges create an equitable learning environment and workforce equity for a diverse group of students from disproportionately impacted areas. Promising practices that demonstrate how diversity, equity, and inclusion are integrated throughout the WEI lifecycle were identified by the NIU-CGS evaluation team. Fiscal Year (FY) 2021 closeout reports were analyzed to present student characteristics, key performance indicators, and enrollment in high-demand occupation training programs. Promising practices were identified during the qualitative data collection interview process with frontline staff and administrators.
Performance and Equity in Colorado’s WIOA Programs A Sequential Mixed-Methods Evaluation

Yolanda J. Clark and Brian Richard

CGS conducted an evaluation of Colorado’s workforce development programs for the Colorado Department of Labor and Employment. The sequential mixed methods model evaluated program performance, measured equitable outcomes for WIOA Title I participants, and identified best practices for continuous program improvement. This approach allows for the identification of patterns of potentially inequitable outcomes based on a quantitative analysis of the vast dataset of participant characteristics, services, and outcomes. This quantitative analysis is followed by interviews with frontline staff to better understand the patterns and identify potential promising practices that might be used to improve outcomes for participants.
Planning for a Northern Illinois Food Systems Network

Mim Evans, Mindy Schneiderman, and Aaron Merriman

While Northern Illinois is rich in agriculture and is home to the largest consumer market in the Midwest, little of the food consumed in the region is grown in the region. This time of disruption and change within food systems nationwide is an opportune moment to plan for a stronger northern Illinois food systems network. This study is a step in the planning process and was funded by the Chicago Region Food System Fund and the Illinois Farm Bureau, two organizations supporting Illinois agriculture and access to fresh foods for Illinois residents. The study was conducted by the Northern Illinois University Center for Governmental Studies (NIU-CGS) in collaboration with DeKalb County Community Gardens.
Sycamore Economic Development Playbook

Mim Evans and Andy Blanke

This report was prepared in conjunction with the City of Sycamore 2021 Comprehensive Plan Update: https://commons.lib.niu.edu/handle/10843/24303 Information gathered during the comprehensive planning process along with input from Sycamore’s Economic Development Commission (EDC) form the basis of the economic development playbook. Because this report was prepared in conjunction with the comprehensive plan update, the City has a guide to economic growth that is coordinated with its future land use plan. The goals and objectives developed by the EDC are a starting point for the City’s economic growth planning, including identifying specific implementation strategies.
Woodstock Illinois Age-Friendly Livable Community Action Plan

Mim Evans, Andy Blanke, and Norman Walzer

The City of Woodstock has a vision for an age-friendly future: Age-friendly Woodstock, Illinois is widely recognized as a warm, welcoming vibrant community offering lifelong opportunity and enrichment for youth and adults of all ages, abilities and lifestyles. This vision is in response to a big change already underway--in less than ten years, nearly half of Woodstock adults will be over age 55. As the City allocates resources, it will need strategies that ensure Woodstock’s changing population is well served. If successful, Woodstock will be a sought after location to live, visit and invest. The Woodstock Age-Friendly Livable Community Action Plan (AFP) will guide the City in its role as an AARP designated Age-Friendly Community. Work began two years ago with a City Council resolution and plan preparation began with funding from a Community Foundation for McHenry County Transformational Grant. A steering committee of residents, service providers, business people and others completed the AFP in April 2021.
City of Sycamore 2021 Comprehensive Plan Update

Mim Evans; Todd Vanadilok; Egret & Ox Planning, LLC; and Andy Blanke

The City of Sycamore Comprehensive Plan Update 2020 was completed in conjunction with the Economic Development Playbook. (https://commons.lib.niu.edu/handle/10843/24304) Coordinating preparation of these two documents ensures that land planning and economic development efforts of the City are mutually supportive. In addition, the combined process resulted in cost savings to the City and additional community input for each of the documents.
Illinois Community Colleges’ Economic Impacts and Student Employment Outcomes

Brian Richard, Andy Blanke, Nicolas Castillo, and Northern Illinois University Center for Governmental Studies

In 2020-21 the Illinois Community College Board (ICCB) contracted with Northern Illinois University (NIU) Center for Governmental Studies (CGS) to do an in-depth study of the economic impacts of the Illinois Community College System (ICCS). The ICCS Economic Impact Study report includes the following components: • An environmental scan demonstrates the need for and value of community colleges as a key component of state and regional workforce initiatives. External factors such as demography and the labor market are examined and highlight how the ICCS is well-positioned to meet community need and quickly place students in occupations and industries in demand. • A student-level outcome analysis highlights the substantial return on investment from community college certificates and degrees. Subgroup analysis on student demographics, types/lengths of certificates and degrees, and areas of study are examined. • An economic impact analysis establishes the importance of community colleges as economic engines and employment hubs in their host communities. District-level Economic Impact Study reports are available through each community college’s Public Relations division and/or Institutional Research division
Changing Expenditure Patterns in Illinois Municipalities

Andy Blanke and Norman Walzer

The economic recovery in Illinois following the Great Recession was relatively sluggish. Per capita expenditures by municipalities with a population of 25,000 or larger increased by only about 1% annually between 2012 and 2019 after controlling for inflation. In some instances, these municipalities lost population or had decreases in their tax base. Some made slight shifts to capital expenditures, perhaps to adjust from cutbacks during the recession period but these changes were relatively small. This article exams expenditure trends by size of municipality and location within Illinois. Substantial differences are found between those in the Chicago area versus downstate. Downstate municipalities had the lowest percentage increase in per capita expenditures, and those with populations between 25,000 and 50,000 reported spending less. Cutbacks occurred in health, cultural, education, and sanitation expenditures. We also provide insights into potential impacts of the recent COVID-19 economic downturn on local government expenditures.
Fiscal Implications of Population Declines and Demographic Changes in Small Rural Municipalities

Norman Walzer and Andy Blanke

Demographic trends suggest continued population declines and increases in the elderly population of small rural communities during the next decade and beyond. These changes could have significant implications for communities facing a need to provide the types of services needed to not only retain current residents but also to attract others. These changes in service delivery are occurring even while property tax bases are eroding, and tax rates are increasing. This article examines the evidence suggesting demographic trends and models the determinants of effective property tax rates in smaller Illinois municipalities. Factors associated with higher effective property tax rates include the decline of the property tax base, lower reliance on intergovernmental aid and charges and fees, less retail trade area captured, more services provided, and proximity to metro areas. The analysis also includes a discussion of innovative local economic development strategies in small municipalities to combat pending population declines.
Infrastructure Issues and Spending Practices

Andy Blanke and Norman Walzer

This paper examines patterns of infrastructure investment in Illinois municipalities since the end of the Great Recession. By evaluating the status of infrastructure in 52 municipalities using expenditure information from a 2018 survey of mayors, it summarizes the strategies being used and the degree to which municipalities are responding to fiscal stress by diverting resources from current services to offset capital needs. The results show that the overall condition of streets has deteriorated, whereas bridge structures are faring better. Water and sewer rates generally remain sufficient to sustain service, though some facilities need upgrades.
Illinois Critical Access Hospitals: Exploring the Financial Impacts of the Swing Bed Program

Melissa Henriksen, Brian Richard, and Jeanna Ballard

The Swing Bed Program is a Medicare program available to Critical Access Hospitals (CAHs) and rural Prospective Payment System (PPS) hospitals with fewer than 100 beds. The term “swing bed” may be simply thought of as a bed that moves from an inpatient bed to a skilled nursing bed, as needed. In rural communities, hospital-based swing beds are vital in keeping services close to home, as well as helping ensure coordinated care for rural Medicare beneficiaries. The Swing Bed Program is also an important contributor to the CAHs’ overall inpatient revenues. To better understand the significance of the Swing Bed Program in rural Illinois, the Illinois Critical Access Hospital Network (ICAHN) partnered with Northern Illinois University’s Center for Governmental Studies to survey Illinois CAHs regarding the importance of their Swing Bed Programs in terms of financial indicators, quality outcomes, and community benefits. The report highlights the survey results and additional data related to the Swing Bed Program in Illinois.
A Plan to Revitalize the Illinois Economy and Build the Workforce of the Future

Illinois Department of Commerce and Economic Opportunity

In 2019, the Center for Government Studies assisted the Illinois Department of Commerce and Economic Opportunity in development of a statewide, five-year economic development plan. The plan emphasizes revitalizing downstate and underserved communities across Illinois, encouraging entrepreneurship, retaining young adults, and reintegrating those displaced from the workforce.
Guidebook and Resources for Starting Community Supported Enterprises

Norman Walzer

By Norman Walzer, Northern Illinois University, in collaboration with Jacob Smith, NIU, and David Ivan, Michigan State University. (2019) In 2014, the North Central Regional Council for Regional Development published a report that examined 20 Community Supported Enterprises (CSEs) operating across the U.S., plus listed many others in operation at that time (Walzer and Sandoval, 2014). The CSEs mainly involved grocery-related stores and eating establishments typically in small towns. The enterprises fit the CSE model because they had local investment and were motivated by a social purpose, often to build social capital and improve quality of life. In several instances, these CSEs have closed due mainly to adverse financial conditions but with important lessons learned in the process. Others are profitable and flourishing. Growing interest in a CSE approach among public officials and community leaders generated interest in preparing a guidebook to help other groups chart a course to evaluate, and possibly start, a local CSE. Providing that assistance is the main purpose of this guidebook. It is not a manual providing a set course of action because each situation differs in market conditions, financial interests, and willingness of residents to invest or otherwise participate in financing the project. Nevertheless, common features among successful CSEs are highlighted in this Guidebook. It builds on the previous report by examining additional CSEs that vary in organizational structure, goods or services delivered, or financing approaches. In addition, more attention is paid to who was involved in the organizational effort and how the venture was marketed to potential investors. The intent is to provide sufficient information that readers interested in launching a local effort will gain insights into how to proceed even under different scenarios.
Modernizing Local Public Service Delivery Systems: LEAP into the future

Norman Walzer and Andy Blanke

This article examines the role of the Local Efficiency Assessment Plan (LEAP) tool designed to help public officials and the general public evaluate their county’s governmental structures while taking into account likely population changes through 2025. It provides insights into probable changes in costs, property taxes, and other fiscal issues as a result of population changes projected by the Illinois Department of Public Health (IDPH) using the cohort survival method. The results show that more elderly residents, fewer residents of working age, and fewer youth in some counties will force serious decisions about the type and quality of services provided, as well as the most appropriate and efficient way to deliver them.
Insights into Rising Pension Costs in Illinois Municipalities

Andy Blanke and Norman Walzer

This article examines the funding status of downstate (which includes suburban) Illinois police and fire pension funds in relation to professional recommendations, the numbers of participants, benefits, actuarial assets and liabilities. In addition, relationships between municipal characteristics and changes in funding rations are analyzed to provide insight into the factors associated with changes in funding ratios. This article concludes with a discussion of potential approaches for addresses rising pension costs with possible implications for Illinois.
Illinois Municipal Price Index (MPI)

Northern Illinois University Center for Governmental Studies

The Illinois Municipal Price Index (MPI) was developed by the Illinois Institute for Rural Affairs at Western Illinois and is updated annually by Northern Illinois University's Center for Governmental Studies staff with assistance from the Illinois Municipal League. The MPI is designed to measure the increases in prices of goods and services purchased by Illinois municipalities. Comparisons of the price and wage increases are shown for city expenditures as a whole and by major department so that users can determine the extent to which expenditures, in constant dollars, have changed through time. The MPI differs from other indices such as the Consumer Price Index (CPI) or the Producer Price Index (PPI) in that it is constructed based on purchasing patterns of cities rather than consumers or businesses. The MPI is a weighted aggregate of price relatives which means that the price or wage increases are weighted by the relative importance that each represents in the city or departmental budget.
Journal of Local Government Shared Service Best Practices Second Edition

Evelyn Sanguinetti

As a result of the 2015 Task Force on Unfunded Mandates and Government Consolidation, CGS assisted the Lieutenant Governor’s office in conducting a survey of best practices in shared services among Illinois local governments. Two surveys were conducted in 2016 and 2017, documenting examples of local collaboration and resource sharing underway in school districts, municipalities, townships, and special districts.
Modernizing Local Service Delivery Systems: Local Efficiency Assessment Program

Norman Walzer and Andy Blanke

With rural governments in mind, CGS Senior Research Scholar Norman Walzer and Research Associate Andy Blanke have developed Guidebook to Modernizing Local Service Delivery Systems, where they discuss the Local Efficiency Assessment Program (LEAP), and the Local Government Efficiency Assessment Dashboard. Concerns about rising costs of local public services, property tax increases, the large number of governments in Illinois, and stagnant or shrinking populations have caused local public officials especially in rural areas to re-examine arrangements for providing public services. Existing delivery systems started under substantially different travel and communications environments. County populations are now smaller in many instances than when the governmental structures were created and information technology now offers new and less expensive ways to deliver essential services. In 2014, Governor Bruce Rauner created the Task Force on Governmental Consolidation and Unfunded Mandates, chaired by Lt. Governor Evelyn P. Sanguinetti, to find ways to reduce the costs of public services and property taxes. The Task Force deliberations resulted in legislation enabling local officials and taxpayers to change government structure and make arrangements for delivering services when needed. The Task Force report in December 2015 made 27 recommendations for statutory changes permitting local elected officials and residents to more easily modify the governmental arrangements for providing services. In some instances, local leaders can consolidate small units of government that now provide limited services with small staff. In other cases, the legislation enables coterminous governments to combine agencies. In no instance, do the Task Force recommendations require actions by local officials; rather, it removes barriers and enables local leaders to adjust delivery systems for local services. The resulting legislative changes are shown in Appendix Three. Even when statutory authority exists, making changes to the current delivery system is difficult because of personal interests and general resistance to change. Likewise, cost-savings are not always immediate or apparent so policymakers may be reluctant to make adjustments even though significant cost-savings may occur in the future. At the same time, however, delaying these decisions can increase the costs to each taxpayer in the future, especially in areas expecting population declines. The higher tax burden can make a county less competitive in attracting businesses or populations. By Illinois Department of Public Health (IDPH) estimates, 52 rural counties in Illinois will experience declines in population between 2015 and 2025. It is likely that in many instances these declines will continue in the future. In some counties, the loss in population will be 10 percent or more. In addition, the population composition will change with substantial growth in the elderly population cohorts and declines or small growth in the proportion of school age populations. The result is that the relative mix of services needed will change by 2025 and beyond which may mean additional expenditures. The importance and impact of property taxes increased with the passage of tighter federal limitations on state and local taxes (SALT) as deductions in calculating income taxes. The fact that Illinois ties with New Jersey for the highest property taxes will pressure local officials in Illinois to find ways to provide needed services at lower costs or replace property taxes with other revenues when possible. Finally, there is growing concern about the rising costs of public pensions, especially in school districts where a high proportion of local expenditures are for pensions rather than classroom activities. These costs, combined with shrinking populations, may require school consolidations along with other efficiency measures. Recognizing these likely changes, the Governor’s Rural Affairs Council commissioned the Northern Illinois University Center for Governmental Studies to prepare a Guidebook with materials to help local public officials examine the potential for changes in the local public service delivery system. The Guidebook focuses solely on local interests, data, and preferences to find alternative delivery arrangements to reduce costs and property taxes. There is no set arrangement or prescription changing the delivery arrangements. Rather, the Guidebook helps local officials, administrators and residents think through options where services can be provided in different ways by agencies collaborating or rearranging their efforts. The Guidebook focuses on services likely to be needed in 2025, compared with the resources expected at that time based on perceptions of local practitioners and community leaders. There is no attempt to single out specific government units for elimination even though local decisions may cause that to happen. Instead, the intent is to help local decision-makers provide the highest quality of services at the lowest costs through organized efforts of local public officials, employees and taxpayers.
Municipal Fiscal Responses in the Post-recessional Era

Norman Walzer and Andy Blanke

This article examines the fiscal challenges Illinois municipalities faced following the 2009 recession and the ways in which they responded. In order to shed light on the strategies and actions employed during this post-recession period, Census of Governments’ data were used to identify the impacts on municipal revenues and expenditures from 2007 to 2017, and over 90 mayors and managers of Illinois municipalities were also surveyed. The results suggest that state aid to municipalities did not keep pace with inflation between 2007 and 2015, and the most common strategies used to maintain balanced budgets were increasing water and sewage charges and delaying infrastructure projects.
A Briefing: Promise & Programs in Rural Illinois

Norman Walzer and Rural Partners: The Voice of Rural Illinois connecting people and communities with resources

Population projections show that rural Illinois will face serious issues in the next decade and beyond, with population declines, shrinking young population cohorts, and increasing proportions of elderly that may retire and/or move out of Illinois, closing many small businesses that have provided essential services for many years. This may result in loss of tax revenues needed to support infrastructure, education, and other services important to maintaining local quality of life in some areas. Anticipating these changes and designing programs to take advantage of resources and opportunities now will help avert more serious issues in the future. For nearly three decades, as the state’s federally designated rural development council, Rural Partners has been a voice for rural Illinois, helping public officials design policies to improve the quality of life and enable rural areas to prosper. Working with the Governor’s Rural Affairs Council (GRAC) and the Illinois Institute for Rural Affairs (IIRA), Rural Partners helps state agencies learn about and evaluate ways to advance rural counties and promote prosperity. This policy brief suggests approaches to expand opportunities for successful strategies.
City of DeKalb: 2025 Strategic Plan - Economic Development Implementation Strategies

Northern Illinois University Center for Governmental Studies, City of DeKalb Economic Development Commission, Melissa Henriksen, and Mim Evans

CGS assisted the City of DeKalb in developing a citywide strategic plan encompassing a variety of topic areas. This document focuses on the implementation of the economic development components of the overall plan.
Community Supported Enterprises as a Local Investment Strategy

Norman Walzer

Aging business owners, declining markets because of population declines, and slow local economies have threatened essential businesses in many small rural communities. In response, local groups have organized efforts in which residents pool their funds to purchase or reinvigorate a threatened business that adds significantly to quality of life. These Community Supported Enterprises have grown in popularity with the advent of Crowd-funding techniques. Norman Walzer, of CGS, describes the results of a national survey of how CSEs are organized, managed, and operated, along with their successes.
Downtown Development Strategies in Illinois: Assessing the Priorities of Municipal Leaders in Illinois

Norman Walzer, Mim Evans, and Michael Aquino

Retail and downtown issues are changing with Internet buying growing in importance. Consequently, local public officials are exploring alternative strategies and approaches to update the roles played by downtown areas to make them match the interests and preferences of residents. The changes include adding entertainment options, local arts and crafts, residential options, co-working opportunities, and linking with unique nearby attractions such as recreational areas. This article by Norman Walzer, Mim Evans and Michael Aquino, of CGS, reports the results of a statewide survey of Illinois mayors on innovative strategies used in enhancing downtowns.
2016 Journal of Local Government Shared Service Best Practices

Evelyn Sanguinetti

As a result of the 2015 Task Force on Unfunded Mandates and Government Consolidation, CGS assisted the Lieutenant Governor’s office in conducting a survey of best practices in shared services among Illinois local governments. Two surveys were conducted in 2016 and 2017, documenting examples of local collaboration and resource sharing underway in school districts, municipalities, townships, and special districts.
Measuring the Strength of Illinois’ Municipal Reserves: Do Communities have the Flexibility to Wrestle with Unforeseen Events?

Shannon N. Sohl, Andy Blanke, and Norman Walzer

This study explores the fiscal condition of Illinois communities by evaluating levels of unrestricted net assets for municipalities with 10,000 to 50,000 residents that issue financial reports using generally-accepted accounting principles. Recognizing that reserves available for discretionary use are critical to dealing with unforeseen events and responding to unmet needs, it uses multivariate analysis to identify relationships between poverty rates, Home Rule status, the structure of government, and other variables on reserve levels. The report also outlines important steps communities can take to bring reserves to more financially healthy levels.