IMHO I would never listen to NGF.I have built six muni projects over 30 something years and I think all have to be subsidized and I think economic conditions in many places are making that a tough thing to do politically.
I see a couple of reasons why many muni courses have such shortfalls and I emphasize the word "many" not all. Some are in the right location, can get the right green fee and generate a good product.
The first reason I see is that the politicians want to give their constituents a "deal" and thus the fees charged are not enough to cover the golf course expenses. The other is corruption. I can comfortably say this because I have the videos, tapes and text to back it up on one project. I have seen the most incompetent, lazy, corrupt golf supt I have ever encountered on a muni project. It was nothing for him to have his employees on muni time working for his landscaping company with muni chemicals and machines. It was nothing to see them spraying another golf course for "cash". It was nothing to see the point of sale not being used by employees of the proshop. All of this is because rarely does anyone in the city understand golf operations and whomever they hire out at the course can almost do as they please. I am quite sure what I have described is the exception and not the norm. However, so often the city grows tired of dealing with it all and hires a management team so that there are no city employees to compensate. This creates a level of mediocrity that is accepted as "muni golf" by so many places. At least one major management company has made a living specializing in such places.
Muni golf can work if operated properly but politicians make that hard to do. I think the future of "muni golf" is in foundations operating these entities and not the cities themselves. It allows for a group of concerned citizens and businesses to donate to such a project and operate it outside of the municipality. People can get the deduction. It's a much better "feel good" than a First Tee " etc and looks like a few are in the works. Same idea is also at places like Congaree.
And lastly, I'm against muni golf if the market is being served well by a private entity, public facilty. Muni should not be coming in and operating at a deficit while that business pays property taxes to fund it. JMO