Milwaukee City Council Meeting: Parks IGAs, Operations, and Milwaukee Bay Park – September 24, 2026

The city council held a special session on September 23, 2026 (recorded as September 24, 2026), focused on three parks-related agenda items: an update on intergovernmental agreement (IGA) negotiations with North Clackamas Parks & Recreation District (NCPRD), a discussion on the future of parks operations and maintenance (OM) funding, and an update on Milwaukee Bay Park Phase 3 capital project. The meeting included public testimony, extensive council deliberation, and unanimous votes.

Public Comments & Testimony

• Jacob Sherman, a community member, expressed full support for the city leaving NCPRD, characterizing the relationship as an “abusive relationship.” He thanked staff and council for their efforts and urged the council to move forward with creating an independent parks department. He expressed interest in exploring scenarios B1.2 and B2 (specific funding and service-level options) and requested more information on how the 75-cent rate compares to other districts.

Discussion Items

1. IGA Negotiations Update

• City Manager Emma Sagor provided a history since January 2025: the city sought to restart Milwaukee Bay Park Phase 3 (stalled since 2022). NCPRD agreed to discuss only if the city amended the cooperative IGA. After 20+ staff meetings and six elected-to-elected sessions, two agreements were drafted: an addendum to the cooperative IGA and a specific IGA for Milwaukee Bay Park. The city’s “gives” included assuming capital maintenance at the Milwaukee Community Center (estimated $560,000–$1 million over 5 years) and ongoing costs; NCPRD’s “gains” included $3.1 million in SDCs, $900,000 in Metro local share, and a trolley trail grant. The city council approved the agreements on April 21, 2026. However, NCPRD delayed a vote in June, asked for DAC input, and in August the DAC recommended approval with conditions (regional input, parking, levy support, utility costs). In September, the NCPRD board again postponed, citing need for more time and scheduling a work session (reportedly in executive session). The city manager noted that NCPRD has not fully paid utility bills (over $45,000 outstanding).
• Mayor Beatty expressed frustration, calling NCPRD’s actions “dithering” and “moving the goalposts.” He stated, “I don't think it's a good deal for us anymore,” and recommended withdrawing from the IGAs.
• Council President Massey detailed the expanded scope (master IGA, parking, regional input, levy support) that went beyond original negotiations. He noted the NCPRD levy has not been raised since 1990 despite 155% CPI increase and 180–250% construction cost increases. He argued the deal “keeps getting worse” and said, “I think the time is now” to end negotiations.
• Councillor (Coserbody) stated the city has been “decisive” but NCPRD is “like a bad boyfriend” stringing them along; it’s time to “pull the plug.”
• Councillor Salinger questioned the DAC’s additional items (regional input, parking, levy support) that were not part of the original negotiations. She noted that the NCPRD board has not communicated directly since June, representing a lack of transparent, collaborative leadership. She agreed that the process feels like “a delay on purpose.”
• Council discussed a resolution to rescind authorization for the city manager to sign the IGAs. The resolution was introduced and amended (council president’s change: “unilaterally changing the scope” instead of “withdrawing”).

2. Future of Parks Operations & Maintenance Funding

• City Manager Sagor and Public Works Director Peter presented an analysis of OM costs if the city proceeds with all planned capital projects (Milwaukee Bay Park, Metro community choice grants, etc.). Without new revenue, the city would face approximately $200,000 annually in additional OM costs. Scenarios included:
  • Stay in NCPRD: new revenue needed (utility fee $2.50–$4/month, or ~7 cents tax rate), or cut services.
  • Leave NCPRD: at current 54-cent rate, all parks except Community Center and North Clackamas ball fields would be covered (deficit if all parks included); at 75-cent rate, all parks could be funded with a reserve.
  • Enhanced service level (+20%) would require 75 cents but still run a deficit.
• The city does not currently have a parks department; all OM is done by NCPRD. Happy Valley’s departure experience was shared.
• Councillors discussed concerns about affordability, equity, and the need for deep community engagement, particularly with vulnerable populations.
• Council President Massey favored leaving but had questions about the Community Center and ball fields. He warned that a 54-cent levy might fail due to insufficient service expectations.
• Councillor (Coserbody) emphasized fiscal responsibility and the city’s affordability goal, noting that any tax increase disproportionately affects low-income residents and seniors. He opposed rushing into higher rates and stressed the need for a broader conversation about budget trade-offs.
• Councillor Salinger supported leaving but wanted robust community meetings with specific scenarios, not just surveys.
• Council President (Anderson) suggested the 54-cent rate could be a no-tax-increase option, and a system plan would help determine long-term investments.
• Consensus emerged to explore departure from NCPRD and to communicate that intent, including asking NCPRD to drop its pending Supreme Court appeal (a case on the city’s right to leave the district under ORS 222).

3. Milwaukee Bay Park Capital Project Update

• Public Works Director Peter presented the procurement plan: a sole-source contract with Not Studio (former Two Ink, the project’s original designer) to complete design from 50% to 100% construction documents, and a competitive solicitation for a Construction Manager/General Contractor (CMGC).
• The CMGC will provide cost estimating, constructibility reviews, and a guaranteed maximum price. Awards expected: Not Studio in October 2026, CMGC in January 2027.
• The city manager noted that a $658,000 Metro trolley trail grant (currently held by NCPRD) is needed and discussion with NCPRD about assignment should follow the appeal request.
• The city also applied for a federal LWCF grant (due November 12), and will reapply for a state grant in 2027 after better timeline alignment.

Key Outcomes

• Unanimous vote (4-0) to approve a resolution rescinding the city manager’s authorization to sign the IGAs with NCPRD, effectively ending the negotiation process. The resolution was adopted on September 23, 2026.
• Council consensus to direct the mayor and negotiation team to send a letter to NCPRD stating the city’s intent to explore departure from the district and requesting that NCPRD drop its Supreme Court appeal. The city manager was also asked to informally communicate this direction to NCPRD’s administrator.
• Council directed staff to return at the earliest opportunity (targeting October 6) with proposals for community engagement (deep, inclusive meetings with specific scenarios), timeline options for a potential May 2027 parks levy or permanent rate increase, and additional financial analysis (e.g., hybrid progressive tax, impact on affordability).
• Staff was also asked to discuss with NCPRD the assignment of the trolley trail grant, but the appeal drop is the priority.
• The city will move forward with Milwaukee Bay Park Phase 3 independently, using the CMGC and design contracts as presented.