05.23.22 PRAB Packet CORRECTEDPARKS & RECREATION ADVISORY BOARD
Virtual Meeting
6:00 p.m., May 23, 2022
100 Years of Excellence
Boulder Parks & Recreation
Advisory Board Members 2022
Charles Brock
Elliott Hood
Mary Scott
Anita Speirs
Jason Unger
Sarah van der Star
Pamela Yugar
Mission Statement
BPRD will promote the health and well-
being of the entire Boulder community
by collaboratively providing high- quality
parks, facilities and programs.
Vision Statement
We envision a community where every
member’s health and well- being is
founded on unparalleled parks, facilities
and programs.
Goals of the Master Plan
1. Community Health and Wellness
2. Taking Care of What We Have
3. Financial Sustainability
4. Building Community
5. Youth Engagement
6. Organizational Readiness
AGENDA
All agenda times are approximate
/͘ APPROVAL OF AGENDA (2 minutes)
II͘ FUTURE BOARD ITEMS AND TOURS (2 minutes)
III͘ PUBLIC PARTICIPATION (15 - 30 minutes)
This portion of the meeting is for members of the public to communicate ideas or concerns to the Board
regarding parks and recreation issues for which a public hearing is not scheduled later in the meeting (this
includes consent agenda). The public is encouraged to comment on the need for parks and recreation
programs and facilities as they perceive them. All speakers are limited to three minutes. Depending on the
nature of your matter, you may or may not receive a response from the Board after you deliver your
comments. The Board is always listening to and appreciative of community feedback.
A.PRAB Community Engagement Updates (verbal) (10min)
This portion of the meeting is for members of the board to report on PRAB’s annual work plan goal
of each member: attending two or more parks and recreation-related community activities per
month; promoting parks and recreation through social media; attending site tours; and supporting
the department’s partnership initiatives.
X͘ NEXT BOARD MEETING:
Joint Study Session June 23; Regular PRAB meeting June 27
XI.ADJOURN
sII. ITEMS FOR DISCUSSION/INFORMATION
A͘ 2023 Financial Strategy (15 minutes)B.Master Plan Review (90 minutes)
A.Summer Service Level Update (15 minutes)
B.Joint June Board Meeting: Cool Boulder Campaign (5 minutes)
IX͘ MATTERS FROM BOARD MEMBERS
A.Approval of Minutes from April 25, 2022B.Updates from the Director of Parks and RecreationC.Parks and Recreation Project UpdatesD.Parks and Recreation Operations Updates
A.PLAY Boulder Foundation (verbal)
sI. ITEMS FOR ACTION
A͘ Growing Gardens Lease (10 minutes)
V.CONSENT AGENDA (5 minutes)
VIII.MATTERS FROM THE DEPARTMENT (continued)
IV. MATTERS FROM THE DEPARTMENT (10 minutes)
MAY JUNE JULY AUGUST REGULAR MEETING May 23: VIRTUAL
• PLAY Boulder Foundation
(md) 10m
• Growing Gardens Lease
Extension (a) 10m
• 2023 Financial Strategy (d/i)
15m
• Master Plan Review (d/i) 90m
• Summer Operations
Overview (md) 15m
• Joint June 23 Board Meeting:
Cool Boulder Campaign (md)
5m
• PRAB Community
Engagement and Matters
(mb) 10m
TOTAL MEETING TIME:
3hr
(Includes 25 minutes for public
participation and consent
agenda)
June 27: TBD
• Master Plan Public Hearing
and Recommendation (a)
• 2023-28 CIP Public Hearing
(a)
• BVSD Joint Use Agreement
(d/i) 30m
• FGC Restaurant RFP
selection (d/i) 15m
• PRAB Meeting
Format/Location Check-in
(mb) 5m
• PRAB Matters (mb)
July 25: TBD
• HiPP Update (d/i)
• BVSD Joint Use
Agreement (a) 10m
• Board and Commision
Inclusion (mb)
• PRAB Matters (mb)
August 22: TBD
• PRAB Retreat
Planning (mb)
• PRAB Matters
(mb)
STUDY SESSION Wednesday, May 11,
6:00 p.m.: Virtual
• Financial Strategy (90 min)
• 2023 proposed operating
budget w/ service levels
• 2023-28 CIP (3rd touch)
Thursday, June 23,
6:00 p.m.: OSMP Hub
• Joint Study Session about Cool
Boulder Campaign with EAB,
OSBT, PB, PRAB
Department Events and Items of Interest • May 9-23: Historic Places
Plan Scavenger Hunt (e)
• Boulder Arts in the Park event
series kicks off (May-Sept)
• Memorial Day: Outdoor pools
and other summer facilities
open; Honoring veterans at
Columbia Cemetery, Boulder
Creek Festival
• July 19: BPR Master
Plan at Planning Board
• August 4: BPR
Master Plan at City
Council
• August TBD:
Valmont Skate
Park and Pump
Track Celebration
AGENDA SETTING
The PRAB Chair, PRAB Vice Chair and BPR staff set the agenda for the next month on the Thursday directly following the regular PRAB meeting.
PRAB members can submit agenda requests to the Chair and Vice Chair by Wednesday following the PRAB regular meeting for consideration. If
time-sensitive matters arise, PRAB Chair and Vice Chair may amend the agenda as needed.
LEGEND
Action Item (a): A public hearing item to be voted on by the Board (public comment period provided).
Procedural Item: (p): An item requiring procedural attention.
Consent Item (c): An item provided in written form for consent, not discussion by the Board; any consent item may be called up by any Board
member for discussion following the consent agenda.
Discussion/Information Item(d/i): An item likely to be a future action item (or council item) and/or that benefits from an in-depth discussion.
Matters from the Department (md): Items that will be reviewed and discussed during the meeting but not requiring as much in-depth analysis.
Matters from the Board (mb): Items initiated by the Board that will be reviewed and discussed during the meeting but not requiring as much in-depth
analysis.
City Council Item (cc)
Other Boards and Commissions (obc)
Community Engagement and/or Events (e)
Holiday/Closure (h/c)
Italics indicate a tentative date or plan. 2
TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Dennis Warrington, Senior Manager, Urban Parks Manager
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Regina Elsner, Interim Senior Manager, Planning and Ecological Services
Stephanie Munro, Senior Manager, Regional Facilities
SUBJECT: Consent Agenda
DATE: May 23, 2022
A. Approval of Minutes April 25, 2022
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CITY OF BOULDER
BOULDER, COLORADO
BOARDS AND COMMISSIONS MEETING MINUTES
To listen to the Parks and Recreation Advisory Board meetings in their entirety, please go to the
following link: www.boulderparks-rec.org
Name of Board/Commission: Parks and Recreation Advisory Board
Date of Meeting: April 25, 2022
Contact Information Preparing Summary: Charlotte O’Donnell, 303-413-7223
Board Members Present: Charles (Chuck) Brock, Elliott Hood, Mary Scott, Anita Speirs,
Sunny van der Star, Jason Unger, Pamela Yugar
Board Members Absent:
Staff Present: Bryan Beary, Tina Briggs, Regina Elsner, Jackson Hite, Stacie Hoffman,
Charlotte O’Donnell, Ali Rhodes, Christy Spielman, Jonathan Thornton
Guests Present: Annie Carlozzi with Growing Gardens
Type of Meeting: Regular
Agenda Item 1: Call to Order
The meeting was called to order at 6:00 p.m. A quorum was present for the conduct of business.
Motion to approve agenda. Motion by Hood. Second by Unger. The motion passed 7-0.
Agenda Item 2: Procedural Items
A. Induct New Members
Anita Spiers and Sunny van der Star were sworn in as PRAB members.
B. Welcome New Members
C. Elect Officers
Motion to elect Pamela Yugar as chair of PRAB for the 2022-2023 term. Motion by Hood.
Second by Brock. The motion passed 7-0.
Motion to elect Chuck Brock as vice chair of PRAB for the 2022-2023 term. Motion by Unger.
Second by Scott. The motion passed 7-0.
Agenda Item 3: Future board items:
Rhodes reviewed upcoming agenda items and events.
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Agenda Item 4: Public participation:
Larry McKeogh spoke about user groups and access fees, particularly how user groups can add
value to facilities by making sure they are used at non-peak hours.
Roberta Spray spoke about small watercraft access at the Reservoir and the desire for a day pass
option.
Agenda Item 5: Consent Agenda
A. Minutes from March 16 PRAB Study Session
Motion to approve the minutes from March 16 PRAB Study Session. Motion by Unger. Second
by Brock. The motion passed 7-0.
B. Minutes from March 28 Regular PRAB meeting
Motion to approve the minutes from March 28 Regular PRAB meeting. Motion by Brock.
Second by Scott. The motion passed 7-0.
C, D, E. Updates from the Director, Operations and Development
PRAB had the following comments/questions
• Flatirons Golf Course looks great. Thanks to staff for taking great care of the facility.
• Value engineering for the golf course project makes sense giving the rising prices of
construction. Electric vehicle chargers are an important piece that should be kept. Were
those charging stations changed or reduced due to the value engineering
recommendations?
• How many additional spaces will be available for electric vehicle charging at the golf
course?
• When might alcohol service return to the golf course and what is the rational for stopping
service at this time?
• What is the status of aquatic hiring? What lessons has BPR learned from other
municipalities?
• Impressive to hear that the electric vehicle at North Boulder contributed 3% energy
savings for the building. Is that scalable? What is the goal of this project?
• Sounds like field usage is increasing again. Request for PRAB to review the parking
situation at pleasant view and discuss transportation.
• Glad to see the proposed new uses at SBRC. What is the price tag and potential revenue
for birthday party rentals?
• What made the team decide on obstacle course idea?
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Agenda Item 6: Items for discussion
A. Growing Garden Lease:
Beary presented this item. PRAB had the following questions/comments:
• Does Growing Gardens have plans to partner with schools?
• One out of four survey respondents stated that administration was not good. What is the
reason for those low ratings and how might Growing Gardens improve that?
• Appreciate the work that Growing Gardens is doing, especially knowing how hard garden
management can be.
• Appreciate the partnership with Boulder Housing Partners and appreciate lessons for
children from Rachel as well.
B. Financial Strategy
C. 2023 Budget Strategy
Hoffmann presented this item. PRAB had the following questions/comments:
Scenario 1: Adjust Recreation Center Hours
• Why is staff recommending Option 2: Maintain 2022 operating hours? Why does staff not
recommend reductions to hours?
• What flexibility does BPR have to adjust hours based on revenue or visitation?
• Would an increase to hours of operation include additional aquatics hours or is that
limited by staff? How might that staff capacity change?
• Does PRAB need to choose between either cutting hours or raising fees in order to close
the funding gap? Though neither are desirable for the well-being of the community or
department, is that the choice that needs to be made?
• Instead of $300K in savings, would a reduction in hours result in closer to net savings of
$150K given that visitation would likely be reduced as well? Is the cost saving in the fee
options also consider that there may be reduced visitation resulting in not as much
revenue increase?
• Did staff consider a 5% reduction in hours?
• Part of PRABs role is to discuss the desired approach to budgeting in order to best serve
the community.
• What can BPR do to close the gap? Would it be possible to see combined strategies of
fees, hours and other adjustments that could achieve this?
• Prefer to raise rates instead of reducing hours.
• What are the things BPR can do to close the gap and align with goals? Also support
raising fees before reducing hours.
Scenario 2: Adult Drop-in Baseline Entry Fee
• With previous fee increases, is there any data to show a decrease in visitation or no
impact?
• If BPR considered those who work in Boulder, but do not live in the city to be non-
residents what would be the financial impact?
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Scenario 3: Non-Resident Fee Premium
• Some places that border the city of Boulder have low-income communities that are not
part of another municipality and may be impacted.
• Would like to see a focus on providing resources to low-income families in the city of
Boulder.
• Is there a way to distinguish between those from other cities and those from
unincorporated Boulder County?
• Staff recommendation is a good compromise. Some folks living just over the boundary of
Area I may push back, especially since they consider themselves part of the boulder
community.
• A one-dollar price increase feels okay, but a dollar and a half might give some folks
pause.
Scenario 4: Seasonal Facility Access Fees
• How does staff provide assistance for someone on a drop-in basis?
• If BPR increases fees by a dollar, it should be consistent.
• What response would staff expect from users?
• Why is residency so hard to verify at the seasonal facilities?
• Is it possible to look at users’ IDs as they enter. That is how it is done in Connecticut.
• Are most non-resident users from unincorporated Boulder County or other towns?
Scenario 5: Other Recommendations
• Would a comprehensive approach to access and mobility - would this include citywide
policies instead of just BPR efforts?
• How does the Health Equity Fund work? Does BPR have to apply annually?
• If fees only increase one dollar to fees in 2023, would BPR consider another increase in
2024? Conversely, would a dollar and a half increase better prepare the department for
two years so that there would not be another fee increase in 2024? Would that impact
PRAB’s decision?
• Hesitant to increase fees more than a dollar, but more hesitant to increase fees every year.
Overall Questions
• There is a general PRAB preference to increase fees rather than reducing hours.
• Recommends against cutting services.
• Is there any possibility that the funding from the general fund could increase? Particularly
if a library district is funded.
• Interested to see other scenarios for cost savings.
• Is BPR planning to gather more data on who users are and where they come from?
D. 2023-2028 Capital Improvement Program (CIP) (2nd touch)
Hite presented this item. PRAB had the following questions/comments:
• What does the Equity mapping look at and show?
• Does BPR own the Columbia Cemetery? What is the history behind this?
• What does “watertainment” mean? Would this be improvements to the kids play area only
at Spruce pool?
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• Is there a plan to install a crosswalk across 30th Street between the offices and Scott
Carpenter pool to accommodate folks who park at the office on the weekends and run
across?
• What did not make the CIP list that staff wishes had?
• Is data used in the CIP decision making from the Beehive program?
• Are photos stored in Beehive or elsewhere?
Agenda Item 7: Matters from the Department
A. Summer Service Levels Update
Rhodes presented this item. PRAB had the following questions/comments:
• Has BPR talked to those who have not reapplied to be lifeguards?
• Has BPR considered working with swim coaches, BAM, and other organizations to
recruit lifeguards?
• Does BPR know what the main factor behind the shortage is: pay rate or other? The
Superhero marketing campaign is great.
• Offer to help with research or support staff in any other way.
B. Historic Places Plan: Schedule and Engagement
Briggs presented this item. PRAB had the following questions/comments:
• The scavenger hunt engagement sounds great.
Agenda Item 8: Matters from the Board
A. Email Response Plan
• Recommend continuing the division of email responsibilities.
• PRAB has not utilized the structure all that much, but it would be good to see if it is
useful this year.
• New members understand the system, but do not feel ready to contribute to email
responses.
• Pamela will do community building and regional facilities for now.
• PRAB can discuss again when new folks are onboarded.
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B. PRAB Study Session on May 11
C. PRAB Community Engagement
• Suggested redefining this section of the agenda to include sharing thoughts and questions.
• Would like to use this time to share what is it of interest and other thoughts on parks and
recreation topics not included on the agenda.
• Recommendation for PRAB to discuss redefining this section of the agenda at the May
meeting.
• When might meetings transition to in-person?
• What is the best way for PRAB members find out about everything going on with BPR?
Agenda Item 9: Next meeting: Study Session 6:00 p.m. Wednesday, May 11 (Virtual). Regular
Meeting 6:00 p.m. Monday, May 23 (Virtual)
Agenda Item 10: Motion to adjourn. Motion by Scott. Second by Hood. The meeting was
adjourned at 9:48 p.m.
Approved by: Attested:
_______________________ _________________________
Pamela Yugar Charlotte O’Donnell
Board Member BPR Staff
Date _____________________ Date ____________________
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B. Updates from the Director of Parks and Recreation
COVID Update:
Based on data collected by the Centers for Disease Control and Prevention’s (CDC) the county’s
COVID-19 community level has moved from green, or level low, to yellow, or level medium, on
their tracker of community risk. Additionally, though unrelated to the designation of yellow
status by the CDC, council members and staff contracted COVID after gathering in Council
Chambers for the May 3 council meeting.
The City of Boulder has made the decision to return to all-virtual City Council meetings, due to
concerns about trends related to COVID-19. The decision means that council members and staff,
who had been meeting in person for regular council meetings, will once again participate
virtually. It also delays the option for the public to attend these meetings in person, which had
been slated to begin on May 17.
The city’s decision will not affect libraries, recreation centers or the newly opened or re-opened
Service Centers at New Britain, the Penfield Tate II or Brenton buildings. These will remain
open. Unvaccinated community members are asked to wear a well-fitting, medical-grade mask in
public buildings as are those who are at a high risk for severe disease for their own safety in
accordance with CDC guidance.
For the foreseeable future, the city will require any city-sponsored public engagement events to
be held outdoors or conducted virtually. COVID-19 vaccines are widely available and incredibly
effective at preventing serious illness and death, For the most current information on COVID-19
vaccine locations and eligibility please visit Boulder County Health’s website.
C. Parks and Recreation Development Update
The following information is intended to provide the PRAB with relevant updates on specific
projects as they reach major milestones. This section is not all inclusive of all current projects
and only illustrates major project updates. For a complete list of all current projects and details,
please visit www.BoulderParkNews.org.
Planning and Design
The following projects are currently in the planning and design process that involves research,
alternatives analysis, public involvement and development of planning documents and design
plans to guide decision making and future capital improvements.
• Planning Projects Underway: Staff or contractors continue to work on the following
projects and will update the PRAB as major milestones are achieved:
o Flatirons Golf Course Facility Design Project
o Historic Places Plan (HiPP)
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Construction
The following projects are scheduled for construction, under construction or have been recently
completed. For additional details please visit www.BoulderParkNews.org.
• Scott Carpenter Playground Replacement: Construction for the Scott Carpenter
Playground replacement project began on March 28, 2022.
Construction activities over the past month have focused on the installation of the new
playground equipment and preparing the site for new concrete sidewalks and rubber and
wood fiber playground safety surfacing.
The new playground will include:
• The existing rocket ship, asteroid climber, and sand play crater
• New 2-5 year-old playground equipment including a slide and climber
• New 5-12 year-old playground equipment including tower structures, net
climbers, and slides
• New accessible rubber and wood fiber safety surfacing
• Tot swings and 5–12-year-old swings
• A teen space including hammocks, a climbing structure, and seating
Other improvements include repainting the existing shade shelter, security lighting in the
shade shelter, and new seating and tables.
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Major construction activities are anticipated to be complete, and the main playground
opened, by the Memorial Day weekend. Due to long lead times on materials, some areas
of the teen space will have a delayed opening. Turf and irrigation renovations will also
occur after the playground is opened to the public.
The existing playground at Scott Carpenter Park is being replaced as part of the
department’s on-going General Park Improvement – Capital Maintenance program. The
existing playground equipment was installed in approximately 1999 and has surpassed its
useful life.
D. Operations Update
Arts in the Park
In response to COVID-19's significant impact on local arts and culture, and in alignment with Boulder’s
Civic Area Master Plan, BPR developed Arts in the Park in 2021 as a new program providing a vibrant
blend of arts and cultural performances to be held at the historic Glen Huntington Bandshell in Central
Park. For a second year, the city will present Arts in the Park with performances running from May to
September.
The first performance is Mahler Fest on Friday, May 20, followed by Streetwise Art Battle (a Boulder
Creek Fest Event) from May 28-30 and Butterfly Effect Theater on Thursday, June 2. All these initial
performances are free to the public.
Arts in the Park “Signature Performances” sponsored by the city include the Boulder Ballet (June 10–11),
Boulder Symphony (July 4), Boulder Opera (July 29-30), and Boulder Philharmonic (August 26-27) with
more sponsored performances to be announced.
For performing arts and cultural group information, schedule and tickets visit boulderartsinthepark.com.
Ticket sales are managed by the Dairy Arts Center.
The city is partnering with PLAY Boulder Foundation, Boulder Library Foundation, Visit Boulder,
Downtown Boulder, and the Avery Brewing Company to provide these accessible performances and
support several local nonprofit organizations.
Regional Facilities
Valmont City Park: Valmont is excited to share the return and expansion of services and
programs this season at the park. A sneak peak of the upcoming high season activities and
programs includes:
• Bike Demo Days are back! On April 30, Single Track Mountain Bike Adventures
(SMBA) had their annual bike swap and demo. On May 1, Rocky Mountain Bikes held a
bike demo at the park. On July 13th Commencal Bikes USA will have a bike demo event
with food, music, giveaways, and of course, bikes.
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• The return of the CU Cycling Team’s Short Track Race Series after a 2-year hiatus! CU
Cycling puts on races every Wednesday throughout the summer. These races are open to
the public and all skill levels. It’s a fun weekly race that riders can depend on for training
and a great sense of community.
• Summer 2022 will be the first that includes the new skate areas at Valmont. In June, the
Chill Foundation will host a youth skate program. Square State Skate will provide skate
camps for youth and Avid4 Adventure will test a pilot skate camp program at the park.
• Partnering with Commencal Bikes USA, Valmont Bike Park will host a Dirt Jump Jam -
which is a free and fun community event to showcase the skills of local riders as well as a
first-ever pump track race on Valmont’s new asphalt pump track.
• Of course, Valmont’s three standard bike skills and summer camp providers will continue
their services. This includes the ever popular and always growing: Avid4 Adventure
which provides all-day bike skills summer camps for youth, 303 Dirt which provides
smaller group youth skills clinics, and Lee Likes Bikes which provides both group and
private adult bike skills clinics.
• The picnic shelters at VCP are back and available to rent! With the construction of the
new parking lot and skate park area complete, the Glades Shelter is back online and
available.
• On August 13, Valmont Park will host a community event to celebrate the completion of
the construction project and its new amenities as well as to honor and thank local donors
that made the project possible.
Boulder Reservoir: Over several months, staff has facilitated multiple conversations with the
rowing coalition groups; Boulder Community Rowing (BCR), Colorado Junior Crew (CJC),
Colorado University Rowing Club (CUC), and Boulder Aquatic Masters (BAM) to finalize
agreements that align fees with expenses, is consistent with existing policy and provides fairness
with other facility users. BPR has come to agreement with all four organizations and staff are in
the process of executing one-year agreements, including final fees and schedules.
At the April 19, 2022 City Council meeting, the council approved the Services Contract between
the City of Boulder Parks and Recreation and Rocky Mountain Paddleboard authorizing the City
Manager to execute the contract and make minor amendments prior to or during the term of the
contract. The contract will be executed with Rocky Mountain Paddleboard, and staff will
monitor the contractor’s performance to ensure compliance with all terms and performance
measures.
Flatirons Golf Course: Even with the wind, April was a busy month. Flatirons had no days lost
to snow or rain in April. The maintenance team conducted the spring course conditioning
maintenance in April. After experiencing the driest Aprils in recorded history, golf courses in
eastern Colorado are struggling to revive dormant turf. Flatirons’ state of art irrigation system
allows water use to be as efficient as any, making this struggle a bit easier to manage.
After taking a break due to an overwhelming demand for ball golf, disc golf returned to the
course in April. Flatirons continues to be one of the only ball golf courses in the state to host
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disc golf activities. During the public event, 144 disc golfers enjoyed a beautiful round at
Flatirons.
The Flatirons facility project team has partnered with the Colorado Real Estate Group to provide
subject matter expertise on securing a hospitality partner to operate the new building. The
Colorado Group has helped the team frame out operational and leases terms to include in the
Request for Proposal (RFP) to identify the best partner to help the city develop Flatirons into a
neighborhood gathering and eating place while also generating intra-fund subsidy for community
benefit programming. The Request for Proposal (RFP) will post early June.
Verizon Wireless Lease Amendment
Staff are working with colleagues in the City Attorney’s Office and Planning & Development
Services to respond to a request for modifications to the communications equipment located on
land and rooftop space leased to Verizon Wireless at the South Boulder Recreation Center.
The 2019 lease agreement states in part that: the Lessee may not make modifications to add 5G
services without City Council approval. Verizon Wireless now proposes to modify site antennas
and deploy 5G technology. Informed by Council’s discussion at the July 23, 2019 Study Session
on ‘Understanding 5G’, staff are recommending approval of this amendment to Council in order
to maintain more robust oversight of the siting, appearance, and compliance, along with
continued revenue generation, associated with this 5G deployment as the preferred alternative to
potential 5G deployment in the public right of way, which cities are required to allow by federal
and state law.
Recreation Center Updates
Beginning in May and throughout June, after hours work is being completed at the recreation
centers to update lighting to new LED fixtures. The work will have no impact on facility
operations related to community access. The replacement lighting will meet all new updated city
energy performance requirements and should result in significant energy savings.
North Boulder Recreation Center (NBRC): On May 16, work will begin on the roof above the
NBRC lap pool to replace the Heating, Ventilation, and Air-conditioning (HVAC) unit for that
space. The lap pool and hot tub will be closed from May 16-22 to allow for this necessary
maintenance project. Additionally, crane work is scheduled to remove the existing HVAC unit
and place the new HVAC unit on May 19. The entire aquatics area, including leisure pool and
sauna, will be closed on May 19 for safety while this crane work is completed.
South Boulder Recreation Center (SBRC):
• Upon completion of the spring high school swim season, the SBRC lap pool will close
beginning May 16 for moisture mitigation repairs. This work is currently scheduled to be
completed by mid-June. Due to limited staffing resources, the SBRC aquatics area
including lap pool and hot tub, will remain closed for the summer and reopen upon
completion of the outdoor pool season.
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• In March 2022, the previously existing maple gym floor was removed due to water
damage that occurred in November of 2021 and to avoid mold issues. The new flooring
system for the gymnasium and satellite rooms takes into consideration the lifespan of the
facility and programming that has been identified by staff, including sports activities and
group fitness.
A Request for Bid (RFB) was advertised by the city’s Purchasing Department on April
11, 2022, and responses were due on April 29, 2022. Final contractor selection is
currently in process.
The floor replacement work is expected to begin in mid-June when the Facilities
Department has completed moisture mitigation work. The schedule for completion of the
floor replacement project will be coordinated with the selected contractor and shared with
the PRAB and community as it is finalized.
• The SBRC will close for an annual maintenance shutdown June 18-26. Projects will
include extensive cleaning and minor building repairs in addition to the major repairs
already mentioned.
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C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: May 23, 2022
AGENDA TITLE: Growing Gardens Lease
PRESENTERS:
Alison Rhodes, Director, Parks and Recreation Department
Bryan Beary, Recreation Manager, Community Building + Partnerships
EXECUTIVE SUMMARY:
The purpose of this item is for the Parks and Recreation Advisory Board (PRAB) to
review and consider approval of a multi-year lease agreement with Growing Gardens
(GG) to provide community garden programs at Hawthorn Garden, Foothills Community
Park, Fortune Park and Hickory Garden (see Attachment A). The proposed agreement
term is January 1, 2022 through December 31, 2027.
Growing Gardens has managed and operated community garden sites through partnership
with the city since 1998, having managed the current four sites since 2004. The
department has received positive feedback on the program and is seeking to renew the
agreement based on GG’s experience in providing successful community garden spaces
and programming.
The attached lease agreement between the department and GG defines the relationship
between the two organizations, including scope of work and performance benchmarks.
With the PRAB’s approval, this item will be scheduled for council review and approval
as required by city charter for agreements over three years.
BACKGROUND:
The City owns three community garden sites at Fortune Park, Foothills Community Park,
and Hickory Gardens, and Growing Gardens has a long-term lease on the Hawthorn
Garden site. The combined community garden sites have 287 garden plots available for
rent to community members. The organization also provides youth and adult classes
including gardening, cooking, beekeeping, and summer camps. Community garden
programming and plot availability aligns with the Parks and Recreation Master Plan goals
related to Community Health and Wellness, Building Community and Relationships, and
Youth Engagement and Activity. Managing these sites through a contract relationship
allows these specialized services to be provided by a subject-matter expert and the
department to ensure the program remains financially sustainable while providing
valuable community benefit. Additionally, the programming aligns with the city
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sustainability and resilience framework in helping to create a livable, healthy and socially
thriving community. Since 1998 Growing Gardens, a Boulder County non-profit, has
managed various City of Boulder community garden sites, and has managed all four of
the current sites since 2004 when the Fortune Community Garden site was established.
This proposed multi-year agreement was initially presented to the PRAB in September
2019 as a discussion item but was ultimately tabled for action in favor of an amendment
to provide a one-year extension (2020) while GG worked to update their gardener rules.
Subsequently a second one-year extension (2021) was executed during the pandemic due
to limited staff capacity and prioritization of other critical services.
In March 2021, an additional amendment was executed to acknowledge that the owner of
the Hawthorn site granted and recorded a conservation easement that allows the
community gardens as a permitted use, and that the lease agreement with BPR is
subordinate to the conservation easement.
The only material changes to this agreement are the inclusion of the language related to
the conservation easement, updated term dates and gardener rules/fees, and assurance
adequate notice will be provided to GG in advance of BPR’s replacement of irrigation
systems at the Hawthorn site, currently estimated within the next five years as part of the
Capital Investment Program (CIP).
ANALYSIS:
GG has provided community gardens programs for the department from 1998-2021
serving all ages and abilities of community members. In 2021, 659 individuals were
served through the community garden programs, reaching 297 separate households.
Demographic populations served include 242 individuals ages 55+, 307 ages 18-54, 27
ages 12-17, and 85 ages 0-12. 9% of participants are identified as being extremely low
income, 6% very low income, 10% low income, 30% medium income, and 44% high
income. Growing Gardens also provide plots to various community groups and donated
1,200 pounds of food in 2021. Growing Gardens offers 50% off financial aid on plot fees
for individuals who qualify with the same criteria as the City of Boulder Parks and
Recreation financial aid program; over 16% of plot recipients received this aid in 2021.
2021 survey results from the community garden program showed 88% of participants
donated some of their produce to friends, neighbors, or community members in need.
82% of participants now eat more fruits and vegetables. 68% of participants increased
their knowledge of how to cook nutritious food from the garden. 90% of participants
agree or strongly agree that their plot was successful. 77% of participants reported the
administration of the community garden programming was good or very good in 2021.
Staff propose that a $1/year lease is appropriate for the management of the community
garden programming as the department’s Recreation Priority Index (RPI) Calculator
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determines the community garden programming is of community benefit because of its
high community reach, partner provided mission-driven delivery, limited substitutability,
and intentional efforts to build community and support community health and wellness.
Community benefit programs are determined to provide broad (vs. individual) benefit and
as such the target cost recovery rates are between 0-10%. All programming expenses,
trash, restroom management, wildlife management, and weed management are the
responsibility of the lessee, while the City maintains responsibility of irrigation systems
and reasonable water consumption. As the lessee is already covering 90% or more of the
expenses to operate through revenues, grants, and alternative funding, it is staff’s
recommendation to not seek additional compensation over the $1/year lease amount.
On April 25, 2022 staff presented the proposed lease agreement to the PRAB with a
recommendation for a five-year lease. The PRAB sought clarification on satisfaction
metrics associated with the administration of the gardens, which GG clarified is primarily
attributed to the adoption of stricter rules for gardeners aimed at ensuring appropriate
stewardship and considering the impact gardener decisions have on plot neighbors. The
PRAB shared little other concern while voicing their appreciation of the program
partnership with GG and the positive reputation enjoyed by GG outreach programs in the
community.
The prior agreement expired on December 31, 2021 and the City and Growing Gardens
desire continued operation of the community gardens program.
STAFF RECOMMENDATION
Staff requests PRAB’s consideration of this matter and action in the form of the
following motion:
Motion to approve the Lease Agreement between the City of Boulder and Growing
Gardens and authorize the City Manager to make minor amendments prior to or during
the term of this agreement in order to ensure that the lease is managed in a manner that is
consistent with applicable laws and the policies and regulations of the City of Boulder.
NEXT STEPS:
By Charter, approval by at least four members of the PRAB is required for park leases
greater then three years. If approved, this lease will be added to an upcoming Consent
Agenda for City Council to consider as the agreement exceeds three years.
Attachment A Growing Gardens Agreement
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LEASE AGREEMENT
THIS LEASE AGREEMENT, (“Agreement”) effective this 1st day of January 2022, by
and between the City of Boulder, a Colorado home rule municipality, ( “City” ) and Growing
Gardens of Boulder County, a nonprofit corporation (“Growing Gardens”). The City and Growing
Gardens may hereinafter be referred to individually as a “Party” or collectively as the “Parties.”
RECITALS
WHEREAS, the City is the owner of certain real property, with the exception of the
Hawthorn (Iris Site), and a City program known as the “Community Gardens Program” is located
within the City described generally as follows and more fully described in the attached Exhibit A,
Site Locations, attached hereto and incorporated herein:
Hawthorn site (leased by the Growing Gardens from a third party) – 1630
Hawthorn Avenue, Boulder, CO 80304
Foothill Community Park site – 800 Cherry Avenue, Boulder, CO 80304
Fortune Park site – 401 Canyon Boulevard, Boulder, CO 80302
Hickory Garden site – 100 Hickory Avenue, Boulder, CO 80303
collectively, the Property (“Property”); and
WHEREAS, the City desires to enter into this Agreement with Growing Gardens with the
intent that Growing Gardens manage its Community Gardens Program (“Program”) at these
locations, subject to the terms of the Program description in Exhibit B, Scope of Work, attached
hereto and incorporated herein, and set and collect the plot fees and administer the Program without
any subsidy from the City. The City will retain the right to monitor both the Program and setting
of plot fees to ensure that the plot fees are reasonable and that the economically disadvantaged are
not prevented from participating in the Program; and.
WHEREAS, the City desires to grant and convey to Growing Gardens the right to enter
and use, for gardening purposes only, the Property; and
WHEREAS, Growing Gardens desires to lease the Property from the City, other than the
Hawthorn site which is leased from another party and to provide services in support of the
Program; and
WHEREAS, the Parties desire to ensure that the Program is a success and to work
collaboratively to identify projects and programs that will enhance the Boulder City Council’s
sustainability goals as referenced in the Boulder Valley Comprehensive Plan policy 3.11 Urban
Environmental Quality.
AGREEMENT
NOW, THEREFORE, in consideration of the recitals, promises, covenants, and conditions
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set forth herein, and other good and valuable considerations herein receipted for, the Parties agree
as follows:
Section 1. TERM.
The City does hereby grant and convey to Growing Gardens the right to enter and use for
gardening and management purposes only, the Property set forth in Exhibit A, Site Locations,
attached hereto and incorporated herein, together with any improvements thereon, for the term
commencing on January 1, 2022 and, unless earlier terminated as herein provided for, end January
1, 2027 (“Term”), subject to use by the general public and other uses under the City’s Parks and
Recreation Department policies, ordinances, regulations, and easements. Further, the Parties
agree that this Agreement may be renewed by an amendment, executed by both Parties, at the end
of the term for up to two (2) additional one (1) year periods and that, in such instance, all other
provisions of this Agreement shall remain in effect.
All mineral rights, including oil and gas, are expressly reserved. The Parties hereto intend
that this Agreement be treated as the grant and conveyance of a profit a prendre in the Property
for purposes of Colorado law and subject to the terms hereof.
The City and Growing Gardens Parties acknowledge that Long Property Limited
Partnership, a Colorado limited partnership (“Owner”), the owner of the Hawthorn site located at
1630 Hawthorn Ave., Boulder, Colorado 80304, attached hereto and incorporated herein (the
“Hawthorn Site”), has granted and recorded a conservation easement as an encumbrance thereon
at Reception No. 03936152 in the Boulder County, Colorado public records (“Conservation
Easement”), which Conservation Easement allows the Community Gardens Program as a
permitted use. If at any time the Conservation Easement does not allow any aspect of the
Community Gardens Program, Growing Gardens shall have a right to terminate this Agreement
by providing to the City written notice of such termination. The Parties hereto acknowledge and
agree that this Agreement is subordinate to the Conservation Easement. Upon the written request
of Owner, the City and Growing Gardens agree to execute a subordination agreement, in a form
acceptable to Owner in its commercially reasonable discretion, evidencing the subordination of
this Agreement to the Conservation Easement, which subordination agreement may be recorded
against the Hawthorn Site in Owner’s discretion.
Section 2. NO PARTNERSHIP, EMPLOYMENT OR AGENCY.
This Agreement is not intended to, and shall not be construed as, creating a partnership.
Neither Party shall be liable for debts or obligations incurred by the other. Growing Gardens is
not intended to be, and is not considered by the Parties, an employee or agent of the City.
Section 3. COLLECTION OF PLOT FEES.
Growing Gardens is solely responsible for the setting, collecting and use of plot fees in
connection with the Program. Growing Gardens will ensure that economically disadvantaged
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applicants are able to participate in the Program. Growing Gardens shall provide, in writing, a
copy of the plot fee schedule and collection procedure to the City thirty (30) days prior to this
Agreement taking effect. As of the date of this Agreement, fees approved by the City are as set
forth in Exhibit D, 2022 Fee Structure, attached hereto and incorporated herein. A fee structure
may be developed by Growing Gardens in consideration of the expected operating costs of the
Program as well as the ability of Program members to pay. In order to ensure equal access and
opportunity to all community members, the fee structure must provide a fee waiver or sliding scale
fee for those that indicate they are unable to pay the garden plot fee. Plots will be provided on a
first come first served basis. Growing Gardens will ensure that members comply with Exhibit C,
Community Garden Program, Information, Policies, Regulations and Procedures, attached hereto
and incorporated herein.
The City has the right to terminate this Agreement if it determines that Growing Gardens’
plot fees or fee increases are too high, based on the prior year’s fee schedule, and if discounted
plot fees are not available to the economically disadvantaged. Growing Gardens shall have an
opportunity to cure this default, if plots are available. However, if the Parties fail to agree on an
acceptable plot fee within thirty (30) days of disclosing such plot fee, the City may at its option
terminate this Agreement.
Section 4. RENT, TRASH AND RESTROOM MAINTENANCE.
A. Rent for Property.
The rent for the Property as described above shall be one dollar ($1.00) –per year,
due and payable on or before January 1st each year of the Term of this Agreement.
Late payments shall be subject to a late penalty computed at a rate of eighteen
(18%) percent per annum for any portion of the rent outstanding, and failure to pay rent in a timely
manner is grounds for termination.
Payments shall be made payable to City of Boulder and mailed or delivered to:
City of Boulder
Parks and Recreation Department
Attn: Bryan Beary
3198 N. Broadway
Boulder, CO, 80304-2644
B. Trash Fees and Restroom Maintenance.
Growing Gardens agrees to secure and pay for all necessary trash and restroom
service at the Hawthorn Garden, Fortune Garden and Hickory Garden sites identified in Exhibit
A.
Section 5. WEED MANAGEMENT, WILDLIFE and WATER MANAGEMENT.
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A. Wildlife Management.
Growing Gardens agrees that all wildlife and wildlife habitat on the Property shall be
protected. The precise wildlife and wildlife habitat subject to this section shall be as reasonably
determined by the City from time to time and as more specifically designated or identified in the City
of Boulder’s Wildlife Protection ordinances and, as appropriate, the Urban Wildlife Management Plan.
B. Weed Management.
Growing Gardens agrees to control weeds on the Property at all times. Weed
control may be through cultural, mechanical, biological, grazing, or chemical methods, or by
methods as prescribed by the City. Herbicide applications shall be limited to Colorado approved
chemicals and rates recommended by the City’s Integrated Pest Management Coordinator and
approved by the City. No chemicals shall be used without the prior approval of the City. Growing
Gardens shall comply with the City’s ordinances and policies regarding chemicals and pesticides.
C. Water Management.
Growing Gardens agrees to conserve water, including, but not limited to, diligently
applying available water to land and crops; diligently irrigating the crops; and preventing soil
erosion. Growing Gardens agrees to prevent water from accumulating in low-lying areas in order
to prevent mosquito infestation or growth.
Since the Program is a City owned program, the City shall maintain the irrigation
systems, including winterization, make repairs as necessary unless acts of negligence committed
by Growing Gardens are evident, and the City shall provide all reasonable water use at no cost,
based on the previous year’s usage. The City shall not be responsible for damage to Growing
Gardens property that occurs as a result of the City’s maintenance of the irrigation systems.
The City understands that the irrigation system at the Hawthorn site is aging and
intends to replace all frost-free hydrants as part of the Capital Investment Program, currently
estimated within the next five (5) years.
The City shall provide at least six (6) months’ notice to Growing Gardens in
advance of the City performing any planned maintenance, repair, major or minor renovation or
similar work that would interfere with the regular operation of the irrigation system.
The City retains the right to charge Growing Gardens for any and all irrigation
water costs should the City be unable to provide water for budgetary reasons. Notice shall be
given to Growing Gardens at least six (6) months in advance of any failure to provide such water.
Growing Gardens has the right to terminate the contract within sixty (60) days of notification of
water fees.
Section 6. TERMINATION.
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A. Grounds for Termination.
The failure of Growing Gardens to perform or cause to be performed any obligation
required by Growing Gardens under this Agreement shall constitute a Growing Gardens default,
provided that if such failure by its nature can be cured, then Growing Gardens shall have a period
of thirty (30) business days after receipt of written notice from the City of such failure to cure the
same and a Growing Gardens default shall not be deemed to exist during such period.
If a Growing Gardens default as described above has occurred and is continuing,
and if Growing Gardens fails to correct or cure the conditions causing such default within thirty
(30) days after having received the City’s written notice of the City’s intent to terminate this
Agreement as a result of such default, then the City, at its sole option may terminate this Agreement
and it shall be of no further force or effect as of the last day of such thirty (30) day period.
Upon termination for any reason or expiration of the Term of this Agreement,
Growing Gardens shall relinquish all rights to the use of the Property at the end of the Term or in
the case of a default, at the end of said notice period. If Growing Gardens fails to do so, the City
may take such action as the City may deem necessary, all at Growing Gardens’ cost and expense,
to enforce removal of Growing Gardens and all of Growing Gardens’ personal property and
improvements from the Property by any legal means available.
Growing Gardens shall reimburse the City for the City's reasonable attorney fees,
including the reasonable cost of legal services provided by the City Attorney's Office, and costs
and expenses of any suit to remove Growing Gardens resulting from a default by Growing
Gardens.
In addition to the foregoing, this Agreement may be terminated by the City for its
convenience and without cause of any nature by giving Growing Gardens written notice at least
three (3) months in advance of the termination date.
B. Settlement Upon Termination.
Within ninety (90) days of termination of this Agreement, by expiration of its Term
or otherwise, an accounting shall be created and reconciled between the Parties.
Growing Gardens' tools, supplies, or equipment located on the Property shall be
subject to the City’s lien, herein established, and as may be granted by State law until the City
receives payment of any outstanding amount owed to the City.
Growing Gardens agrees to transfer, assign, or endorse any of its contracts and
payments to the City or the City’s designee.
C. Condition of Property
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Upon termination or expiration of this Agreement, Growing Gardens agrees that
the Property will be in as good order and condition as it was at the beginning of the Term of this
Agreement. Ordinary wear and tear, depreciation and loss or damage to the improvements caused
by the elements are excepted.
Section 7. GENERAL COVENANTS.
A. No work, supplies, or materials shall be contracted for in the name of the City by
Growing Gardens.
B. Growing Gardens agrees to take and use the Property subject to the usual hazards
attendant to a gardening operation and agrees to assume all risks and liability for accidents to
Growing Gardens, its family, employees, guests, agents, and contractors on the Property
C. The acceptance of use rights hereunder by Growing Gardens shall be conclusive
evidence that Growing Gardens has examined the Property and agrees that the improvements and
all fixtures thereon were safe, adequate, and suitable for their purposes when Growing Gardens
accepted rights to the Property.
D. Growing Gardens agrees to indemnify and save harmless the City against any and
all claims, debts, demands, or actions of any kind or nature and any and all related costs and
expenses, including reasonable attorney fees, by any person or entity, arising, directly or indirectly,
from any occurrence occasioned in whole or in part by Growing Gardens' use of the Property, or
by any act, omission or negligence of Growing Gardens, its employees, agents, or contractors.
Growing Gardens shall store its personal property and shall enter and use the Property at its own
risk, and Growing Gardens hereby releases the City, to the full extent permitted by law, from all
claims of every kind, including damage to merchandise, equipment or other property, or damage
to business or for business interruption, arising directly or indirectly from Growing Gardens' use
of the Property.
E. Growing Gardens shall not assign this Agreement nor lease the Property or any part
thereof. No assignment, lease, pledge, or mortgage of Growing Gardens' interest herein shall be
made. Growing Gardens shall do no act which shall in any way encumber the City's title to the
Property, nor permit the Property to become subject to a lien of any kind.
F. The City shall be accorded access to the Property in cases of emergency and at all
reasonable times in order to observe Growing Gardens' use of the Property and all farm and
gardening activities and to secure its rights and perform its obligations hereunder.
G. Growing Gardens agrees that any statutory or common law lien on the products
produced on the Property for the faithful performance of Growing Gardens' undertakings, is
expressly reserved.
H. Growing Gardens shall not permit or engage in any hunting, trapping, or poisoning
of animals, or the burning or cutting of trees on the Property, or other acts prohibited by the City’s
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Boulder Revised Code 1981 (“Code”). Growing Gardens agrees to abide by the Code and all other
City ordinances, rules and regulations now in force or as they may be amended from time to time,
and to abide by all applicable laws and regulations of any other governmental authority.
I. Except as specifically provided for herein, Growing Gardens shall not construct,
nor permit construction of, any structure, building or other improvement on the Property without
the City's prior written approval.
J. Pursuant to Section 12-1-10, B.R.C. 1981, Growing Gardens shall not discriminate
against any employee or applicant for employment nor against any applicant or participant in any
of its programs because of race, creed, color, sex, sexual orientation, gender identity, gender
expression, genetic characteristics, marital status, religion, religious expression, national origin,
ancestry, age, mental or physical disability, source of income, or immigration status (unless
otherwise required by law), except when sex or age or absence of mental or physical handicap is
a bona fide occupational qualification and in the instance of a handicap, no reasonable
accommodation can be made. Nor shall Growing Gardens discriminate in any of these prohibited
ways against any garden plot renter, volunteer or other person who’s gardening related activities
at the site or on its behalf are managed or coordinated by Growing Gardens as a result of this
Agreement.
K. Growing Gardens shall procure all permits and licenses, pay all charges, fees, and
taxes and give all notices necessary and incidental to the due and lawful pursuit of their services
under this Agreement.
Section 8. NOTICES.
A. All notices and demands herein required shall be in writing and shall be sufficient
if sent electronically or mailed, postage prepaid, addressed to each Party as follows:
If to the City: Director of Parks and Recreation
parks-rec@bouldercolorado.gov
City of Boulder
3198 N. Broadway
Boulder, CO 80304-2644
If to Growing Gardens: Growing Gardens of Boulder County, Inc.
info@growing-gardens.org
P.O. Box 1066
Boulder, CO 80306
B. Notices shall be effective as of the date following the date of mailing.
Section 9. SEVERABILITY.
In the event that any provision hereof shall be unlawful or held to be unenforceable by
25
any court of competent jurisdiction, such holding shall not invalidate or render unenforceable
any other provision of this Agreement.
Section 10. NON-WAIVER.
No assent, express or implied, to any breach of any one or more of the provisions hereof
shall be deemed or taken to be a waiver of any succeeding or other breach of the same or a different
provision.
Section 11. WORKER WITHOUT AUTHORIZATION.
A. Growing Gardens certifies that Growing Gardens shall comply with the provisions
of Section 8-17.5-101, et seq., C.R.S., as now or hereafter amended. Growing Gardens shall not
knowingly employ or contract with a worker without authorization to perform work under this
Agreement or enter into a contract with a subcontractor that fails to certify to Growing Gardens
that the subcontractor shall not knowingly employ or contract with a worker without authorization
to perform work under this Agreement.
B. Growing Gardens represents, warrants, and agrees (i) that it has confirmed the
employment eligibility of all employees who are newly hired for employment to perform work
under this Agreement through participation in either the E-Verify Program as defined by Section
18-17.5-101(3.7), C.R.S., or the employment verification program established pursuant to Section
8-17.5-102(5)(c), C.R.S. (“Department Program”); (ii) that Growing Gardens is prohibited from
using either the E-Verify Program or Department Program procedures to undertake
preemployment screening of job applicants while work under this Agreement is being performed;
and (iii) if Growing Gardens obtains actual knowledge that a subcontractor performing work under
this Agreement knowingly employs or contracts with a worker without authorization, Growing
Gardens shall be required to:
i. Notify the subcontractor and the City within three (3) days that Growing
Gardens has actual knowledge that the subcontractor is employing or contracting
with a worker without authorization; and
ii. Terminate the subcontract with the subcontractor if within three (3) days
of receiving the notice required pursuant to Section 8-17.5-102(2)(b)(III)(A),
C.R.S., the subcontractor does not stop employing or contracting with the worker
without authorization; except that Growing Gardens shall not terminate the
contract with the subcontractor if during such three (3) days the subcontractor
provides information to establish that the subcontractor has not knowingly
employed or contracted with a worker without authorization.
C. Growing Gardens further agrees that it shall comply with all reasonable requests
made in the course of an investigation under Section 8-17.5-102(5), C.R.S., by the Colorado
Department of Labor and Employment. If Growing Gardens fails to comply with any requirement
of this provision or Section 8-17.5-101, et seq., C.R.S., the City may terminate this Agreement for
26
breach and Growing Gardens shall be liable for actual and consequential damages to the City.
Section 12. INSURANCE.
A. Minimum Coverages. Growing Gardens agrees to procure and maintain in force
during the term of this Agreement, at its own cost, the following minimum coverages:
i. Workers’ Compensation and Employers’ Liability
State of Colorado: Statutory
ii. General Liability – ISO CG 00001 or equivalent
A. General Aggregate Limit: $2,000,000
B. Per Occurrence: $1,000,000
iii. Automobile Liability Limits - ISO form CA0001 (BAP) or equivalent
including coverage for owned, non-owned and hired autos 1
Bodily Injury & Property Damage
Combined Single Limit: $1,000,000
B. Additional Insurance Requirements.
i. All insurers must be licensed or approved to do business within the State of
Colorado, and unless otherwise specified, all policies must be written on a
per occurrence basis.
ii. Where commercially available, Growing Gardens shall name “the City
of Boulder, its elected and appointed officials, directors, officers,
employees, agents and volunteers” as additional insureds as their
interest may appear (except for Workers’ Compensation and Professional
Liability). Additional insured endorsement should be at least as broad as
ISO form CG2010 for General Liability coverage and similar forms for auto
liability.
iii. The Certificate Holder shall be identified as: City of Boulder, P.O. Box
791, Boulder, CO 80306.
iv. All policies of insurance shall be written on a primary basis, non-
contributory with any other insurance coverages and/or self-insurance
carried by the City.
1 Applicable only if Growing Gardens, its agents, employees, or representatives will be using motor vehicles in
Colorado while performing the Program.
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v. A Separation of Insureds Clause must be included in general liability
policies.
vi. Growing Gardens shall advise the City in the event any general aggregate
or other aggregate limits are reduced below the required per occurrence
limit. At its own expense, Growing Gardens will reinstate the aggregate
limits to comply with the minimum requirements and shall furnish to the
City a new certificate of insurance showing such coverage is in force.
vii. Growing Gardens’ insurance carrier shall possess a minimum A.M. Best’s
Insurance Guide rating of A- VI.
viii. Growing Gardens, or Growing Gardens’ insurance broker, shall notify the
City of any cancellation or reduction in coverage or limits of any insurance
within seven (7) days of receipt of insurer’s notification to that effect.
Growing Gardens shall forthwith obtain and submit proof of substitute
insurance in the event of expiration or cancellation of coverage.
ix. Growing Gardens is responsible for any damage or loss to its own vehicles
or equipment.
x. The City and Growing Gardens shall cooperate with each other in the
collection of any insurance proceeds that may be payable in the event of any
loss, including the execution and delivery of any proof of loss or other
actions required to effect recovery.
xi. Growing Gardens and its insurers shall waive subrogation in favor of
Additional Insured parties.
xii. Growing Gardens shall not be relieved of any liability, claims, demands, or
other obligations assumed pursuant to this Agreement by reason of its
failure to procure or maintain insurance or by reason of its failure to procure
or maintain insurance in sufficient amounts, durations or types.
xiii. General Liability coverage shall include a waiver of subrogation.
Section 13. IMMUNITY.
Notwithstanding any other provision of this Agreement to the contrary, no term or
condition of this Agreement shall be construed or interpreted as a waiver, express or implied, of
any of the immunities, rights, benefits, protection, or other provisions of the Colorado
Governmental Immunity Act, Section 24-10-101 et seq., C.R.S., as now or hereafter amended.
The parties understand and agree that liability for claims for injuries to persons or property arising
out of negligence of the City, its departments, institutions, agencies, boards, officials and
employees is controlled and limited by the provisions of Section 24-10-101 et seq., C.R.S., as now
or hereafter amended.
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Section 14. FORCE MAJEURE.
No delay, failure, or default will constitute a breach of this Agreement to the extent caused
by acts of war, terrorism, hurricanes, earthquakes, epidemics, pandemics, other acts of God or of
nature, strikes or other labor disputes, riots or other acts of civil disorder, embargoes, or other
causes beyond the performing Party’s reasonable control (collectively, “Force Majeure”). In such
event, however, the delayed Party must promptly provide the other Party notice of the Force
Majeure. Growing Gardens shall not be excused from liability for delays or non-performance
caused by events or conditions within its control nor for delays or non-performance which it could
have foreseen and avoided, prevented or significantly ameliorated by exercising reasonable
prudence or diligence, nor for any delays or non-performance caused in whole or in part by
Growing Gardens itself.
Section 15. LAWS TO BE OBSERVED.
Growing Gardens shall be cognizant of all federal and state laws and local ordinances and
regulations that in any manner affect those engaged or employed the Program or the conduct of
the Program and all such orders and decrees of bodies or tribunals having any jurisdiction over the
Program and shall, at all times, observe and comply with all such existing laws, ordinances,
regulations, and decrees, and shall indemnify and hold harmless the City against any claim or
liability to the extent caused by the intentional or negligent violation of any such law ordinance,
regulation, order, or decree, whether by itself or by its subcontractors, agents, or employees.
Section 16. APPLICABLE LAW; JURISDICTION; VENUE.
This Agreement shall be construed in accordance with the laws of the State of Colorado.
Any action or proceeding brought to interpret or enforce the provisions of this Agreement shall be
brought before the state court situated in Boulder County or federal court situated in the City and
County of Denver, Colorado and each Party consents to jurisdiction and venue before such courts.
Section 17. NO THIRD-PARTY BENEFICIARIES.
This Agreement shall be binding upon and inure to the benefit of the heirs, successors and
assigns of the Parties. It is expressly understood and agreed that the enforcement of the terms and
conditions of this Agreement and all rights of action relating to such enforcement, shall be strictly
reserved to the City and Growing Gardens. Nothing contained in this Agreement shall give or
allow any claim or right of action whatsoever by any other third person. It is the express intention
of the City and Growing Gardens that any such party or entity, other than the City or Growing
Gardens, receiving services or benefits under this Agreement shall be deemed an incidental
beneficiary only.
Section 18. COMPLETE AGREEMENT.
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This Agreement is intended as the complete integration of all understandings between the
Parties. No prior or contemporaneous addition, deletion, or other amendment hereto shall have
any force or effect whatsoever, unless embodied herein in writing.
Section 19. AMENDMENT IN WRITING.
No amendment or modification shall be made to this Agreement unless it is in writing and
signed by both Parties. Neither the course of conduct between the Parties nor any trade practice
shall act to modify the provisions of this Agreement except as expressly stated herein.
Section 20. SURVIVAL.
Any and all provisions of this Agreement that, by their nature, would reasonably be
expected to be complied with or performed after the expiration or termination of this Agreement
shall survive any expiration or termination of this Agreement.
Section 21. AUTHORITY.
Growing Gardens warrants that the individual executing this Agreement is properly
authorized to bind Growing Gardens to this Agreement.
[SIGNATURE PAGE FOLLOWS]
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The Parties to this Agreement have caused it to be executed by their authorized officers as
of the day and year first above written. This Agreement may be executed in counterparts, each of
which shall be original, but all of which together shall constitute a fully binding and executed
Agreement.
GROWING GARDENS
By: __________________________________
Title: _________________________________
STATE OF COLORADO )
) ss.
COUNTY OF BOULDER )
SUBSCRIBED AND SWORN to before me, a notary public, this ______ day of
______________, 20__, by ___________________ (contractor name) as
________________________________ (contractor title).
Witness my hand and official seal.
_________________________________
Notary Public
(SEAL)
CITY OF BOULDER
__________________________________
City Manager
ATTEST:
_____________________________
City Clerk
APPROVED AS TO FORM:
______________________________
City Attorney’s Office
31
EXHIBIT A
SITE LOCATIONS
32
EXHIBIT A
W,800 Che Ave
jaw Rd h
havithorn gardens
1630 Hawthorn
Valmont Rd-y
s
s
401 Cain Blvd
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J 100 Hickory Ave
Bbselline Pa
M
Taole Mesa Dr.
33
EXHIBIT B
SCOPE OF WORK
Growing Gardens will provide the following services in support of the City of Boulder
Community Garden Program at Hawthorn, Foothills, Hickory and Fortune Community Gardens:
1. Growing Gardens shall use commercially reasonable efforts to see that the
Community Gardens Program is a success, that the Program participants are able to reach Growing
Gardens with questions or requests for advice reasonably promptly and otherwise to assist the City
and Program participants.
2. Growing Gardens shall coordinate, supervise, and manage all gardening volunteers
who perform services benefiting the Program.
3. Growing Gardens shall be responsible for collecting Program fees. Growing
Gardens will develop a protocol for handling and accounting for such funds.
4. Growing Gardens shall coordinate the management of the City’s Community
Garden sites to include the following:
• Develop Community Garden Program and registration material to include
community service materials and rules and policies.
• Manage the registration of garden plots.
• Perform data entry into computer on Program participants.
• Establish and maintain a waiting list for garden plots.
• Develop and conduct annual orientation sessions for Program participants.
This will include preparing materials for the orientation programs and
training Garden Leaders to conduct these sessions.
• Procure mulching material if applicable and arrange for delivery.
• Establish Garden Leader volunteer committees and attend at least one (1)
meeting of each volunteer committee.
• Develop and distribute an annual directory of Program participants.
• Manage volunteer Garden Leaders who will be overseeing the garden plot
upkeep and maintenance on a regular basis. Ensure Program participants
who are not in compliance are contacted by telephone or written
correspondence.
34
• Develop various workdays for Program participants to perform communal
service within the gardens as required of the Program participants in their
plot rental agreements. The duties will include setting up the workdays and
equipment needed for the participants, and monitoring progress on site as
may be needed during the workdays.
• Coordinate the closing of the gardens at the end of the season. The tasks to
complete during this phase will include preparing materials related to the
closing.
• Participate in quarterly update meetings with the City’s Parks and
Recreation Department concerning Program participation rates, aligned
community outreach, communications, and service impact.
5. Other Growing Gardens miscellaneous duties to include the following:
a. Respond to written and telephone inquiries concerning the Program; and
b. Provide annual participation and impact report to the City’s Parks and
Recreation Department within forty-five (45) days of the end of any
calendar programming year of the Term of this Agreement.
35
EXHIBIT C
COMMUNITY GARDEN PROGRAM
INFORMATION, POLICIES, REGULATIONS, AND PROCEDURES
36
Hawthorn, Hickory, Foothills and Fortune
Community Garden Program
Information, Policies, Regulations, and Procedures
Growing Gardens office phone: 303-443-9952
Website:http://www.growinggardens.org
These rules are effective Jan 1, 2022 and govern the Hawthorn, Hickory, Foothills and Fortune
Community Garden Programs (the “Program(s)”)
During their participation in the Program, individuals are expected to consider the impact that their
decisions have on their plot neighbors, and the community as a whole.This is not a Program of
ownership, but one of stewardship.With this in mind, we have developed a set of rules for
participation in the Program. All Gardeners are responsible for being familiar with and obeying all garden
rules.
Additionally, when there are matters needing attention that fall outside of the written rules, Growing
Gardens’ staff reserve the right to make decisions related to these matters which may be beyond what is
written in the rules, and by participating in the Program, you agree to abide by those decisions. If you
have any questions, please contact your Garden Leader first, then the Growing Gardens office. Growing
Gardens reserves the right to revise these Policies and Regulations at any time without notice.
Garden Information
Gardening Season: January 15th - November 15th.
Community Garden Program provides:
Water (regulated by the city and weather conditions)
Free, unlimited mulch for pathways is available at Hawthorn and Hickory
Tools & wheelbarrows on site
Gardeners are responsible for:
Annual Program participation fee
4 hours (or more) of community service assistance for the garden per plot per year
A clearly worked, weeded and harvested plot all growing season
Clear, weed-free pathways around their plot
Any additional plot needs
Maintaining current address, phone numbers and email address with the Growing Gardens office
Positive community participation in the Community Garden Program
Optional supplies gardeners are responsible for:
Seeds
Fertilizer, herbicides and insecticides: ALL MUST be organic
Hoses
Drip irrigation systems
Hand tools
Row covers
37
Garden Leaders
Garden Leaders are volunteers, and are appointed by Growing Gardens staff to assist with managing the
implementation of the Community Garden Rules. The role of the Garden Leaders is to provide support for
gardeners and to serve as liaisons between the gardeners and the Growing Gardens staff. Their
responsibilities include: hosting garden orientation, planning work days, issuing Garden Warnings, hosting
social events, and serving as the primary communication contact for the gardeners. Garden Leaders are
a great resource for questions and concerns and will try to provide information or coordinate help. Garden
Leader contact information is distributed to registered gardeners prior to March 1st.
Primary Gardeners
Growing Gardens will assign garden plots to one individual, known as the Primary Gardener. This
individual is solely responsible for ensuring that the assigned plot and pathways remain in compliance
with the Program rules. Primary Gardeners are expected to actively participate in gardening the plot
assigned to them, and must be physically present in the garden throughout the season to work the
plot. They are also responsible for ensuring that individuals whom they invite to garden with them
remain in compliance with the Program rules. Primary Gardeners will be held responsible for rule
violations that occur from their guests and Additional Gardeners.
Additional Gardeners
Primary Gardeners may list one Additional Gardener for the plot at the time of registration. If the Primary
Gardener voluntarily relinquishes the plot assignment, the Additional Gardener is the only person eligible
for first right of refusal to the plot. If no Additional Gardener is listed, the plot will be made available to the
public. Primary Gardeners are ineligible to be listed as Additional Gardeners on any registration form,
and individuals can only be listed as an Additional Gardener for one plot. Additional Gardeners will not
automatically receive regular seasonal emails or notifications from Growing Gardens, but may request to
receive regular garden related emails.
Garden Policies
Plot Assignment
Growing Gardens staff determine which garden plots are assigned to gardeners. All Community Garden
Program participants require registration through Growing Gardens. Renewal of the same garden plot
from year to year is not guaranteed, and Growing Gardens staff make the final decisions as to which
gardeners are eligible to renew their registration in the Program. Factors in determining renewal eligibility
include (but are not limited to) community impact, Program participation, plot and pathway maintenance,
and compliance with the community garden Program rules.
Refunds/Termination
If a garden plot is voluntarily relinquished and notification given to the Growing Gardens office by April
1st, the plot will be reassigned and half of the plot fee and the full water fee (if applicable) will be
refunded. No refunds will be given after this date. Growing Gardens has the right to terminate gardeners
from the Program at any time for any reason within its sole discretion, including failure to comply with the
Policies and Regulations or failure to positively participate in the Program if it deems necessary. No
refunds will be issued for plots that have been revoked.
Community Service Requirement
Four (4) hours of Community Service time (per plot per year, regardless of plot size) must be completed
and recorded each season to participate in the Community Garden Program. This is in addition to the
maintenance of the plot and pathways assigned to the Primary Gardener at the beginning of the season.
This will be tracked closely.The deadline to complete and record community service hours is
November 15th. Community Service hours not recorded by November 15th will not count toward the
requirement. Community service hours must be recorded to Growing Gardens by logging them online
using the link on the Growing Gardens website. If you do not have access to the internet, please call the
Growing Gardens office to report the following information relating to your completed community service
hours: your name, plot number, task(s) completed, date completed, and number of hours completed. If
four (4) hours of Community Service time (per plot per year, regardless of plot size) are not completed
and recorded by the deadline, the Primary Gardener will be invoiced for the incomplete or uncorded
hours. Incomplete or unrecorded hours are billed at $20/hour. Primary Gardeners are responsible for
38
ensuring that either the required hours are completed and reported by the deadline, or that the invoice for
incomplete and unreported hours is paid by the invoice deadline November 30. Failure to pay the invoice
by the due date will mean a gardener is ineligible to renew their participation in the Program.
There are many tasks needing completion and we are open to unique and creative suggestions on how
individuals can complete the community service requirement each year. Specific garden work days are
often scheduled throughout the season, and participation in these work days can be counted towards the
required community service hours. For other garden events and/or activities, please coordinate with your
Garden Leader.
Examples of activities available to complete Community Service requirement:
Assist an injured or ill gardener to maintain their plot and pathways
Maintain garden tools or wheelbarrows
Attend garden work days
Maintain garden tool sheds
Volunteer at Growing Gardens events
Volunteer at Growing Gardens volunteer days
Organize a food donation program at your garden site
Volunteer in the Growing Gardens Office
Seasonal Payment
It is each gardener’s responsibility to pay the community garden plot fee and water fee (if applicable) at
the time of registration. If you cannot pay your plot fee at the time of registration, please contact Growing
Gardens to request a payment plan.
Gardeners may also apply for a reduced rate plot fee. Gardeners must provide verification paperwork to
show that they qualify for the reduced rate according to the Boulder County AMI Index. Examples include:
copy of Medicaid card, proof of residence in public housing, or proof of disability (SSI, SSDI, or letter from
an agency or physician.).
Sharing Surplus
Most gardens have a food donation program that is organized by a gardener. For more information,
please contact your Garden Leader. Please note that it is not permitted to sell excess produce from
Community Garden plots.
Garden Regulations
1) Plot and Pathway Maintenance Regulations
Plot Maintenance
Plots must be reasonably maintained. Reasonably maintained means weeds kept under control and
plants are regularly cared for, pruned, watered and harvested. Plants must not exceed plot boundaries, or
shade out a neighboring plot. By November 15th all non-wintering plants inside of the garden plot must be
removed as well as stakes, walls of water, row covers, etc. Garden related items must be secured in the
plot to ensure that they do not blow away. You may not store bags of leaves/organic matter over the
winter.
Plot Neglect/Abandonment
Plots must be obviously worked and weed control begun by April 15th. Any abandoned or unworked plots
will be reassigned and no refund given.
If you are unable to keep or maintain your plot you must contact the Growing Gardens office and your
Garden Leader immediately.
Path Maintenance
It is each gardener’s responsibility to keep their paths clear and weed-free (the half of the path closest to
the assigned plot). Pathways around each plot are to be no less than 4 feet wide. Paths must be clear
39
and weed-free. Putting mulch or planting clover in gravel pathways is not permitted as an acceptable
means of weed control. Planting the internal garden pathways is prohibited. All pathways must remain
free of personal items. Growing Gardens reserves the right to enforce pathway maintenance as it sees
fit.
Composting
Compost removal containers are available at each of the gardens for all of the compostable garden
waste. Please do not overfill compost bins. If bins are full, please contact Growing Gardens and wait until
bins have been emptied to add any compostable debris. Please do not leave piles of debris in front of the
compost bins. The bins can not be emptied if there is debris in front of them. If bins are full you can leave
compost piles in your plot until the bin is emptied. Personal composting bins are not permitted in
community garden plots or common areas.
Trash
Growing Gardens arranges trash services at Hawthorn and Foothills Community Gardens. Please pack
out all trash at all other garden sites.
Manure Application
If a gardener chooses to apply manure to their plot, manure must be “aged” and needs to be immediately
watered down and thoroughly worked into the soil within forty-eight hours of delivery.
Mechanized Equipment
Per city zoning regulations, no person shall operate mechanized equipment including, without
limitation, lawn mowers, roto-tillers, garden tractors, and motorized weed trimmers, between the hours
of 8:00 pm and 10:00 am Saturday and Sunday.
Weeds
There are many weeds in the community gardens. Weeds compete with other plants in the garden and
can quickly become invasive. If weeds are left to go to seed they will affect neighboring gardens as well. If
a Garden Leader sees too many weeds in the garden plot or the plot looks unworked the Primary
Gardener will receive an email or written Garden Warning from Growing Gardens or the Garden Leader.
For details regarding Garden Warnings, please reference the “Plot Maintenance or Vehicle Violation
Notification” under Procedures in the Conduct Regulations section of the Program Rules.
Organic Only
Herbicides, insecticides and fertilizers made from synthetic chemicals are NOT permitted.
Fences
Fences are not allowed at Foothills, Fortune and Hickory. Well maintained fences that do not shade
neighboring plots are permitted around plots at Hawthorn. Fences cannot block sun from another
garden and may not exceed the plot boundaries. No barbed wire or other hazardous materials may be
used on, in or around fencing and/or garden.
Accessory Garden Structures
No new shade structures are allowed inside garden plots. Current shade structures will be reviewed on
an annual basis. If Growing Gardens deems them to be unsafe, these shade structures will be required to
be removed immediately. No permanent structures are allowed in garden plots. Temporary trellising, hoop
row covering and cold frames are allowable. These shall not exceed 6ft in height nor exceed a footprint
of 3’x3’. All trellising or hoop row covers must be contained entirely inside the plot, must be secured,
removable if needed, and shall not shade the neighboring garden plots. No furniture, trash or items other
than garden related items are allowed in the garden. (One bench, or the equivalent, is acceptable.)
Accessory gates, art, etc not specifically used for gardening are subject to review by Growing Gardens.
Water & Hoses
Use of water should always be controlled. Drip irrigation is highly recommended in our dry, arid climate
and can be purchased locally.
Keep hydrants in the “off” position when drip systems are not in use. It is recommended to use Teflon
40
tape at all connection points between hydrants, timers and hoses to prevent leaking and cracking of
plastic parts when tightened. Check drip systems for leaks on a regular basis.
Gardeners may not use sprinkler irrigation between the hours of 10:00am and 6:00 pm. Drip irrigation
or watering by hand can be done at any time. Sprinklers and hoses can not be left running
unattended.
Prior to May 15
th and after September 15
th all hoses, drip irrigation and timers must be disconnected by
4pm and remain disconnected overnight unless otherwise directed by Garden Leaders and/or
Growing Gardens staff. This is to prevent damage to the water systems due to nighttime low
temperatures.
Not Allowed in the Gardens
Marijuana or hemp cultivation, bee hives, tires, pressure treated wood, carpet, barbed wire, plastic lined
beds or pathways, plastic or rubber mulch, audible music (use headphones please), selling produce,
unleashed pets and unsupervised children are not allowed in the gardens. Smoking of any kind, vaping
and chewing tobacco is not allowed in the gardens or within 15 feet of any garden entrance. Tobacco may
infect plants and spread the tobacco mosaic virus. Existing trees in the garden will be individually
reviewed by Growing Gardens, and may be maintained, or removed as Growing Gardens sees fit. No
new trees may be planted.
Tools
Basic tools and wheelbarrows are kept on site at the gardens for everyone’s use. The tool shed code is
given out during garden plot registration. Please reach out to your Garden Leader if you need a
reminder of the code.
Responsible community tool use:
As respectful gardeners, we cherish our community tools, we use them carefully, we leave them better
than before we used them, and we put them away for safekeeping before we leave the garden.
●Please use each tool for its intended purpose
● Clean tools when you are finished using them
● Put each tool in its proper storage spot before you leave
● If needed, ask other gardeners about the correct use of tools
● If you see a tool being misused, kindly offer assistance
● If a tool needs repair or attention, please let your Garden Leader know
The Community Garden Program is not responsible for any personal tools, etc.
Other
Growing Gardens cannot anticipate every gardening situation, but it is within our discretion to create,
interpret and enforce rules as situations arise in the best interest of the program.
2)Vehicle Access Regulations
Foothills Gardens:
NO vehicles are allowed in the Foothills or Fortune Gardens.
Hickory Gardens:
Hickory gardeners may use the garden driveway to load or unload supplies. Please park on Hickory Ave.
when you are finished loading or unloading.
Hawthorn Gardens:
Driving into the gardens is for loading or unloading supplies only. Remove vehicles when you are
finished loading or unloading. Vehicles can be parked in the greenhouse parking area. If parking is not
available in the parking area, gardeners may park on Hawthorn Ave or other surrounding streets. Do not
park within the gardens, near the shade structure, near the raised beds to the east of the community
gardens or anywhere else that is not the parking lot by the greenhouses. Vehicles may only enter the
Hawthorn Gardens via the entrance located on Hawthorn Ave, and are only permitted beyond the parking
41
lot when the road access to the garden is open.
The road into the garden will remain open on the weekends between March 15- November 15 (weather
permitting and at staff discretion). The road will not be open on days where there is a special event at
Growing Gardens. There will be no weekday access to the road. Special permission may be given to
gardeners for weekly access after 4pm based on mobility challenges. If you have mobility challenges and
have a State Issued Disabled Parking Permit please check in with Growing Gardens Operations Manager
for accomodations Growing Gardens reserves the right to evaluate each request independently to
determine the legitimacy of the request. Cars are never permitted to drive on the bike paths and the
internal pathways.
Drivers are expected to not exceed 5 miles per hour when driving on Growing Gardens property.
Individuals who violate the vehicle regulations are subject to receiving a Garden Warning. For details
regarding Garden Warnings, please reference the “Plot Maintenance or Vehicle Violation Notification”
under Procedures in the Conduct Regulations section of the Program rules.
Other
Growing Gardens cannot anticipate every vehicle situation, but it is within our discretion to create,
interpret and enforce rules as situations arise in the best interest of the program.
3)Conduct Regulations
Gardeners are encouraged to dress in a manner that is thoughtful of the public, communal nature of
the garden sites and interaction with youth programming happening at the site.
No community gardener shall:
1. Steal, damage, or misuse any Growing Gardens property or the property of another participant
2. Smoking, of any kind, of any substance including, but not limited to: smoking cigarettes, e
cigarettes, vaping, marijuana and chewing tobacco is not allowed in the gardens or within 15 feet of
any garden entrance. Tobacco may infect plants and spread the tobacco mosaic virus.
3. Commit harassment of any person including
a. Lays a hand upon, shoves, strikes, or threatens another gardener, staff or community
member
b. Engages in obscene gestures, objectionable demonstrations
c. Uses foul language (swearing) or abusive verbal attack upon another gardener, staff or
community member
4. Commit indecent exposure
5. Bring a “weapon” into the gardens. Legal knives with blades no longer than 3 ½ inches in length are
not weapons when used as gardening tools. This prohibition does not apply to police officers carrying
service weapons in accordance with their department’s policies.
6. Possess or sell illegal drugs in or around the gardens.
7. Fail to leave any portion of the gardens immediately upon being told to do so by a Growing Gardens
employee or landowner or land manager.
8. Failure to involve a manager in a dispute
9. Disturb other gardeners or employees so as to substantially interfere with their use of the gardens or
constitute a general nuisance. Disturbances may arise from inappropriate use of personal equipment
including, but not limited to: cellular phones, computers, radios, music players, MP3 players, and
conservations which contain any offensive utterance, gesture, or display, which tends to incite an
immediate breach of peace. Gardeners who yell, harass, or are disrespectful of employees, vendors
or other gardeners will also be considered a disturbance.
10. Solicit donations of money or anything of value, or sell or take orders for anything of value in any
garden with the exception of persons who have entered the gardens in order to conduct a
commercial transaction with Growing Gardens.
11. Enter the garden while that person’s abilities are impaired to the slightest degree by alcoholic
beverages, marijuana or illegal drugs or remain in the garden in such a state of impairment.
Other
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Growing Gardens cannot anticipate every conduct situation, but it is within our discretion to
create, interpret and enforce rules as situations arise in the best interest of the program.
Procedures:
Growing Gardens implores a four-tiered system to ensure compliance with its Policies and Regulations.
Notwithstanding the below, Community Gardens has the right to terminate a plot for any reason within its
sole discretion. No refunds will be issued for plots that have been terminated. Growing Gardens staff,
property landowners, or property managers may intervene to prohibit any activity or behavior that appears
to present an immediate danger to staff, gardeners, or any other person on the property. Growing
Gardens may alert the landowner or land manager of any gardener who violates the Policies or
Regulations.
Gardener’s acknowledgement of these Procedures will be kept on file along with their application to
participate in the Program. Growing Gardens will also keep a copy of all Policy or Regulation violations
as notified per the below in addition to other relevant communications.
1.Plot Maintenance or Vehicle Violation Notification
a. Notification-A gardener whose plot is not in compliance with the Plot Maintenance or Vehicle
Regulations will receive a Garden Warning email or letter (when an email address is not
available). The Garden Warning will specify the Plot Maintenance or Vehicle Regulation(s)
that are currently in violation.
b.Steps to Remedy the violation –The gardener must remedy the specified violation if such
violation is able to be remedied within seven (7) days of the date that the Garden Warning was
sent. If a gardener is not able to remedy the violation prior to the deadline, the gardener must
contact the Growing Gardens staff before the deadline to request an extension. Growing
Gardens will review all cases individually and make the final decision regarding the extension
request within its sole discretion depending on the circumstance. In the case the violation is not
remedied within the seven (7) day period and no extension was granted, then it is assumed the
gardener has forfeited the plot and the plot may be suspended within the discretion of Growing
Gardens pursuant to the Suspension provision outlined below. Any gardener who receives two
(2) Garden Warnings in one growing season will be placed on Probation as detailed below.
2.Probation
a. Definition–Any gardener who 1) violates any Policy or Conduct Regulation or; 2) receives two
(2) or more Garden Warnings in one growing season, may be placed on probation. During this
time, the gardener is allowed to continue gardening for the remainder of the gardening season
with the expectation that he or she will comply with the Policies and Regulations and the
violation has been immediately remedied. Probation may be lifted at the beginning of the
following garden season so long as the gardener is in compliance with all Policies and
Regulations.
b. Notification– A gardener placed under probation will be notified by Growing Gardens
immediately if Growing Gardens’ staff is present in the garden at the time of the violation and/or
via (a) an email address supplied by the gardener when he or she registered for the plot, (b) a
warning posted on the garden plot, and (c) a phone call to the phone number supplied by the
gardener when they registered. Growing Gardens staff will alert the garden leader(s),
landowner, and land managers of the violation and the actions being taken by Growing
Gardens.
c. Remedy of the Violation –A gardener on probation can continue to garden in their plot as long
as 1) the violation is immediately remedied (if applicable to be remedied) and 2) he or she
continues to comply with all of the Policies and Regulations. The gardener’s probation may end
at the beginning of the following garden season assuming the gardener is in full compliance. If
the gardener violates their probation by violating any Policy or Regulation before garden season
expires, he or she will be immediately suspended for the duration of the gardening season.
d.Dispute of Violation –Gardeners who believe they have been unfairly placed on probation may
43
dispute the probation within seven (7) days of the date notification of the violation by the
Growing Gardens staff. Disputes must be submitted in writing to the Growing Gardens office
and must include concrete evidence and/or eye witness accounts showing that the violation did
not occur or explain the circumstances of the violation. This information will be reviewed by
Growing Gardens staff on a case by case basis and Growing Gardens staff reserves the right to
make final decisions regarding the probation within its sole discretion.
3.Suspension
a. Definition – Any gardener who 1) violates their probation; 2) violates a Policy or Conduct
Regulation twice within a period of two (2) growing seasons; or 3) violates a Policy or
Regulation in a manner that Growing Gardens deems extreme, may be suspended from the
Growing Gardens Community Garden Program. A suspended gardener cannot participate in the
Community Garden Program for the remainder of the gardening season and will not receive a
plot refund. Their garden plot may be reassigned to another gardener from the waitlist or
maintained by Growing Gardens. If the gardener does not comply with the suspension, he or
she will be terminated from Growing Gardens’ Community Garden Program and not be allowed
to apply for participation in the Community Garden Program in the future.
b. Notification – Suspended gardeners will be notified by Growing Gardens staff in person and
immediately if staff is present at the time of the violation and /or via (a) an email address
supplied by the gardener when he or she registered for the plot or (b) a warning posted on the
garden plot, and (c) a phone call to the phone number supplied upon registration. Growing
Gardens staff will alert the garden leader(s), landowner, and land managers of the violation and
the actions being taken by Growing Gardens.
c. Effect of Suspension– A suspended gardener will have the opportunity to clear his or her plot
and collect their belongings within seven (7) days of the date of notification of the suspension.
After seven (7) days, any items that remain in the plot shall become property of Growing
Gardens/ the Community Garden and will be disposed of, donated, or reassigned to a new
gardener within Growing Gardens’ discretion. A Gardener who is suspended from the Program
may apply to participate in the Program in future growing seasons, however, eligibility to return
to the Program shall be determined within the sole discretion of the Growing Gardens staff and
shall depend on the severity of the violation.
d.Dispute of Violation –Gardeners who believe they were unfairly suspended may dispute the
suspension within three (3) days of the date of notification of the violation by the Growing
Gardens staff. Disputes must be submitted in writing to the Growing Gardens office and must
include visual evidence and eye-witness accounts showing that the violation did not occur or
explain the circumstances of the violation. This information will be reviewed by Growing Gardens
staff on a case by case basis and Growing Gardens staff reserves the right to make final
decisions regarding the suspension within its sole discretion. In the case that Growing Gardens
determines that the gardener’s suspension will be lifted, the gardener will be able to finish the
growing season on probation. Growing Gardens may require gardeners to participate in
mediation services and/or other dispute resolution activities in addition to agree to additional
participation terms to continue in the Program.
4.Termination
a. Definition – A gardener who does not comply with his or her suspension or if Growing Gardens
staff determines, in its sole discretion, that the community gardener creates a public safety
hazard, creates an unsafe environment or acts in a manner that is contrary to the spirit of the
Program, Growing Gardens may immediately terminate the gardener from the Growing
Gardens’ Community Garden Program. Terminated Gardeners will not be allowed to reapply for
participation in the Community Garden Program at any point in the future.
b. Notification – Terminated gardener will be notified by Growing Gardens staff in person and /or
44
via (a) an email address supplied by the gardener when he or she registered for the plot or (b)
a warning posted on the garden plot, and (c) a written letter of termination. Growing Gardens
staff will alert the garden leader(s), land owner, and land managers of the violation and the
actions being taken by Growing Gardens.
a. Effect of Termination– A gardener who is terminated from the Program will not be given the
opportunity to remedy any non-compliance and the gardener must immediately remove his or her
personal items from the gardens. Terminated gardeners will not be allowed to return to the
garden property. All items that remain in the plot seven (7) days after termination will become
property of Growing Gardens/ the Community Gardens and will be either disposed, donated, or
reassigned to a new gardener within Growing Gardens’ discretion. Seven (7) days after the date
of termination, Growing Gardens staff will reassign the plot to a gardener(s) on the waitlist.
e.Dispute of Termination –If a gardener believes they were unfairly terminated from the
Community Garden Program, he or she may dispute the termination within three (3) days of the
date of notification of termination. Disputes must be submitted in writing to the Growing Gardens
office and must include visual evidence and eye-witness accounts showing that the probation or
suspension violation did not occur or explain the circumstances leading to the decision by the
Growing Gardens staff to terminate. This information will be reviewed by Growing Gardens staff
on a case by case basis and Growing Gardens staff reserves the right to make final decisions
regarding the suspension within its sole discretion. In the case that the Growing Gardens
determines that the gardener’s termination will be lifted, the gardener may be able to finish the
growing season on suspension. Growing Gardens may require gardeners to participate in
mediation services and/or other dispute resolution activities in addition to agree to additional
participation terms to continue in the Program.
5.Renewal
a.Renewals will be available in January of each year. Renewal of the same plot is not
guaranteed.
b.In an attempt to maintain a safe, harmonious and enjoyable experience in the Community
Garden Program, Growing Gardens reserves the right not to renew the plot of a gardener
who has been a disruption to the Community Garden Program, regardless of whether or not
they have been placed on probation or suspension during the course of the year.
c.Growing Gardens reserves the right to move gardeners to different plots on a garden property or
to different garden locations, as necessary to maintain an adequate balance between the
properties, to accommodate different property initiatives, programming and other community or
resource needs and to attempt to reduce conflicts within the Program.
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EXHIBIT D
2022 FEE STRUCTURE
Hawthorn, Foothills (F), Hickory (H)
Plot Size Seasonal Plot
Fee
Reduced Rate Plot Fee *
Full size (400 sq ft) $125.00 $63.00
Half size (200 sq ft) $82.00 $42.00
Third size (130 sq ft) (Haw) $57.00 $29.00
Raised bed (32 sq ft) (Haw) $57.00 $29.00
Fortune (S)
Plot Size Seasonal Plot
Fee Reduced Rate Plot Fee *
10 x 10 (100 sq ft) $82.00 $42.00
*Rate available for economically disadvantaged applicants in accordance with Section 3.
46
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: May 23, 2022
AGENDA TITLE: 2023 Budget Strategy: Recreation Activity Fund Facility Access
Fees
PRESENTERS:
Alison Rhodes, Director of Parks and Recreation
Jackson Hite, Parks & Recreation Sr. Manager – Business Services
Stacie Hoffmann, Sr. Budget Analyst
EXECUTIVE SUMMARY:
This item continues the Parks and Recreation Advisory Board (PRAB) discussion related
to the Parks and Recreation Department (the department) 2023 Budget Strategy. As staff
develop operating and capital budgets, the PRAB’s input is critical to ensuring spending
aligns with community priorities and values. The intent of this item is to confirm the
priorities and approach that will be taken in finalizing 2023 operating budget submission
for the Recreation Activity Fund (RAF).
BACKGROUND:
At the February 28, 2022 PRAB meeting, staff introduced the 2023 Budget Strategy. The
background information shared that that meeting included:
1. 2019 Process for the 2020 Budget Development and Fee Increase Outcomes
2. 2020 and 2021: COVID Impacts and Recovery
3. Developing a Stable 2022 Budget
4. BPR’s Diverse Funding Sources
At the March 28, 2022 PRAB meeting, staff provided greater information on the
Recreation Activity Fund, and sought the PRAB’s input and feedback on how to balance
revenues and expenses through scenario planning and fee options. The discussion focused
on:
1. BPR’s Diverse Funding Sources
2. RAF as a Quasi-Enterprise Fund
3. Facility Access Fees
4. Levels of Services: Facilities
5. Subsidy Use
6. 2023 Scenario Planning
7. 2023 Fee Options
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At the April 25, 2022 PRAB meeting, staff introduced different options to either decrease
expenses or increase revenues in the Recreation Activity Fund by focusing on Facility
Access Fees. The PRAB provided their feedback on the different options which included
adjustments to the:
1. Hours of Operation
2. Adult Drop-in Baseline Entry Fee
3. Non-Resident Fee Premium
4. Seasonal Facility Access Fees
5. Other Recommendations
At the May 11, 2022 PRAB study session, the PRAB received staff’s recommendation on
recommended facility access fees to align revenues and expenses in the Recreation
Activity Fund for the 2023 operating budget. Additionally, the PRAB heard about the
remaining budget requests that the department intends to submit for consideration as part
of the internal budget development process.
The PRAB’s input is critical to ensuring the department’s budget aligns with community
priorities and values as well as the Master Plan guidance. This final discussion before
submission will be an opportunity to confirm staff’s approach to the 2023 budget
considering the PRAB’s input throughout these meetings.
Recreation Fund Management Strategies
The RAF is a quasi-enterprise fund where the department manages all expenses, collects
most revenues from user and participation fees, but also relies on a subsidy from the
General Fund to support community-benefit services. In alignment with city guidance,
the RAF maintains a 10% reserve, intended to mitigate current and future risks (e.g.
revenue shortfalls and unanticipated expenses). Management of recreation funding is
guided by several strategies, all developed in alignment with the Master Plan and the
PRAB’s input.
General Fund Subsidy
Annually during the budget development, the Finance Department, in coordination with
the department, determines what subsidy level the Recreation Activity Fund will receive
from the General Fund. The calculation for General Fund transfer to the RAF has
historically been based on:
1. Projected personnel costs (including benefits) during the next budget year
2. Non-personnel costs from the previous year
3. Anticipated growth in these costs
4. Any significant increases or decreases in service
This has recently changed to a calculation based on subsidy received in the prior year,
which potentially disconnects subsidy from actual expenses incurred and community
benefit provided by the tax support.
The General Fund subsidy supports community benefit programming based on
community input and values expressed in the department’s Master Plan, which is then
prioritized using the Service Delivery Model and Recreation Priority Index (see below).
Programs that most benefit the community receive the greatest share of subsidy, while
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programs that most benefit individuals receive little to no subsidy and are funded via user
fees. The General Fund subsidy also provides access for the whole community through
age-based discounts to recreation facilities and financial aid support for under-resourced
residents with low incomes. Through its provision of programming and access, the
General Fund subsidy helps ensure equitable access to all recreation facilities, services,
and programs. This support is what has allowed the RAF to be a sustainable quasi-
enterprise fund while the department offers crucial programming that may not achieve
full cost recovery to maximize community benefit.
This subsidy is prioritized and directed based on the Service Delivery Model and
Recreation Priority Index, two departmental tools developed following the 2014 Master
Plan.
Service Delivery Model (Item VI.A – p. 15-47): Clarifying the department’s role in the
community is a key outcome of the 2014 master planning process. The policy direction of
the master plan indicates that:
All services should emphasize the important and unique mission of the department
to enhance the public health and wellness of the community, services will be
deliberately and thoughtfully designed and delivered to enhance and impact health
and wellness, and the department will use a life-cycle management approach to
ensure services remain aligned with community interests. The department will do
this through implementing standardized measur ement and evaluation processes
based on measurable program objectives.
The Service Delivery Model serves as a framework to consistently assess these programs
and processes to achieve these goals. The department has adopted procedures and trained
staff in the use of the Service Delivery Model to integrate best practices in program
design, delivery and evaluation. Since 2015, staff have regularly evaluated programs
according to the specifications outlined in the Service Delivery Model to ensure
alignment with the Master Plan. Adjustments to services are made on an on -going basis
and any major changes to service delivery are discussed with the PRAB.
Recreation Priority Index (Item VI.A – p. 15 – 47): The Recreation Priority Index (RPI)
provides an objective methodology to categorize services based upon the degree of
benefit they provide to the community. By categorizing services and understanding the ir
cost, the department can ensure that general fund subsidies are focused on community
priorities as expressed in the Master Plan. For example, by reducing subsidies to
exclusive services, funding becomes available to enable financial aid programs to remove
participation barriers for our under-resourced and low-income community members,
thereby fulfilling several master plan initiatives.
Facility Access Fees
The department’s Master Plan provides policy direction defining community benefit
recreation opportunities, and staff has identified a standard methodology for calculating
the total cost of providing services which includes identifying direct and indirect costs. In
setting facility access fees for the recreation centers, outdoor pools and Boulder
Reservoir, the department uses the following categories to calculate and analyze costs:
49
• Operating costs include expenses to provide community services. There are
indirect and direct operating costs:
o Direct facility costs include the personnel and non-personnel expenses
including department R&R (restoration and refurbishment) associated
with the operation and maintenance of recreation facilities. These costs are
incurred daily and include staff, materials and supplies, utilities, and
custodial services. These costs are included in the operating budget.
o Indirect costs are those that department incurs regardless of whether or
not it provides a specific service to the community. They are also included
in the operating budget. Overhead personnel and non -personnel expenses
associated with the day-to-day operation of the department may include
contributions towards Administration, Business Services, Internal Support
Services (Human Resources, Information Technology, City Attorney, Risk
Management, Finance), and Service Coordination/Supervision.
• Capital costs include expenses over $50,000 for major maintenance and
enhancement of public infrastructure by correcting current facility deficiencies
and constructing new service-delivery infrastructure. These expenses are not
included in calculating operating costs. This is due to research and leading
practices which acknowledge there is community benefit in the existence of
recreation facilities, and thus community resources pay for the capital
development and enhancement of these amenities.
ANALYSIS:
Based on input from the PRAB throughout 2022 and the Service Delivery Model and
Recreation Priority Index frameworks, staff propose a multifaceted approach to balance
the 2023 Recreation Activity Fund budget submission.
Based on the department’s base budget, RAF revenues are projected at $10.7 million,
while expenses are at $12.0 million, leaving a delta of $1.3 million. This delta is
primarily due to cost escalations, such as projected increases to salary and benefits for
standard and non-standard employees, janitorial costs, increased utility expenses, and
general cost escalation due to inflation. In terms of revenue, the department has assumed
most program areas to be at pre-pandemic levels, except for recreation centers which are
projected to be at 80% of 2019 utilization levels. This utilization rate identifies the
approximate visits the recreation centers will see based on current utilization and
forecasting while acknowledging that fewer people are working full time in Boulder
because of new hybrid work options, home exercise equipment adoption has increased,
and visitors are less comfortable exercising around other people, particularly indoors. At
the same time, BPR is maintaining existing planned 2022 hours into 2023’s budget (this
level is below 2019’s offerings). BPR recognizes that recreation centers support the
social fabric of the community and their operations should be optimized to encourage
community members’ physical and mental well-being.
Staff proposed options to close the $1.3 million delta in the RAF at the PRAB study
session. The three options introduced were:
1. Adjust facility access fees
2. Request additional General Fund Subsidy for community benefit programming
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3. If alternate funding is not available, reduce discounts, subsidy and/or financ ial
assistance.
Adjustment of Entry Fees: The PRAB discussed adjusting entry fees at recreation
facilities to account for increased costs since the last fee adjustment in January 2020. The
PRAB was sensitive to Boulder’s fees being the highest among public agencies in the
Front Range; however, it acknowledged the difference in funding models between
agencies that results in the need for higher cost recovery in Boulder. The PRAB supports
a $1.00 per visit increase to the adult resident drop-in fee. This would mean a resident
adult would pay a drop-in fee of $10.00 per visit, which is the baseline from which all
other fees are calculated. Additionally, the PRAB supported increasing the non-resident
fee premium to 25% from the current premium of approximately 20%. All existing
subsidy or discount percentages would remain with approximately 40% for youth, 25%
for seniors, and further discounts for punch passes, monthly and annual plans. The PRAB
was supportive of maintaining the age-based discounts in addition to maintaining the
financial aid program to ensure accessibility for low-income participants to access
facilities and programs. The increased facility access fees are projected to generate
$500,000 in additional revenue, reducing the remaining delta to $800,000.
General Fund Subsidy: The department has assumed a baseline subsidy of $1.6 million in
2023, based on projections shared from the Finance Department – this number is
consistent with General Fund subsidy for over a decade. The department is requesting an
increase to the annual General Fund subsidy in the amount of $850,000 to maintain
current service levels and an additional $290,000 to enhance service levels.
The funding gap to maintain service levels was shared with City Council at the April 26,
2022 Study Session on the Master Plan, which includes an additional $590,000 to
continue providing programming and access discounts for youth and older adults while
an additional $250,000 is needed to support affordability for individuals and families
with low incomes. Collectively, with the fee increases planned, BPR is suggesting an
increase to the General Fund subsidy in the amount of $850,000 to maintain service
levels.
In addition to the $850,000 identified above to maintain current service levels, BPR will
also be asking for additional General Fund subsidy to support Master Plan
Recommendations for community benefit programming. There are 3 positions identified
by the Master Plan that include a Youth Programming Manager, a Youth Recreation
Coordinator and a Bi-lingual Access Navigation position with an expected ongoing cost
of $290,000. This $290,000 in salaries and benefits would be directly funded by the
requested general fund subsidy.
Collectively, BPR is looking to increase the subsidy from the projected baseline of $1.6
million to $2.55 million to maintain current subsidy levels, or $2.75 million to enhance
service levels in line with the recommendations from the Master Plan.
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Figure 1: Projected 2023 Revenue to Expenses
Reduction if Alternate Funding is not available: If additional funding is not available
from the General Fund (or an alternative funding source), BPR will need to evaluate and
reduce volume-based discounts, youth and senior subsidy, and/or financial assistance
programming. Additional service reductions could occur in community benefit
programming for EXPAND, Inclusion and Youth Services Initiative. Staff would return
to the PRAB for additional input regarding service levels if additional and/or alternative
funding does not materialize and the department is faced with those difficult decisions.
QUESTIONS FOR THE PRAB:
Does the PRAB support the proposed recommendations for the:
1. Facility Access Fee Increase?
2. Request for additional General Fund Subsidy?
3. Reductions if Alternate Funding is not available?
NEXT STEPS:
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Staff recognizes the valuable role Boulder’s parks and recreation system plays in the lives
of community members and agrees with PRAB’s input that an increase to fees is
appropriate based on current policies and to fund increasing expenses . As a result, a
$1.00 fee increase is recommended for the adult resident daily drop-in fee (which serves
as the baseline for all other fees), with non-residents paying an increased 25% fee
premium but no changes to the percentage discount applied to youth, senior, punch pass,
monthly and annual membership access.
Additionally, the PRAB understands the need to request additional General Fund subsidy
to support youth, seniors, and individuals with low incomes and disabilities in alignment
with the Master Plan survey. If the facility access fee s increase and the General Fund
subsidy are not approved through the 2023 budget development process, staff will return
for the PRAB’s input on further reducing service levels or further increasing fees. The
department remains committed to being fiscal stewards of limited community resources
and to maintain accessibility to all community members.
The direction provided by the PRAB will be included in the final 2023 operating budget
submission later this month, which will then be reviewed at the June PRAB meeting. City
Council is scheduled to review the budget in September and approval is anticipated in
October 2021.
The department will continue to regularly monitor revenues, expenses, and performance
metrics on recreation usage. Staff will return to the PRAB in September to provide an
“end of summer” update on 2022 revenues, expenses and performance metrics.
53
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: May 23, 2022
AGENDA TITLE: Draft 2022 Boulder Parks and Recreation Master Plan
PRESENTERS:
Alison Rhodes, Director, Parks and Recreation
Regina Elsner, Planning, Design & Community Engagement Manager - Interim
Jackson Hite, Business Services Senior Manager
Tina Briggs, Parks Senior Planner
Becky Zimmermann, Principal-in-Charge, Design Workshop
EXECUTIVE SUMMARY:
The 2022 Boulder Parks and Recreation Master Plan (2022 Master Plan) provides policy
guidance and direction on the priorities for providing parks and recreation services to the
Boulder community. This is an update to the 2014 Boulder Parks and Recreation M aster
Plan (2014 Master Plan) that has guided the department since its acceptance. The intent of
the master plan is to guide the department over the next five years and shape the delivery
of department provided park and recreation services in a manner that is consistent with city
goals and that meets the community’s level of service standards.
The purpose of this discussion item is to present the 95% draft of the 2022 Master Plan to
the Parks and Recreation Advisory Board (PRAB) for final feedback. This draft includes
all key elements of the final plan. Most importantly the draft 2022 Master Plan clearly
frames the major policy issues. The PRAB’s input will inform the final master plan, which
is scheduled for Public Hearing and PRAB recommendation to City Council at the June
business meeting.
Policy Issues
The Boulder Parks and Recreation Department (BPR) is responsible for an average of $29
million annually in operating and capital expenditures. Relative to inflation, funding has
remained generally consistent since 2016 with a -0.4% annual growth rate. At the same
time, due to the rising costs of personnel, energy and materials, the increasing cost s to
maintain aging assets, and operations and maintenance of facilities, department expenses
are outpacing funding levels.
To deliver on the department’s mission and achieve financial sustainability, the following
issues must be addressed:
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• With no new funding, BPR must reevaluate levels of service with the community,
recognizing that reductions must be made.
• Several sources of additional funding are potential alternatives to maintain existing
levels of service:
o Grants and philanthropy are best suited for one-time infusions of funding to
support specific projects or programs. This type of funding is not considered
stable to support on-going operations and maintenance of the department or
to provide high priority programming to the community.
o Additional tax subsidy is considered an ongoing source of funding to
support core services of the department. Specifically, initiatives related to
the key themes of Taking Care of What We Have (i.e., operations and
maintenance, and capital renovation and refurbishment) and Community
Health and Wellness (i.e., community benefit programming and financial
aid) would be prioritized from this source of funding.
o Revenue generation opportunities include but are not limited to: adults
paying full cost recovery, reexamining non-resident fees and commercial
uses in parks, and BPR exploring other revenue generating entrepreneurial
opportunities. Any future discussions of changes to user fees would be
accompanied by discussion of the impacts of high fees on all community
members, recognizing that affordability is key to ensuring equitable access
to services.
BACKGROUND:
Project Approach
The 2022 Master Plan is an update to the 2014 Master Plan, intended to refine the
department’s focus and direction, address gaps and update policies, practices , and trends.
The process to update the 2014 Master Plan began in late summer 2020, after some initial
delays due to the onset of the COVID-19 pandemic. The project was broken into four major
phases: Research & Trends, Needs Assessment, Implementation Plan, and Master Plan
Acceptance. A full timeline of the project, including project deliverables, engagement
windows, and board and council touch points can be found in Attachment A.
City Council and the Parks and Recreation Advisory Board (PRAB) have been consulted
at various points throughout the process. City Council has provided input on the proje ct
approach and public engagement plan in December 2020, in addition to assisting to refine
the needs identified by the community in July 2021. Most recently, at a study session in
April 2022, City Council provided support for the policy issues as identified within the
2022 Master Plan. Specifically, council supports the Fiscally Constrained Plan Alternative s
contained within the 2022 Master Plan. To achieve and maintain financial sustainability,
council supports both a further prioritization of core services and service levels, while
exploring options to generate additional revenue. The PRAB has provided input and
direction at six points throughout the process. Policy guidance from the council and the
PRAB has informed the work in each phase of the project.
55
In the Research & Trends phase, the project team updated data relative to changes in
community demographics and national recreation trends. The project team also focused on
identifying best practices for incorporating equity and resilience into master plan s. A
Systems Overview Snapshot summarized the information gathered in this phase, setting a
foundation for the project moving forward. The first engagement window for this project
focused on sharing this foundation of information. During this window, stakeholders and
the community were asked to share values and emer ging interests related to parks and
recreation. An engagement summary provides a detailed overview of what the community
shared.
The Needs Assessment phase focused on gathering Boulder-specific data related to the
existing parks and recreation services, as well as the needs of the community. The data
gathering during this phase included a statistically valid community survey, a financial
analysis, and a facilities assessment, culminating in a full Needs Assessment report. The
second window of engagement focused on understanding the needs and des ires of the
community. Specific micro-engagement opportunities allowed the project team to
understand the needs of youth, people experiencing homelessness and low -income
community members. The engagement summary for this second window of engagement
provides details on the feedback received from the community.
During the Implementation Plan phase, stakeholders, staff, and the community identified
and prioritized the important work for BPR in the next five years. The policies, goals, and
initiatives developed in this phase directly relate to the needs from the Needs Assessment
phase. The Implementation Plan outlines the work to be done and how BPR intends to
accomplish that work. The third engagement window focused on identifying and
prioritizing the recommendations of the master plan. The engagement summary for this
third window of engagement provides a summary of this feedback.
The project is in the final phase of the project: Master Plan Acceptance. A 95% draft of the
2022 Boulder Parks and Recreation Master Plan is provided as Attachment B to this memo.
This draft includes refinements based on feedback from City Council in April 2022, as well
as final staff review of the 80% draft. Final feedback from the PRAB will inform
finalization of the 2022 Master Plan for action by the PRAB in June 2022.
Outreach and Engagement
In December 2020, the project team presented City Council a project approach and
associated engagement plan to ensure both were meeting the expectations for a master plan.
Since that time, the project team has been implementing the engagement plan as presented
and adding additional elements as time and resources allow or as the project requires. The
full methods and tactics employed during each of the three previous engagement windows
are detailed in each engagement summary:
• Engagement Summary 1
• Engagement Summary 2
• Engagement Summary 3
56
The fourth and final engagement window closed on May 4, 2022. During this engagement
window, the community could review the 80% draft of the 2022 Master Plan and provide
their comments.
Overview: Engagement window 4 was about making and communicating decisions. The
draft plan available to the community was at about 80% of completion, meaning it had
final draft content but was limited in style and graphic support. The draft synthesized all
previous engagement, research, and policy direction shared with the community to ensure
the plan represented their voice. A complete timeline, including engagement, is included
in Attachment A.
Objectives: Engagement window 4 focused on presenting the draft plan, highlighting
values and recommendations to guide the next 5-10 years. The objectives were to
demonstrate to the public, stakeholders, and decision -makers how their participation
influenced the recommendations and prioritization. In addition, this final engagement
window provided a final check-in for any discrepancies or major misses before a request
for recommendation and approval from PRAB and City Council.
Outreach Tactics for Awareness: In this final phase, many of the previous engagement
tactics were used to reach out to the community. Social media, webpages, and newsletters
were used widely to alert existing community members of the engagement window and
to ensure any new community members or people new to the process could still
participate. A press release and the City Council study session generated media interest
which also brought some community awareness to the engagement window. In addition,
more direct communication was sent to community members and organizations that
requested to stay informed on the project and those who had previously participated.
Finally, staff provided input on the 80% draft.
Feedback Highlights: Despite efforts to share the draft plan with the community and
gather input, only five comments were collected through the window. They were re lated
to specific facilities or issues regarding South Boulder Rec Center plans, exclusion of
model airport inventory, and bathrooms. The two others were about mapping clarity and
use of the web page. This level of feedback is consistent with the last master planning
process participation at this phase of the project.
Staff review, including input from citywide partners, provided a multitude of formatting
recommendations, suggestions to clarify content, and to refine the plan overall. As noted
in previous PRAB comments, the simplification and use of active language were high on
the priority list of staff edits and comments.
Overall Outcomes
The 2014 Master Plan introduced six key themes, around which BPR frames its strategic
priorities and the annual action plan. The first window of engagement with stakeholders
and the community affirmed that these six key themes continue to be important and an
important framework for organizing BPR’s work. The six key themes are:
• Community Health and Wellness
57
• Taking Care of What We Have
• Financial Sustainability
• Building Community and Relationships
• Youth Engagement and Activity
• Organizational Readiness
In addition, the community confirmed that both Equity and Resilience are important issues
that must be addressed within the 2022 Master Plan. Both have been incorporated into the
decision-making framework of this plan as lenses through which all the recommendations
need to be viewed and considered. This blended approach to incorpora ting quantitative and
qualitative data into recommendations is illustrated in Figure 1.
Equity was considered in two ways as part of this planning process, 1) ensuring the process
itself is equitable and that all voices within the community have the opportunity to be heard,
and 2) that the recommendations of the master plan are themselves moving to be more
equitable. During the engagement windows, the project team continually worked to ensure
that underrepresented communities had the opportunity to provide input and shape the plan.
Targeted micro-engagement opportunities, where the project team intentionally went to
these communities, occurred throughout the process. The project team engaged with a
Community Connector throughout the project to ensure the overall engagement was
culturally relevant and worked together to host a bi -lingual open house during the third
engagement window to hear specifically from members of the Spanish -speaking
community. Other targeted micro-engagement opportunities occurred with youth through
Growing Up Boulder and the Youth Opportunities Advisory Board, low -income
communities at neighborhood events, people experiencing homelessness at the shelter, and
older adults at the West Age Well Center.
Despite the differing focuses of each engagement window, several important themes have
run through the feedback from the community. The key theme of Taking Care of What We
Have is clearly a priority, with statistically valid survey respondents allocating almost twice
Figure 1. Blended Approach
58
as much hypothetical tax funding to maintaining, renovating, and enhancing existing
facilities than to acquiring and constructing new parks and facilities (see Figure 2 below).
By 2025, population projections indicate that the proportion of residents over the age of 60
will grow the most. An important difference from the 2014 Master Plan is that the
community has identified older adults as a priority community group BPR should be
serving. Community members indicated that it is either essential or important for BPR to
provide recreation services to:
• People with disabilities
• People with low incomes
• Older adults
• Teenagers
• Children
• People who identify as Black/African-American, Hispanic, Latino/a, Asian,
American Indian, Alaska Native, Native Hawaiian, Pacific Islander or other Non -
White ethnicity
In addition to prioritizing the above groups, the community also gave input o n how these
services should be funded. Input in the community survey indicates that taxes should be
focused most on removing barriers to access for those with low -incomes, people with
disabilities, and programs for underrepresented communities (see Figure 3 below).
The targeted micro-engagements and general community engagement revealed very strong
opinions about specific services and amenities provided by BPR. Specific examples
include a focus from the pickleball and tennis community about the need to maintain
adequately existing courts and also a desire for new courts with both sports growing. BPR
has also heard feedback on how important incorporating specific amenities and
Figure 2. How would you allocate $100 across competing priorities?
Maintaining
existing park and
recreation
facilities $27
Renovating
and enhancing
existing park
and recreation
facilities
$21
Removing financial barriers
for underrepresented
communities to participate
in existing recreation
programs and services
$26
Acquiring
additional park
land
$15
Constructing
new park and
recreation
facilities
$12
59
programming to serve teens is to the community. Some of the microengagement
participants shared specific challenges(i.e., language and technology barriers, access to
restroom facilities). The 2022 Master Plan has clearly identified the community’s vision
for parks and recreation services: it will be crucial to balance that vision with the financial
realities of the department and the need to focus on core services and service levels with
existing funding.
Policy Shifts from 2014
In the 2014 Master Plan, two primary policy shifts were identified to maintain financial
sustainability:
• A shift from BPRD directly delivering recreation programs to a role where BPRD
facilitates the delivery of high-quality recreation programs.
• A shift from BPRD developing new parks and facilities with existing funding to
BPRD prioritizing the ongoing operations and maintenance of existing parks and
facilities with existing funding.
Since the acceptance of the 2014 Master Plan, BPR has successfully transitioned some
services to contracted partners. These programs include boat rentals at the Boulder
Reservoir, specialty youth camps, tennis, dance, and youth sports. This has allowed BPR
to focus on other community benefit programming such as EXPAND programming for
people with disabilities and Youth Services Initiative programming for youth from low -
income families.
BPR has worked to define and implement consistent methodologies for costing and pricing
for recreation programs, utilizing the PRAB-approved Service Delivery Model and
Recreation Priority Index. As a result, BPR’s cost recovery rates and revenue exceed the
benchmarks of other similarly sized Colorado communities, as well as nationwide
benchmarks. There is increasingly feedback from community members that some BPR
programs and facilities are not affordable for many members of the community, not just
low-income individuals and families. Typical parks and recreation departments fund more
than half of their operating expenses from general fund tax support, with earned revenue
and dedicated funding sources accounting for just over one-third of their budgets. In
Figure 3. What is the appropriate mix of support from taxes versus user fees?
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contrast, BPR receives 19% of its annual budget from general tax fund and 75% of its
budget from earned revenue and dedicated funding. An analysis from Ballard King as part
of this planning process clearly summarizes the opportunities and challenges BPR faces to
achieve financial sustainability in the future.
A major theme of the 2014 Master Plan was closing the funding gap that existed at that
time. BPR has worked to accomplish that task, but additional city policies and cost
escalation have moved that bar and the cost of doing business has outpaced the gains BPR
has realized in closing the funding gap. Those city policies support citywide goals r elated
to equity and addressing the climate emergency, and include: implementation of a living
wage, limited herbicide application as part of Integrated Pest Management tools resulting
in more mechanical and cultural practices for healthy parks, and climate sensitive design
of parks and facilities. Cost escalation is also impacting the gap, with both personnel and
non-personnel expenses rapidly rising.
ANALYSIS:
The community’s values for the parks and recreation system are organized through the six
key themes of the master plan. Community engagement throughout this planning process
has revealed a clear vision from the community of what parks and recreation services could
look like, given unlimited funding. To best serve the community’s values, the financial
resources available must be focused on the services most important to the community.
Those most important services are identified within the Fiscally Constrained funding
scenario in Chapter 3 of the 2022 Master Plan. Those are BPR’s commitment to the
community for core services and service levels without additional funding.
Figure 4 (below) shows the 2021 approved funding levels for current practices and the
recommended spending based upon the department’s portfolio of assets and best practices
in asset management as well as providing ongoing and increased funding for community
benefit programming. The total funding gap identified through data gathering and research
is $6.7 million annually, but with approximately $2 million in currently unallocated
funding, the unrealized funding gap is approximately $4.7 million.
61
Taking Care of What We Have
With asset management not funded to levels that operate and refurbish BPR’s assets to
industry best practices (noted below), difficult trade-off decisions must be made about how
to manage and operate facilities and provide programs. The city’s Capital Improvement
Program (CIP) guidelines prioritize the maintenance of current assets over the development
of new facilities. Through the planning process, the community, has indicated strong
support for this prioritization. Based on current economic conditions, revenue and
expenditure projections, funding is not sufficient to maintain all existing system assets and
build new park and recreation facilities unless comparable trade-offs occur.
Two funding gaps have been identified to ensure that parks and recreation services meet
the community’s minimum needs as they relate to Taking Care of What We Have. Industry
best practices recommend spending 4% of the Current Replacement Value (CRV) on
operations and maintenance, while spending 2-3% of CRV on capital renovation and
refurbishment. Based on the higher costs of capital development projects in Boulder due
to previously discussed policies, as well as the need to develop facilities that can withstand
higher use from a growing population, 2.5% of CRV was chosen as the target for capital
spending.
The urban canopy is not included in BPR’s CRV because the city’s public trees are an asset
that appreciates over time – as trees mature and grow, they become more valuable whereas
the rest of the built environment depreciates as it ages. Boulder’s 2018 Urban Forestry
Figure 4. Current versus Recommended Funding Levels
62
Strategic Plan identified that for Boulder to invest in the urban canopy at per capita and per
tree levels recommended, an additional $500,000 is required annually.
Community-benefit Programming
A funding gap of approximately $1 million for recreation programming must be closed to
continue the current levels of community benefit programming and address affordability
issues for lower income residents. Within this $1 million gap, there are three specific
priority areas where funding is not keeping pace with community feedback, the growth in
visitation, and cost escalation:
• Programming and access discounts for youth and older adults: $590,000
• Financial Aid to support affordability for individuals and families with low
incomes: $250,000
• Two program areas continue to receive the highest prioritization in
community input: EXPAND for individuals living with disabilities and the
Youth Services Initiative (YSI) serving youth from low -income families :
$212,000
Addressing The Challenge
The master plan presents alternatives for the parks and recreation system to meet critical
needs, to maintain relevance with the community, and to continue to provide a strong
Figure 5. Balancing Needs and Values
63
quality of life in the city. These alternatives seek to find a balance between limi ted funding
and providing the parks and recreation services desired by the community.
Given the identified funding gaps to provide parks and recreation services within a Fiscally
Constrained environment, difficult conversations must be had with difficult decisions to be
made. The master plan process has reinforced the importance of ensuring resources are
aligned with the highest community park and recreation priorities.
To achieve financial sustainability, the following issues must be addressed:
• With no new funding, BPR must evaluate service levels with the community,
reducing where possible to fund higher priority services.
• Several sources of additional funding may be considered to ensure existing levels
of service are maintained and if higher levels of service are desired:
o Grants and philanthropy are best suited for one-time infusions of funding to
support specific projects or programs. This type of funding is one-time and
not appropriate to support on-going operations and maintenance or to
provide high priority programming to the community.
o Additional tax subsidy is considered an ongoing source of funding to
support core services of the department. Specifically, initiatives related to
the key themes of Taking Care of What We Have (i.e., operations and
maintenance, and capital renovation and refurbishment) and Community
Health and Wellness (i.e., community benefit programming and financial
aid) would be prioritized from this source of funding.
o Additional revenue from user fees includes but is not limited to adults
paying full cost recovery, reexamining discussions of non-resident fees and
commercial uses in parks, and BPR exploring other revenue generating
entrepreneurial opportunities. Any future discussions of changes to user
fees would necessarily be accompanied by discussion of the impacts of high
fees on all community members, recognizing that affordability is key to
ensuring equitable access to services.
Key trade-offs must occur to ensure the department aligns services within existing funding.
Support from the PRAB and City Council will be critical in ensuring the department is able
to respond to those whose interests may not align with those of the broader community as
identified in this extensive process.
Questions for PRAB
1. Does this draft of the 2022 Master Plan reflect the PRAB’s input to date?
2. Are there any questions or concerns that should be addressed in the final draft to
secure the PRAB’s recommendation of this master plan for City Council
acceptance?
64
NEXT STEPS:
The 2022 Boulder Parks and Recreation Master Plan is in the final project phase after more
than a year and a half of extensive community engagement, research, and analysis. The
PRAB’s input will be considered for the final master plan. The upcoming steps for
acceptance of the 2022 Master Plan include:
• June 27, 2022: PRAB Public Hearing and Plan Recommendation
• July 19, 2022: Planning Board Public Hearing and Plan Recommendation
• August 4, 2022: City Council Public Hearing and Plan Acceptance
Attachments:
Attachment A: Project Process Timeline
Attachment B: DRAFT 2022 Boulder Parks and Recreation Master Plan
65
May 2022Restore | Connect | Sustain
BOULDER PARKS AN D RECREATION Master Plan Update
File Location: City of Boulder\Master Plan Update - Documents\PublicEngagement\Engagement Planning\Poster of Timeline
Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec Jan Feb MarTimeline1st Quarter 2nd Quarter 3rd Quarter 4th Quarter 1st Quarter20212022
PROCESSENGAGEMENTBOARDS & COUNCILApr May June
2nd Quarter 3rd Quarter
July Aug Sept
Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec Jan Feb Mar Apr May June July Aug Sept
RESEARCH & TRENDS NEEDS ASSESSMENT IMPLEMENTATION PLAN
Implementation
MemoDeliverablesNeeds
Assessment
Report
Master
Plan
FINAL
SystemOverviewSnaphot
White
Papers/
Research
Facility
Assessment
Community
Survey
Report
Financial
Analysis
Long-Range
Goals &
Initiatives
Policies &
Overview
Statements
Priorities Scenario
Planning
MasterPlanDRAFTStaff Review
MasterPlanDRAFTFinal Draft
MasterPlanDRAFTPublic Review
FINALPLANMASTER PLAN ACCEPTANCE
SUMMARY#1 SUMMARY#2 SUMMARY#3 SUMMARY#4
Surveys
Meetings
Engagement
Windows
BeHeardBoulder
Youth Voice
StakeholderMeetings PublicOpen House StaffWorkshop PublicWorkshopStakeholderWorkshop
YouthSummary YouthCheck-In
Community
Connectors
Spanish-FirstWorkshop
Micro-
Engagements MicroSummary MicroSummary
SurveyResults
Stories/Places/Questions Digital Open House Community Comments
IDENTIFY & EVALUATE OPTIONS COMMUNICATINGDECISIONSDEVELOPING RECOMMENDATIONSSHARE A FOUNDATION OF INFORMATION & INQUIRY #1 #2 #3 #4 FINALSUMMARY
Mobile HomeParkEXPANDCaregivers HomelessShelterPlaygroundOpening NationalNight Out SeniorCenter CPWDBHP
Questionnaire Questionnaire
Digital Public Workshop
Spanish Digital Workshop
PRAB
Discussion -April 12
Summary of Research, Trends
& Values Evaluation
PRAB
Study Session
July 12
Summarize Needs
Identify Strategies & Initiatives
PRAB
Matters - May 24
Youth Voice
Presenations
PRAB
Matters - Aug 23
ProjectUpdate
PRAB
Discussion - May 23
DRAFT Plan
PRAB
Action - June 27
Request
Recommendation
CC
Study Session - July 27
Summarize Needs
Identify Strategies and Initiatives
CC CC CC
One on One Conversations
Bring New Council Members
Up to Speed
CC
Study Session - Apr 26
Prioritize Strategies & Initiatives
DRAFT Plan
CC
Public Hearing - Aug 4
Request Acceptance
PLANNING
April 27
DRAFT Plan
PLANNING
Information Item
Process and Approach
Dec 2020
PLANNING
July 19
Request
Recommendation
Parks & Rec
Advisory Board
Planning Board
City Council
PRAB
Discussion Item - Oct 25
Overview Statements
and Policies
PRAB
Discussion Item - Dec 13
Staff & Stakeholder Engagement
Priorities
PRAB
Study Session - Mar 16
Implementation Memo
We AreHereWe AreHere
66
BOULDER PARKS AND RECREATION Master Plan Update
Restore | Connect | Sustain
2022: 98% DRAFT
67
b |
This page:
Paddlers enjoying Summer Kidz Kamp
at East Boulder Community Center.
Facing page:
A young reveler at the Chautauqua
Park playground renovation celebration.
68
| c
Letter from the Director
Dear Boulder Community Members,
Thank you for the time, thoughts, and passion you shared to develop the 2022 Parks
and Recreation Master Plan. Boulder's parks and recreation system is a reflection of
our community's long-held values and support for parkland, great public spaces and
well-being.
For over 100 years, we have developed and cared for an incredible system of urban
parks, recreation facilities and programs that is a major contributor to Boulder's
nationally acclaimed high quality of life and the result of community support and
investment. We also acknowledge that prior to the city's establishment, the Boulder
Valley was home to indigenous peoples who held deep and long-standing connections
with these lands. As we work to honor the past, it is critical moving forward that this
system is managed in a way that reflects the diverse voices and needs of our
community.
This plan is based upon input from across Boulder and will help us prioritize our time
and dollars for the next five years. Our "master plan promise" to you is that we will use
this plan to guide our work: the values and priorities expressed in this plan will shape
each decision we make to ensure that Boulder's Parks and Recreation system
continues to take care of the community's hearts, bodies and souls.
Together, we dreamed of a parks and recreation system that is more welcoming and
inclusive for all and that is more sustainable in the face of growing demand and climate
change. As we implement this master plan, that dream will become closer to reality.
We look forward to working with the community to accomplish the ambitious but
necessary steps to ensure that we can truly promote the health and well-being of our
entire community through an unparalleled system of parks, facilities and programs.
Sincerely,
Ali Rhodes
Director of Parks & Recreation
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This page:
An aerial view of downtown Boulder
Cover:
East Boulder Community Park Dog Park; Kidz Summer
Camp nature play; Fitness class at XX Rec Center
70
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71
Acknowledgments
LAND ACKNOWLEDGMENT
Indigenous Peoples who have traversed, lived in and
stewarded lands in the Boulder Valley since time
immemorial. Those Indigenous Nations include the:
Di De’i (Apache), Hinono’eiteen (Arapaho), Tsistsistas
(Cheyenne), Numunuu (Comanche), Kiowa*, Čariks i
Čariks (Pawnee), Sosonih (Shoshone), Oc’eti S’akowin
(Sioux) and Núuchiu (Ute).*
We honor and respect the people of these Nations
and their ancestors. We also recognize that Indigenous
knowledge, oral histories, and languages handed down
through generations have shaped profound cultural
and spiritual connections with Boulder-area lands and
ecosystems — connections that are sustained and
celebrated to this day.
The City of Boulder recognizes that those now living
on these ancestral lands have a responsibility to
acknowledge and address the past, and must work
to build a more just future. Read the City of Boulder’s
staff land acknowledgement- which is based on the
city’s Indigenous Peoples Day Resolution, community
input and guidance from American Indian Tribal
Nations – at: //BoulderColorado.gov/projects/staff-
land-acknowledgement. Staff recognize that this
acknowledgement will continue to evolve as we work
to understand and address the legacy of the violent
colonization of Indigenous lands.
* Names are based on guidance from American Indian Tribal Nation
Representatives. Please note: The appropriate Kiowa Indigenous name
has not yet been obtained from Tribal Representatives.
YOUTH OPPORTUNITIES ADVISORY BOARD
(YOAB)
BOULDER PARKS & RECREATION
DEPARTMENT STAFF
CORE PROJECT TEAM
Ali Rhodes, Parks & Recreation Director
Regina Elsner, Planning & Ecological Services Manager
Jackson Hite, Business Services Manager
Tina Briggs, Parks Planner - Public Engagement
MANAGEMENT TECHNICAL ADVISORY
GROUP (MTAG)
WORKING TECHNICAL ADVISORY GROUP
(WTAG)
CONSULTANT TEAM
Design Workshop, Planning & Design
Barker Rinker Seacat Architecture, Indoor Facilities
Assessment
Ballard King, System Assessment
ALIGNED CITY DEPARTMENTS
& PROGRAMS
Climate Initiatives
Community Connectors
Facilities
Finance
Housing & Human Services (HHS)
Open Spaces & Mountain Parks (OSMP)
Racial Equity
Transportation
BOULDER CITY COUNCIL
Matt Benjamin
Aaron Brockett
Lauren Folkerts
Rachel Friend, Mayor Pro
Tem
Junie Joseph
Nicole Speer
Mark Wallach
Tara Winer
Bob Yates
PARKS & RECREATION ADVISORY BOARD
(PRAB)
Charles “Chuck” Brock
Elliott Hood
Mary Scott
Anita Speirs
Jason Unger
Sarah “Sunny” van der
Star
Pamela Yugar, Vice-Chair
THE BOULDER COMMUNITY
A special thanks to the community members, partners
and stakeholders who participated in the engagement
for this master plan.
72
Contents
EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .ii
WHO WE ARE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .01
BPR System Overview 03
Master Plan Purpose 07
Master Plan Process 11
WHERE WE ARE TODAY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
Community Context 21
Boulder Parks & Recreation System 25
Financial Overview 44
Key Issues & Observations 51
WHERE WE ARE GOING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .59
Strategic Direction & Decision making 61
Strategic Plan 71
Plan Alternatives 86
HOW WE WILL GET THERE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .91
Implementation 93
WORKS CITED . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .98
ACRONYMS LIST . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99
GLOSSARY OF TERMS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .100
73
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Executive Summary
The 2022 BPR Master Plan documents the
work of community members, city leaders,
Boulder Parks & Recreation Department
(BPR) staff and our consultant team. The
process began in the fall of 2020 and was
completed in the summer of 2022.
The Boulder Parks and Recreation Master
Plan will guide investments and strategies
over the next five years, shaping the delivery
of services in a manner that is consistent
with city sustainability, resilience and equity
goals and that meets the community’s level
of service standards.
The master plan will help BPR respond to
three key questions:
1 . What do we do?
2 . For whom do we do it?
3 . How do we excel?
Short-term strategies, those that can be
completed over the next 5 years, are the
primary focus of the master plan. These
strategies will help build continued success
over the long-term. The plan also focuses
on high level initiatives, rather than more
specific and detailed actions. These will
be identified and assigned in BPRs annual
Action Plan.
MASTER PLAN STRUCTURE
This plan includes four sections that
together tell the story of BPR and its
relationship to the Boulder community
today and in the future.
section 1: who we are
The first section provides a brief overview
of the BPR system and its services, along
with a discussion of the 2022 Master Plan
purpose, the planning process and the
schedule and phases.
section 2: where we are today
Section 2 highlights community
demographic and recreation trends that will
impact BPR services, outlines the current
state of Boulder’s parks and recreation
system, and provides an overview of the
department’s current financial situation.
This data informs the master plan
recommendations that BPR staff will work
to accomplish in the next five years.
section 3: where we are going
The third section lays out a roadmap to
guide the department through the next
five years, offering a strategic direction,
which includes policies, goals and initiatives.
The roadmap is based on the research,
community engagement and policy
direction highlighed in Section 2.
section 4: how we will get there
The last section discusses how to make
the future vision for Boulder’s parks and
recreation system a reality. It details how
BPR will work to accomplish the master
plan’s goals and initiatives through the
annual action planning process. It also lists
Key Performance Indicators (KPIs) that will
be used to measure progress over time in
order to best meet BPR’s commitment to
serve the Boulder community with a world
class parks and recreation system.
boulder’s parks &
recreation system
is a community
treasure
Throughout this master
planning process, BPR
has heard from the
public, stakeholders
and staff that the
Boulder parks and
recreation system is a
well-managed, essential
community treasure.
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FUNDING
operations & maintenance (o&m)
budget
BPR manages a $29.9M yearly operating
budget. The department is funded through
a diverse set of city funds contributed on an
annual basis.
The city’s Capital Improvement Program
(CIP) guidelines prioritize the maintenance
of current assets over the development
of new facilities. Through the planning
process, the community has indicated
strong support for this prioritization. Based
on current economic conditions, revenue
and expenditure projections, funding is not
sufficient to maintain all existing system
assets and build new park and recreation
facilities unless comparable trade-offs occur.
BPR is currently not meeting the goal set by
the 2016 Capital Investment Strategic Plan
of spending between 2-3% of CRV annually
on capital repairs and replacement. The
target is a best practice recommendation
by the National Academies of Science,
Engineering and Medicine, and also is the
target established in the city’s Facilities
Master Plan.
To meet recommended spending goals for
capital projects and O&M, BPR would have
required, on average, an additional $5.2
million annually between 2016 and 2020.
The figure on the next page illustrates
the average of 2016 though 2019 funding
levels for current practices and the
recommended spending based upon the
department’s portfolio of assets and best
practices in asset management, as well as
providing ongoing and increased funding
for community benefit programming.
The total funding gap identified through
data gathering and research is $6.7 million
annually, but with approximately $2 million
in currently unallocated funding, the
unrealized funding gap is approximately $4.7
million.
To quantify gaps in funding for targeted
capital repair and replacement, an analysis
was performed that looked at current
projected capital expenditures from 2022
through 2027. For nearly every year through
2027, BPR requires additional funds to
meets its capital repair and replacement
goals. As BPR’s asset portfolio continues to
appreciate, and as assets continue to age,
increasingly more funds will be required to
maintain its assets.
programming & capital budget
Revenues from BPR’s funding sources
are projected to remain mostly flat over
the next 5-year period, increasing on
average 2.8 % annually through 2026.
Behavioral changes recently brought on
by the COVID-19 pandemic have altered
retail spending, work habits, recreational
37%37%
30%30%
15%15% 13%13%
2% 2%
Recreation Activity Fund (RAF)
.25 Cent Sales Tax Fund
General Fund
Permanent Parks & Recreation Fund
Lottery Fund
2021 operating budget
& primary funding sources
$29,936,362
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iv |
habits, and other fee and tax generating
activities, negatively affecting funding
streams used for operations, maintenance,
and capital improvements. Both the city and
the department have taken conservative
approaches to budgeting and fund
forecasting, prioritizing equitable service
delivery of existing programs, maintenance
of staffing levels to support needed levels
of service and programming, and critical
capital infrastructure projects.
As indicated by the imbalance of BPR’s
projected average annual expense
growth rate (5.8%) and projected funding
growth rate (2.8%), funds required to
meet 2021 CRV repair and replacement
goals and annual O&M spend goals,
$20,579,515 in backlogged maintenance,
and approximately $177,935,000 million in
unfunded capital projects, BPR is faced with
the challenging task of continuing to serve
the community and operate its facilities
with an increasingly strained budget. BPR
must be prepared to identify and implement
other revenue generating activities and/or
strategies in the coming years to
supplement its current funding sources.
$0 .5M $35M
$30M
$25M
$20M
$15M
$10M
$5M
$0 $3 .5M
$9 .9M
$11 .9M
4% of CRV
$7 .5M
2.5% of CRV
TOTAL: $33 .3M
$3 .5M
$8 .9M
$8 .6M
2.9% of CRV
$5 .6M
1.9% of CRV
$2M
TOTAL: $28 .6M
Capital Gap
$1 .9M
O&M Gap
$3 .3M
Programming Gap
$1M
CURRENT
FUNDING
RECOMMENDED
FUNDING
current funding versus recommended funding
Unallocated
Forestry Unfunded
Combined CIP and R&R
Operations & Maintenance
Rec Programs & Services
Administration
KEY THEMES
Six key themes, which emerged from
the 2014 Master Plan process, based on
community input, are still important to
community members and have been pulled
into the 2022 Master Plan. These themes
provide a framework to help organize
policies, goals and initiatives. These
themes have helped shaped the strategies
that are the focus for the future action and
decision-making outlined in Sections 3 and
4 of this plan.
The six key themes are:
76
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PLAN ALTERNATIVES
The master plan includes three scenarios,
following the city’s business and
budgeting planning approach that requires
departments to prepare for a future
without increased revenue. This approach
acknowledges the need for an effective
organization to rebalance priorities—and
their associated expenditures—using three
tiers of fiscal alternatives. Each alternative makes
different assumptions about available resources (see
Section 3: Where We are Going).
»Fiscally Constrained Alternative
BPR’s commitment to the community over the
next five years
•This alternative plans for prioritized spending
within existing budget targets.
»Action Alternative
Aspirational projects and programs that may
be accomplished if additional funding becomes
available
•This alternative describes the extra services or
capital improvements that could be undertaken
when additional funding is available.
»Vision Alternative
A wish list of projects and programs
•This alternative represents the complete set of
services and facilities desired by the community.
Through the master planning process BPR
has gathered feedback on desired facility and
programming improvements from both individual
members of the community and specific user
groups. Balancing the community’s desires with
BPR’s financial reality requires that the department
prioritize what can be accomplished. The fiscally
constrained scenario reflects BPR’s commitment to
the community , focusing on core services and those
that benefit the greater community.
The tables on the next page describe the projects BPR
will work to complete over the next five years.
BPR’S FUTURE
With the acceptance of this master plan, BPR commits
to fulfilling its mission and to implementing the
initiatives and the Fiscally Constrained Plan. Through
an annual action planning process, we will ensure that
the 2022 Master Plan is a living document used to
improve the overall system and achieve the goals of
the community well into the future.
Community Health
and Wellness
Taking Care of What
We Have
Financial Sustainability
Building Community
& Relationships
Youth Engagement
& Activity
Organizational Readiness
Keep Boulder emotionally and physically healthy
through its parks, facilities and programs.
Prioritize investments in existing parks
and facilities.
Balance the many demands with existing
resources. recognize the need to focus on core
services and community priorities.
Build a connected community through outreach
programs and initiatives. create social and cultural
equity for healthy relationships across Boulder.
Engage youth with parks, facilities and programs
that provide direct experience with nature,
experiential learning and opportunities to
close the educational achievement gap.
Respond to changes over time by using new
technologies and data-driven and collaborative
decision making tools.
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FISCALLY CONSTRAINED PLAN ALTERNATIVE
PROJECTS
Park Maintenance -BPR Asset
Management Program Maintain Well at FCI .07, Develop Violet Park
Playgrounds 1-2 Parks/Playgrounds per year refurbished (25-30 year)
Restrooms - Pending LOS evaluation Maintain current LOS, transitioning to universal restrooms as
facilities are built or replaced
Valmont Park - 2015 Concept Plan Phase 1 development of adventure and nature play elements
Urban Canopy - Urban Forest Strategic
Plan
Focus on health of current canopy through IPM, Tree Safety,
EAB response, and public tree protection— Some canopy growth
through tax investment, philanthropy and partnership
Civic Area Activation w/ Operations Focus
Area III Complete Baseline Urban Service Plan and develop concept plan,
but nothing is developed
PARKS
FISCALLY CONSTRAINED PLAN ALTERNATIVE
PROJECTS
Athletic Fields - 2015 Athletic Field Study Optimize usage through partnerships, maintenance and
conversion to artificial turf
Recreation Centers - 2022 Facility Needs
Assessment
“EBCC & NBRC - “”Maintain Well”” SBRC - Retire past useful life
facility but not replace; citywide facility feasibility study for SOBO
area facilities”
Courts - Study pending
Maintain Well. Court study to identify LOS—Seek opportunities
to maximize community benefit through Joint Use Agreements/
partnerships
Aquatics -2015 Aquatics Feasibility Study Maintain current service levels and pools
Reservoir -2018 South Shore Capital
Strategy Improve existing site connections and ciruclation
FACILITIES
FISCALLY CONSTRAINED PLAN ALTERNATIVE
PROJECTS
Facility Access Fees Continued increases to base fees to keep up with cost escalation,
maintaining discounts for youth and seniors
Financial Aid Maintaining Financial Aid LOS reliant upon grants and philanthropy
EXPAND Core Services for Target Population funded by GF subsidy and
grants
Youth / Teens Additional programming only possible through discontinuation of
other services or market based programs
PROGRAMS & SERVICES
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BPR will utilize equity mapping, Key Performance Indicators
(KPIs),and the city’s Sustainability, Equity and Resilience framework
to plan its work and measure success over time.
The department will collaborate with PRAB, City Council and
aligned city departments to:
»Ensure the goals and initiatives of each key theme are
considered
»Maximize resources and efficiency
»Make sure BPR continues to deliver best-in-class parks,
facilities and programs for the Boulder community
annual action planning process
The Annual Action Plan process is how BPR will ensure the
community’s goals as outlined in the 2022 Master Plan happen.
The Action Plan will include each year’s committed goals to achieve
Master Plan initiatives and Fiscally Constrained Plan Alternatives.
BPR follows five steps to complete the annual Action Planning
Process. The first involves reviewing the current state of the
system and plan progress. BPR will review the master plan goals
and initiatives to identify areas of focus for next year. This step
includes reporting out plan progress to the community. Staff will
select projects to implement based upon resource, the current state
of the system, and focus areas. The Action Plan will inform the
development of the operating and capital budgets. Finally and most
importantly, staff will implement the Action Plan.
planning framework
The Annual Action Plan is also informed by City Council’s workplan
and priorities, and citywide goals and priorities as outlined in the
BVCP and various master plans. BPR has a well-defined set of
tools used to plan, measure, and evaluate proposed projects and
programs. Through this master planning process, staff realized they
can simplify these tools to ensure work is intentionally designed and
delviered and that investments are data-driven.
New methods will support BPR’s ability to address impacts relating
to changing social, economic and environmental conditions. As
the city finalizes climate and equity related targets, BPR will utilize
recommended assessment tools to inform how BPR’s work will
contribute to achieving those targets and community-wide goals.
Equity mapping will be part of BPR’s decision-making and priority
setting toolkit moving forward, along with adherence to citywide
frameworks, and the Asset Management Program and Service
Delivery Model.
bpr annual action planning
5-step process
1 .Review current state of system
and action plan progress
2 . Review Master Plan goals and
initiatives to identify areas of
focus & report out plan
progress to community
3 . Select Projects to Implement
4. Develop Operating
& Capital Budgets
5 . Implement Action Plan
79
80
WHO WE ARE
»Boulder Parks & Recreation (BPR) provides parks and recreation
services to the entire Boulder community. We are extremely proud
of the work we do, managing and operating parks, facilities and
programming for a world-class city. The 2022 Master Plan will help
guide decision making and our work for the next five years. This
section describes our system and the master planning process.
81
BPR DIVISIONS
BPR includes seven main divisions with staff members who
provide core services to community members to ensure a
high quality of life and a healthy environment.
Urban Parks
Performs day-to-day management of facilities and
public spaces, including maintenance, programming
and youth outreach
Planning
Manages capital project planning, design and
construction, geographic information systems (GIS),
historic and cultural resources, park renovation
projects and community engagement related to
planning
Natural Resources
Manages urban forestry and natural lands and
provides urban park ranger services
Community Building
Supports accessibility and equity efforts, and
manages camps, EXPAND, YSI and other recreation
programming and volunteer efforts
Business Services
Functions include finance, information technology,
staff training and development, business planning
and process improvement analysis
Regional Facilities
Manages Boulder Reservoir, Flatirons Golf Course,
Valmont Bike Park
Recreation
Manages North Boulder Recreation Center, South
Boulder Recreation Center and East Boulder
Community Center, along with sports, health
and wellness, aquatic and general recreation
programming
Getting some air at the Valmont Bike Park.
2 | Who We Are
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Who We Are | 3
OUR SYSTEM
Boulder is known as a worldwide hub for
supporting active lifestyles. An average
of 300 days of sunshine per year give
residents and visitors many opportunities
to participate in the wide variety of outdoor
recreation options available in the local
parks, which include natural areas, in and
around Boulder.
Year-round, the city’s three recreation
centers and other facilities provide
indoor and outdoor spaces for recreation
activities, while a wide range of fee-based
and subsidized programming provides
education and recreational instruction for
the community. BPR also manages several
important historic and cultural resources.
Visit our website at:
boulderparks-rec.org
BPR System Overview
mission: who are we?
The City of Boulder Parks and Recreation Department
promotes the health and well-being of the entire
Boulder community by collaboratively providing high-
quality parks, facilities and programs.
The iconic Flatirons, recognized throughout the world provide a stunning natural backdrop to the city and its parks and recreation system.
vision: where are we going and why?
BPR envisions a community where every member’s
health and well-being is founded on unparalleled parks,
facilities and programs.
83
4 | Who We Are
Boulder Creek Boulder Creek
Path Path only trail outside of only trail outside of City of Boulder parks City of Boulder parks managed by BPRmanaged by BPR
Map 1: BPR Inventory
Tennis Courts and other Sports
Courts not shown on map.
Source: BPR GIS Analysis
84
Who We Are | 5
boulder’s parks & recreation
system includes parks, facilities
& programs
BPR oversees a parks and recreation system
that includes parks, facilities and programs.
Department staff manage over 1,800 acres
of urban parkland. They also oversee three
recreation centers, five pools, the Boulder
Reservoir, Flatirons Golf Course and the Pearl
Street Mall. A sampling of programming
includes aquatics, arts, sports, therapeutic
recreation, wellness, camps and youth
outreach.
OUR SERVICES
BPR works to make opportunities for recreation available to
everyone, providing crucial services to help ensure a healthy and
active community. The department operates and maintains many
parks, natural areas, public trees, and three recreation facilities,
and provides recreation programming for Boulder community
members. BPR also owns and manages nine historic and cultural
sites in Boulder, as well as three rolling railroad stock, leased to the
Colorado Railroad Museum.
Daily, staff play crucial roles in providing community benefits,
connecting people to physically active lifestyles and opportunities
to improve mental health, and reconnecting people during recovery
from events, including the COVID-19 pandemic and 2021 Marshall
Fire.
The BPR Inventory Map on the facing page and the key below
highlight the locations and numbers of parks, facilities and
amenities that BPR staff operate and maintain.
55 Parks
6 Natural Areas (includes Boulder Reservoir)
4 Gardens
40 Playgrounds
4 Dog Parks
46 Athletic Fields
1 Golf Course
3 Recreation Centers
5 Indoor & Outdoor Pools
3 Skate Parks
1 Bike Park
28 Tennis Courts
44 Other Sports Courts
6 Undeveloped Properties
1 Cemetery
6 Civic Spaces
9 Historic & Cultural
Resources in Boulder
BPR INVENTORY LIST
BPR Inventory includes
approximately 50,000 trees located throughout the
Boulder community.
85
6 | Who We Are
parks
BPR maintains parks, natural areas and trees throughout the city
where community members can gather, exercise, rest, build social
relationships and enjoy the outdoors close to home. Staff manage,
operate and maintain more than 1,800 acres of urban parkland
(including 55 developed parks) and natural areas, including pocket
parks, neighborhood parks, community parks and city parks, with
just under 300 additional acres of undeveloped parkland.
BPR manages approximately 25% of the overall tree canopy in
Boulder (approximately 50,000 trees). This includes trees in parks,
as well as trees in public street rights of way. BPR also manages the
Boulder Creek Path, Central Park & Civic Area, Andrews Arboretum,
Columbia Cemetery and the Pearl Street Mall.
recreation facilities
BPR recreation facilities offer community members opportunities
to exercise and recreate in all four seasons. Staff manage 138,000
square feet of recreation center space, offering services across
three recreation centers, two outdoor aquatic facilities, several
sports complexes, a bike park, two outdoor skate parks, and other
specialized and regional facilities including the Boulder Reservoir,
Valmont Bike Park and the Flatirons Golf Course.
programs
BPR partners with local organizations and groups to offer over 2,500
diverse types of recreation programs that promote physically and
mentally active lifestyles for people of all backgrounds, ages and
abilities. Some programs include a fee, while others are subsidized
to ensure all members of the community have access to recreation.
»EXPAND programs provide opportunities for people with
disabilities to improve and gain new recreation and leisure skills.
»Youth Service Initiative (YSI) programs and activities give young
people, whose circumstance would otherwise prevent them
from experiencing many of the recreational and educational
activities and options their peers enjoy, a chance to explore these
opportunities.
»SilverSneakers®, Silver & Fit®, Renew Active™ and other third-
party programs give older adults opportunities to participate in
subsidized programming.
»Aquatics, dance, fitness, nutrition, biking, tennis, golf and
pottery programs, in addition a variety of camps and sports
programs round out BPR’s suite of services.
Pumping iron at North Boulder Recreation Center.
Gymnastics program participants hanging out.
Visitors enjoying the playground at Creekside Park.
86
Master Plan Purpose
21%
increase in financial aid
enrollments
52%
increase in EXPAND participation between 2015-2020 (enrollment doubled during this
5-year timeframe)
~26,300
hours of volunteer time annually
Asset Management
software was implemented
2014 master plan key
accomplishments
BPR has achieved most of the goals
identified in the 2014 Master Plan,
including decreasing backlog repairs
by 41%, completing the new
Scott Carpenter Pool, the Boulder
Reservoir Visitors Center and
restructuring the recreation pass.
Other notable accomplishments since
2014 include:
STRATEGIC ROADMAP
The 2022 Master Plan serves as a guidebook to help BPR staff
provide parks and recreation services that meet the needs of the
Boulder community. It also acts as a roadmap for the management
of the parks and recreation system, informing capital investment,
programming, operations and maintenance priorities for the next
five years.
Building on the success of initiatives from the 2014 Master Plan and
recalibrating to ensure BPR services are tailored to meet changing
needs, staff are strategically focusing on the aspects of BPR services
that provide desired community benefits and meet citywide
sustainability, resilience and equity goals.
The 2022 Master Plan helps BPR answer three important questions:
• What do we do?
• Who do we serve?
• How do we excel?
Staff will use the content of this plan to respond to current
needs, anticipate future challenges and identify policies, goals
and initiatives to help meet the Department’s mission and meet
community needs today and in the future.
The mission, vision, goals and initiatives will be integrated into
BPR’s work so every employee plays a role in building success.
The goals and initiatives should guide BPR’s work over the next
five years, at which point an update effort should be initiated.
Department goals, initiatives and projects should be reviewed
regularly to assess successful outcomes related to the mission and
vision, and revised as need to address roadblocks to success.
GUIDING FRAMEWORK
BPR used several citywide initiatives and plans as a framework
to guide the 2022 Master Plan process. The principles of equity,
resilience and sustainability are woven throughout each element of
the plan to support community values and citywide goals.
boulder valley comprehensive plan
The Boulder Valley Comprehensive Plan (BVCP) guides long-range
planning and other activities that shape the built and natural
environments in the Boulder Valley. The plan provides policy
guidance to ensure protection of the natural environment and
support a livable, vibrant and sustainable community. The BVCP
Who We Are | 7
87
8 | Who We Are
The Tree Giveaway is an important community event,
encouraging community members to help add shade
and decrease CO2 in the atmosphere.
boulder valley
comprehensive plan vision
The Boulder Valley community honors its
history and legacy of planning for a livable
community surrounded by open space
and rural lands while striving together to
create and preserve a truly special place
that is sustainable, resilient, equitable and
inclusive—now and for future generations.
sustainability & resilience
framework vision
A future with equitable access to health,
prosperity and fulfillment; where our
community adapts and thrives in response
to emerging, and sometimes urgent, social,
economic and environmental challenges.
acknowledges the role that parks and recreation plays in building
community and improving the quality of life for Boulder Valley
community members. The BVCP recommends that parks and
recreation programs and facilities continue to provide for a well-
balanced and healthy community by offering a range of activities
that support mental and physical health through high-quality
programs and services.
sustainability, equity & resilience framework
The City of Boulder’s Sustainability, Equity & Resilience Framework
provides a vision for an inspired future and aligns efforts across the
city by establishing a common language for goals and priorities. This
framework guides budgeting and planning processes by providing
consistent goals necessary to achieve Boulder’s vision of a great
community and the actions required to achieve identified goals.
The 2022 Master Plan polices, goals and initiatives have been
developed to align with the following seven elements of the
framework:
»Safe: A welcoming and inclusive community that fosters
personal and community safety and ensures that all residents are
secure and cared for during emergencies and natural disasters.
»Healthy and Socially Thriving: All Boulder residents enjoy
high levels of physical and mental well-being and abundant
recreational, cultural, and educational opportunities in an
environment where human rights are respected.
»Livable: High-performing, safe, well-maintained attractive
buildings and infrastructure that accommodate a diverse set of
community needs for working, playing and living.
»Accessible and Connected: A safe, accessible and sustainable
multi-modal transportation system that connects people with
each other and where they want to go. Innovation, inclusivity and
open access to information fosters connectivity and promotes
community engagement.
»Environmentally Sustainable: A sustainable, thriving, and
equitable community that benefits from and supports clean
energy; preserves and responsibly uses the earth’s resources;
and cares for ecosystems.
»Responsibly Governed: A local government that provides an
excellent customer experience, responsibly manages the city’s
assets, and makes data-driven decisions informed by community
engagement.
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Who We Are | 9
»Economically Vital: All residents and businesses can access
and benefit from a healthy and sustainable economy that is
innovative, diverse and collaborative.
principles
The principles of equity, resilience and sustainability were used
throughout the master planning process to influence and guide the
collection and analysis of data, community engagement efforts and
policies, goals and initiatives to guide BPR’s work.
Equity
The City of Boulder is leading its equity work with racial equity. BPR
is committed to this work and ensuring equity for all community
members by focusing on equity as it relates to socioeconomic
conditions, varying abilities, and ages of parks and recreation
system users.
Resilience & Sustainability
Ensuring an environmentally, economically, socially sustainable and
resilient future is an overarching priority for the Boulder community.
BPR is committed to delivering reliable health and wellness services
in a sustainable manner, and proactively planning and operating
parks, facilities and programs to ensure resilience of the parks and
recreation system.
engagement strategic framework
In 2017, the City of Boulder adopted an engagement strategic
framework, designed by community members, that cultivates a
two-way dialogue between city representatives and the community
to encourage more meaningful public engagement. This framework
is inclusive, consistent and transparent. In order to make better
decisions and develop more responsive programs and services, the
city has developed six strategies to guide community engagement
efforts citywide. BPR is committed to using these strategies in all
public engagement efforts.
»Learn Together
»Help People Know What to Expect
»Cultivate Relationships
»Be Transparent
»Use the Right Tools
»Evaluate and Evolve
Resilience
Equity
Sustainability
Providing everyone the
specific resources and
opportunities they need to be
successful and to ensure equal
outcomes. This differs from
equality, which is treating
everyone the same.
The capacity to prepare and
plan for disruptions, to recover
from shocks and stresses, and
to adapt and grow from these
experiences.
The ability to meet the needs
of today in a way that does
not inhibit future generations
from meeting the needs of
tomorrow.
engagement strategic framework:
9 steps to good engagement
SAFEHEALTHY &
SOCIAL
LIVABLE ACCESSIBLE &
CONNECTED
ENVIRONMENTALLY
SUSTAINABLE
RESPONSIBLY
GOVERNED
ECONOMICALLY
VITAL
EQUITYSUSTAINABILITYRESILIENCESAFEHEALTHY &
SOCIAL
LIVABLE ACCESSIBLE &
CONNECTED
ENVIRONMENTALLY
SUSTAINABLE
RESPONSIBLY
GOVERNED
ECONOMICALLY
VITAL
EQUITYSUSTAINABILITYRESILIENCESAFEHEALTHY &
SOCIAL
LIVABLE ACCESSIBLE &
CONNECTED
ENVIRONMENTALLY
SUSTAINABLE
RESPONSIBLY
GOVERNED
ECONOMICALLY
VITAL
EQUITYSUSTAINABILITYRESILIENCE
Source: City of Boulder Engagement
Strategic Framework
89
10 | Who We Are
racial equity plan
The City of Boulder’s Racial Equity Plan focuses on eliminating
systemic and institutional racism in policies and practices. It states
that:
“Race is often the greatest predictor of access to success in our current
system. The creation and perpetuation of racial inequities is embedded
into government at all levels. Initially focusing on racial equity provides
the opportunity to introduce a framework, tools and resources that can
also be applied to other marginalized groups based on gender, sexual
orientation, ability, class and age, among others.”
BPR is committed to taking the steps necessary to continue to
address historic inequities and ensure equity is integral to all of
the department’s policies and practices, aligning with community
priorities.
All plans referenced in this section can be found on the City of Boulder
website.
Floating down Boulder Creek during the summer months is a very popular way to cool off and have fun.
racial equity plan internal
infrastructure steps
The plan outlines steps city departments
need to take to adapt internal infrastructure
and communication to meet the plan’s five
goals:
»Everybody Gets It
»Justly Do It
»Community Commitment
»Power to All People
»Representation Matters
90
Who We Are | 11
Master Plan Process
A BLENDED APPROACH
The 2022 Master Plan outlines recommendations in the following
ways:
»Polices
»Goals
»Initiatives
»Plan Alternatives
These recommendations are the result of a two-year strategic
planning process, which utilized a blended approach that
included policy direction, research and community engagement.
This approach was established in the 2014 Master Plan. It uses
quantitative and qualitative data to determine recommendations.
The approach was updated for the 2022 Master Plan to ensure
the overarching lenses of equity and resilience were considered
throughout the planning process.
community engagement
Engaging community members in a variety of ways throughout
the planning process ensured that their voices were heard and
considered in formulating BPR’s strategic direction.
research
Research was a key component of this master planning effort. BPR
knows the Boulder community expects data-driven decision making
and works to ensure this is a foundation of the department’s work.
For this project, research included reviewing relevant plans and
reports, conducting a statistically valid survey, reviewing national
and regional trends, conducting a facilities assessment, completing
a financial analysis, and engaging BPR and other city department
staff.
policy guidance
The City Council and the Parks & Recreation Advisory Board (PRAB)
provided input at major milestones throughout the planning
process. PRAB feedback was critical to successfully combining
public feedback and research into meaningful recommendations
that are in line with city policies. As the council’s appointed
community representatives for parks and recreation matters, the
PRAB’s guidance was critical for ensuring the 2022 Master Plan
reflects community needs. Already approved city plans, BPR’s
service delivery model, asset management program and other
pertinent guiding documents also helped guide the planning
process. CommunityEngagementPolicy Re
s
e
a
r
ch
R e s i l i en ceEquity
Master Plan
Recommendations
91
12 | Who We Are
Restore | Co nnec t | Sustain
Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec Jan Feb MarTimeline1st Quarter 2nd Quarter 3rd Quarter 4th Quarter 1st Quarter20212022
PROCESSENGAGEMENTBOARDS & COUNCILApr May June
2nd Quarter 3rd Quarter
July Aug Sept
Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec Jan Feb Mar Apr May June July Aug Sept
Implementation
MemoDeliverablesNeeds
Assessment
Report
MasterPlan
FINAL
SystemOverviewSnaphot
White
Papers/
Research
Facility
Assessment
Community
Survey Report
Financial
Analysis
Long-Range Goals &
Initiatives
Policies &Overview
Statements
Priorities Scenario
Planning
MasterPlanDRAFT
MasterPlanDRAFTFinal Draft
MasterPlanDRAFTPublic Review
RESEARCH & TRENDS NEEDS A SSESSMENT IMPLEMENTATION PLAN FINALPLANMASTER PLAN ACCEPTANCE
SUMMARY#1 SUMMARY#2 SUMMARY#3 SUMMARY#4
Surveys
Meetings
Engagement
Windows
BeHeardBoulder
Youth Voice
StakeholderMeetings PublicOpen House Workshop PublicWorkshopStakeholderWorkshop
YouthSummary YOAB MiniWorkshop
Community
Connectors
Connect0rSummary
Micro-
Engagements MicroSummary MicroSummary
SurveyResults
Stories/Places/Questions Digital Open House Digital Public Woorkshop Community Comments
IDENTIFY & EVALUATE OPTIONS COMMUNICATINGDECISIONSDEVELOPING RECOMMENDATIONSSHARE A FOUNDATION OF INFORMATION & INQUIRY #1 #2 #3 #4 FINALSUMMARY
Mobile HomeParkEXPANDCaregivers HomelessShelterPlaygroundOpeningygyg NatNigh SeniorCenter CPWDBHP
Questionnaire Questionnaire
PRAB
Discussion -April 12
Summary of Research, Trends
& Values Evaluation
PRAB
Study Session
July 12
Summarize Needs
Identify Strategies & Initiatives
PRAB
Matters - May 24
Youth Voice
Presenations
PRAB
Matters - Aug 23
Project Update
PRAB
Discussion
DRAFT Plan
PRAB
Action
Request
Recommendation
CC
Study Session - July 27
Summarize Needs
Identify Strategies and Initiatives
CC
Information Parcket - TBD
Introduction to New Members and
Project Update
CC
Study Session - TBD 2nd Qtr
Prioritize Strategies & Initiatives
DRAFT Plan
CC
Public Hearing
Request Acceptance
PLANNING
TBD
DRAFT Plan
PLANNING
Information Item
Process and Approach
Dec 2020
PLANNING
TBDRequestRecommendation
Parks & RecAdvisory Board
Planning Board
City Council
PRAB
Discussion Item - Oct 25
Overview Statements
and Policies
PRAB
Discussion Item - Dec 13
Priorities
PRAB
Study Session
Implementation Memo
Project Schedule & Phases
The 2022 Master Plan project schedule was broken into five phases, detailed in the timeline
below. Each phase included extensive research, community engagement and direction from
othe planning documents and policy makers, including the Parks and Recreation Advisory
Board (PRAB) and City Council.
92
Who We Are | 13
Restore | Connec t | Sustain
JanFebMarAprMayJuneJulyAugSeptOct Nov Dec Jan Feb MarTimeline1st Quarter2nd Quarter3rd Quarter 4th Quarter 1st Quarter20212022
PROCESSENGAGEMENTBOARDS & COUNCILApr May June
2nd Quarter 3rd Quarter
July Aug Sept
JanFebMarAprMayJuneJulyAugSeptOct Nov Dec Jan Feb Mar Apr May June July Aug Sept
Implementation
MemoDeliverablesNeeds
Assessment
Report
MasterPlan
FINAL
SystemOverviewSnaphot
White
Papers/
Research
Facility
Assessment
Community
Survey Report
Financial
Analysis
Long-Range Goals &
Initiatives
Policies &Overview
Statements
Priorities Scenario
Planning
MasterPlanDRAFT
MasterPlanDRAFTFinal Draft
MasterPlanDRAFTPublic Review
RESEARCH & TRENDSNEEDS ASSESSMENTIMPLEMENTATION PLAN FINALPLANMASTER PLAN ACCEPTANCE
SUMMARY#1SUMMARY#2 SUMMARY#3 SUMMARY#4
Surveys
Meetings
Engagement
Windows
BeHeardBoulder
Youth Voice
StakeholderMeetingsPublicOpen House Workshop PublicWorkshopStakeholderWorkshop
YouthSummary YOAB MiniWorkshop
Community
Connectors
Connect0rSummary
Micro-
EngagementsMicroSummary MicroSummary
SurveyResults
Stories/Places/QuestionsDigital Open House Digital Public Woorkshop Community Comments
IDENTIFY & EVALUATE OPTIONS COMMUNICATINGDECISIONSDEVELOPING RECOMMENDATIONSSHARE A FOUNDATION OF INFORMATION & INQUIRY #1#2#3 #4 FINALSUMMARY
Mobile HomeParkEXPANDCaregiversHomelessShelterPlaygroundOpeningygygNatNigh SeniorCenter CPWDBHP
QuestionnaireQuestionnaire
PRAB
Discussion -April 12
Summary of Research, Trends
& Values Evaluation
PRAB
Study Session
July 12
Summarize Needs
Identify Strategies & Initiatives
PRAB
Matters - May 24
Youth Voice
Presenations
PRAB
Matters - Aug 23
Project Update
PRAB
Discussion
DRAFT Plan
PRAB
Action
Request
Recommendation
CC
Study Session - July 27
Summarize Needs
Identify Strategies and Initiatives
CC
Information Parcket - TBD
Introduction to New Members and
Project Update
CC
Study Session - TBD 2nd Qtr
Prioritize Strategies & Initiatives
DRAFT Plan
CC
Public Hearing
Request Acceptance
PLANNING
TBD
DRAFT Plan
PLANNING
Information Item
Process and Approach
Dec 2020
PLANNING
TBDRequestRecommendation
Parks & RecAdvisory Board
Planning Board
City Council
PRAB
Discussion Item - Oct 25
Overview Statements
and Policies
PRAB
Discussion Item - Dec 13
Priorities
PRAB
Study Session
Implementation Memo
Source: BPR
93
14 | Who We Are
ENGAGEMENT
A critical and ongoing component of the planning process is
community engagement. An equitable, open and collaborative
engagement process builds trust throughout the community in
both the 2022 Master Plan document and how it was created. The
engagement process provided opportunities for the community
to be active in the planning process and influence the plan’s
findings and recommendations. BPR collected feedback for each
engagement window.
This feedback influenced all aspects of the 2022 Master Plan,
including what types of community-oriented services BPR delivers,
how these services are prioritized, and how we best deliver them
with diverse needs and limited funding.
methods
BPR shared and followed the citywide engagement plan,
which included efforts to reach less represented groups. Staff
used a variety of engagement methods to provide meaningful
opportunities for community input.
stakeholder workshops & public open houses
All engagement windows of the planning process included staff
and community stakeholder workshops and public open houses.
Due to the COVID-19 pandemic, workshops and open houses
shifted between in person and virtual based formats depending on
public health orders. Open houses allowed community members to
provide input regarding what was important to them and allowed
for directed feedback on a variety of 2022 Master Plan process
topics.
Interactive
BeHeardBoulder map exercise giving
community members a chance to share memories about BPR parks or facilities
142
open participation survey responses
Bilingual
flyers, signage and door hangers
advertising ways to participate
284
statistically valid survey responses
Social Media
campaigns on Instagram, Facebook
and Twitter
Community members enjoying the large vareity of services BPR offers throughout Boulder.
engagement highlights
94
Who We Are | 15
citywide coordination
Interviews were conducted with seven departments or workgroups
throughout the city including Climate Initiatives, Open Space
and Mountain Parks, Facilities, Equity, Transportation, Housing
and Human Services and Finance. The interviews identified
common policy and capital goals, shared community goals, and
opportunities for collaboration and mutual benefit.
statistically valid survey
Polco’s National Research Center conducted a statistically valid
survey of Boulder community members. A total of 4,000 paper
surveys were sent to randomly selected addresses and 284
recipients completed the survey. The survey data was statistically
weighted to adjust for certain demographic groups not responding.
An open online community survey was available to all community
members during the same time period. A comparison of results for
both surveys indicated alignment between the statistically valid
survey group and the general community.
beheardboulder
To gather input from the community throughout the planning
process, BPR used the city’s online engagement platform,
BeHeardBoulder. Community members could provide feedback
on specific questions during each engagement window through
various activities including quick polls, questionnaires, map
activities and general comments. These opportunities were
advertised through multiple print and digital communications
channels.
Community members enjoying the large vareity of services BPR offers throughout Boulder.
95
16 | Who We Are
30,000
E-blast subscribers
Staff Charrette
full-day discussion of goals and initiatives
Spanish & English
community workshops were held to prioritize goals and initiatives
Micro Engagements
with youth, older adults and people with disabilities
micro engagements
Micro engagements are small, targeted opportunities for the
project team to interact with specific groups from the community.
This includes meeting these groups where they already are, rather
than having them come to the project team.
These engagement opportunities were utilized throughout
the planning process to obtain targeted feedback from specific
community groups including, but not limited to, low-income
populations, people experiencing homelessness and Spanish-
speaking community members.
youth engagement
BPR coordinated with Growing Up Boulder (GUB) and the Youth
Opportunities Advisory Board (YOAB) to administer surveys and
collect feedback on the planning process from youth and teens
throughout Boulder. Feedback from youth and teens was collected
and incorporated into both the Needs Assessment Report and the
Implementation Memorandum.
technical advisory groups (TAGs)
Comprised of staff from across BPR, TAG members served as
subject matter experts to verify information and research and
provide input on specific projects and programs that should be
prioritized. The TAG includes both the Management Technical
Advisory Group (MTAG) and Working Technical Advisory Group
(WTAG).
BPR staff and stakeholders offered invaluable information that informed the plan recommendations.
engagement highlights
96
“
“Less prescriptive
programming when designing
facilities would allow for more
flexible uses in the future.”
parks and recreation advisory board (PRAB)
The PRAB played a critical role in the development of the 2022
Master Plan by reviewing research and findings, providing input
on content at critical junctures, offering policy direction and
recommending the final plan to City Council. During the planning
process PRAB held multiple study sessions dedicated to the
Master Plan. The PRAB’s guidance was instrumental in shaping the
recommendations, polices, goals and initiatives of the plan.
city council
As the governing body that accepts the final 2022 Master Plan, City
Council engaged in the project and provided feedback and policy
direction at key junctures. In December 2020, the council reviewed
and approved the project approach and community engagement
plan. In July 2021, project staff presented the findings of the Needs
Assessment to City Council. In April 2021, a study session allowed
City Council to review and discuss the draft plan and provide
feedback that was incorporated into the final 2022 Master Plan.
beheardboulder
community feedback
“Ensure that ‘public’
includes everyone in the
community and think
about long term benefits,
especially for facilities/
programs that are adaptable
as much as short term gains
to be more resilient.”
“Focus
on the community
experience, including
improving the registration
system, marketing, public
engagement, etc.”
“Making parks the
centerpiece of the
community will ensure
that the community
recognizes it is in their best
interest to take care of
parks in return.”
Who We Are | 17
97
98
WHERE WE ARE
TODAY
»Understanding changes in the Boulder community that have
occurred since the completion of the 2014 Master Plan provides BPR
with a foundation for decision making and planning for the future. In
this section, community demographics and trends, the current state
of Boulder’s parks and recreation system, and an overview of today’s
financial situation provide useful data. This data informs the 2022
Master Plan recommendations that BPR staff will work to accomplish
in the next five years.
99
20 | Where We Are Today
The natural features in and around Boulder make
it one of the most beautiful cities in Colorado.
100
Where We Are Today | 21
Community Context
IMPROVING QUALITY OF LIFE
Communities throughout the country understand
that urban parks, natural areas, recreation facilities,
historic and cultural resources and recreation programs
are community amenities that improve quality of life.
Boulder has one of the premier parks and recreation
systems in the country. BPR’s services offer spaces
where community members can recreate, connect with
nature, spend time with family and friends, meet new
people, and participate in programming year-round,
both indoors and outdoors.
While BPR has been doing an excellent job of meeting
the needs of the community, it will become increasingly
challenging in the future, due in part to growing use of
outdoor amenities by people who live in Boulder and
in adjacent Front Range communities. The population
BPR serves is changing as community members age and
become increasingly more diverse.
When Spring springs on the Pearl Street Mall, tulips arrive enmasse to greet visitors.
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22 | Where We Are Today
DEMOGRAPHICS
BPR currently provides recreation to a city population of
108,091 (including the CU Boulder student population).
While Boulder’s population growth is limited and
less than statewide averages, the city population is
expected to grow to approximately 123,000 by 2040.
Not only is the population within city limits expected
to increase, but about 1 million additional people are
expected to move to the Denver region, with another
1 million moving to the northern Front Range, which
includes Fort Collins, Longmont and other munipalities,
by 2040. As an employment center drawing from the
Front Range, Boulder is anticipating an increase of
14,000 employees in the community by 2040, which will
increase usage and in turn create additional stress on
Boulder’s parks and recreation system.
According to the U.S. Census American Community
Survey, the majority of Boulder’s population is white
(87.7%). The city has a higher percentage of Asian
community members (7%) than Boulder County, the
state and even the nation. Black or African American
community members make up 1.3% of the population,
0.2% are American Indian or Alaska Native, and 1.6%
are other races. In terms of ethnicity, approximately
10% of community members are of Hispanic or Latino
origin (of any race).
Projections for changes to the composition of the
population by race are not calculated for counties
or municipalities; however, the Colorado State
Demography Office developed a statewide forecast
in October 2011 through 2030. Populations of Black,
Asian/Pacific Islander, and American Indian remain
relatively stable in proportion to all other races.
Additionally, based on state-wide projections, there
will be a significant increase in the Latinx community
population – growing from 10% of the total population
in 2019 to potentially just over 30% by 2040. The same
trend may not unfold in the same way in Boulder,
but the nationwide trend of a burgeoning Hispanic
population will very likely influence the city and BPR
amenities, facilities and programs. Boulder County’s
population is aging. By 2040, the current percentage
of community members aged 60 and older will nearly
double to make up 28% of the county’s total population.
Doing the “twist” at South Boulder Recreation Center.
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Where We Are Today | 23
These trends will result in an increased demand for
parks and recreation services. Population growth, as
well as an increasingly diverse and aging population, will
require a greater capacity for services and additional
funding to meet community needs.
CITY OF BOULDER POPULATION ESTIMATE PROJECTION
GROWING POPULATION PRESSURE
The growing population of Boulder and surrounding
communities will result in an increasing demand for BPR
services. This will require greater capacity, and specific
services focused on older adults, the Latinx community
and community members who require equitable access to
services.
It will also result in increased environmental, social and
economic strain on the parks and recreation system and will
likely require additional funding to meet community needs.
BOULDER COUNTY AGING POPULATION
CITY OF BOULDER HOUSING COSTS & INCOME
By 2040, the current percentage of
community members aged 60 and older
will nearly double to make up 28% of the
county’s total population.
The growing population of
Boulder and surrounding
communities will more than
likely result in increased need
for services, parkland and
programming. This in turn will
result in increased strain on the
parks and recreation system.
With increasing numbers of
aging adults, BPR will likely
see an increased demand for
senior programs and facilities
that have observed appeal from
review of national and regional
trends (e.g., Medicare health and
wellness programs and facilities
such as warm-water aquatics
pools and pickleball courts).
With housing costs rising faster
than income, and a higher than
average renter population
compared to the county
and state, BPR will likely see
continued or increased demand
for low-cost to no-cost recreation
options in Boulder.
Median Detached Home Sales Price Median Attached Home Sales Price
Median Household Income
$1M
$800K
$600K
$400K
$200K
$0
2010 2012 2014 2016 2018
$242,500
$405,250 $435,000
$685,000
$940,000
$432,000
$103,600$89,500
$84,500 $85,600
2010 2020 2040
98K98K 108K108K 123K123K
2040 2040
28%28%
103
A Kidz Summer Camp participant “hangs” on at East Boulder Community Center.
24 | Where We Are Today
104
Where We Are Today | 25
THE BPR SYSTEM TODAY
Since 2014, BPR has experienced several situations that require
increased adaptability and resilience. Current departmental
challenges include annual fluctuations in revenues, limited funding
resources and decreasing staff capacity. Climate change events
have become more common, including increasing temperature
fluctuations, recent wildfires, floods, droughts, emerald ash borer
damage and invasive species proliferation.
The community has also seen increasing rates of anxiety and
depression, specifically among youth and teens. During 2020 and
2021, BPR saw firsthand the unprecedented impact of the COVID-19
pandemic on parks, facilities, programs and budget, forcing staff to
make more on-the-fly operational decisions.
Amidst strained resources, the demand for park space and outdoor
recreation was unparalleled during this time, as community
members sought outdoor experiences that were socially distant
but allowed them to continue to enhance their quality of life
by recreating outdoors and remaining active. As public health
restrictions lifted and communities adjust to post-pandemic life,
demand on BPR’s programs, parks, and facilities remains high.
To ensure BPR’s system is able to best respond to increased user
demand, a thorough baseline assessment was performed to assess
the gap between where the parks and recreation system is today,
and where it needs to go in the future to continue to deliver high
quality parks, facilities, and programs to the community.
Boulder Parks & Recreation System
Community Priorities
When asked two different ways via the
statistically valid survey, community
members consistently preferred focusing
limited resources on existing parks
and facilities, rather than building new
facilities.
community hubs
The City of Boulder Parks and Recreation Department’s (BPR) parks, facilities, programs,
and historic and cultural resources provide places where community members can:
»gather
»improve their physical and mental health
»access core services
“Focus on
existing parks and
facilities and remove
financial barriers to
participation in existing
programs rather than
building new facilities.”
105
LOCAL TRENDS: PARKS
1 Parks and Natural Areas “Loved to Death”
BPR amenities are aging, and parks and natural
areas are being “loved to death” due to the
increasing popularity of outdoor areas. While
higher use is positive in many ways, it is also has
significant ecological and sustainability impacts,
such as increased trash, erosion, people creating
their own pathways through parks and natural
areas, and the need to add additional fencing
and signage. This use can also lead to decreases
in biodiversity, loss of habitat and increases in
invasive species.
2 Urban Tree Canopy Threats
The emerald ash borer continues to threaten the
tree canopy in Boulder. Dying ash trees can pose
a public safety risk because they are more likely to
fall, as emerald ash borer disease dries the trees
out quickly, making them very brittle. Along with
the loss of ash trees, extreme weather events,
drought, other invasive insects and tree diseases
are also threats to the health of the urban forest
and parkland.
3 Encampments & Illegal Use of Parkland
Like communities across the country, Boulder has
seen an increase of encampments and illegal use
of parkland, which strains limited resources and
impacts uses of space.
Current staff are finding it
difficult to keep up with recent
user impacts . Boulder Reservoir
North Shore visitation grew
approximately 20% from 2019 to
2020, and around
8% from 2019 to 2021 .
It is estimated that ash trees
comprise 25% of the total urban
tree canopy, with a value of ~$18
million . BPR has successfully
slowed down the progression of
emerald ash borer disease with
biocontrols and pesticides .
BPR is working closely with
partners across the city to
support community members
experiencing homelessness and
ensure public spaces are safe for
everyone .
26 | Where We Are Today
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Where We Are Today | 27
Parks
Parks are the land base that provides areas for active and passive
recreation as well as the location of park and recreation assets.
BPR’s system has a distinctive balance of developed urban park
amenities and natural areas, as well as natural features throughout
Boulder, including the urban tree canopy, which includes trees in city
parks as well as those along public street rights-of-way.
parkland inventory
Per the 2018 Boulder Parks & Recreation Design Standards Manual,
the Boulder Parks system is classified into eight distinct park
typologies based on a variety of factors including: size, use, assets/
amenities, location, density of users, facilities and vegetation. These
typologies help BPR determine how to prioritize management of
existing parks, facility programming and the development of new
parks. Staff strive to operate and maintain each of these areas in
ways that are most beneficial to the community – offering a variety
of opportunities for active and passive recreation.
Table 1: BPR Parkland Inventory
Park Type
# of
Parks Avg Size
Current
Acreage
Undeveloped
Acreage
Total
Acreage Examples
Neighborhood Parks 46 7 acres 182 39 221 Bear Creek Park
Community Parks 10 45 acres 263 188 451 Foothills Community Park
City & Regional Parks 3 130 acres 316 57 373 Valmont City Park
Civic Spaces 6 4 acres 26 0 26 Pearl Street Mall
Recreational Facilities 6 15 acres 114 0 114 Gerald Stazio Ballfields
Specialized Facilities 2 5 acres 11 0 11 Columbia Cemetery
Natural Areas 6 100 acres 622 0 622 Coot Lake
Community Use Areas 10 10 acres 41 0 41 Boulder Creek Path
TOTALS 1575 284 1859
Notes:
Recreational facilities in this context do not include the three recreation centers. Specialized facilities include Boulder Reservoir Regional Park,
Flatirons Golf Course, Columbia Cemetery and the Pottery Lab.
PARKS & RECREATION ARE ESSENTIAL
PUBLIC SERVICES
“Just as water, sewer and public safety are
considered essential public services, parks
are vitally important to establishing and
maintaining the quality of life in a community,
ensuring the health of families and youth,
and contributing to the economic and
environmental well-being of a community and
a region.”
According to the National Recreation & Park
Assocation (NRPA), the three values that make
parks and recreation essential public services
include:
- Economic Value
- Health & Environmental Benefits
- Social Importance
www.nrpa.org
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28 | Where We Are Today
level of service
Level of service (LOS) establishes the standard by which parks and
recreation facilities are provided, operated and maintained over
time to best meet community needs. LOS standards also enable
evaluation of progress over time. Numeric LOS metrics are used
when analyzing parkland and recreation facilities to express acreage
or availability in per capita terms. BPR currently uses the NRPA
accepted standard of park acreage per 1,000 residents to measure
parks LOS in Boulder.
When compared to national benchmark communities, NRPA
Agency Performance Review data, and the Trust for Public Land
(TPL) overall ParkScore® median, Boulder is keeping pace in
parkland per capita, and in some cases provides above average
amounts of urban parkland. If BPR develops all of its existing
parkland (specifically undeveloped acreage), and 2040 population
projections are on target, the city will maintain current LOS by
2040, providing the same amount of parkland per 1,000 community
members.
Table 2: Park Level of Service (LOS) Comparison Table
Park Type
(BPR DSM
Classification)1
2014 LOS
Benchmark
Standard
2021
Current
LOS2
2040
LOS
Projection3
2040 Projection
Acres Needed
to Maintain
2021 Standard4
Neighborhood
Parks 3 1.7 1.8 If BPR develops
all existing
acreage,
the city will
maintain
2021 LOS for
parkland.
Community
Parks 1.5 2.4 3.7
City/Regional
Parks 1 - 3 2.9 3.0
Other
Parkland5 n/a 7.5 6.6
TOTAL 5.50 - 7.50 14.6 15 .1
Notes:
1. BPR Design Standards Manual
2. The 2021 Current LOS column does not include currently undeveloped acreage.
Population: 108,000
3. The 2040 LOS Projection column does include currently undeveloped acreage
(assuming it will be developed by this time). Population: 123,000
4. Developed and undeveloped acres are included in the 2040 projection for acres
needed to maintain 2021 LOS standard.
5. Other Parkland: the additional five DSM Park Types are grouped here because the
classifications for each have changed since 2014.
NRPA Standard LOS Metric
The NRPA standard metric for measuring LOS is
acres of parkland per 1,000 residents .
The median LOS for agencies serving a population
of 100,000 – 250,000 is 8 .9 acres per 1,000
residents . Boulder well exceeds this average at
18 .59 acres/1,000 residents .
Arts in the Park is a popular event held at Central Park
& Civic Area.
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Where We Are Today | 29
Playing a round of golf at Flatirons Golf Course offers opportunities for exercise,
relaxation and taking in stunning views of the Rocky Mountains.
With the high price of land in Boulder and the city’s growth boundary
limiting development, adding new parkland is currently not feasible.
Given the projected population growth, and limitations around adding
parkland, each developed park will need to handle an increased number
of users, requiring more amenities and higher levels of maintenance.
Moving forward, BPR will use additional metrics in tandem with acres
per 1,000 residents to measure LOS. These additional indicators will
be tailored to the Boulder community, and will consider, among other
things, proximity and ease of access to parks and recreation services,
proximity to Open Space & Mountain Parks (OSMP) land, the size and
types of amenities serving various populations, equity, and tree canopy
coverage.
These metrics will help BPR more accurately assess and monitor
performance over time in more meaningful ways. Section 3: Where
We Are Going, includes a discussion of how BPR will begin to measure
LOS with layered equity mapping to ensure that parks and recreation
services are distributed equitably across the community (p.65).
boulder open space &
mountain parks (OSMP)
The City of Boulder provides a significant
amount of public lands for community
members to experience nature. The Open
Space and Mountain Parks Department
manages over 45,000 acres of natural lands
and 155 miles of trails, complementing the
close-to-home experiences provided by
BPR.
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30 | Where We Are Today
Boulder Boulder
ReservoirReservoir
City LimitsCity LimitsCity LimitsCity Limits
Acres / 1000 People 6.4Acres / 1000 People 6.4
Pop in Proximity 81.8%Pop in Proximity 81.8%
Tree Canopy 19.2%Tree Canopy 19.2%
SOUTH BOULDER
Acres / 1000 People 4.4Acres / 1000 People 4.4
Pop in Proximity 79.4%Pop in Proximity 79.4%
Tree Canopy 26.8%Tree Canopy 26.8%
CENTRAL BOULDER
Acres / 1000 People *Acres / 1000 People *
Pop in Proximity 1.6%Pop in Proximity 1.6%
Tree Canopy 7.5%Tree Canopy 7.5%
EAST BOULDER
Acres / 1000 People 7.0Acres / 1000 People 7.0
Pop in Proximity 69.3%Pop in Proximity 69.3%
Tree Canopy 14.9%Tree Canopy 14.9%
PALO PARK
Acres / 1000 People 1.5Acres / 1000 People 1.5
Pop in Proximity 42.5%Pop in Proximity 42.5%
Tree Canopy 15.7%Tree Canopy 15.7%
COLORADO
UNIVERSITY
Acres / 1000 People 7.3Acres / 1000 People 7.3
Pop in Proximity 64.8%Pop in Proximity 64.8%
Tree Canopy 8.2%Tree Canopy 8.2%
CROSSROADS
Acres / 1000 People 11.2Acres / 1000 People 11.2
Pop in Proximity 85.1%Pop in Proximity 85.1%
Tree Canopy 19.3%Tree Canopy 19.3%
NORTH BOULDER
Acres / 1000 People 13.1Acres / 1000 People 13.1
Pop in Proximity 55.7%Pop in Proximity 55.7%
Tree Canopy 16.5%Tree Canopy 16.5%
SOUTHEAST
BOULDERAcres / 1000 People 2.6Acres / 1000 People 2.6
Pop in Proximity 54.1%Pop in Proximity 54.1%
Tree Canopy 30.5%Tree Canopy 30.5%
UNIVERSITY HILL
GUNBARREL
Acres / 1000 People 2.7Acres / 1000 People 2.7
Pop in Proximity 0%Pop in Proximity 0%
Tree Canopy 5.5%Tree Canopy 5.5%
Map 2: Subcommunity Level of Service
Source: BPR GIS Analysis
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Where We Are Today | 31
MAP NOTES
East Boulder Acres / 1000 People is invalid due to very
low population. 2020 Population Estimates based on
Dwelling Units.
Proximity based on being within one-half mile of a
Neighborhood Park or quarter-mile of a Playground.
Tree Canopy from 2013, inside city limits only, some
areas have incomplete data.
BOULDER SUBCOMMUNITIES
The Boulder Valley Comprehensive Plan
defines a subcommunity as: “an area within
the service area of the city (Area I and II)
that is defined by physical boundaries such
as roads, waterways and topography. Each
subcommunity is composed of a variety of
neighborhoods and has distinct physical and
natural characteristics.”
There are 10 subcommunities in Boulder:
Central Boulder
Central Boulder - University Hill
Crossroads
Colorado University
East Boulder
Southeast Boulder
South Boulder
North Boulder
Palo Park
Gunbarrel
level of service mapping
This 2022 Master Plan introduces an innovative gap analysis to
identify differences in the level of service within specific geographic
areas, or subcommunities, throughout the city. The purpose of this
analysis is to discover physical gaps in proximity of neighborhood
parks and playgrounds which are key recreation amenities. BPR
can further evaluate gap areas to understand if it is feasible to close
the barrier to access neighborhood parks and playgrounds in and/
or if further study is warranted. The National Recreation and Park
Association (NRPA) recommends these types of maps for evaluating
locations of access inequity within a community’s parks and
recreation offerings
Using an inventory of all currently developed parkland, BPR added
an overlay of subcommunity boundaries to understand variations in
the distribution of parks and amenities throughout the city. Areas
within city limits, but not included within a subcommunity, are
areas without developed housing units, either existing or planned.
To determine LOS for each subcommunity and compare them with
each other, staff used three metrics:
»Acres of developed parkland per 1000 people
(NRPA standard metric)
»Percent of population in each subcommunity that live within
one-half mile of a neighborhood park or quarter-mile of a
playground
(Boulder Valley Comprehensive Plan metric)
»The amount of tree canopy in the area
(Urban Forest Strategic Plan metric)
The subcommunity Level of Service (LOS) map is the first step
in identifying spatial inequity in terms of parkland, proximity to
parks and/or playgrounds, and tree canopy. Looking at LOS by
subcommunity provides a more detailed understanding of the
distribution of parks and amenities in different parts of the city.
The maps include areas outside current city limits which may have
limited or incomplete data. BPR should gather data for entire
subcommunity areas to correct this issue in the future.
“Provide neighborhood parks of a
minimum of five acres in size within
one-half mile of the population to be
served.”
Boulder Valley Comprehensive Plan Neighborhood
Parks service metric
111
32 | Where We Are Today
subcommunity level mapping
BPR manages 45 neighborhood parks
that average approximately seven acres
in size. From an initial analysis, staff made
the following preliminary findings when
comparing the neighborhood parkland LOS
between subcommunities:
»East Boulder, Colorado University and
Central Boulder – University Hill have
the lowest neighborhood parkland LOS.
Other factors influence this analysis,
including the lower population of East
Boulder, the university, and industrial
centers within these subcommunities,
and other types of park classifications.
»When considering just parkland managed
by the City of Boulder, the parkland
LOS for Gunbarrel is low and the only
neighborhood park in the subcommunity,
Tom Watson Park, is separated from the
residential areas of the subcommunity by
a major barrier: the Diagonal Highway.
The LOS for Gunbarrel would increase
if lands that are managed by other
entities such as HOAs are included as
there is significant privately managed
greenspace.
Table 3: Subcommunity Neighborhood Parkland* LOS Comparison
Subcommunity Neighborhood
Parkland Acres Population Neighborhood
Parkland LOS
East Boulder 0 466 0
Colorado
University
10.21 17,820 0.57
Central Boulder/
University Hill
16.53 10,550 1.57
Southeast
Boulder
24.80 15,330 1.62
Central Boulder 35.49 19,200 1.85
Palo Park 21.39 11,450 1.87
South Boulder 47.16 15,440 3.05
Gunbarrel 60.78 11,750 5.17
Crossroads 18.48 3,550 5.21
North Boulder 76.82 12,590 6.10
* Neighborhood Parkland refers to type of park classification—Neighborhood Park
Table 4: Subcommunity All Parkland LOS Comparison
Subcommunity All Parkland
Acres Population All Parkland
LOS
Colorado
University
25.77 17,820 1.45
Central Boulder/
University Hill
27.22 10,550 2.58
Central Boulder 83.63 19,200 4.36
Gunbarrel 60.78 11,750 5.17
South Boulder 104.05 15,440 6.74
Palo Park 79.74 11,450 6.96
Crossroads 34.04 3,550 9.59
North Boulder 144.89 12,590 11.51
Southeast
Boulder
202.76 15,330 13.23
East Boulder 182.33 466 391
Notes: For both Table 3 and Table 4, the populations for the entire subcommunities were
used - including areas that are currently outside city limits. In the future, the LOS for subcommunities with a large population outside city limits must be examined
with other factors, such as access to other greenspace.
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Where We Are Today | 33
All Parkland Level of Service by Subcommunity
BPR also calculated a comprehensive LOS for all classes of
developed parkland including community parks, city parks, and
neighborhood parks that are under five acres and owned by the
BPR. In this analysis:
»Colorado University and Central Boulder have the lowest
parkland LOS.
»North Boulder continues to have a high LOS and Southeast
Boulder and East Boulder improve from mid-low to high LOS for
all types of parkland.
»East Boulder’s LOS is low when looking only at Neighborhood
Parks, but when considering total parkland, it has the highest
LOS due to the inclusion of Valmont City Park and Gerald Stazio
Ball Fields which are not classified as ‘neighborhood’ parks.
Proximity to Neighborhood Parks & Playgrounds Level of Service
by Subcommunity
There are two subcommunities where less than 50% of residents
are within a half-mile or quarter-mile of a neighborhood park or
playground, respectively – Colorado University and Gunbarrel (not
including East Boulder which is discussed in more detail later in this
document). Ensuring residents of these subcommunities have the
proximity recommended by the BVCP in the future is important to
ensure equitable distribution of parks and playgrounds.
Tree Canopy Level of Service by Subcommunity
Today, the tree canopy in the Gunbarrel, Palo Park, East Boulder,
Crossroads, and Colorado University subcommunities is below the
citywide goal of 16%. While it is important to focus on increasing
the canopy in these areas, the discrepancies in canopy coverage are
partly due to the subcommunities’ characteristics.
For example, East Boulder is lacking tree canopy cover due to the
industrial and commercial land uses of the subcommunity. With the
current and proposed future land uses for East Boulder, it will be
important to invest in tree planting on city-owned property in the
subcommunity, such as Valmont City Park. BPR should also work
with private landowners as parcels are developed and redeveloped
to increase the overall urban tree canopy.
16% City Tree Canopy Goal
The City has a goal to maintain at least
16% tree canopy through 2037
Kickball is one of the many sports programs BPR
offers for community members to enjoy.
113
LOCAL TRENDS: FACILITIES
1 Rising Court Sports Popularity
Tennis has risen in popularity for the first time in
many years. At the same time Pickleball is also
rising in popularity, leading to additional demand
for court access, and longer waits for court time for
both types of court users.
2 Increasing Demand for Aquatic Facilities
There has been an increased demand for more
access to family time in pools, and warm water
pools are very popular with Boulder’s older adult
population.
3 Growing Dog Park Use
Dog park use has continued to grow throughout
the community. Additional dog parks are a
continually requested facility, especially in more
urban areas and for those living in multifamily
housing.
4 Increasing Use by Regional Visitors
An unexpected uptick in a regional user population
has placed additional strain on Boulder’s parks
and recreation amenities. Users who would not
otherwise come to Boulder have been visiting BPR
system more frequently recently, in part due to
the COVID-19 pandemic and use restrictions in
surrounding communities.
34 | Where We Are Today
Top to Bottom: Gonzo Indoor Tennis; Kidz Summer
Camp EBCC; East Boulder Community Dog Park;
Gerald Stazio Softball Fields
114
Where We Are Today | 35
facilities
Recreation Facilities are major park assets that provide both active
and passive recreation opportunities, from aquatics facilities to
recreation centers.
facilities and amenities inventory & level of service
The Boulder community enjoys multiple recreation facilities and
amenities. Since the 2014 Master Plan, BPR has added two facility
types to this inventory – Valmont Bike Park and non-dedicated
pickleball courts.
In most cases, the 2021 level of service related to facilities are
slightly lower than 2014 numbers due to an increase in Boulder’s
population. Despite this, users often indicated satisfaction with
those facilities and amenities that rate lower than benchmark levels
of service. This reinforces the fact that each community is unique
and strictly quantitative measures do not provide the full picture of
a particular system’s success. For example, even though the LOS
for tennis courts has decreased since 2014, it is still above state,
national and the Trust for Public Land (TPL) LOS medians. At the
same time, BPR recognizes the community’s desire for additional
courts.
BPR facilities and amenities are extremely valuable to the
community and are well-used and well-maintained given the
system’s age and condition. Due to Boulder’s growing population,
flat levels of funding, and increased stress on resources needed
to address extreme weather events and pandemic recovery, LOS
across the system is at risk of decreasing over time.
BPR can continue to use LOS to help identify gaps in provided
amenities and make decisions about investments. The department
should prioritize investments in areas where it is not meeting LOS
benchmarks for amenities desired by the community.
Table 5: BPR Facilities Inventory
Recreation Facilities
& Amenities
2020
Inventory
Recreation Centers 3
Programmable Studios 2
Historic Districts 3
Historic Sites*6
Premier Diamond Fields 11
Standard Diamond Fields 10
Premier Rectangular Fields 12
Rectangular/Multi-Use Fields 13
Tennis Courts 28
Pickleball Courts (non-dedicated)7
Basketball Courts - Outdoor 14
Sand Volleyball 21
Disc Golf 2
Roller Sports 2
Slacklining, # of allowed sites 9
Aquatic - Indoor Facilities 3
Aquatic - Outdoor Facilities 2
Skate Parks 3
Bike Parks 1
Dog Parks 4
Playgrounds 40
Exercise Courses 2
Picnic Shelters 58
Community Gardens 4
Total Miles of Paths, Sidewalks
& Trails Maintained by BPR**
53
Number of BPR Managed
Properties
105
City Trees*** ~14,000
* Historic Sites does not include rolling stock ** 40%, or 21 miles of these are multi-use paths
*** Trees in parkland and public street rights-of-way
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36 | Where We Are Today
Table 6: Facility LOS Comparison
Facility Type
LOS
per Quantity
BPR
2021 LOS
BPR
2014 LOS
Colorado
2014 LOS
Median
National
2014 LOS
Median
TPL
2014 LOS
Median
Diamond Ball Field 10,000 21 1.94 2.46 2.89 2.45 1.6
Picnic Shelters 10,000 58 5 .37 3.49 4.73 2.71 n/a
Playground 10,000 40 3.70 4.11 3.96 3.96 2.2
Rectangular Field 10,000 25 2 .31 2.05 5.22 1.32 n/a
Tennis Court 10,000 28 2.59 4.11 2.44 2.44 1.8
Pickleball Court (Outdoor)20,000 7 1 .3 0 n/a n/a n/a n/a
Aquatic Facility (Indoor)100,000 3 2.78 3.08 2.08 1.94 n/a
Aquatic Facility (Outdoor)100,000 2 1.85 2.05 1.79 2.49 n/a
Community Garden 100,000 4 3.7 4.11 n/a 1.22 n/a
Dog Park 100,000 4 3.7 5.13 1.56 1.54 0.6
Golf Course 100,000 1 0.93 1.03 2.08 1.4 0.7
Recreation Center 100,000 3 2 .78 3.08 n/a n/a 3.5
Skate Park 100,000 3 2 .78 1.03 1.33 1.24 0.4
Bike Park 100,000 1 0 .93 n/a n/a n/a n/a
Notes:
In most cases, the 2021 BPR LOS numbers are slightly lower than 2014 numbers due to an increase in Boulder population. 2021 numbers that are higher than 2014 are noted in green. The only facility LOS that is lower than any of the comparison medians is Recreation Center LOS.
Two additional facilities have been included in 2021 that were not included in 2014: the Valmont Bike Park and pickleball courts (on existing tennis courts). Trust for Public Land (TPL) data typically represents cities slightly larger in population to Boulder.
A disc golfer enjoying a toss at Valmont Community Park.
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Where We Are Today | 37
indoor recreation facility evaluations
As part of the 2022 Master Plan process, Barker Rinker
Seacat (BRS) Architects provided an Indoor Recreational
Facility Assessment Report which included a conceptual
overview of BPR’s primary indoor recreation facilities.
The text below is pulled directly from this report.
east boulder community center (ebcc)
Overview
EBCC, which was built in 1992, consists of recreation
and aquatics facilities. This includes a gymnasium,
weight room, fitness rooms for dance, yoga, spin and
other activities. It also includes administrative offices
and an attached area that is temporarily being used as
a day care center. The facility generally appears to be
in good condition, clean and well maintained. The 2016
Facility Strategic Plan identified building deficiences. A
significant number of these have been addressed and
those that remain will be addressed with the upcoming
projected funding from the Community, Culture,
Resilience and Safety Tax. This tax was approved in 2017
by voters and reapproved in 2021 for 15 years.
Equity & Inclusion
EBCC’s location, amount of program spaces and layout
meet the spirit of equity overall. Changing demands in
community wellness may involve reimagining spaces
and program priorities to allow for greater flexibility and
access. Anecdotal reports indicate opportunities to more
broadly meet patron needs. The most important first
step to achieving equitable program space is community
engagement.
Program Evaluation
The pool is popular with the community and heavily
used, but priority is given to swim teams. Because of
site constraints expansion is not an option. Satisfying
the wider needs of the community for access to aquatics
facilities may need to be addressed system-wide if
scheduling cannot improve access. Renovation plans
include improving the warm water exercise pool. The
gym is heavily used by pickleball and group fitness
participants. Incorporating a trend like My Wellness
Cloud, in which wearable technology syncs with in-class
technology would elevate the fitness experience and
provide a customer relationship management tool for
staff with little impact on facility space.
East Boulder Community Center
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38 | Where We Are Today
north boulder recreation center (nbrc)
Overview
The most centrally located facility, NBRC was
originally constructed in 1974. An addition
completed in 2001 doubled the size of the facility
to roughly 62,000 square feet. The addition boasts
an 8-lane lap pool and 3,300-gallon spa which
were built adjacent to a large family-friendly
leisure pool with waterslides, interactive features
and zero-depth access. At that time, the center’s
popular gymnastics area was expanded, and yoga
and multipurpose rooms were added. A family
locker room was created, and existing showers and
locker areas refurbished and expanded. Additional
staff offices were built, and the center’s entrance
and drop-off area were redesigned to improve
pedestrian and traffic flow. Notably, NBRC was the
first community recreation center in the country
to receive LEED Silver certification from the U.S.
Green Building Council.
Equity & Inclusion
NBRC’s location and layout meet the spirit of
equity overall. It is easily accessible by alternate
modes, is on major buslines, and served by a
major north-south multi-use path connection. It
was anecdotally noted 65% of fitness participants
utilize NBRC for classes. Managing growing
demand can unintentionally impact equitable
participation by favoring tech savvy users familiar
with the registration system and with online
access.
Program Evaluation
Demand is extremely high for programs at NBRC
and in particular participation in group fitness
classes and recreational drop-in sports like
pickleball and volleyball. Gymnastics program
participation also continues to soar. A weight room
expansion was occurring during BRS’ site visit, but
staff indicate additional space is needed to meet
demand. Patrons desire spaces to accommodate
high-intensity interval training (HIIT) classes.
The site footprint and inability to expand parking
remains a limiting factor, and center staff must
balance popular program offerings with parking
availability.
North Boulder Recreation Center
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Where We Are Today | 39
south boulder recreation center (sbrc)
Overview
The split-level SBRC, constructed in the early 1970s
and partly renovated in the 1990s, is situated
in Harlow Platts Community Park. The facility
includes aquatics, a gymnasium, weight rooms,
a multi-purpose room for dance, yoga, and other
activities, a racquetball court, Pilates studio, and
office and administrative areas. The center is clean
and staff report that customers view it as the
heart of their surrounding community. The center
is very old and while clean and well maintained,
has numerous accessibility and structural issues.
Amenities and spaces within the facility have
limited ability to meet community need. BPR
needs to plan for its replacement in the next five
years.
Equity & Inclusion
The community wants BPR to prioritize people
with disabilities and youth – the SBRC cannot
fully support achieving these goals. The social
and physical needs of youth who want to access
drop-in amenities at SBRC, specifically the lap
pool, may be considered in addition to use by
historically programmed user groups. The facility
layout presents accessibility issues. Valid operating
policies regarding security of elevator access
further exacerbates these inequities. The confined
spaces within the center would present a challenge
even if someone has experience using a wheelchair.
Program Evaluation
Aquatics staff indicates a systemwide lack of
therapy pools and deep, warm water pools limit
programming. SBRC’s lap pool is heavily utilized
so warmer temperatures would not necessarily
mean expanded programs. The gymnasium
is heavily utilized by pickleball. SBRC’s dance
room and multi-purpose room meet some of the
growing needs for fitness classes. Staff desire to
convert the racquetball court into a flexible fitness
space. Modern cardio equipment is getting larger,
requiring higher ceilings and more expansive areas,
which the court area could support, although the
room aesthetic and acoustics may be
a limiting factor.
South Boulder Recreation Center
119
LOCAL TRENDS: PROGRAMS
1 Youth and Family Programs are Popular
Youth and family programs are continually
requested and special events, including the
Halloween Drive-In Movie, have been more popular
than expected. Parents in Boulder and surrounding
communities are yearning to get their kids outside
or in recreation programs/camps to interact with
others.
2 Increasing Demand for Older
Adult Programming
Demand is increasing, and older adults are coming
back at unexpectedly higher rates because BPR
provides opportunities for recreation activities and
social engagement in a controlled environment.
3 Increasing Demand for
Wellness Programs
Health and wellness programming interest (mind,
body and spirit integration) is expected to trend
upward, due to modern day stressors and anxiety
about the post-COVID-19 pandemic landscape.
4 Increasing Volunteerism
Volunteer hours are up as the city and BPR invest
in staff capacity to design and deliver quality
volunteer programs. Volunteers are leaders within
the community, providing valuable stewardship for
public spaces while building community.
40 | Where We Are Today
Top to Bottom: EXPAND Goat Therapeutic Recreation;
Older Adult Cardio Class; Restorative Yoga; Valmont
City Park
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Where We Are Today | 41
programs
Recreation Programs are the planned activities in the BPR system
that provide instruction, socialization, competition and learning
to a wide range of community members and visitors to Boulder. In
2019, BPR welcomed 512,420 visitors to three recreation centers.
Registration and usage fluctuated dramatically in 2020 due to public
health orders and facility closures. Enrollment in all BPR program
areas decreased and organized team sports were paused for most
of 2020. With the first rollout of vaccines and as public health
limitations eased in 2021, BPR has experienced a steady increase in
program use at outdoor facilities, including pools and tennis courts,
and indoor facilities.
recreation programs inventory & enrollment
BPR offers many programs and classes. While popular, from 2017-
2019, there was a decline in program enrollment overall. Two areas
in particular, Gymnastics and Special Events programming saw
steady decline over these three years. For gymnastics in particular,
the decrease in registrations is primarily due to a shift in how
competitive-level gymnastics are provided and supported through
a partnership with Go Flyers, a booster organization. EXPAND
and YSI are unique programs offered by BPR. EXPAND provides
recreation programming for people with disabilities. YSI provides
recreation programming for youth from families with low incomes.
Even with decreasing enrollment, BPR’s Gymnastics and Aquatics
programs have the highest enrollment numbers, closely followed
by EXPAND, YSI and Sports programs. Gymnastics and sports
programs and services can be considered recreational and exclusive
activities that should produce more revenue than programs like
EXPAND and YSI, which are considered community benefit
services.
COMMUNITY BENEFIT SCALE
Who does BPR serve?
The entire Boulder community.
How are services funded?
A combination of taxes and user fees.
Community Individual
Taxes UsersBalance
Low income
community
members and
those with
disabilities
Adult sports
programs &
advanced
participatnts
Youth sports
participants
& beginners
121
programs prioritization & community benefit
Assessing programming relies more heavily on qualitative data
like trends and community input. It is important to look at what
happened to programs during 2020, even though the data is skewed
due to the COVID-19 pandemic. This data helps BPR understand
how and if BPR should bring back previous programming.
Community members are generally satisfied with BPR
programming, but many feel BPR should provide programs
residents desire, regardless of whether they are provided by other
entities. This has implications for how BPR selects, prioritizes and
offers contracted programming and in-house programming moving
forward.
Community members confirmed that BPR should continue to
prioritize programming that serves low-income residents, people
with disabilities, older adults, and youth. Approximately 50% of
survey respondents consider older adults, teenagers, and children
as essential groups to serve, while only one third of respondents felt
it was essential or very important to provide programs for visitors
and tourists. When asked where they felt spending their tax dollars
made the most impact, community members indicated that youth
and older adults continue to be priorities. Spending tax dollars to
support teens, people living with disabilities and income-based
financial aid were also supported by community members.
Financial Aid Sources
Financial aid for BPR programming and services is available through
General Fund subsidy and partially supported through an annual
competitive grant from the city’s Health Equity Fund. Additionally,
BPR accepts the PLAY Boulder Foundation’s PLAYpass. These
sources help BPR provide core community benefit services.
»Financial Aid Program: This program is funded through a BPR
general fund subsidy to community members who qualify based
on income, and covers up to 100% of fees for recreation facility
access and 50% of program fees. The fees for recreation facility
entry are partially funded through general fund subsidy (50%)
and combined with a ‘Recquity Program’ grant from the Health
Equity Fund (50%) to fully subsidize recreation facility access for
low income community members.
»PLAYpass Program: The PLAY Boulder Foundation’s PLAYpass
program aims to reduce barriers to fee-based participation in
recreation and sport programs. It provides low-income youth
with $250 program credit annually towards reduced fees. To be
eligible, individuals must be a City of Boulder resident, between
desired community
programming
BPR staff and stakeholders are hearing
from community members that the
following programming is desired:
• Outdoor progamming,
especially youth team
sports and camps
• Childcare
• Pottery lab and arts
programs
• Everyday activities within
walking distance of where
people live
• Warm water pool activities
for older adults
• Tennis and pickleball
87%
Themed special events
87%
Team sports
87%
Social recreation events
82%
Fitness improvement classes
81%
Health and wellness education
nrpa 2021 agency
performance review
According to the NRPA’s 2021 Agency
Performance Review, the top five
programming activities most frequently
offered by municipal parks & recreation
departments include:
42 | Where We Are Today
122
the ages of 0-17 years, and must be able to provide proof of
participation in an assistance program.
BPR Community Liaison staff help provide enrollment services,
programming, and interpretation for Spanish speaking community
members who qualify for aid. Both the PLAYpass and community
liaison programs are funded through the Health Equity Fund (HEF).
While these programs are relatively successful, and financial
assistance helps to reduce certain barriers, aid should strive to be
coupled with methods to help reduce other types of barriers to
access, including cultural and transportation obstacles.
Financial Aid Program and Process Improvements
Finanical aid programs and processes can often be complicated.
BPR has worked for several years now to streamline the process
for community members who qualify. With room to continue
improving, enhancements since 2014 include:
»Automatic qualification for residents of Boulder Housing Partner
low-income sites
»Automatic qualification for participants of the PLAY Boulder
Foundation’s PLAYPass program
»The ability to apply and renew for the program via online
formstack (provided in both English and Spanish)
»Inclusion of the financial aid program in the citywide Boulder
for Me/Boulder Para Mí services eligibility tool developed in
partnership with Google.org
»The creation of a process for partner agencies to assist in the
verification of residency of clients in temporary or short-term
residential programs.
statistically valid survey
results: importance of providing
recreation programs for various
population groups
The top five groups respondents feel
programming is either essential or very
important for include:
statistically valid survey results:
prioritizing taxes for user groups
People with Disabilities
Essential: 61%
Very Important: 31%
Older Adults (60+ years)
Essential: 53%
Very Important: 35%
Teenagers (ages 13-19)
Essential: 53%
Very Important: 34%
Children (up to age 12)
Essential: 52%
Very Important: 34%
People with Low Incomes
Essential: 66%
Very Important: 23%
Where We Are Today | 43
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44 | Where We Are Today
Financial Overview
2021 BPR FUNDING SOURCES
RECREATIONAL ACTIVITY FUND (RAF): $10,126,789 FUND OUTLOOK
A special revenue/quasi-enterprise fund that is specific to the Parks and Recreation
Department. The fund is the primary funding mechanism used to support recreation
centers and facilities, and subsidize fees for services related to the provision of
recreation, reservoir and golf course services/programs that do not cover all their
direct costs. The fund is supported through user and participation fees, grants
and donations, and an annual subsidy transfer from the General Fund. In 2022, the
General Fund provided a $2.1 million subsidy.
Funding from the RAF is predicted to remain mostly flat over the
next five-year-period. Because the RAF is funded primarily through
fee revenues, the continued reduction of programs and services
are likely to have a significant impact on the health of the fund
moving forward, while the reintroduction of services will have
positive impact of the health of the fund. Additionally, because the
fund is supported in part through an annual transfer from the city’s
General Fund, changes in the city’s economic position may result in
decreased financial support.
0.25 CENT SALES TAX FUND: $8,119,584 FUND OUTLOOK
A special revenue fund that is specific to the Parks and Recreation Department. The
fund is primarily supported through a designated sales tax that was approved by
voters in 1995. In 2013 voters renewed the sales tax through 2035, with 85% of votes
supporting the tax. The fund supports multiple aspects of the department, including
operations and maintenance, administrative support services, renovation and
refurbishment, and capital improvements.
Funding from the 0.25 Sales Tax Fund is predicted to grow based on
sales and use tax projections at a slightly higher rate than inflation.
However, increases to sales tax revenue and growth of the fund
account associated with population growth are minimal and remain
mostly even with increases due to inflation.
GENERAL FUND: $4,057,219 FUND OUTLOOK
The city’s largest fund that serves as the primary funding source for most
governmental services. BPR uses its portion for park operations, forestry and
department administration. The general fund is mostly supported through a blend
of taxes, permits, fees, and intergovernmental transfers. As a result of the fund’s
heavy reliance on tax revenue and pressures from other city departments, the
fund’s revenues, and ability to contribute to the department’s budget can fluctuate,
although it has been relatively stable over the years.
BPR’s General Fund allocation is projected to increase minimally over
the next five-years. While funding is anticipated to grow, there exists
much uncertainty around the city’s economic position and revenue
streams. Because the General Fund is the primary funding source for
most city services, the fund’s ability to support BPR’s budget may
shift drastically on a year-by-year basis due to change in the city’s
economic position, pressures from other city departments, and City
Council priorities.
PERMANENT PARKS & RECREATION FUND: $3,625,061 FUND OUTLOOK
A fund specific to the Parks and Recreation department, this source of funding is
permanent according to the City of Boulder’s charter and is supported through
earmarked property tax revenues, with the Parks and Recreation Department
receiving $0.01 for every dollar of property tax collected by Boulder County.
These funds are limlited to the acquision or permanent improvement of parkland,
renovations, and refurbishment of recreation facilities, and is a source of funds for
capital improvements.
Funding from the Permanent Parks & Recreation Fund is projected
to gradually grow over the next five-year-period. While the fund’s
reliance on property tax revenues makes it susceptible to regional
and national economic shifts, property taxes in the city are
projected to grow at an annual average rate of percent from 2022-
2026. Because this fund is a primary source of revenues for Capital
Improvement Projects, any change in revenues may adversely
impact the department’s ability to address the safety, maintenace
and accessibility needs of its assets.
LOTTERY FUND: $428,000 FUND OUTLOOK
A special revenue fund that accounts for State Conservation Trust Fund proceeds
that are distributed to municipalities on a per capita basis. Money from the Lottery
Fund must be used only for the acquisition, development, and maintenance of new
conservation sites or for capital improvements or maintenance for recreational
purposes on any public site.
Lottery fund funding is projected to remain constant through 2026.
Because funding allowances are calculated on a per capita basis,
as the population of Boulder continues to shift, funding allocated
through the lottery fund will continue to align with the population of
Boulder.The city tree canopy includes
many large ash trees.
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Where We Are Today | 45
37%37%
30%30%
15%15% 13%13%
2% 2%
2021 BPR FUNDING SOURCES
RECREATIONAL ACTIVITY FUND (RAF): $10,126,789 FUND OUTLOOK
A special revenue/quasi-enterprise fund that is specific to the Parks and Recreation
Department. The fund is the primary funding mechanism used to support recreation
centers and facilities, and subsidize fees for services related to the provision of
recreation, reservoir and golf course services/programs that do not cover all their
direct costs. The fund is supported through user and participation fees, grants
and donations, and an annual subsidy transfer from the General Fund. In 2022, the
General Fund provided a $2.1 million subsidy.
Funding from the RAF is predicted to remain mostly flat over the
next five-year-period. Because the RAF is funded primarily through
fee revenues, the continued reduction of programs and services
are likely to have a significant impact on the health of the fund
moving forward, while the reintroduction of services will have
positive impact of the health of the fund. Additionally, because the
fund is supported in part through an annual transfer from the city’s
General Fund, changes in the city’s economic position may result in
decreased financial support.
0.25 CENT SALES TAX FUND: $8,119,584 FUND OUTLOOK
A special revenue fund that is specific to the Parks and Recreation Department. The
fund is primarily supported through a designated sales tax that was approved by
voters in 1995. In 2013 voters renewed the sales tax through 2035, with 85% of votes
supporting the tax. The fund supports multiple aspects of the department, including
operations and maintenance, administrative support services, renovation and
refurbishment, and capital improvements.
Funding from the 0.25 Sales Tax Fund is predicted to grow based on
sales and use tax projections at a slightly higher rate than inflation.
However, increases to sales tax revenue and growth of the fund
account associated with population growth are minimal and remain
mostly even with increases due to inflation.
GENERAL FUND: $4,057,219 FUND OUTLOOK
The city’s largest fund that serves as the primary funding source for most
governmental services. BPR uses its portion for park operations, forestry and
department administration. The general fund is mostly supported through a blend
of taxes, permits, fees, and intergovernmental transfers. As a result of the fund’s
heavy reliance on tax revenue and pressures from other city departments, the
fund’s revenues, and ability to contribute to the department’s budget can fluctuate,
although it has been relatively stable over the years.
BPR’s General Fund allocation is projected to increase minimally over
the next five-years. While funding is anticipated to grow, there exists
much uncertainty around the city’s economic position and revenue
streams. Because the General Fund is the primary funding source for
most city services, the fund’s ability to support BPR’s budget may
shift drastically on a year-by-year basis due to change in the city’s
economic position, pressures from other city departments, and City
Council priorities.
PERMANENT PARKS & RECREATION FUND: $3,625,061 FUND OUTLOOK
A fund specific to the Parks and Recreation department, this source of funding is
permanent according to the City of Boulder’s charter and is supported through
earmarked property tax revenues, with the Parks and Recreation Department
receiving $0.01 for every dollar of property tax collected by Boulder County.
These funds are limlited to the acquision or permanent improvement of parkland,
renovations, and refurbishment of recreation facilities, and is a source of funds for
capital improvements.
Funding from the Permanent Parks & Recreation Fund is projected
to gradually grow over the next five-year-period. While the fund’s
reliance on property tax revenues makes it susceptible to regional
and national economic shifts, property taxes in the city are
projected to grow at an annual average rate of percent from 2022-
2026. Because this fund is a primary source of revenues for Capital
Improvement Projects, any change in revenues may adversely
impact the department’s ability to address the safety, maintenace
and accessibility needs of its assets.
LOTTERY FUND: $428,000 FUND OUTLOOK
A special revenue fund that accounts for State Conservation Trust Fund proceeds
that are distributed to municipalities on a per capita basis. Money from the Lottery
Fund must be used only for the acquisition, development, and maintenance of new
conservation sites or for capital improvements or maintenance for recreational
purposes on any public site.
Lottery fund funding is projected to remain constant through 2026.
Because funding allowances are calculated on a per capita basis,
as the population of Boulder continues to shift, funding allocated
through the lottery fund will continue to align with the population of
Boulder.
Recreation Activity Fund (RAF)
.25 Cent Sales Tax Fund
General Fund
Permanent Parks & Recreation Fund
Lottery Fund
DIVERSE FUNDING
BPR is funded through a diverse set
of city funds that include capital
project funds, special revenue funds,
enterprise funds, and government
funds. BPR maintains a balance of
monies within each fund, meaning that
expenditures from each fund may be
higher or lower than the fund’s annual
revenues. Revenues from each fund
are contributed on an annual basis to
support BPR’s operating budget.
2021 operating budget
& primary funding sources
$29,936,362
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46 | Where We Are Today
operations & maintenance (o&m) budget
current state
As of 2021, BPR manages over 100 facilities and parks on
1,861-acres of land. As part of the 2022 Master Plan process, BPR
assets were re-evaluated to determine their present-day Current
Replacement Value (CRV). In addition to updating the CRV, each
facilities’ backlog of maintenance was calculated to determine the
Facility Condition Index (FCI). This assessment and analysis was
completed with the data and assumptions that are available now,
but is not a detailed assessment of every asset. As BPR continues to
implement the Asset Management Program (AMP) and complete
more detailed condition assessments, the CRV and backlog values
will be updated.
BPR’s CRV has increased from $226 million in 2016 to a 2021 value
of $298.4 million. Increases to CRV are due to the construction of
new facilities, the inflation of costs within the construction industry,
increases to materials costs, and a better understanding of assets
since the 2016 CRV numbers were developed. As of 2021, there is
an estimated total maintenance backlog of $20.5 million. Using
the updated 2021 CRV and backlog maintenance numbers, an FCI
of 0.069 was calculated. The 0.069 FCI places BPR in the Good to
Excellent range of the industry standard for asset condition values.
outlook
The city’s Capital Improvement Program (CIP) guidelines prioritize
the maintenance of current assets over the development of new
facilities. Through the planning process, the community has
indicated strong support for this prioritization. Based on current
economic conditions, revenue and expenditure projections, funding
is not sufficient to maintain all existing system assets and build new
park and recreation facilities unless comparable trade-offs occur.
BPR is currently not meeting the goal set by the 2016 Capital
Investment Strategic Plan of spending between 2-3% of CRV
annually on capital repairs and replacement. The target (between
2-3% ) is a best practice recommendation by the National
Academies of Science, Engineering and Medicine, and also is the
target established in the city’s Facilities Master Plan. For analysis
related to this Master Plan, a target of 2.5% of CRV was established
as it is a midpoint between low and high recommended O&M
expenditures.
This shortfall in capital is experienced only when BPR funds are
considered, and does not include other one-time infusions of
cash, such as the specific voter-approved tax initiatives, which are
unpredictable and vary year-to-year. When updated to account
FINANCIAL GLOSSARY
Asset Management Program (AMP): A proactive
and systematic approach to managing the BPR’s
inventory of assets. Assets tracked under the AMP
include only assets maintained, and purchased by
BPR, and a large inventory of building and facility-
related assets for properties like recreation centers
and aquatic facilities.
Capital Improvement Plan (CIP): An internal BPR
plan that identifies capital projects to be completed
on a rolling five-year basis.
Current Replacement Value (CRV): The total value
of an asset in present day dollars.
Operations & Maintenance (O&M): the functions,
duties and labor associated with daily operations.
R&R (Restoration & Refurbishment): Personnel
and non-personnel expenses associated with the
operation and maintenance of the city’s parks and
recreation facilities. These costs are incurred daily
and include: staff; materials and supplies; financial,
utilities and water fees; custodial services.
Capital Investment Strategic Plan: A strategic
plan developed in 2015 that quantifies what
assets BPR owns, the value of assets within
BPR’s portfolio, the condition of assets and their
remaining service life, and any infrastructure
funding gaps that may exist.
System Assets: The physical assets with the parks
and recreation system.
Facilty Condition Index (FCI): A scoring
methodology used to assess an asset’s overall
condition and prioritize limited funds for critical
capital repairs and/or replacement.
Asset Condition Value: Scoring criteria related to
an asset’s FCI. Values range from 0.00 (excellent) to
1.0 (terrible). The goal of BPR is to reach a desired
FCI for built assets between 0.06 and 0.08..00 EXCELLENT .05 .07 GOOD .10 .1 5 FAIR .18 .25 P
O
O
R .3
5 .50 SERI
OUS 1.0 BPR Facility Condition Index (FCI) Score of 0.069 is in
the Good to Excellent range of the industry standard
for asset condition values.
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Where We Are Today | 47
OTHER FUNDING SOURCES
Three additional sources contribute to BPR’s
annual funding. All three funds have been
used for capital improvement projects for
BPR facilities as well as land acquisitions for
additional parks space throughout the city.
»Capital Development Fund:
Accounts for development fee proceeds to
be utilized for the acquisition, construction,
and improvement of facilities necessary
to maintain the current level of public
amenities such as police, fire, library, human
services, municipal offices, streets, and
parks and recreation.
»Community, Culture, Resilience and
Safety Tax:
Ballot initiative approved in 2017 that
extended 0.3% sales and use tax to raise
funds for a specific list of city facility and
infrastructure projects, including the Scott
Carpenter Pool and Visitor Services Center
at the Boulder Reservoir. This tax was
reapproved in 2021 by voters for 15 years.
»Boulder Junction Improvement Fund:
Created in 2012 to fund land acquisition and
facility development in the Boulder Junction
area. The fund was supported through
excise tax and construction-use tax. This
funding will be used to build the Boulder
Junction Pocket Park in the near future.
for the total 2021 CRV of $298.4 million, BPR should be spending
between $6 and $9 million annually on capital renovation and
refurbishment projects. Between 2016 and 2020, BPR spent on
average $5.6 million, or 1.9% of CRV, on capital improvements
through renovation and refurbishment of facilities. To meet the
recommended level of spending, BPR would require an additional
$1.9 million to reach its targeted expenditure level of $7.5 million,
or 2.5% of CRV. When one-time infusions of cash are included in
analysis, BPR does reach its targeted capital expenditure level
of $7.5 million, however, these one-time infusions support only
action level capital improvements and not basic capital repairs and
renovations. Simply, funds are dedicated toward enhancements
before addressing backlog.
The urban canopy is not included in BPR’s CRV because the city’s
public trees are an asset that appreciates over time – as trees
mature and grow, they become more valuable whereas the rest of
the built environment depreciates as it ages. Boulder’s 2018 Urban
Forestry Strategic Plan identified that for Boulder to invest in the
urban canopy at per capita and per tree levels as recommended, an
additional $500,000 is required annually.
BPR has experienced a similar shortfall of funds spent on annual
O&M expenditures. Based on the 2021 CRV of $298.4 million
and the industry standard of allocating approximately 4% of CRV
to O&M or ongoing preventative maintenance, BPR should be
spending approximately $11.9 million on O&M. Between 2016 and
2020 BPR spent on average $8.6 million, or 2.9% of CRV on O&M,
resulting in a $3.3 million gap between current and recommended
O&M expenditures.
A funding gap of approximately $1 million for recreation
programming was also identified to maintain and sustain the
current levels of community benefit programming while addressing
affordability issues for lower income residents. Within this $1 million
gap, there are three specific priority areas. Based on community
input about how programming and access should be funded for
specific age groups (youth and older adults), there is a need for
$590,000 to fund these types of age-based discounts for these
two groups. Providing financial aid to support affordability for
individuals and families with low incomes requires an additional
investment of $250,000. Two extremely popular and important
programs provided by BPR, EXPAND for individuals living with
disabilities and the Youth Services Initiative (YSI) serving youth
from low-income families, require $212,000 to continue to support
these community members.
To meet recommended spending goals for capital projects and
O&M, BPR would have required, on average, an additional $5.2
million annually between 2016 and 2020.
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48 | Where We Are Today
$0 .5M $35M
$30M
$25M
$20M
$15M
$10M
$5M
$0 $3 .5 M
$9 .9M
$11 .9M
4% of CRV
$7 .5 M
2.5% of CRV
TOTAL: $33 .3 M
$3 .5 M
$8 .9M
$8 .6M
2.9% of CRV
$5 .6M
1.9% of CRV
$2M
TOTAL: $28 .6M
Capital Gap
$1 .9M
O&M Gap
$3 .3 M
Programming Gap
$1M
CURRENT
FUNDING
RECOMMENDED
FUNDING
CURRENT FUNDING VERSUS RECOMMENDED FUNDING
The figure above illustrates the average of 2016 though 2019 funding levels
for current practices and the recommended spending based upon the
department’s portfolio of assets and best practices in asset management,
as well as providing ongoing and increased funding for community benefit
programming. The total funding gap identified through data gathering
and research is $6.7 million annually, but with approximately $2 million in
currently unallocated funding, the unrealized funding gap is approximately
$4.7 million.
To quantify gaps in funding for targeted capital repair and replacement, an
analysis was performed that looked at current projected capital expenditures
from 2022 through 2027. These expenditures were compared with updated
targets for repair and replacement based off updated 2021 CRV estimates.
The results of the analysis, illustrated in Table 10: Additional Funds Required
to Meet Capital Repair and Replacement Targets, show that for nearly
every year through 2027, BPR requires additional funds to meets its capital
repair and replacement goals. Due to the method by which BPR tracks CRV,
appreciation is based on the current replacement value for the same asset
in present day costs, and as a result BPR’s assets appreciate over time. As
BPR’s asset portfolio continues to appreciate, and as assets continue to age,
increasingly more funds will be required to maintain its assets.
programming & capital budget
current state
BPR has made significant strides since the 2014 Master Plan in improving
the department’s approach to cost recovery, capital planning, program
Unallocated
Forestry Unfunded
Combined CIP and R&R
Operations & Maintenance
Rec Programs & Services
Administration
Source: BPR Budgets
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Where We Are Today | 49
Table 10: Additional Funds Required to Meet
Capital Repair and Replacement Targets
Recommended 2% of CRV: $6M
Expenditures 3% of CRV: $9M
2022 Projected Expenditures $4.2M
to meet 2% goal +$1.8M
to meet 3% goal +$4.8M
2023 Projected Expenditures $4.1M
to meet 2% goal + $1.8M
to meet 3% goal +$4.8M
2024 Projected Expenditures $5.2M
to meet 2% goal +$793K
to meet 3% goal +$3.8M
2025 Projected Expenditures $2.4M
to meet 2% goal +$3.5M
to meet 3% goal +$6.5M
2026 Projected Expenditures $6.1M
to meet 2% goal $-
to meet 3% goal +$2.9M
2027 Projected Expenditures $3.6M
to meet 2% goal +$2.3M
to meet 3% goal +$5.3M
Source: BPR CIP Worksheet
prioritization and asset management. While BPR has consistently
met the public expectations around programs and facilities,
increased financial pressure from aging assets, deferred capital
projects, increasing personnel and operating costs and unfunded
capital projects will require increasing cost recovery and revenue
generation wherever possible. BPR must continue to pursue
cost recovery within its programs and creative means of revenue
generation to close funding gaps, remain financially sustainable, and
provide services to the community.
Revenues from BPR’s funding sources have remained mostly
constant between 2016 through 2021. The lack of revenue
increases creates a challenging operating environment for BPR as
departmental overhead and expenditures rise on a near annual
basis due to inflation. As BPR’s operating costs, list of backlogged
maintenance, and unfunded capital projects continue to grow,
BPR’s need for additional revenue from stable funding sources will
continue to grow.
While BPR’s funding from 2016 through 2021 has remained mostly
flat, expenditures have risen on an almost annual basis. Revenues
have decreased, on average 0.4%0 since 2016 while expenditures,
including capital, have increased on average, 7.3%. Not including
capital, expenditure growth averages approximately 1% per year
for a total increase of 2.5% between 2016 and 2021. While most
BPR funds carry a cash balance enabling yearly expenditures to
exceed yearly revenue, the significant imbalance between the
annual growth of revenues and annual growth of expenditures
is not sustainable. In addition to expenditure increases due to
inflation, BPR is faced with the increasingly difficult challenge of
managing rapidly rising personnel, maintenance, energy, materials,
operational costs, aging infrastructure and facilities, and a growing
demand for parks and recreational amenities.
outlook
Revenues from BPR’s funding sources are projected to remain
mostly flat over the next 5-year period, increasing on average
2.8% annually through 2026. Behavioral changes recently brought
on by the COVID-19 pandemic have altered retail spending, work
habits, recreational habits, and other fee and tax generating
activities, negatively affecting funding streams used for operations,
maintenance, and capital improvements. Both the city and the
department have taken conservative approaches to budgeting and
fund forecasting, prioritizing equitable service delivery of existing
programs, maintenance of staffing levels to support needed levels
of service and programming, and critical capital infrastructure
projects.
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50 | Where We Are Today
Table 11: BPR Projected Funding & Expenditures, 2022-2026
illustrates BPR’s projected funding and expenses through 2026.
Based on these projections, BPR is anticipated to have a minor
budget surplus through 2025 and a minor budget shortfall in 2026.
It is important to note that while BPR is anticipated to have a minor
surplus, projected expenditures do not account for the additional
funds required to meet asset management targets for Operations
and Maintenance (O&M) and Repair and Refurbishment (R&R) or to
achieve goals established with the 2022 Master Plan.
As indicated by the imbalance of BPR’s projected average annual
expense growth rate (5.8%) and projected funding growth rate
(2.8%), funds required to meet 2021 CRV repair and replacement
goals and annual O&M spend goals, $20.6 million in backlogged
maintenance, and approximately $177.9 million in unfunded capital
projects, BPR is faced with the challenging task of continuing to serve
the community and operate its facilities with an increasingly strained
budget. BPR must be prepared to identify and implement other
revenue generating activities and/or strategies in the coming years to
supplement its current funding sources.
Table 11: BPR Projected Funding & Expenditures, 2022-2026
PROJECTED
SOURCE
OF FUNDS 2022 2023 2024 2025 2026
AVERAGE
ANNUAL
GROWTH RATE:
2022-2026
General Fund $6,022,134 $6,160,678 $6,302,410 $6,447,403 $6,447,403 1.7%
Permanent Parks
and Recreation Fund $3,768,701 $3,814,229 $3,999,724 $4,037,548 $4,246,162 3.0%
Recreation Activity
Fund (RAF) $10,363,792 $10,592,911 $10,917,767 $11,163,416 $11,539,680 2.7%
.25 Cent Sales Tax
Fund $8,540,881 $8,916,426 $9,315,081 $9,638,130 $9,893,899 3.7%
Lottery Fund $428,000 $428,000 $428,000 $428,000 $428,000 0.0%
TOTAL $29,123,508 $29,912,244 $30,962,982 $31,714,497 $32,555,144 2 .8%
PROJECTED
USE
OF FUNDS 2022 2023 2024 2025 2026
AVERAGE
ANNUAL
GROWTH RATE:
2022-2026
Personnel $13,939,444 $14,636,416 $15,368,237 $16,136,649 $16,943,481 5%
Operating $7,245,813 $7,535,646 $7,837,071 $8,150,554 $8,476,577 4%
Interdepartmental
Charges $865,000 $890,950 $917,679 $945,209 $973,565 3%
Capital $4,178,000 $4,180,000 $5,177,000 $2,436,000 $6,092,000 N/A*
TOTAL $26,228,257 $27,243,012 $29,299,987 $27,668,412 $32,485,623 5 .8%
PROJECTED
AVAILABLE FUNDING $2,895,251 $2,669,232 $1,662,995 $4,046,085 ($69,521 )
Source: City of Boulder Budget, 2021
NOTES: *Capital budget information extracted from the 2022 BPR Capital Improvement Plan. Due to significant fluctuations in year over year
in capital expenditures, average annual growth rate for capital is not a reliable metric.
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Where We Are Today | 51
Six Key Themes were developed for the 2014 Master Plan, based on community input. These themes are still
important to community members, and BPR will continue to use them as a way to organize goals and initiatives for
the future. The department will have to make difficult decisions around how to prioritize limited funding to be most
impactful in each of these areas. The following key issues and observations helped guide the 2022 master planning
process.
The comments below regarding each Key Theme were shared by community members on BeHeardBoulder during
Engagement Window 1.
Key Issues & Observations
TAKING CARE OF WHAT WE HAVE
Boulder has a good thing going. BPR should
continue to focus on keeping existing parks and
facilities clean and safe, and upgrading only as
necessary. “Quality over quantity” should be
BPR’s focus.
BUILDING COMMUNITY
& PARTNERSHIPS
A focus on building community and
relationships helps to strengthen and
promote a diversity of users through
inclusion and accessibility.
FINANCIAL SUSTAINABILITY
At the most fundamental level, financial
sustainability is necessary for the parks
and recreation system to function well and
is extremely important to future planning
efforts.
ORGANIZATIONAL READINESS
Change is inevitable and
organizational readiness is important
to face this change successfully and
continue to thrive.
YOUTH ENGAGEMENT & ACTIVITY
Participating in parks and recreation
activites teach youth to be proud
stewards of our environment and
allow for the discovery of new
passions and hobbies.
COMMUNITY HEALTH
& WELLNESS
Benefits of parks and recreation
include increased physical and mental
health, which in turn helps decrease
pressure on the healthcare system.
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52 | Where We Are Today
COMMUNITY HEALTH & WELLNESS
Mind Body fitness programming
is important for overall health.KEY ISSUES & OBSERVATIONS
»BPR is exceeding both national and Colorado
median LOS for most parks and recreation
asset types, and provides the community
with accessible, flexible and safe services,
engaging community members, encouraging
physical activity and positively impacting social
determinants of health.
»Boulder is growing. With this growth comes
continuously dropping LOS as they relate to an
acres or facilities per capita analysis. Because
growth boundaries limit the ability to add
parkland, Boulder must decide how to continue
to best serve current and future community
members.
»There is agreement in the community that
subsidies should be provided for older adults,
youth, low-income community members,
people with disabilities and underrepresented
communities.
»BPR has recently seen high levels of increased
use, as well as increased use from surrounding
communities. O&M resources and capacity are
strained due to high usage and certain behaviors
including illegal activities and use of parkland for
camping. At times parks facilities must be closed
due to misuse and vandalism. These stressors
impact BPR’s ability to provide core services.
»The cost of living in Boulder is high. While equity
is critical to the BPR’s mission, if affordability
and accessibility are not meaningfully addressed
at a higher level, many community members
who are not currently being served adequately,
will continue to be underserved, especially
lower- and middle-income families. The cost of
living also impacts BPR’s ability to retain staff
who actually live in the community they serve.
»Reassessing the metrics used to determine LOS
and how it is measured are issues parks and
recreation departments are facing throughout
the country. Using a clear methodology that
weaves equity and resilience into each metric
is key to success and a more nuanced approach
could serve the diverse needs of the community
in a more meaningful way.
»Expanding partnerships and looking at
innovative ways to address trends and
challenges can help BPR support equity of
access to parks and facilities, and ensure
Boulder remains a physically and mentally
healthy community with a high quality of life.
»Community members and staff have expressed
interest in more flexibility in terms of scheduling
classes, utilizing certain portions of recreation
center facilities as flex spaces, and creating
more targeted programming in real time as user
interests change.
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Where We Are Today | 53
FINANCIAL SUSTAINABILITY
KEY ISSUES & OBSERVATIONS
»While cost recovery has been improved,
revenues from funding have remained relatively
flat. The lack of revenue increases creates
a challenging operating environment as
departmental overhead and expenditures rise
on a near annual basis due to inflation. The trend
of fund expenditures outpacing revenues is
projected to continue, with BPR’s fund revenues
projected to grow on average 2.8% through
2026, while expenditures are projected to grow
5.8% during the same period.
»Ninety-five% of survey respondents support
maintaining current funding sources, while only
45% support implementing a new sales tax. As
is the case throughout the country, BPR will
need to continue to try to find ways to creatively
achieve financial sustainability. Closing the gaps
in recommended funding levels for operations
& maintenance and capital improvements is key
to long-term financial sustainability and BPR’s
ability to fulfill its mission. Parks are having
to work harder to serve a growing, diverse
population, as well as users from surrounding
communities. This means that amenities are
being used more often and by more people than
their planned for life cycles.
»The implementation of BPR’s methodologies to
prioritize the relative importance of programs
and include data that help set fee structures
and cost recovery rates, allows the department
to set clear goals for cost recovery that have
boosted the recovery ratio overall. BPR has been
able to increase cost recovery significantly, from
an average cost recovery of 83% between 2007
and 2011, to an average of 90% between 2017
and 2019.
Creekside Concerts & Movies in the Park are great
opportunities for people to get outside and get together.
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54 | Where We Are Today
TAKING CARE OF WHAT WE HAVE
KEY ISSUES & OBSERVATIONS
»Overall, community members feel BPR parks
and facilities are in good condition and staff are
doing a great job given constrained resources
and that “taking care of what we have” is a high
priority. Community members are generally
happy with facilities, but current O&M levels of
service are not keeping up with needs in parks
and public spaces. BPR relies on volunteerism
to bridge this gap, through programs like Parks
Champs—especially when it comes to general
park maintenance and cleanup projects. Even
with this help, many parks have unmaintained
areas due to lack of capacity and resources.
»While BPR is currently meeting the goal set
by the 2016 Capital Investment Strategic Plan
of spending between 2-3 %, or $4-6 million
annually, on capital repairs and replacement,
BPR is falling behind targeted capital spending
when accounting for the total 2021 CRV of
$298,476,655. Based on the updated 2021 total
asset CRV, BPR should be spending between $6
million and $9 million annually on capital repairs
and replacement.
»Operations and capital costs continue to rise,
creating an ever-larger gap in BPR’s budget and
ability to take care of assets for their complete
life cycles.
»Taking Care of What We Have includes
stewarding the natural systems in the city and
making strides to continually better manage
native ecosystems, including riparian and
wetland areas, and the urban tree canopy. It also
means making facility upgrades that help meet
citywide climate goals that are critical for future
resiliency.
»BPR is a leader in sustainability, climate
initiatives and ecosystem services. Staff work
to help mitigate against certain aspects of
climate change through a variety of practices,
including water wise irrigation practices,
carbon sequestration and cooling through plant
selection and maintenance and enhancement
of the urban tree canopy. Staff still need to
look even more holistically at programming,
facilities, internal operations and clean energy
transportation options in collaboration with
other city departments to continue to lower the
collective impact of these factors on climate
change.
The public urban tree canopy is a critical
component of the BPR system.
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Where We Are Today | 55
BUILDING COMMUNITY
& RELATIONSHIPS
KEY ISSUES & OBSERVATIONS
»Partnership opportunities with community
organizations are becoming increasingly
important, especially when considering BPRs
increased focus on equity and resiliency.
Partnering with municipalities, school districts
and nonprofits to develop joint use facilities or
programs is seen as a way to fill current gaps
in services and facilities. Community input
reveals that people are highly supportive of
partnering with private organizations to develop
recreational facilities or programs.
»Maintaining a resilient parks and recreation
system is more difficult today with decreasing or
flat budgets, less staff doing more work, climate
change impacts and population growth. BPR
cannot do it alone. Community relationships
and partnerships are critical to creating a truly
resilient and equitable system.
»BPR has great relationships with community
volunteers who are excited about helping
maintain and improve the parks and recreation
system. In the last five years, 2,424 volunteers
contributed 19,130 hours to parks and recreation
efforts (which equates to over $500,000
according to the current estimated national
value of each volunteer hour).
»Comparable parks and recreation organizations
interviewed as part of this planning process
indicated the need for a full-time staff member
to manage ongoing grant cycles and cultivate
related partnerships.
»Finding a more transparent avenue for
community members and organizations to offer
larger donations may help fill future funding
gaps.
Volunteers, here at Valmont Park, are key BPR partners .
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56 | Where We Are Today
YOUTH ENGAGEMENT & ACTIVITY
KEY ISSUES & OBSERVATIONS
»Youth and teens are important, but teens
identify as a separate group with unique needs
that BPR’s parks, facilities and programs should
strive to serve. There is a gap in service for teens
(14-18 years of age) who desire more volunteer
and leadership opportunities through BPR
services with their peers.
»The impacts of the COVID-19 pandemic,
increasing anxiety and depression among
Boulder teens and youth is a trend that is being
seen across the country. Good mental and
physical health are necessary for a high quality
of life. BPR can help improve both through its
services.
»Access to nature is an important aspect
of Boulder’s parks and recreation system,
especially for youth and teens. Since 2014, BPR
staff have developed programming that better
connects children to nature. Even so, while
Boulder is known for its outdoor lifestyle and
amazing natural landscape, there continues
to be a gap in connecting to nature “close to
home” due to limited access, safety and other
factors.
»Despite Boulder’s and Colorado’s leadership
in appreciating nature and active lifestyles,
no community is exempt from the concerns
regarding childhood inactivity and limited
access to the outdoors. According to recent
studies, Colorado has the fastest growing rates
of inactivity and obesity in the nation.
Summer AVID4 Adventure mountain biking camp
puts smiles on the faces of these young bikers.
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Where We Are Today | 57
ORGANIZATIONAL READINESS
KEY ISSUES & OBSERVATIONS
»BPR has implemented a variety of initiatives
to ensure staff are ready as an organization
to meet operations, maintenance and
programming needs. New software, service
delivery models, asset management tools and
training have helped ensure staff are ready
to meet current needs and are proactively
looking to the future. BPR has also been using
capital investment strategies that are proving
successful in managing assets more efficiently
and effectively and investing in capital projects
more strategically.
»The department needs to build in the ability to
adapt models and facility operations based not
only on data collected over time, but holistically,
based on data, user preferences, revenue
generation, and programming options to better
integrate flexibility into day-to-day operations
of programming and facilities.
»The COVID-19 pandemic has had a huge impact
on staff, including reductions in staffing levels,
capacity and funding. With the pandemic
impacts, keeping an engaged and motivated
workforce is more challenging but remains a top
priority.
»BPR does a great job of delivering high quality
parks, facilities and services to the Boulder
community. Internally, there are many disparate
resources that staff rely on, which at times are
hard to find or provide conflicting information.
This is in part due to recent staff reductions and
retirements, creating an institutional knowledge
gap that should be addressed.
»Staff have expressed interest in creating
standard operating procedures, cross-training,
continuing education and more alignment
across divisions. Team building exercises,
continued learning opportunities and skill
development are important to keeping staff
engaged in and excited about their work.
BPR staff members regularly check
in on BPRs outdoor spaces.
137
138
WHERE WE ARE
GOING
»Using data collected from research, community engagement and
policy direction from decision makers, including PRAB and City
Council, and guiding planning documents, BPR has developed a
roadmap to guide the department through the next five years. This
section details BPR’s strategic direction, including the policies, goals
and initiatives that will be pursued over the next five years.
Restore | Connect | Sustain
139
local trends: facilities
1 Increased Indoor and Outdoor
Recreation Demand
Once people discover the outdoors and recreation,
they are unlikely to return to the couch. While
demand has fluctuated recently, local and national
trends point strongly to increased, sustained
demand for indoor and outdoor recreation over
the long term with outdoor programs at or near
capacity, especially at pools and tennis courts.
2 Change in Daily Habits
The COVID-19 pandemic has changed the way
people work, recreate and exercise. Working
remotely has become a standard practice for
many. This impacts demand for and usage of BPR
services. People may be hesitant to come back to
indoor locations and may continue their increased
use of outdoor parks and natural areas. At the
same time, others may crave the social aspects of
in-person indoor classes and fitness programs they
have not had access to for months.
3 Balancing Equity with
Financial Sustainability
With budget and space limitations, BPR needs to
focus on prioritizing limited resources and capacity
on services with the highest community benefit.
Financial Aid provides access to BPR services
to low-income residents, but middle-income
community members wishing to access BPR
services often face financial barriers – particularly
for programs with high cost recovery goals.
60 | Where We Are Going
Top to Bottom: Boot Camp at East Boulder Community
Park; Summer Drama Camp; 2022 Master Plan
Stakeholder Meeting
140
Where We Are Going | 61
STRAGETIC DIRECTION
As mentioned in the first chapter, this planning process was a true
collaborative effort that has enabled BPR to formulate a strategic
direction for the next 5 years. Recommendations in this plan are
a product of extensive community engagement, research and
guidance from policy makers.
DECISION MAKING TOOLS
BPR utilizes a wide range of decision making tools for parks,
facilites, and program planning. These tools ensure that decisions
are data-driven and grounded in the needs of the community.
The following section details the decision making tools utilized
to provide guidance on how the department should prioritize its
limited funds and staff capacity.
recreation priority index (rpi)
The Recreation Priority Index (RPI) is a PRAB approved, master plan
directed tool that allows program managers and decision makers to
compare the relative importance of BPR programs in relation to one
another. In addition to prioritizing programs, the RPI methodology
allows BPR to set targets around cost recovery and pricing targets.
Since implementing the RPI program and Service Delivery Model,
BPR has been able to increase cost recovery significantly, from an
average cost recovery of 83% between 2007 and 2011, to an average
Strategic Direction & Decision making
CommunityEngagementPolicy Re
s
e
a
r
c
h
R e s i l i en ceEquity
Master Plan
Recommendations
Young explorers discovering new adventures at the Crestview Park playground.
141
of 90% between 2017 and 2019. This only
considers direct costs and does not consider
BPR’s allocation of indirect expenses by a
percent of total budget. When broken down
by program, BPR is achieving revenues in
excess of direct costs for both general and
adult programming such as Pilates, the
Reservoir, and gymnastics. Revenues from
these programs offset revenues lost by
community and recreational programs that
are not intended to achieve higher levels of
cost recovery, such as EXPAND/Inclusion,
Fitness, Mind and Body, and YSI.
Despite offset revenues from high-cost
recovery programs, BPR is still experiencing
a negative gap between yearly program
revenues and expenses. This shortfall is
due in part to targeted low-cost recovery,
community benefit programming such
as EXPAND/Inclusion and YSI programs
that are subsidized through the General
Fund. These programs are not intended
to be profitable and achieve intentionally
low levels of cost recovery. BPR’s program
revenue shortfall of $846,115 is primarily
due to program expenses outpacing
revenues, requiring BPR to consider one or
more of three options: increase program
fees, increase program subsidy, or adjust
service levels.
In addition to funds received through
programs achieving high-cost recovery, BPR
has successfully leveraged grants and other
forms of financial support to deliver certain
programs. Since 2017, BPR has successfully
increased grant funding, allowing for facility
access, EXPAND/Inclusion and YSI programs
to continue to benefit the community.
BPR Cost Recovery: 2008-2019
rpi: bpr service categories
Community
Services that enhance the health,
safety and livability of the
community and therefore require
minimal obstacles to participation.
Recreational
Services that benefit a broad range
of users and are targeted to promote
physical and mental well-being.
Exclusive
Services targeted to specific
individuals or user groups with
limited community benefit.
Community
Individual
High
Low
62 | Where We Are Going
Renew, Replace
Remove, Replace Watch, Maintain
Maintain Rigorously
100%
95%
90%
85%
80%
75%
70%
65%
60%2006 2008 2010 2012 2014 2016 2018 2020
85%84%84%
77%78%
93%
90%
94%Consequence of FailureCritically or PriorityHigh
Low
GoodBad
Condition
Likelihood of Failure
adjustable thresholds
142
asset management program (amp)
BPR utilizes its Asset Management Program
(AMP) to promote effective use of financial
and physical resources needed to manage
the department’s inventory of assets while
coordinating with other city departments
on shared assets. Assets tracked under the
AMP include only assets maintained, and
purchased by BPR, such as park-related
infrastructure (i.e., courts, playgrounds, and
picnic/shade structures), secondary assets
(i.e., park furniture, lighting, trails, and trees)
and a large inventory of building and facility-
related assets for properties like recreation
centers and aquatic facilities.
The AMP uses a condition assessment that
is performed every one-to-three years
that catalogs the physical condition of an
asset to determine its maintenance needs
and remaining useful life. This condition
assessment is used in tandem with an Asset
Criticality Scoring System to establish a
numeric score representative of an asset or
facility’s criticality, or importance, to the
community and to the overall parks and
recreation system. The combination of the
Asset Criticality score and Asset Condition
assessment score are used to identify
funding priorities that focus on critical assets
in less-than-ideal condition to bring the
department’s overall asset inventory to a
desired level of service.Asset Management Program (AMP) Asset Criticality Scoring
asset criticality assessment
Where We Are Going | 63
Renew, Replace
Remove, Replace Watch, Maintain
Maintain Rigorously
100%
95%
90%
85%
80%
75%
70%
65%
60%2006 2008 2010 2012 2014 2016 2018 2020
85%84%84%
77%78%
93%
90%
94%Consequence of FailureCritically or PriorityHigh
Low
GoodBad
Condition
Likelihood of Failure
adjustable thresholds
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64 | Where We Are Going
Throughout Boulder, BPR can use mapping to ensure parks, facilities and programming work for all community members.
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Where We Are Going | 65
USING MAPPING TO INFORM
EQUITABLE DECISION MAKING
Boulder’s citywide Racial Equity Plan includes a short-
term objective that “City staff will collect relevant
data, (and) coordinate data systems to understand and
track needs and impacts.” While this is an objective for
internal processes, it also applies to how BPR provides
services to the public. The department is committed
to providing a parks and recreation system that meets
the needs of the community equitability. In alignment
with community feedback, citywide equity and
resilience goals and target metrics of the Boulder Valley
Comprehensive Plan, BPR will utilize equity mapping as
a measurement and evaluation tool to fill gaps in service
throughout the community.
Equity mapping will be part of decision making and
priority setting moving forward, along with adherence
to citywide initiatives, and the Asset Management
Program (AMP) and Recreation Priority Index (RPI)
processes. With equity mapping, BPR can analyze Level
of Service (LOS) against several indicators, which when
layered together reveal geographic locations that may
need additional services. Adding this mapping will help
prioritize investments, measure success and create a
more equitable parks and recreation system far into the
future.
preliminary equity mapping analysis
Measuring LOS based on qualitative as well as
quantitative data through mapping is a new priority
for BPR. As part of the master planning process, the
department completed a preliminary analysis and
created a framework and baseline for the inclusion of
equity mapping in BPR’s work moving forward. BPR will
update this analysis as the City of Boulder Equity Data
Framework evolves and better data becomes available.
A gymnastics participant holds on tight while learning new skills.
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66 | Where We Are Going
Map 3: Proximity to Parks & Playgrounds
City LimitsCity LimitsCity LimitsCity Limits
Source: BPR GIS Analysis
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Where We Are Going | 67
Accessibility: Proximity to Parks & Playgrounds
The Boulder Valley Comprehensive Plan (BVCP) outlines the
following target parkland service metrics (specific to parks and
playgrounds):
»Provide neighborhood parks of a minimum of five acres in size
within one-half mile of the population to be served.
»Provide playground facilities for toddlers, preschoolers, and
school-age children up through age 12 within one-quarter to
one-half mile of residents.
The map on the facing page illustrates the service areas according
to the BVCP metrics. Areas not covered by green indicate gaps in
BPR services, where the BVCP metrics are not met.
BPR can use this map, along with community feedback and
policy direction, as a decision making tool to better understand
service gaps. The department can also use it as a baseline for
understanding how to meaningfully address these gaps for
surrounding neighborhoods.
This analysis does not include services provided by other city
departments, organizations, or private providers, such as City of
Boulder Open Space and Mountain Parks, Boulder Valley School
District (BVSD), or neighborhood HOA parks and playgrounds.
Legend
Developed Park
Undeveloped Park
Subcommunities
City Limits, 10.01.2021
40 Playgrounds
Quarter Mile Playground Accessible Area
Half Mile 5 Acre Park Accessible Area
Creeks & Ditches
Lakes & Reservoirs
University of Colorado
OSMP & County Open Space
Areas with Incomplete Data
NEIGHBORHOOD PARKS
• Neighborhood Parks are the most
common park type in the BPR system – 45
total
• 1 to 20 acres in size (average size = 7 acres)
• Often within an accessible distance of
neighborhood residences
• Tend to serve neighbors within a mile
radius
• Typical Assets: playground, park shelter,
athletic court or field, natural areas, trees,
open turf, multi-use trail, garden, seating,
shade and bike racks
equity mapping
With equity mapping, BPR can
analyze level of service against several
variables. These variables are indicators
which when layered together, reveal
geographic locations of need where
additional service provision may be
necessary.
Adding this mapping will help prioritize
investments, measure success, and
create a more equitable parks and
recreation system far into the future.
EQUITABLE ACCESS
Improving equity means improving distribution
and access for those who need it most,
improving the balance of services across
the city, and being proactive in planning for
future population increases and demographic
changes.
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68 | Where We Are Going
Map 4: Investment Need Prioritization
Index
Legend
Highest Priority
Higher Priority
Medium Priority
Lower Priority
Very Low Priority
Subcommunities
Creeks & Ditches
Lakes & Reservoirs
Areas with
Incomplete DataCity LimitsCity LimitsCity LimitsCity Limits
Source: BPR GIS Analysis
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Where We Are Going | 69
Needs Mapping
environmental & income need indices
Using a similar equity lens, staff compiled data about
environmental and income needs to create two maps.
These maps illustrate how the city’s parks and recreation
system can improve responses to environmental and
income-based needs.
The Environmental Need Index Map on this page
identifies areas that have lower amounts of tree canopy
cover and higher temperatures than the city average.
The Income Need Index Map, also on this page, shows
areas where community members are receiving some
form of income-based financial aid from the city in recent
years (i.e., Affordable Housing, Parks and Recreation
financial aid, Food Tax Subsidies). The darker the colors
on these maps, the greater the need. These two maps,
when combined with the analysis of proximity to parks
and recreation resources, provide significant insight
into how BPR should prioritize services to best meet
community needs.
investment need prioritization index
Combining the environmental and income need index
maps can help identify areas with greater need of BPR
investment. This provides an easy-to-understand visual
and geographic representation of investment need across
the city.
For the Investment Need Prioritization Index map on the
facing page, areas of highest need for investment are
darker in color, while light yellow indicates areas of lower
need according to the variables used for this analysis.
This map can help BPR determine how to prioritize future
investments to best meet specific needs throughout the
Boulder community.
Map 5: Environmental Need Index
Map 6: Income Need Index
Highest Priority
Higher Priority
Medium Priority
Lower Priority
No Affordable Housing or Aid Recipients
Highest Priority
Higher Priority
Medium Priority
Lower Priority
Very Low Priority
Subcommunities
Creeks & Ditches
Lakes & Reservoirs
Areas with
Incomplete Data
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RACIAL EQUITY INSTRUMENT
To ensure that BPR’s commitment to equity is integrated into its
decision making process, the citywide Racial Equity Instrument
will be integrated as one of the department’s decision making
methodologies. Developed as part of the City of Boulder’s Racial
Equity Plan, The Racial Equity Instrument actively inserts racial
equity into decision making processes with a particular emphasis on
public engagement. While the instrument can be helpful when used
at any decision making phase, it has the most impact when used
at the forefront of planning for a program, project, or budgeting
process.
Using the best practices from the Racial Equity Instrument, BPR
will facilitate public engagement processes that focus on those in
the Boulder community who have been historically left out or have
not participated in planning processes. Using the Racial Equity
Instrument and feedback gathered through engagement, BPR will
ensure budget and operating decisions consider who benefits and
who is impacted.
BUDGETING FOR RESILIENCE
To incorporate better performance metrics, higher levels of
collaboration, and a more transparent approach to the budgeting
process, the city has begun implementing the Budgeting for
Community Resilience Framework. Budgeting for Community
Resilience encourages the city and BPR to build greater resilience,
with more robust and flexible systems for budget decision making,
service delivery model optimization, and to create a framework
for the continuous measurement and evaluation of services and
programs over time through key performance indicators with an
emphasis on resilience.
Beginning in mid-year adjustments in 2020, the city began
classifying programs and services into the four Budgeting for
Community Resiliency categories: essential, important, helpful and
amenity. Funding is prioritized for essential and important services,
while more work and discussion is needed to understand and define
all services and service levels.
City of Boulder Racial Equity Plan
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Where We Are Going | 71
Strategic Plan
KEY THEMES
The six Key Themes that guide BPR’s work are derived from the
2014 master planning process and provide the framework for the
work ahead. In addition to these Key Themes, efforts to ensure the
work considers equity and resilience are woven throughout the plan
– reflecting that in all of the work ahead, BPR must consider who
benefits and who is impacted, and also how the work contributes to
or mitigates against addressing the climate emergency.
This section describes each Key Theme with an overview and policy
statements. A set of long-range goals and initiatives for achieving
these goals are also described, giving BPR a clear picture of the
desired future condition of Boulder’s parks and recreation system.
STRATEGIC PLAN ELEMENTS
The strategic plan (this master plan and implementation plan) is
organized by six Key Themes. Each includes policies, goals and
initiatives that provide the framework for BPR’s future work.
Policies
Policies are driven by decision makers representing the Boulder
community, including the Boulder City Council and PRAB. They
provide direction and help set the framework within which BPR
operates by supporting consistent operations and transparent
decision making. They also lay the groundwork for the development
of BPR goals and initiatives.
Goals
Goals, which are influenced by the master planning process,
are the long-term results BPR would like to achieve to fulfill its
mission, vision, and policy. Feedback was gathering during public
engagement efforts to guide BPR in how goals should be prioritized.
Goals are listed in the priority order in which the community felt
they should be pursued.
Initiatives
Initiatives are activities and/or projects BPR staff work on to meet
the goals. They are specific and measurable.
Community members
who responded to
the BeHeardBoulder
questionnaire emphasized
“quality over quantity”
when considering BPR
facilities.
POLICIES
Provide clear direction
for what BPR will achieve
within the intention of the
key themes.
GOALS
Results that require
time and planning.
INITIATIVES
Actions taken to
accomplish goals.
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72 | Where We Are Going
OVERVIEW
Nationally, regionally and in Boulder, people recognize
that parks, recreation programs, trails and natural areas
improve quality of life. They provide many measurable
personal and community health and wellness benefits,
including increased physical and mental health, direct
contact with nature, increased opportunities for social
interactions, and an understanding of environmental
stewardship. Caring for the environment that sustains us
also promotes individual health and wellness.
Community feedback indicates that BPR is doing a good
job of providing accessible and safe parks, facilities and
programming and encouraging physical activity. BPR
has seen increased use of parks and recreation resources
in recent years. This, coupled with the city’s popularity
as an outdoor destination for visitors from across the
region and around the world, adds complexity to how
BPR maintains its properties and offers recreation
activities, health and wellness programs and community
services. Equitable access to parks, programming and
facilities and building a resilient system in the face of
population growth and climate change are essential
to keeping Boulder a healthy, vibrant and inclusive
community.
keep boulder emotionally and physically healthy through its parks, facilities
and programs.
POLICIES
1. BPR shall continue to support the overall health
and wellness of every member of the Boulder
community through equitable programs, facilities,
parks and services.
2. BPR shall serve as a facilitator, collaborator and
leader with local organizations and partner with
other city departments and local and regional
agencies to improve the community’s health and
wellness and increase positive outcomes in public
health.
3. BPR staff shall refer to the Health Equity Fund
Theory of Change model to strategically consider
cause and effect to track activities, measure
short and long-term outcomes and make logical
connections between the activities of the
department and targeted outcomes.
4. BPR shall prioritize thoughtful planning and
management of outdoor public spaces and natural
ecosystems to achieve overall community health
goals and improve outcomes.
achievements since 2014
√BPR collaborated with “Healthy Together,” a grant funded
program that provides low-income youth with physical activity,
education and mentors in their neighborhoods.
√Facilites offer specialized classes designed for older adults.
√Walk With a Doc and Be Well Saturdays have expanded wellness
programs in partnership with Boulder Community Health.
√BPR currently exceeds both national and Colorado median LOS for
most parks and recreation asset types.
√21% increase in financial aid enrollments between 2014 and 2021.
COMMUNITY HEALTH & WELLNESS
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GOAL 1: IDENTIFY OPPORTUNITIES
TO IMPROVE PROGRAMMING AND
REDUCE BARRIERS TO ACCESS
Initiatives
1.Create programming where people already gather
and solicit feedback about meaningful and culturally
relevant services
2.Enhance the user experience for the registration
system, flexible services, and marketing for
programs and services
3.Explore programming that unites people of different
generations, abilities and cultures
4.Encourage behaviors to reduce the collective
citywide carbon footprint
5.Develop a 5-year plan to continue program
improvements
6.Continue progress on the existing ADA Transition
Plan and establish an appropriate interval to update
the plan for alignment with community needs and
funding.
GOAL 2: ENSURE BPR SERVICES
AND ASSETS SUPPORT THE TOTAL
PHYSICAL, MENTAL AND SOCIAL WELL-
BEING OF THE COMMUNITY
Initiatives
1.Ensure that new and renovated parks and facilities
support population growth, diverse needs, and
climate resilience
2.Identify opportunities to repurpose underused
parkland and/or facilities
3.Facilitate community conversations about park
behaviors to ensure public spaces are welcoming for
all
4.Track user satisfaction with services over time
GOAL 3: ALIGN COMMUNITY
EXPECTATIONS WITH AVAILABLE
RESOURCES FOR PARKS, FACILITIES
AND PROGRAMS
Initiatives
1.Clearly communicate core services that can be
provided with the current level of stable funding,
along with priorities in case additional funding is
available
2.Use data and community input to ensure equitable
distribution and prioritization of resources
3.Increase the number of community members that
have access to quality parks, facilities, programs and
services within a 15-minute walk
Goals & Initiatives
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74 | Where We Are Going
OVERVIEW
Boulder’s parks, facilities and programs provide many
positive community benefits and are funded by a mix of
sources. While most park services are fully supported
by taxes, most recreation services are funded by user
fees. Stakeholders and community leaders recognize
the limits to public funding and the need to focus on
ensuring community dollars are directed towards
services that provide the most community benefit. BPR
has continued to provide high levels of service while
revenues have remained mostly flat and expenditures
have continued to rise. BPR should consider prioritizing
services and identifying alternative funding sources
as current funding will not meet the demand and
expenses to achieve the community’s goals if trends
continue. Staff must determine the best use of services
and facilities, set maintenance priorities, and provide
appropriate financial support to those who need it most.
Balancing multiple and increasing demands with limited
resources is difficult.
BPR is committed to finding creative ways to achieve
Financial Sustainability, while delivering high quality
programming and facilities, constructing, operating,
and maintaining the built and natural environments
that sustain the community, and providing equitable
access to these resources.
balance the many demands with existing resources. recognize the need to
focus on core services and community priorities.
POLICIES
1.BPR shall continue to categorize services using the
PRAB-approved Recreation Priority Index (RPI),
which objectively determines community benefit of
a service to inform its appropriate subsidy level and
cost recovery target.
2.BPR shall determine the actual cost of an
activity or service using a standardized method
that emphasizes consistency of data inputs,
analysis methods, and measurement of financial
performance.
3.BPR shall explore all feasible funding strategies
to manage existing assets while fostering key
partnerships to secure donations, sponsorships,
foundational support and philanthropy to achieve
community goals and expectations.
4.BPR shall develop strategies to close the gap
between revenue and escalating expenses by
increasing funding through a variety of means
to meet the community goals and expectations
outlined in the master plan.
5.BPR shall use the Asset Management Program to
ensure limited funding is prioritized annually to
sustain the most critical assets while considering
retirement of assets if feasible to reduce expenses.
6.BPR shall complete an annual budget process
founded on transparency, key funding priorities,
results achieved, and the health of all dedicated
funds critical to delivering the department’s
mission.
achievements since 2014
√
Since 2015, 12,085 volunteers have contributed
their time to BPR projects and maintenance efforts,
allowing staff to focus on other issues, helping ensure
financial sustainability.
√
BPR outsourced dance, pottery, competitive
gymnastics and some summer camps to community
partners, allowing BPR to focus more resources
on recreation programming with the greatest
community-benefit.
√From 2016-2020 BPR received approximately $2.7
million in grant and donation support.
FINANCIAL SUSTAINABILITY
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Goals & Initiatives
GOAL 1: INCREASE NON-TRADITIONAL
FUNDING AND RESOURCES
Initiatives
1. Evaluate and pursue non-traditional funding sources
like grants, philanthropy, and sponsorships
2. Define a transparent and streamlined process for
receiving donations
3. Identify resources needed to develop and maintain
non-traditional funding sources
4. Encourage behaviors to reduce the collective
citywide carbon footprint
GOAL 2: CLOSE THE FUNDING GAP
Initiatives
1. Identify and resolve existing inefficiencies
2. Employ Budgeting for Resilience and Racial Equity
tools and principles in budget development and
execution to ensure that resource allocation aligns
with community priorities.
3. Pursue investments in technology and innovation
that provide efficiencies
4. Prioritize technologies and projects that positively
impact the city’s climate goals
5. Regularly assess total cost of service for all
programs and facilities to inform budgeting and fee-
setting
6. Identify, track and compare annual cost recovery
targets against actuals
7. Collaborate with the Central Budget Office on how
tax revenues can be used to fund future capital
projects
8. Identify services that can generate funds to support
other programs
GOAL 3: DIRECT EXISTING STABLE
FUNDING TOWARDS THE MOST
IMPORTANT WORK
Initiatives
1. Establish a transparent process for financial
decisions to communicate to staff and the
community
2. Prioritize a sustainable approach to financial aid
3. Evaluate sliding scale financial aid
4. Streamline the financial aid application process
5. Streamline and simplify BPR’s current Service
Delivery Framework and Recreational Priority Index
6. Identify, track and compare annual cost recovery
targets against actuals
7. Identify services that can generate funds to support
other programs
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76 | Where We Are Going
TAKING CARE OF WHAT WE HAVE
OVERVIEW
Boulder currently cares for over 100 parks and facilities
and must carefully manage these amenities to ensure
community members have access to enjoy the outdoors
and to recreate. In fact, a recent trend of public lands
being “loved to death” is evident at both national and
local levels due to the increasing demand for parks
and recreation services and is expected to continue
for the forseeable future. Beyond the built parks and
facilities, taking care of the land, water and air in the
BPR system is critical for the community’s long-term
sustainability. Boulder residents feel that existing assets
are sufficiently maintained and BPR is doing a good
job of continuing to maintain its parks and facilities
given constrained resources and aging infrastructure.
Community members want BPR to continue to prioritize
maintaining and enhancing existing assets over building
new facilities.
Taking Care of What We Have now requires a more
strategic approach to prioritize maintenance needs
and develop more flexibility around programming and
services. BPR will need to ensure decisions promote
equitable access and help maintain a resilient parks and
recreation system.
prioritize investments in existing parks and facilities.
POLICIES
1. BPR shall prioritize financial resources to manage all
assets to ensure safe, clean and accessible parks and
facilities. A life cycle approach will guide investment
in preventative, regular and capital maintenance
based on condition assessments, asset criticality,
community input, equity, resilience, and feasibility.
2. BPR shall recognize living systems as infrastructure
and strategically focus on an integrated ecosystem
approach to operations and management related
to the urban forest, natural lands and parks
that supports citywide climate goals through
implementing new best practices, new technology
and innovative strategies. BPR shall prioritize
ecosystem services to achieve immediate results
specified in relevant plans such as the Urban Forest
Strategic Plan (UFSP), natural lands management
plans and the Capital Investment Strategic Plan,
among others.
3. While planning and implementing capital
maintenance and enhancements to existing assets,
BPR shall recognize the importance of providing
relevant and meaningful parks and facilities that
inspire the community to continue active lifestyles
and respond to latest trends in recreation.
4. BPR shall actively work to minimize the contribution
of BPR facilities, programs, and operations to
ozone, total emissions of climate-forcing pollutants,
including carbon dioxide, methane, nitrous oxide,
and soot. These efforts should include consideration
of the total life cycle emissions of materials and
equipment used by BPR and will include the
emissions programs and policies created via induced
travel.
achievements since 2014
√Voter approved financial support allowed BPR to
invest in and renovate 15 neighborhood parks.
√BPR completed the Urban Forest Strategic Plan
(USFP)
√BPR staff has implemented a Zero-Waste program in
select parks.
√
BPR completed construction on two popular facilities
(Scott Carpenter Pool and the Boulder Reservoir
Visitor Center) and finished several plans that outline
future priority infrastructure improvements.
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Where We Are Going | 77
Goals & Initiatives
GOAL 1: PROVIDE WELL-MAINTAINED
AND MULTI-USE PARKS AND
RECREATION FACILITIES
Initiatives
1. Develop plans to ensure Boulder’s recreation
centers can serve the community for the next 50
years
2. Update maintenance standards and procedures to
align with available labor and resources and to focus
on highest priority assets
3. Explore opportunities and planning scenarios for
desired improvements
4. Collaborate with other departments during the
project planning process to identify efficiencies and
cost saving opportunities
5. Clarify process and prioritization of projects to
address deficiencies in existing parks
6. Conduct a needs-based mapping process to inform
where in the community additional facility and/or
program investments should be made
7. Define criteria and collect and analyze data to
measure the success of parks, facilities, and
programs
GOAL 2: ENSURE BPR’S ASSET
MANAGEMENT PROGRAM (AMP)
IS CONSISTENTLY AND CLEARLY
IMPLEMENTED
Initiatives
1. Develop a standardized process to define
maintenance responsibilities, asset-specific service
and maintenance plans and schedules for inspection
and replacement of components and/or assets
2. Develop training curricula to educate staff on an
ongoing basis
3. Collaborate with OSMP and other city and regional
partners to research and develop common best
practices and align our program with industry
standards
4. Conduct assessments on all major assets on a
regular basis and have a full digitized plan for
regular maintenance
5. Continue to expand utilization of data-driven
decision making and investments
6. Finalize and regularly use criteria to prioritize assets
based upon consequence of failure
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78 | Where We Are Going
GOAL 3: BUDGET FOR THE OPERATION,
MAINTENANCE AND REPLACEMENT OF
EXISTING ASSETS
Initiatives
»Calculate and analyze the Total Cost for Facility
ownership by tracking expenditures for O&M and
capital replacement to ensure sufficient funding is
available for the full life of the park or facility
»Annually update the CRV of department assets
»Annually identify O&M related expenses to ensure
that sufficient funds are being spent for upkeep
»Utilize all relevant plans, such as the UFSP, to inform
budgeting
»Develop a long-term strategy to close gaps in O&M
and capital funding and address critical asset needs
GOAL: IMPLEMENT ECOSYSTEM AND
FACILITY IMPROVEMENTS THAT
SUPPORT ACHIEVING THE CITY’S
CLIMATE COMMITMENTS
Initiatives
»Ensure that capital projects use sustainable building
materials and processes and improve energy
efficiency where feasible and appropriate
»Implement the recommendations of the USFP to
support a safe, healthy urban tree canopy
»Develop a Natural Lands Strategic Plan
»Develop a Water Assets Strategic Plan
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Where We Are Going | 79
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80 | Where We Are Going
BUILDING COMMUNITY
& RELATIONSHIPS
OVERVIEW
Parks and recreation facilities, programs and services
promote a healthy, engaged community and use
environmental health to help address social and cultural
inequities. BPR offers a variety of programs, spaces,
events and services that foster socializing and help
people learn from, understand and support each other.
BPR’s relationships within the community improve and
expand access, creating a more equitable and resilient
parks system. Partnerships with volunteers, community
organizations, non-profits and private entities, and
other city departments are necessary for long-term
success, especially when considering constrained
budgets, staffing challenges, climate change impacts
and increasing usage.
Building Community & Relationships encourages a
stronger, more diverse, and more unified community,
benefitting from a variety of viewpoints and life
experiences. Working together, the Boulder community
can collectively propose and implement workable
solutions that care for Boulder’s parks and recreation
system, helping it to be resilient in the face of
environmental, economic and social change.
build a connected community through outreach programs and initiatives.
create social and cultural equity for healthy relationships across boulder.
POLICIES
1. BPR shall ensure all community members feel
welcome by providing safe, accessible, and
meaningful services available to all.
2. BPR staff shall use inclusive, equitable, transparent,
and consistent communication and engagement
practices. Government makes better decisions
and creates more responsive programs when the
community it serves has a meaningful voice.
3. BPR shall build community through partnerships
that foster equity, resilience, and innovation,
and are mutually beneficial, mission-focused and
grounded in City of Boulder values. Partnerships are
intended to maximize the impact of each partner’s
funding, knowledge, and expertise through
collaboration.
4. BPR shall partner with other departments to
advance citywide goals related to both equity and
resilience to serve the Boulder community and
proactively prepare for the future.
5. BPR shall prioritize ecosystem services and meeting
climate goals as well as sustainability in all aspects
of the department.
achievements since 2014
√The Recquity Pass program, which offers subsidized
facility passes, initiated over 5,000 visits in the first
eight months of its operation.
√Boulder’s EXPAND program for people with
disabilities offered new summer camps and sites for
participants, enhancing self-esteem and social skills.
√BPR has seen a 52% increase in EXPAND enrollment.
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Where We Are Going | 81
Goals & Initiatives
GOAL 1: BUILD A STRONGER PARKS
AND RECREATION SYSTEM THROUGH
MEANINGFUL CONNECTIONS WITH
THE COMMUNITY
Initiatives
1. Prioritize equitable and inclusive outreach methods
2. Engage people in existing gatherings and solicit
feedback through meaningful public dialogue.
3. Expand virtual engagement tools and techniques
4. Foster informal relationships with like-minded
organizations
5. Coordinate with the citywide Volunteer Collective
to enhance community connections through
volunteerism
6. Engage community groups in activity-specific
volunteer opportunities and/or fundraising efforts
7. Collaborate with local organizations and agencies
to activate parks through art, cultural and social
community events
GOAL 2: STRENGTHEN BPR
ADMINISTRATION OF PARTNERSHIPS
WITH EXTERNAL ORGANIZATIONS
Initiatives
1. Develop a clear and transparent approach to
forming and maintaining partnerships including
goals and objectives
2. Allocate appropriate resources to manage
partnerships
3. Develop a community interface to promote
partnerships and share available resources
GOAL 3: STRENGTHEN AND BUILD
PARTNERSHIPS
Initiatives
1. Develop and maintain a database of like-minded
organizations
2. Identify priority gaps in services that could be filled
through partnerships
3. Prioritize partnerships that address barriers to
access
4. Expand and improve partnerships with BVSD, local
universities and other schools
5. Work with the Health Equity Fund and community
partners to measure positive health equity
outcomes
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YOUTH ENGAGEMENT & ACTIVITY
engage youth with parks, facilities and programs that provide direct
experience with nature, experiential learning and opportunities to
close the educational achievement gap.
OVERVIEW
BPR plays a vital role in enhancing the mental and
physical health of younger members of the Boulder
community through Youth Engagement & Activity.
A growing body of research suggests that increasing
children’s interactions with nature can have positive
physical, mental and spiritual benefits throughout life.
These benefits increase exponentially when started at
a young age. While Colorado is considered one of the
healthiest states in the country and is a national leader
in appreciating nature and active lifestyles, serious
physical and mental health issues are impacting youth.
Nearly one quarter of Colorado children are overweight
or obese, and less than half get the recommended 60
minutes of daily physical activity. Between 2013 and
2019, the number of high school students reporting
sadness or hopelessness increased by more than 40%
and in 2019, 18% of teens participating in the Healthy
Kids Colorado Survey reported seriously considering
suicide. In May 2021, Children’s Hospital Colorado
declared a state of emergency for youth mental health,
citing 90% increase in demand for behavioral health
treatment in the previous two years. BPR can help
reverse these trends by working with youth mental
health providers to offer programming and services
targeted to children’s and teens’ specific needs,
supporting physical and mental health, civic pride,
community belonging, environmental stewardship and
healthy living for life.
POLICIES
1. BPR shall enhance the health, safety, resilience and
overall development of Boulder’s youth through
parks, facilities and services.
2. BPR shall support family activities that benefit
youth and build a strong sense of community
and place, encourage a culture of environmental
stewardship, and promote their perseverance.
3. When considering capital improvements, BPR staff
shall use all data and metrics available to prioritize
amenities and features that encourage youth
activity, participation and healthy lifestyles such as
nature-based play spaces and innovative teen areas
for children and youth in parks and public spaces
managed by BPR.
4. BPR shall engage youth and align departmental
efforts with their needs.
5. Given the increasing health challenges facing
youth and teens, BPR shall prioritize parks and
facility upgrades, programs and services that
support positive health outcomes for these specific
populations in Boulder.
achievements since 2014
√Over 1,800 youth have been served through BPR and partner-supported summer camp offerings.
√With grant funding YSI programming increased to serve additional sites and has partnered with
BVSD to offer recreation opportunities for youth attending the extended school year program.
√141% increase in daily participation of youth in BPR programming.
√Through a partnership with with First Tee at Flatirons Golf Course, youth have deepened their
understanding of life skills by seamlessly integrating the game of golf with character building.
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Where We Are Going | 83
Goals & Initiatives
GOAL 1: ENHANCE THE PHYSICAL AND
MENTAL HEALTH OF TEENS
Initiatives
1. Explore programs for the physical and mental
health needs of teens
2. Ensure programming keeps teens occupied and
engaged
3. Create programming that focuses on entry-level
sports, health and wellness skills for teens
4. Make engagement and decision making
opportunities available to all teens
5. Implement more volunteer and leadership
opportunities
GOAL 2: UTILIZE COMMUNITY
PARTNERSHIPS TO EXPAND
RECREATIONAL OPPORTUNITIES FOR
YOUTH
Initiatives
1. Create a list of existing service providers focused
on youth and teens and serve as a convener for
collaboration on potential programming and shared
resources
2. Establish, maintain and prioritize community
partnerships, including collaboration with the
Boulder Valley School District, that supplement
capacity and resources and create innovative
pathways to engage youth and teens
3. Work with local organizations to develop youth
recreation services and volunteer opportunities that
focus on culture and include family activities
4. Work with PLAY Boulder Foundation to enhance the
PlayPass program
GOAL 3: INTEGRATE MORE
PASSIVE AND ACTIVE RECREATION
OPPORTUNITIES FOR YOUTH INTO
EXISTING SERVICES
Initiatives
1. Encourage kids to be active and develop healthy
lifestyles
2. Continue to explore nature play opportunities
3. Collaborate with OSMP to develop models for
nature clubs or family nature outings
4. Consider ‘drop-in teen times’ at the recreation
centers and pools and teen nights with teen-focused
special events
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OVERVIEW
Keeping an engaged and motivated workforce remains
a top priority for the department. BPR’s employees are
resilient and have ensured its ability as a department to
pivot in the face of economic, social and environmental
uncertainties. A variety of initiatives have been planned
and implemented to support staff in meeting changing
user, operations, maintenance and programming needs
and address community goals related to equity and
resilience. New software, service delivery models, and
training are helping with this effort.
The workforce is also challenged by reductions in
staffing levels, capacity and funding. Continuing
education, team building, skills development and
streamlining internal processes are opportunities to
support staff growth and morale and to foster deeper
connections with each other. Organizational Readiness
is paramount to BPR’s continued success in serving the
Boulder community.
respond to changes over time by using new technologies and data-driven
and collaborative decision making tools.
POLICIES
1. BPR shall ensure that the department workforce,
structure and culture are designed and prepared to
respond to community needs and positively impact
the community’s health and well-being.
2. BPR staff shall continue to use and implement
accepted plans and reports to guide all aspects
of the department and allow informed decision
making.
3. BPR shall develop Key Performance Indicators to
measure successful delivery of services, facilities
and programs to meet the community goals
outlined in this master plan.
4. BPR shall support employee well-being through
citywide efforts to address cost of living and multi-
modal transportation issues that create barriers to
living, working and playing close to home.
5. BPR shall prioritize ecosystem services and meeting
climate goals as well as sustainability in all aspects
of the department.
ORGANIZATIONAL READINESS
achievements since 2014
√Beehive Asset Management Software was
implemented to manage $270 million in park assets
more effectively.
√
As part of the City of Boulder’s Climate Leaders
Program, leaders from parks and recreation are
being trained in the science of climate change, so
everyday decisions can be informed by a consistent
foundation of knowledge.
√Reports that used to take weeks to produce now
take minutes with the addition of new software.
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Goals & Initiatives
GOAL 1: IMPROVE INTERNAL
PROCESSES
Initiatives
1. Establish role clarity, streamlined processes, and
standard procedures and documentation
2. Apply for accreditation by the Commission for the
Accreditation of Parks and Recreation Agencies
(CAPRA)
3. Ensure that staff have the knowledge, resources,
technology, and tools to effectively perform their
roles
4. Collaborate with the city’s IT department to develop
a central information repository where staff can
request and/or receive data, information, support,
and resources
5. Improve the annual work plan process to clearly
identify priorities, establish realistic allocations for
staff time, and a framework for being able to decline
projects or programs clearly and transparently
6. Create a budget allocation and process to support
innovation
GOAL 2: BUILD OUR TEAM
Initiatives
1. Recruit, hire and retain a highly competent and
capable work force
2. Ensure hiring practices dismantle institutional
racism
3. Develop clear and consistent onboarding and
training processes
4. Build plan to recruit and retain frontline positions
5. Implement a paid internship program
GOAL 3: SUPPORT OUR TEAM
Initiatives
1. Provide opportunities for cross-training and cross-
teaming
2. Support a culture of learning and development
3. Support supervisors in managing their teams
holistically
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FINANCIAL FRAMEWORK
Through the master planning process BPR has gathered feedback on desired
facility and programming improvements from both individual members of
the community and specific user groups. Balancing the community’s desires
with BPR’s financial reality requires that the department prioritize what
can be accomplished over the next five years. Adopted in 2006, The City of
Boulder’s budgeting strategy requires each department to acknowledge and
plan for multiple revenue scenarios. These scenarios are intended to enable
departments to proactively plan for outcomes in which revenues remain flat
or increase. The following section summarizes the three budgeting scenarios
in which future projects and programs are assigned.
plan alternatives
Using the city’s budgeting strategy of defining outcomes for the Fiscally
Contrained, Action, and Vision budgeting scenarios, BPR has developed
three plan alternatives based on variable levels of funding.
fiscally constrained
The Fiscally Constrained alternative plans for prioritized spending within
existing budget targets . The intention of this alternative is to refocus and
make the most of existing resources with the primary goal being for the
department to maintain services. The actions associated with the Fiscally
Constrained alternative require limited or no funding to accomplish and are
focused on providing or enhancing core and/or existing services. The fiscally
constrained scenario reflects BPR’s commitment to the community over the
next five years, focusing on core services and those that benefit the greater
community.
action
The Action alternative describes the extra services or capital
improvements that could be undertaken when additional funding
is available . This includes strategically enhancing existing programs,
beginning new alternative programs, adding new positions, or making
other strategic changes that would require additional operational or capital
funding. In coordination with the Central Budget Department, PRAB, and
City Council, BPR would evaluate and analyze potential sources of additional
revenue, including but not limited to capital bond funding, program income,
grants and existing or new taxes.
vision
The Vision alternative represents the complete set of services and
facilities desired by the community . It is fiscally unconstrained but can help
provide policy guidance by illustrating the ultimate goals of the community
and by providing a long-range look to address future needs and deficiencies.
In this Master Plan Update, the Vision alternative addresses aging facilities
to make improvements in operational effectiveness and the overall
sustainability of the park and recreation system.
Plan Alternatives
Using the City of Boulder’s budgeting
strategy of defining outcomes for
the Fiscally Contrained, Action and
Vision budgeting scenarios, BPR has
developed three plan alternatives
based on variable levels of funding.
»Fiscally Constrained
BPR’s commitment to the
community over the next five
years
»Action
Aspirational projects and
programs that may be
accomplished if additional
funding becomes available
»Vision
A wish list of projects and
programs
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PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Park Maintenance -BPR
Asset Management
Program
Maintain Well at FCI .07,
Develop Violet Park
Enhance and add trending
amenities
Full concept plan
implementation for all
planned parks
Playgrounds 1-2 Parks/Playgrounds per
year refurbished (25-30 year)
Playground enhancement
accelerated (20 year)N/A
Restrooms - Pending LOS
Evaluation
Maintain current LOS,
transitioning to universal
restrooms as facilities are
built or replaced
Add more to appropriate
parks, accelerate transition
to universal restrooms
N/A
Valmont Park - 2015
Concept Plan
Phase 1 development of
adventure and nature play
elements
Phase II development,
including disc golf, athletic
fields
Full concept plan
implementation,
including infrastructure
for community recreation
facilities
Urban Canopy - Urban
Forest Strategic Plan
Focus on health of current
canopy through IPM, Tree
Safety, EAB response, and
public tree protection—
Some canopy growth
through tax investment,
philanthropy and partnership
Improved rotation for street
trees (currently 14 years,
industry recommendation
is 8), Increased planting to
support 16% canopy cover by
2027. Carbon credits could
create additional funding
source.
Industry standard
rotation for all public
trees, sufficient planting
to achieve urban canopy
goals.
Civic Area Activation w/ Operations
Focus Phase II development N/A
Area III
Complete Baseline Urban
Service Plan and develop
concept plan, but nothing is
developed
Build core elements Full park development
PARKS
Could the Summer Olympics skateboarding competition be in this skater’s future? If
he keeps practicing his skills at Valmont Bike Park, it just might become a reality.
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88 | Where We Are Going
PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Athletic Fields - 2015
Athletic Field Study
Optimize usage through
partnerships, maintenance
and conversion to artificial
turf
8th Field at Stazio,
Redevelopment at Mapleton
and Tom Watson to optimize
usage
Build fields at Valmont City
Park
Recreation Centers
- 2022 Facility Needs
Assessment
EBCC & NBRC - ”Maintain
Well” SBRC - Retire past
useful life facility but not
replace; citywide facility
feasibility study for SOBO
area facilities
Enhance Facilities
Modernize EBCC & NBRC;
Design/Build South Boulder
facility
Courts - Study pending
Maintain Well. Court study
to identify LOS—Seek
opportunities to maximize
community benefit through
Joint Use Agreements/
partnerships
Enhance for increased
durability, some additional
facilities
Additional new facilities
may be developed
Aquatics -2015 Aquatics
Feasibility Study
Maintain current service
levels and pools Enhance Spruce Pool Build aquatic training
facility at Valmont City Park
Reservoir -2018 South
Shore Capital Strategy
Improve existing site
connections and ciruclation
Additional shade structures
and group picnic areas,
children’s play and outdoor
education
Marina facility includes
meeting/event space,
boat storage/maintenance
facilities
FACILITIES
Balancing is key to success when taking the BoulderLift class at XX Rec Center.
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Where We Are Going | 89
PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Facility Access Fees
Continued increases to base
fees to keep up with cost
escalation, maintaining
discounts for youth and
seniors
Increase base fees and
increase discounts for youth
and seniors
Free for target populations
(youth & seniors)
Financial Aid
Maintaining Financial Aid
LOS reliant upon grants and
philanthropy
Funding supports increased
aid and sliding scale for
maximum access
Sliding scale supports full
participation
EXPAND
Core Services for Target
Population funded by GF
subsidy and grants
Service levels increase N/A
Youth / Teens
Additional programming
only possible through
discontinuation of other
services or market based
programs
Programming for youth and
teens grows with additional
donations, grants or subsidy
N/A
Young explorers taking advantage of nature play opportunities during an annual BPR summer camp program.
PROGRAMS & SERVICES
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HOW WE WILL
GET THERE
»The 2022 Master Plan establishes BPR’s commitment to the
community over the next five years. The following chapter discusses
how to make the future vision a reality, using BPR’s annual action
planning process, Key Performance Indicators (KPIs) and metrics to
measure progress over time.
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92 | Next Steps
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Next Steps | 93
IMPLEMENTING THE 2022 MASTER PLAN
With the acceptance of this master plan, BPR commits to fulfilling
its mission and to implementing the initiatives and the Fiscally
Constrained Plan. Through an annual action planning process, we
will ensure that the 2022 Master Plan is a living document used to
improve the overall system and achieve the goals of the community
well into the future.
BPR will utilize equity mapping, key performance indicators
(KPIs),and the city’s Sustainability, Equity and Resilience
Framework to plan its work and measure success over time.
The department will collaborate with PRAB, City Council and
aligned city departments to:
»Ensure the goals and initiatives of each key theme are
considered
»Maximize resources and efficiency
»Make sure BPR continues to deliver best-in-class parks, facilities
and programs for the Boulder community
Implementation
Boulder community members, both young and old, can enjoy the many recreation activities offered by BPR.
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94 | Next Steps
BPR ANNUAL ACTION
PLANNING 5 STEP PROCESS
annual action planning process
The Annual Action Plan process is how BPR will ensure the
community’s goals as outlined in the 2022 Master Plan happen.
The Action Plan will include each year’s committed goals to achieve
Master Plan initiatives and Fiscally Constrained Plan Alternatives.
BPR follows five steps to complete the annual Action Planning
Process. The first involves reviewing the current state of the system
and plan progress. BPR will then review the master plan goals and
initiatives to identify areas of focus for next year. This step includes
reporting out plan progress to the community. Third, staff will
select projects to implement based upon resources, the current
state of the system, and focus areas. The Action Plan will inform
the development of the operating and capital budgets, which is the
fourth step. Finally and most importantly, staff will implement the
Action Plan.
planning framework
The Annual Action Plan is also informed by City Council’s workplan
and priorities, and citywide goals and priorities as outlined in the
BVCP and various master plans.
BPR has a well-defined set of tools used to plan, measure, and
evaluate proposed projects and programs. Through this master
planning process, staff realized they can simplify these tools to
ensure work is intentionally designed and delviered and that
investments are data-driven.
In addition, new methods will support BPR’s ability to address
impacts relating to changing social, economic and environmental
conditions. As the city finalizes climate and equity related
targets, BPR will utilize recommended assessment tools to inform
how BPR’s work will contribute to achieving those targets and
community-wide goals. Equity mapping will be part of BPR’s
decision-making and priority setting toolkit moving forward,
along with adherence to citywide frameworks, and the Asset
Management Program and Service Delivery Model.
1 .Review current state of system
and action plan progress
2 . Review Master Plan goals and
initiatives to identify areas of
focus & report out plan
progress to community
3 . Select Projects to Implement
4. Develop Operating
& Capital Budgets
5 . Implement Action Plan
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Next Steps | 95
key performance indicators (kpis)
BPR has identified Key Performance Indicators (KPIs) to
measure success in accomplishing this Master Plan. The KPIs
are informed by the goals and community values expressed in
the Master Plan; leading practices, research, and data systems
also shaped the selection of the KPIs.
During the annual Action Planning process, staff will document
progress measured against each KPI to track BPR’s success in
achieving community goals.
COMMUNITY HEALTH & WELLNESS
KPI Components Sustainability & Resilience
Framework Goals
Recreation Contacts
Policy 1
Programs offered, Registered
participants, and all visits: centers,
pools, Reservoir, rounds
of golf (3 data points)
Healthy & Socially Thriving
Financial Aid Contacts
Goal 1
FA total visits, value, and percentage
of total visits (3 data points)Healthy & Socially Thriving
Direct Financial
Support to Lower
Barriers
Goal 1
FA Scholarship dollars spent
(1 data point)Healthy & Socially Thriving
Inclusion Across
Demographics
Policy 1
All Financial Aid participants, by age
(3 data points: 1 data point for youth,
senior, adult)
Healthy & Socially Thriving
Pass Utilization
Policy 1; Goal 2,
Initiative 1
Average visits per member
(1 data point)Healthy & Socially Thriving
FINANCIAL SUSTAINABILITY
KPI Components Sustainability & Resilience
Framework Goals
Community Financial
Support
Goal 1, Initiative 1
Total financial contributions from
donations, philanthropy, grants
(1 data point)
Responsibly Governed
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BUILDING COMMUNITY & RELATIONSHIPS
KPI Components Sustainability & Resilience
Framework Goals
Volunteer
Contributions
Goal 1, Initiative 5
Total $ value of volunteer contributions,
along with total volunteer participants
and total hours (3 data points)
Accessible and Connected,
Healthy & Socially Thriving
YOUTH ENGAGEMENT & ACTIVITY
KPI Components Sustainability & Resilience
Framework Goals
Community Benefit
Programming
Goal 3, Initiative 1
EXPAND + YSI: Hours of
programming, participants
(2 data points)
Healthy & Socially Thriving
Youth Engagement
Policy 1
Youth participation visits (youth
portion of “Recreation Contacts”)
(1 data point)
Healthy & Socially Thriving
Camp Participation
Policy 1
Camps offered and total participants
(2 data points)Healthy & Socially Thriving
ORGANIZATIONAL READINESS
KPI Components Sustainability & Resilience
Framework Goals
Streamlining Systems
Goal 1, Initiative 1
CAPRA standards met (SOPs/policies
approved by Director)Responsibly Governed
Workforce Strength
Goal 2, Initiative 1
Turnover, vacancy, average tenure
among Standard Employees. Final
data collection will depend on new
HR systems (3 data points)
Responsibly Governed
Seasonal and
Temporary Support
Policy 1
Non-Standard Hours Worked
(1 data point)
Responsibly Governed,
Economically Vital
TAKING CARE OF WHAT WE HAVE
KPI Components Sustainability & Resilience
Framework Goals
Comprehensive
Maintenance
Policy 1, Goal 2, Goal 3
Total number of work orders completed
(later could include: average time
between creation and completion)
Responsibly Governed
Livable
Investment in Parks
and Facilities
Policy 1, Goal 1
Total $ spent on Repair and Renovation
(R&R) and CIP. Then, that dollar amount
as a % of Current Replacement Value
(CRV) (2 data points)
Safe
Responsibly Governed
Livable
Carbon Footprint
Policy 4
Carbon footprint for the 3 recreation
centers, combined from electricity and
gas usage minus PV savings (1 data
point)
Environmentally Sustainable
Livable
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Next Steps | 97
A summer camp hula hooping class learning to spin their way into the future.
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98 | Next Steps
Works Cited
Plans
BPR 2014 Master Plan
BPR Design Standards Manual
City of Boulder Urban Forest Strategic Plan
City of Boulder Sustainability & Resilience
Framework
Boulder Valley Comprehensive Plan
City of Boulder Racial Equity Plan
City of Boulder Engagement Strategic
Framework
Benchmark Cities Parks & Recreation Master
Plans
Reports
BPR Needs Assessment Report - Design
Workshop, September 2021
BPR Financial Assessment - Design
Workshop, June 2021
BPR White Paper Updates - Design
Workshop, Jan 2021
BRP Indoor Recreation Facilities Needs
Assessment - Barker Rinker Seacat
Architecture, June 2021
City of Boulder Parks & Recreation Master
Plan Update Statistically Vallid Survey
Summary Report - Polco & National
Research Center, June, 2021
Balancing Community Needs with Financial
Realities - Ballard King, Feb 2022
BPR Snapshot Overview - Current State, Key
Themes & Trends, June 2021
Interdepartmental Interviews - Design
Workshop, February 2022
Other relevant plans, reports and documents
were consulted where approprate.
Sources
BPR Recreational Priority Index
BPR Asset Management Program, 2018
BPR Capital Investment Strategic Plan 2016
BPR 2021-2026 Ongoing Unfunded Project
List
BPR 2021 and 2020 Boulder Community
Profile
BPR Funds – 2021 Approved Fund Chart
City of Boulder Budgets, 2016-2021
BPR Service Delivery Handbook
State Demographer’s Office, 2020 Boulder
Community Profile
State Demographer’s Office, City of Boulder,
2020 Boulder Community Profile
State Demographer’s Office, Boulder
County Population Projections 2040
Trust for Public Land
City of Westminster, SSPRD, City of Tempe,
Foothills PRD, City of Broomfield, City of
Naperville staff, all other cities - Parks &
Recreation master plans
Sports & Fitness Industry Association’s 2020
Pickleball Participant Report
Subcommunity Neighborhood Parkland
LOS Comparison. Source: GIS 2021
Data Layers and 2017 City of Boulder
Subcommunity Population Data (2019 East
Boulder Inventory & Analysis Report)
Subcommunity All Parkland LOS
Comparison. Source: GIS 2021 Data Layers
and City of Boulder Population Data (2019
East Boulder Inventory & Analysis Report).
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Next Steps | 99
Acronyms List
AMP: Asset Management Program
BPR: Boulder Parks & Recreation
Department
BVCP: Boulder Valley Comprehensive Plan
CAPRA: Commission for the Accreditation
of Parks and Recreation Agencies
CRV: Current Replacement Value
DSM: Design Standards Manual
EBCC: East Boulder Community Center
EXPAND: Program to help people of all
abilities enjoy life through recreation and
leisure activities
GUB: Growing Up Boulder
HEF: Health Equity Fund
MTAG: Management Technical Advisory
Group
NRPA: National Recreation & Park
Assocation
NBRC: North Boulder Recreation Center
OSMP: Boulder Open Space & Mountain
Parks
PRAB: Parks & Recreation Advisory Board
RPI: Recreation Priority Index
SBRC: South Boulder Recreation Center
TAG: Technical Advisory Group
- MTAG: Management Technical Advisory
Group
- WTAG: Working Technical Advisory
Group
UFSP: Urban Forest Strategic Plan
WTAG: Working Technical Advisory Group
YOAB: Youth Opportunities Advisory Board
YSI: Youth Services Initiative
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100 | Next Steps
Glossary of Terms
Assessment: process of comparing and
evaluating an entity against established
standards, and documenting the
differences.
Asset: real or personal property which
organizations desire to track and manage
as a distinct identifiable entity. It may be a
physical structure or grouping of structures,
land features, or other tangible property
that has a specific service or function. The
term “asset” can also be applied to movable
items, such as vehicles and equipment.
Asset deficiency: a facility defect that
occurs when maintenance and repair tasks
are not performed in a timely manner.
When allowed to accumulate uncorrected,
they inevitably lead to deterioration of
performance, loss of asset value, or both.
An accumulation of such uncorrected
deficiencies is a backlog that represents a
liability (in both physical and financial terms)
for an asset.
Asset management: a systematic process
of maintaining, upgrading, and operating
physical assets cost-effectively.
Asset Priority Index (API): an asset
evaluation process that quantifies the value
of an asset in relation to the mission of the
organization. The API ranks assets according
to a numeric rating system.
Backlog: The unfunded deficiencies work
required to bring facilities to a condition that
meets accepted codes, laws, and standards
to achieve expected life.
Benchmark: A well-defined, widely
accepted standard of performance used to
measure progress toward a specific state or
level of competency.
Benchmarking: The continuous process of
measuring a product, service, or process
against the best practices of recognized
leaders in the field in order to achieve
superior performance.
Blue line: result of 1959 Boulder City
Charter amendment that limited water
extensions above an elevation of 5.750 feet
to preserve the mountain backdrop.
Business core program: program
comparable to private market offerings and
offered at market rates.
Capital improvement: new construction or
an alteration that helps an asset better meet
its intended purpose.
Casual participant: categorization used
by SGMA referring to individuals that
participate in a particular recreational
activity 1-49 times during a year.
City park: park classification type
representing sites that are generally 100-300
acres in size. Designed to serve the entire
community, they generally provide a mix of
natural beauty and developed facilities.
Community benefit: a good that is shared
for all (or most) members of a society or
social group.
Condition assessment: The inspection
and documentation of the condition of
the features of an asset as measured
against the applicable maintenance or
condition standards. It provides the basis for
longrange maintenance planning, as well as
annual work plans and budgets.
Core participant: categorization used
by SGMA referring to individuals that
participate in a particular recreational
activity 50 or more times during a year.
Cost recovery: recoupment of the financial
expenditure associated with providing a
service.
Critical system: a collection of components
that typically operate in conjunction to
provide an essential service and whose
failure, removal, or non-operation may
result in loss or harm.
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Next Steps | 101
Current acres: as used in this plan, the number of
acres that are developed and open for use at this
time.
Current replacement value (CRV): the dollar amount
needed to pay to replace an asset at the present time
according to its current worth.
Deferred maintenance: maintenance that was
not performed when it should have been or was
scheduled to be completed and then put off or
delayed.
Diamond ball field: athletic field used for baseball or
softball.
Dog parks: areas in which dogs can play without
leashes.
Equity: Providing everyone the specific resources
and opportunities they need to be successful and to
ensure equal outcomes. This differs from equality,
which is treating everyone the same.
Equity mapping: Measuring LOS based on
qualitative as well as quantitative data through
mapping, including various layers of demographic
data to geographically identify system gaps.
Excise tax: a tax that is paid when purchases are
made on a specific good (e.g. gasoline, sporting
goods)
Facility: see “asset”
Facility condition index (FCI): A measure of a
facility’s relative condition at a particular point in
time compared to similar facilities. The FCI rating is
a ratio of the cost of repair of an asset’s deficiencies
divided by the current replacement value for the
asset.
Feasibility study: an evaluation and analysis of
the potential of a proposed project or venture that
objectively explores costs versus benefits. Costs and
benefits can be financial, social, environmental, or
political.
Individual benefit: a good that is excludable and
yields benefit only to one individual or group.
Infill development: development of vacant parcels
of land within the city which were not developed
when initial development occurred, or were cleared
of substandard structures and are ready for new
development.
Level of Service (LOS): an expression of the
minimum recreation and park infrastructure capacity
required to satisfy the needs of residents of the
community. Unless otherwise specified, LOS is
expressed as per 1,000 population.
Life Cycle: all stages of providing a facility or
service including conception, planning, design,
implementation, evaluation, monitoring, retirement,
and/or disposal.
Life Cycle asset management: systematic process
of maintaining, upgrading, and operating physical
assets cost effectively.
Millage: an ad valorem tax that an owner is required
to pay on the value of a taxable property.
Multi-use field: typically rectangular, areas
consisting of either sand-based engineered soils or
artificial turf used for playing surfaces for athletics.
Needs Assessment: a systematic process for
determining and addressing gaps between current
conditions and desired conditions.
Preventive maintenance: regularly scheduled
periodic maintenance activities (within a year) on
selected equipment.
Private good: see “individual benefit.”
Recreation facility: major sport or leisure complexes
that house many formal and informal athletic events.
Recreation Priority Index (RPI): a service evaluation
process that quantifies the value of a recreation
program or service in relation to the mission of the
organization. The RPI ranks programs or services
according to a numeric rating system.
Resilience: The capacity to prepare and plan for
disruptions, to recover from shocks and stresses, and
to adapt and grow from these experiences.
Sustainability: The ability to meet the needs
of today in a way that does not inhibit future
generations from meeting the needs of tomorrow.
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TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Dennis Warrington, Senior Manager, Urban Parks Manager
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Regina Elsner, Interim Senior Manager, Planning and Ecological Services
Stephanie Munro, Senior Manager, Regional Facilities
SUBJECT: Matters from the Department
DATE: May 23, 2022
A. Summer Operations Overview
Boulder Parks and Recreation (BPR) is eager to support the health and well-being of the entire
Boulder community through a wide range of opportunities this summer. The intent of this item is
to provide the Parks and Recreation Advisory Board (PRAB) with an update on anticipated
levels of service across the system based on current staffing levels.
Overview
Throughout the winter and spring, teammates across the department have focused on hiring
enough seasonal staff for peak summer fun in recreation programming, swimming, and in the
park system. Like many organizations, BPR has faced challenges hiring enough staff to fill these
positions. The nationwide labor market shortage has impacted the number of applicants received
for seasonal positions, despite funding available to operate many services this year at near pre-
pandemic levels.
As spring transitions to summer, staff have had to carefully prioritize what services can be
offered to provide maximum benefit to the community.
Operating Scenarios
Workgroups aimed to fill all open positions and have consistent operating hours at recreation
facilities and pools, all services available at the Reservoir and Flatirons Golf Course, and park
amenities fully maintained. During operational planning, staff anticipated three possible “service
level” scenarios in each of the department’s areas of operation to acknowledge the reality that the
labor market would impact actual services available:
o Ideal – Services at planned and optimal levels based on the approved budget and
fully staffed.
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o Reduced – Services at 2021 levels, which are lower than pre-pandemic due to not
enough staff to provide services at the ideal level, i.e., reduced hours and services,
delays in maintenance
o Constrained – Significantly reduced level of services and below 2021 levels, i.e.,
limited services, noticeable reductions, safety is the priority and no services above
and beyond “core services”
Each level had a staffing threshold for what services could be offered. The ideal scenario is
based upon the recovery staff planned for and was funded when developing the 2022 budget.
With just a few exceptions, the department will operate at either a reduced or constrained level
for this summer.
Summer 2022 Operations
Below is a general breakdown of projected parks and recreation operations this summer. This
information is subject to changes as recruitment continues, and the latest information will always
be best found on the the BPR website.
Aquatics
The detailed operational plans for all pools is posted on the Aquatics and Facility Status page and
each facility’s page.
Scott Carpenter Pool
Scott Carpenter Pool, a highly utilized facility in the summer, is one of the highest priorities to
operate fully due to the size and scale of the multi-generational amenities available which allow
it to serve many community members of different interests, ages, and abilities. Its location and
renovated bathhouse also make it highly accessible. Lap pool amenities are anticipated to open
Monday, May 23 with a limited schedule and leisure pool amenities the afternoon of Memorial
Day.
The full summer schedule will begin on Tuesday, May 31. Visit the pool’s web pages for the
schedule.
Spruce Pool
Spruce Pool, BPR’s other outdoor pool, will remain closed for the summer. While Spruce Pool is
a special facility that BPR would love to operate, the significant quantity of lifeguards and
resources needed to open this facility at any level are not achievable and/or feasible. As of
Memorial Day, staff anticipate having approximately 90 of the 140 lifeguards needed for the
‘ideal’ scenario that includes operating both Scott Carpenter and Spruce Pool. While hiring
efforts continue, any additional lifeguards hired will support operations at Scott Carpenter and
the indoor facilities. Additional guards will also address the attrition that occurs every summer as
college students begin to return to campus for the fall semester as early as August 1. As staff
evaluated service levels and staffing threshholds, expanding operations at East and North are
more feasible and logical than opening Spruce due to the ability to incrementally add hours to
facilities already staffed and in operation, the accessibility of universal design and amenities at
the recreation centers, and the ability to serve wider ranges of community members with multi-
generational amenities.
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Indoor pools at recreation centers
Operations aim to maintain current service hours for daily lap swim and leisure pool time at the
indoor pools at the East Boulder Community Center (EBCC) and North Boulder Recreation
Center (NBRC) with only one facility’s aquatics area open on Saturdays and Sundays.
The South Boulder Recreation Center (SBRC) pool will remain closed for the summer outdoor
pool season to complete repairs that started on Monday, May 16 and because of its
comparatively lower ability to serve with only 6 lap lanes and no leisure area.
Staff recognize that many prefer to swim outdoors. Scott Carpenter will provide this opportunity,
and as a reminder, indoor swimming has safely continued amidst the pandemic for nearly two
years. All three recreation centers have Heat Recovery Units to condition the air in pool spaces
and provide large volumes of outside air. Indoor pools are designed in this manner to control
condensation on windows and remove chloramines (aka “the chlorine smell”) from the air. The
Heat Recovery Heating, Ventilation, and Air Conditioning (HVAC( equipment allows for indoor
pools to have increased amounts of outside air while recovering energy from the air being
exhausted. The indoor pools already meet outside air guidance from the Centers for Disease
Control and Prevention (CDC) with systems designed for four to six air changes per hour.
Service Level Increases
Any additional staff hired will support sustaining the planned “constrained” service level,
possibly increasing the hours for Scott Carpenter leisure pool amenities, indoor lap pools, and
indoor leisure pools. Since there is usually turnover in seasonal staff and then an attrition rate
that accelerates as of August 1, BPR will focus on sustaining these service levels and aquatics
operations.
Recreation Centers
Recreation centers are anticipated to maintain current service levels, providing daily access to
open swim, gymnasiums, drop-in fitness and yoga classes, weight rooms, racquetball/handball
and platform tennis, and sauna or steam rooms. As a reminder, and since December 2021,
Monday through Friday 6:00a.m.-4:30p.m., one indoor lap pool is open:
• Monday, Wednesday and Friday: East Boulder Community Center
• Tuesday and Thursday: North Boulder Recreation Center
Visit the recreation centers’ web pages for updated operational information.
The gymnasium at SBRC will remain closed with the flooring replacement beginning in mid-
June, to address flooring damaged by a boiler failure. The gymnasium will reopen for public use
upon completion of the flooring replacement. The new flooring system will support all
previously scheduled drop-in sports and fitness classes and considers the anticipated remaining
life-cycle of the building.
Boulder Reservoir
The Boulder Reservoir entry gate will be open daily for a wide range of services including
boating, swimming, sunbathing, water skiing, fishing, picnicking, walking, running, cycling and
wildlife viewing. The swim beach is anticipated to be open between May 27 – Sept. 5. Please
visit the Reservoir web page for swim beach and lake operations information and hours.
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Under a “reduced” service level, trash removal, mowing, weeding and the removal of goose
waste will happen less frequently, and boat inspections may require schedule adjustments.
Flatirons Golf Course
Services for the Flatirons Golf Course will be at “ideal” levels and the construction schedule for
the clubhouse renovation to begin later this year is on track. As the grill is demolished in advance
of the future clubhouse restaurant, a limited food menu is available in the golf shop and alcohol
sales are temporarily unavailable.
Visit the course’s website the most up-to-date information on the golf course, including a new
mobile app and bookable online tee times.
Recreation Programs and Camps
Recreation programming, including summer camps and the EXPAND program for people with
disabilities, continues to see consistent restoration. Staff plan to operate these programs slightly
below the ideal scenario with the ability to deliver all advertised programs and camps, though
often at more limited enrollment.
As recruitment continues, staff will work to add additional opportunities for participation.
Registration is open now for summer programs! Check out the summer recreation guide for
course descriptions and to sign up.
Park Operations and Maintenance
In a “reduced” service level, staff are prioritizing the safety of parks, including mowing,
playground maintenance, hazardous tree removal, waste management, and graffiti removal when
capacity allows. Work that enhances the appearance of a park but does not impact safety, such as
string-trimming, edging and weed removal, will be completed less often. As a reminder, BPR’s
Park Champ program provides opportunities for neighbors and community members to both help
with general maintenance in their favorite park while supporting their own well-being by
working in the outdoors in Boulder’s park system.
Park shelter rentals are available for this summer with reservations available for one group per
day at Foothills Community Park, Harlow Platts Park, Martin Park and North Boulder Park.
Still hiring
If members of the PRAB or community know someone looking for a summer job, BPR is still
hiring! This includes hiring community members starting at age 14. Community members can
view all open positions and apply at BPRjobs.org.
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Advisory Board Briefing
June 23rd Joint Advisory Board Meeting Overview
Background
As part of its role as advisors to the City Council on environmental matters, the Environmental Advisory
Board has historically been one of the lead advisory bodies on climate change and climate action related
topics. In this role, staff has worked closely with the EAB during periods of major climate action plan
updates to coordinate staff briefings with all related city advisory boards. In both 2015 and 2018 the
EAB convened joint board meetings with a number of other advisory boards on climate related topics.
As part of the next generation of the city’s climate action strategy, the Climate Initiatives Department
has established a new climate action team focusing on “natural climate solutions” (NCS). This builds on
the “ecosystems” focus area that was originally outlined in the city’s 2016 “Climate Commitment”
strategy document.
In April, as part of this expanded focus on natural climate solutions, the city and a
broad consortium of over 20 community partners launched the “Cool Boulder”
campaign. This initiative has three major action areas: “connected canopies”
(urban forestry), “pollinator pathways” (biodiversity/habitat), and “absorbent
landscapes.” Each is described in brief below.
Connected Canopies efforts will focus on working primarily with private landowners—
single and multi-family residences, commercial properties and HOAs—to expand urban
forest canopy to moderate both heat, storm water and other climate-related extremes.
Pollinator Pathways focuses on developing a network of connected landscapes that create
both pollinator and broader species habitats as well as support the creation of “cool
corridors” that aid in the dissemination of extreme heat.
Absorbent landscapes involves working with both urban, working and natural landscapes
to increase their ability to absorb water, carbon and heat in ways that both reduce climate
extremes and contribute to the sequestration of greenhouse gases—both water/water
vapor, carbon dioxide and other air pollutants.
Purpose of Meeting
The development and implementation of these natural climate solution initiatives will necessitate the
close cooperation of multiple city departments in addition to the many different community
stakeholders. As a consequence, all city staff and environmental advisory board members believe it is
timely to bring a number of the advisory boards who work closely with these different departments
together to receive a shared briefing on this initiative. The boards invited to this meeting include: The
Parks and Recreation Advisory Board, the Planning Board, the Open Space Board of Trustees and the
Environmental Advisory Board.
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This effort is expected to be an ongoing part of the city’s climate action strategy. The staff team leading
this effort will develop a guiding strategy with both short-term objectives and long-term goals through
2030. We expect there to be substantial intersection and potentially interaction between the advisory
boards invited to this meeting. The two primary objectives for this meeting are to provide an initial
introduction to this initiative and to begin identifying areas of possible intersection and interests
between the boards who are participating.
Structure of the Meeting
The meeting will be from 5:30 to 8 PM on Thursday, June 23. Pending approval of return to in-person
meetings, the EAB will host a dinner for board members and city staff at the OSMP office at 2520 55 th St
in Boulder. Dinner and a preliminary orientation will take place from 5:30 to 6. A staff presentation of
approximately 30 minutes will be followed by both whole group discussions and breakout sessions on
specific topics including urban forestry, urban heat island management, urban landscaping standards
and related topics. The meeting will be publicly noticed as a joint board study session, with community
members who wish to observe having the option to do so virtually. There will be no public comment as
part of this meeting.
Virtual meeting arrangements will be made for board members and city staff in the event of continued
heightened pandemic precautions. We are excited to create this opportunity for exploration of this
important topic and initiative. Please indicate which members of your board are likely to attend so we
can make appropriate dinner arrangements. For further information please contact:
Heather Sandine, Executive Assistant, Climate Initiatives Dept.
sandineh@bouldercolorado.gov
Sincerely,
Brett KenCairn
Policy Senior Advisory
City of Boulder Climate Initiatives
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