06.27.22 PRAB PacketPARKS & RECREATION ADVISORY BOARD
Virtual Meeting
6:00 p.m., June 27, 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)
II/͘ 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 Meeting Format Check-in (5 minutes)
B.PRAB Holiday Meetings and Retreat Check-in (verbal) (5 minutes)
C.PRAB Matters (verbal) (5 minutes)
IX͘ NEXT BOARD MEETING: 6:00 p.m. Monday, July 25 - Virtual
X. ADJOURN
s. ITEMS FOR ACTION (60 minutes)
A͘ Master Plan Public Hearing and Recommendation
B. 2023-28 Capital Improvement Program Public Hearing and Acceptance
A.BPR Structure and Capacity (15 minutes)
VII͘ MATTERS FROM BOARD MEMBERS
A.Approval of Minutes from May 11, 2022 Study SessionB.Approval of Minutes from May 23, 2022C.Updates from the Director of Parks and RecreationD.Parks and Recreation Project UpdatesE.Parks and Recreation Operations Updates
IV. CONSENT AGENDA (5 minutes)
VI. MATTERS FROM THE DEPARTMENT
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PARKS AND RECREATION ADVISORY BOARD
FUTURE BOARD ITEMS
UPDATED: June 22, 2022
JUNE JULY AUGUST SEPTEMBER REGULAR MEETING June 27: Virtual
• Master Plan Public Hearing
and Recommendation (a)
30m
• 2023-28 CIP Public
Hearing (a) 30m
• BPR Structure and
Capacity (md) 15
• PRAB Meeting Format
Check-in (mb) 5m
• Holiday Meetings &
Retreat (mb) 5m
• PRAB Matters (mb) 5m
Consent items: CU South
update, 2023 Operating
Budget Submission
TOTAL MEETING TIME:
2 hr
(Includes 30 minutes for
public participation and
consent agenda)
July 25: Virtual
• HiPP Update (d/i)
• BVSD Joint Use
Agreement (d/i) 30m
• Board and Commision
Inclusion (mb)
• Decide GAC
Representative (mb)
• PRAB Matters (mb)
August 22: TBD
• PRAB Retreat Planning
(mb)
• BVSD Joint Use Agreement
(a) 10m
• PRAB Matters (mb)
• FGC Restaurant RFP
selection (d/i) 15m
September 26: TBD
• HiPP (d/i)
• Reservoir Annual After
Action Review (d/i)
• GAC meeting follow-up
(mb)
• PRAB Retreat Agenda
Review (mb)
• PRAB Matters (mb)
STUDY SESSION • POSTPONED: June
23 Joint Study
Session on Cool
Boulder Campaign
• DATE TBD: Joint Study
Session on Cool Boulder
Campaign
Department Events and Items of Interest • Boulder Arts in the Park
event series (May-Sept) (e)
• SBRC Shut Down June 18-
26 (h/c)
• June 20: Juneteenth
Observed (h/c)
• July 4: July Fourth
Holiday (h/c)
• July 19: BPR Master
Plan at Planning Board
• August 4: BPR Master Plan
Acceptance (cc)
• August 13: Valmont Skate
Park and Pump Track
Celebration (e)
• EBCC & NBRC: Shut
Downs; NBRC August 13-
21; EBCC August 27-
September 5 (h/c)
• August 18: Planning Board
Hearing: Recommended
2023 Budget
• September 15: Budget:
Council Study Session
AGENDA SETTING
The PRAB Chair, PRAB Vice Chair and BPR staff set the agenda for the next month on the Thursday directly following the regula r 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.
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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: Consent Agenda
DATE: June 27, 2022
A. Approval of Minutes May 11, 2022 Study Session
B. Approval of Minutes May 23, 2022 Regular Meeting
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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: May 11, 2022
Contact Information Preparing Summary: Charlotte O’Donnell, 303-413-7223
Board Members Present: Charles (Chuck) Brock, Elliott Hood, Mary Scott, Jason Unger, Sarah
(Sunny) van der Star, Pamela Yugar
Board Members Absent: Anita Spiers
Staff Present: Bryan Beary, Jackson Hite, Stacie Hoffman, Stephanie Munro, Charlotte
O’Donnell, Chris Passarelli, Ali Rhodes
Guests Present:
Type of Meeting: Special/Study Session
Agenda Item 1: Call to Order
The meeting was called to order at 6:02 p.m. A quorum was present for the conduct of business.
Motion to approve agenda. Motion by Unger. Second by Brock. The motion passed 6-0.
Agenda Item 2: Items for discussion
A. 2023 Budget Strategy
Hite and Hoffmann presented this item.
PRAB had the following comments and questions:
• What does non-standard staffing mean?
• Are the budget numbers for past years adjusted for inflation?
• Does the state dictate how lottery funds are distributed? How does any additional lottery
funding get distributed?
• How much has the year-end adjustment been in the past few years?
• Are the FTE requests additional staff?
• What is the difference between what is being reinstated versus what is new services?
• How does the lifeguard challenge play into the decision to fund other positions. Should
BPR consider raising wages for lifeguards instead of funding other positions?
• Why is there a labor shortage?
• Does this budget restore the number of FTE to pre-pandemic levels, more than pre-
pandemic levels?
• Where is the funding for the master plan statements about greenhouse gases? Is there need
for FTE support?
• Would it be possible to see a new organizational chart and old organizational chart for
BPR?
• Is the $32K for EXPAND additional funding to what they already receive?
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• EXPAND staff is fantastic.
• The golf course revenue contributes to RAF. With construction, will revenue decrease at
the course? Once construction is complete, will the new facility increase revenue?
• What would 80% recovery of visitation look like?
• Has there been any further discussion on treating workers as non-residents?
• Are there plans for collecting data on how many users are from Gunbarrel?
• To clarify, the budget is balanced if the request for additional general funds is accepted?
• Support for asking for support from the general fund. Council has shown support for
parks and recreation. Since BPR is struggling, it is appropriate for council to back up
verbal support by designating funds.
• If the request is denied would BPR have to make other cuts to balance the budget?
• What is the total city budget? This ask for general funds is a small percentage.
• Is BPR the only department asking for general funds? Or are other departments also going
to ask council?
• When will BPR be taking this to council? When can PRAB expect to hear back on
whether the request was granted?
• PRAB showed support for the budget request.
• Recognizing this is a difficult, unprecedented time, congratulations to staff on this
thoughtful proposal. Support for this proposal.
• Would this budget be considered bold or conservative? BPR wants to bring services back,
but is this too ambitious for recovery?
• Thanks to staff and for this presentation.
Agenda Item 3: Brock, Unger. 6-0. The meeting was adjourned at 7:33 p.m.
Approved by: Attested:
_______________________ _________________________
Raj Seymour Charlotte O’Donnell
Board Member BPR Staff
Date _____________________ Date ____________________
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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: May 23, 2022
Contact Information Preparing Summary: Mora Carrillo
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: Megann Lohman, Aaren Morrell, Stacie Hoffmann, Bryan Beary, Tina Briggs,
Mora Carrillo, Regina Elsner, Jackson Hite, Stacie Hoffman, Ali Rhodes, Jonathan Thornton,
Stephanie Munro, Dennis Warrington
Guests Present: Angie Jeffords with PLAY. Sarah Horn and Becky Zimmermann with DW
Design (Master Plan Consultants)
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 Unger. Second by Brock. The motion passed 7-0.
Agenda Item 2: Future board items:
Rhodes reviewed upcoming agenda items and events.
Agenda Item 3: Public participation:
Larry McKeog spoke about the closure of Spruce Pool and explore ideas to resolve the
challenge of staff levels.
Mary Gorman spoke about the closure of Spruce Pool and provided different suggestions to
help gather more lifeguards to keep the facility open.
Lynn Stein spoke about the Spruce Pool closure and plead to keep the pool open. Also asked
what are we going to do differently next year so we are not in the same situation again.
Agenda Item 4: Matters from the Department
Rhodes introduced Angie Jeffords, Executive Director for PLAY. PRAB had the following
comments/questions
• PRAB will be present at the duck race fundraiser.
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Agenda Item 5: Consent Agenda
A. Minutes from April 25 Regular PRAB meeting
Motion to approve the minutes from April 25 Regular PRAB meeting. Motion by Scott. Second
by Hood. The motion passed 7-0.
C, D, E. Updates from the Director, Operations and Development
PRAB had the following comments/questions
• What the department is doing is outstanding.
Agenda Item 6: Items for Action
A. Growing Gardens Lease
Beary presented this item. PRAB had the following questions/comments:
• Could you explain the difference between a seasonal plot and the reduce rate fee plot?
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 in a manner that is
consistent with applicable laws and the policies and regulations of the City of Boulder.
The motion passed 7-0.
Agenda Item 8: Items for discussion/information
A. 2023 Financial Strategy
Hoffmann presented this item. PRAB had the following questions/comments:
• PRAB supports the access fee increase
• PRAB supports the additional general fund subsidy
• PRAB supports reductions if alternative funding is not available.
• PRAB appreciate all the hard work put into this.
B. Master Plan Review
Elsner presented this item. PRAB had the following questions/comments:
• What is the process on reallocating grants?
• Great presentation but believes there is one element to be missing related to climate.
Would like to see a page like p.22 on anticipating climate trends and describing what the
climate emergency means to Parks & Recreation, and how affects decision making. Also
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saw the term of “Latinx” would like to make sure the term is appropriate for the
document.
• Clarifying questions on SBRC life-cycle and funding.
• Congratulations on the 95% document. It was easy to follow and user friendly. If there is
a print copy a suggestion is to put a tab on the sections. Love the references on the 2014
plan. Really like the map that is towards the end of the document; if there is way to use
that technology more throughout the documents like in the climate section or levels of
usage, it might be an easier to convert some of the written context into a visual.
• Congratulations to Ali and department on the new Master plan, for the great design and
work put onto this.
Agenda Item 7: Matters from the Department (continued)
C. Summer Service Levels Update
Rhodes presented this item. PRAB had the following questions/comments:
• Regarding the lack of classes in May and wait list. What is the cause of the back log?
• How are they getting trained if they are not employees, are they becoming employees, or
just becoming certified volunteers?
• Are there additional classes in June? And are these available for registration?
• Understand the concerns of the community. Believes the department has done a good job
of addressing the shortage of lifeguards and other employees. Appreciates all the creative
solutions. What is the cost to maintaining Spruce Pool versus the cost to keep it open?
• PRAB member discussed pay rates, believes is hard to balance a budget. Nurse salaries
starting pay rate is $28.96 Understand everyone deserves their salary. It is just
unbalanced. Hopes to find a middle ground
• Even if we get more lifeguards trained in June and July, Spruce Pool is going to remained
closed, is that the correct assessment?
• Have we explored for a temporary lease for Spruce Pool? It seems such a shame to leave
that facility empty. What potential do we have to grow it?
D. Joint June Board Meeting
PRAB had the following questions/comments:
• Scott, Van der start hood, Brock, and Hood to attend.
• Will debrief the joint meeting as a Matter from the Board in July.
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Agenda Item 8: Matters from the Board
A. PRAB Community Engagement and Matters from Board Members (MfB)
• When is a good time to suggest new agenda items?
• Board prefers to discuss possible agenda items during the MfB
• During MfB, allow PRAB members to bring forward concerns, questions, and
suggestions they may have themselves or have heard from the community - but not to
include discussion of substantive topics since they will not be noticed on the agenda..
• Open the floor to suggestions for future board tours, outreach events, etc. –
• Fully supported of the need for something like this, and it is a good way to end the
meeting to draw on topics discuss at the meeting.
• Would like to add “CU South” update to the agenda next month in consent agenda.
• Would like to follow up on free passes, and/or childcare offer for board members.
• Kudos to the gymnastics program, and all the great staff there.
Agenda Item 9: Next meeting: Joint Study Session on Cool Boulder 6:00 p.m. Thursday, June
23 (OSMP Hub). Regular Meeting 6:00 p.m. Monday, June 27 (Virtual)
Agenda Item 10: Motion to adjourn. Motion by Hood. Second by Unger. The meeting was
adjourned at 8:16 p.m.
Approved by: Attested:
_______________________ _________________________
Pamela Yugar Mora Carrillo
Board Member BPR Staff
Date _____________________ Date ____________________ 05/31/2022
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C. 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 recently moved from yellow, or level medium, to red, or level
high, on their tracker of community risk.
The City of Boulder has made the decision to maintain all-virtual City Council meetings and
public engagements, due to concerns about trends related to COVID-19. City facilities and
services will remain open to the public. Staff will be required to wear masks while working
indoors in city facilities or when in vehicles with others.
Based on the burden it puts on staff to enforce a mask mandate for community members and
non-employees without a public health order supporting enforcement, the city is not requiring
masks for customers and patrons at this time. 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.
COVID- 19 Community
Level Low Medium High
Office-Based Work Hybrid Required
Hybrid Optional
Facilities Remain Open to Public*
Hybrid Optional;
Facilities Remain Open to Public*
Field-Based Work In-Person In-Person In-Person
Council/Board Meetings
Council Hybrid
Public Hybrid
Council Virtual**
Public Virtual
Council Virtual**
Public Virtual
Indoor Masking in City
Facilities Optional and Welcomed
Required for unvaccinated employees;
Recommended and available for
others
Required for all Employees
*Individual facility closures may occur due to localized outbreaks or insufficient staff capacity
**Council has discretion to convene in person
Shift to higher restriction occurs Fridays following CDC update to higher level
Shift to lower restriction occurs Fridays following 2 consecutive CDC updates to or at a lower level (7-day period)
The CDC updates Boulder county’s data every Thursday evening. Updates to current restrictions
are anticipated to be made seven days after a change in status by the CDC.
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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.
History of Park Names Project Update
Beginning in Summer 2020, BPR engaged University of Colorado Department of History to
research the history of park names in Boulder with a special focus on racial inequities. Across
the county agencies are evaluating place names against a modern understanding of systemic
racism. CU History presented this information to PRAB for discussion in June 2021(starts on
page 65).
Since last summer, CU interns and BPR staff have worked to translate this research into an
online platform accessible to the community. Staff anticipates launching the webpage and
interactive maps in late June. The below table outlines work completed since the PRAB was last
updated on this matter, and city staff are eager to share the findings of this partnership.
Fall 2021 •Undergraduate interns started an online interactive map
format to share with the public.
Spring/Summer 2022 •Staff and graduate interns finalized the online map for
publication and developed communications to share
with the community.
•Staff and CU will launch the webpage and share social
media posts.
The city is deeply grateful for the scholarship and partnership of the staff and students at the CU
Boulder History department – they have helped to tell the stories of Boulder’s amazing parks.
South Boulder Creek Flood Mitigation
Upon request of the PRAB, this item provides an update on the South Boulder Creek Flood
Mitigation project. The South Boulder Creek Flood Mitigation Project and related CU South
Annexation have undergone significant process in the past couple of years. The flood project
received direction from city council with the approval of the Variant 1, 100-yr flood project
configuration on June 16, 2020. Since the last update to the Parks and Recreation Advisory
Board, the project reached a major milestone for the project in September 2021 with Boulder’s
City Council and CU Board of Regent authorization of an annexation agreement for the CU
South Property, which includes provision of continued shared recreation uses for the community
and university, including parks, trails and fields.
Recent activity related to CU South has been focused on the flood mitigation project relative to
preliminary design and permitting as described in a March 13 City Council information packet
item. Major capital improvement projects typically go through several phases of design prior to
bidding and construction. The project phases include conceptual design and 30-, 60-, and 90-
percent design followed by issuance of bid documents, which eventually become an executed
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construction contract. The South Boulder Creek Flood Mitigation Project is currently wrapping
up preliminary design at the 30% level, which includes the following elements:
•Groundwater Modeling – development of a baseline groundwater model and analysis of a
proposed groundwater system.
•Hydraulic Modeling – development of an updated floodplain model and design of the
earthen embankment dam and concrete spillway and excavation area.
•Civil Design Layout – provide grading layout and sizing for the embankment dam,
spillway, outlet works, groundwater conveyance system, and other project components.
•Geotechnical Investigations – characterize the soils, groundwater, and bedrock conditions
in the project area for borrow sources, groundwater design and excavation conditions.
•Environmental Permitting – submit initial permit documents, including federal permits:
waters of the US and threatened and endangered species.
D. 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.
•Historic Places Plan (HiPP): BPR hosted a window of community engagement for the
HiPP in May, which was also Historic Preservation Month. A self-guided scavenger hunt
was developed as a fun and interactive way to help inform community members about
BPR’s 12 historic places and the upcoming plan. The main goal for this window of
engagement was to develop and increase awareness of the project.
Community members had access to a self-guided tour with the option to participate in a
scavenger hunt for entry into a drawing for some fun prizes. The scavenger hunt focused
on active family participation via bicycle or on foot with 3 connecting loops for lots of
options. The scavenger hunt was available online or participants could pick up paper
copies available at each recreation center May 9 -23.
The scavenger hunt was shared widely on social media with the highlight of being pick ed
up by Fox31 News for live TV interview on May 9 airing in the metro area (link to clip).
In addition 8 large banners were placed at each of the sites along the scavenger hunt to
identify the location along the route, creating more awareness and interest among the
community. Overall community members shared positive feedback on the scavenger hu nt
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experience and support for the HiPP project with 464 unique visits to the HiPP webpage
in April and May 2022 with a large increase in visits the week of May 9.
Staff also hosted a table focused on the HiPP at the Historic Boulder lecture event about
Fredrick Law Olmstead Jr on May 18. This provided targeted outreach to the preservation
community and a chance for in-person conversations with the public.
Pictured: A family takes a selfie at Chautauqua as part of the scavenger hunt (left). Prize
winners were picked at random to receive t-shirts, silent film tickets and recreation passes
(right).
Additional PRAB, staff, stakeholder, and community engagement are in the planning
stages for late summer and fall of 2022. A recent change in staffing has caused a short
delay in the planning process as work is re-aligned between staff and consultants. The
project completion is still anticipated the end of 2022.
•Flatirons Golf Course: As noted in the April 25, 2022 PRAB memo (starts on page 15),
the architect and construction team have refined the construction documents to include
the value engineered features that were selected to reduce the project cost. An increased
budget to help offset the unprecedented inflation the industry is experiencing was
approved by City Council in the Adjustment to Base on May 17, 2022.
While the construction documents are under review for permitting, BPR’s marketing
team is making plans to ensure the community is aware and excited about the upcoming
facility and the community benefit that is part of the project. Preliminary work on the
project began in 2019 with the first community engagement meeting in June of 2020.
This is a common timeframe from the beginning of a concept plan discussion through
construction of a new facility. As a key to success, staff wants to reinvigorate excitement
for the project and show the community how their voice will be realized. The consultant
is currently working on new visuals to help tell the story.
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•Glen Huntington Bandshell: A proposal to expand the landmark boundary of the Glen
Huntington Bandshell was discussed at a lengthy second reading by City Council on June
14, 2022.The June 14, 2022 City Council memo includes the proposal information and
community, PRAB and Landmark Board feedback for consideration. The discussion
ended with a 5:4 decision in favor of the staff recommendation as outlined in the below
motion:
‘Staff requests council consideration of this matter and action in the form of the following
motion: Motion to not approve Ordinance 8521 amending the designated boundary to
include all of Block 13 for the property at 1236 Canyon Blvd., City of Boulder, Colorado,
a landmark under Chapter 9-11, “Historic Preservation,” B.R.C. 1981; but to direct
Planning and Development Services staff to prioritize preparation of an application to
designate a larger Civic Area historic district in 2023, to include all of Block 13.’
The council provided guidance for staff to prioritize a more holistic look into a larger,
more encompassing historic district that acknowledges the historic resources in the area and
the evolution of the place over time.
•North Boulder Park, Playground Replacement and Shelter Renovation: The
department’s Capital Improvement Program (CIP) allows for yearly repairs and
renovations of existing playgrounds and is focused on those that are over 20-years old.
This funding provides asset maintenance throughout the system as well as a complete
renovation of one neighborhood park annually to meet the goals outlined within the BPR
Master Plan and Capital Investment Strategy. In 2022, the existing playground at North
Boulder Park will be replaced as part of this program.
The existing playground equipment at North Boulder Park was installed in the late 1990s
and has surpassed its useful life: Playgrounds generally have 25-30 year lifespan before
needing to be replaced as part availability becomes an issue on older models and repair
frequency increases. Replacement of older playground equipment also allows the city to
keep up with current playground safety standards and address changes in playground
trends and design.
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Portions of the playground around the park shelter were
renovated in 2014. These improvements included
addressing significant accessibility concerns identified in
the department’s transition plan resulting from an update
to the Americans with Disabilities Act. The renovation
project also included installing new exercise equipment
near the existing playground.
In 2018, a small bike tot-track was installed on the north-
east corner of the playground. This installation was
possible as part of funding for an art sculpture that was
not able to be realized.
The playground replacement at North Boulder Park will
provide opportunities for children of all ages to play, interact, and learn alongside their
peers, within the existing playground footprint. Community engagement for this project
will focus on specific design alternatives for the play equipment, such as colors and style
of equipment. A final concept plan for the playground replacement will be developed
from that community input. While playground design will be specific to the North
Boulder Park, there are standards that the department includes in all playground designs,
including:
-Playground equipment that can be used by children ages 2-5 and 5-12.
-Equipment that can enjoyed by children of all physical and mental abilities.
-A variety of equipment that focuses on developing social and motor skills for
different ages.
-Swings for 2-5 and 5+ age groups, sand play, and slides.
-Shade: incorporated into play equipment, shelters, or trees.
In addition to the playground replacement, the department is also coordinating with the
city’s Facilities Department to renovate and improve the existing shelter and shelter
restrooms. The existing restrooms will be converted to year-round, unisex, ADA
compliant facilities.
Other items being considered with the renovation include installation of city wi-fi system,
security lighting, and providing storage for the department to facilitate on-site
programming.
Public engagement for the design of the playground replacement will begin in July of
2022. The first part of engagement will consist of an on-line questionnaire to gauge
playground users’ preferences in playground themes, styles, and colors. An evaluation of
the feedback will inform the selection and layout of the playground equipment. A final
concept plan will be presented to the public and PRAB once this analysis is comp lete.
Below is an approximate timeline for duration of the project:
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-Project kick-off: June 2022
-Initial public outreach questionnaire: July 2022
-Analysis of public feedback and concept plan development: August through
September 2022
-Final concept plan: September 2022
-Materials purchasing and procurement: September through October 2022
-Anticipated construction start date: November 2022
E. Operations Update
Regional Facilities: Boulder Reservoir
The neighbor spring meeting with neighbors as part of the Good Neighbor Commitment (GNC)
was postponed. This was due to: some neighbors unable to attend due to summer vacations , the
city’s COVID status as “High Community Risk” as outlined by the CDC and the preference from
staff and neighbors to hold the meeting in person. Staff provided communication to the
neighborhood email list and community liaisons with an overview of topics that were intended to
be presented during the meeting. The communication email provided an overview of the summer
reservoir high season operations as reviewed by the PRAB in last fall’s After Action Review
(AAR) process, the Reservoir’s sound Standard Operating Procedures, and Driftwind’s Plans for
summer operations for the 2022 season. As the peak season is now underway, staff are focused on
operations and fulfilling all commitments for a successful summer and will include neighbor’s in
the 2022 AAR process.
Natural Lands
•Urban Wildlife Management: Recently staff collaborated across departments and
organizations to relocate an osprey nest near the entrance to the Boulder Reservoir. An
osprey pair was displaced from their annual nesting spot by geese and started to build on
a live electric pole. City policies do not allow for the removal of birds from active nests,
including geese, so staff had to act quickly to find a safer location for the osprey to build
their nest. Working with Open Space and Mountain Parks, Colorado Parks and Wildlife,
and Xcel Energy, a new nesting platform was constructed nearby, topped with the
beginnings of a new nest for the osprey. Staff confirmed in June that the ospreys were
sitting on the nest regularly, which is a likely sign of egg incubation. The success of this
nest is especially important with the failure of nearby nests on OSMP lands and the
Boulder County Fairgrounds. You can read more about this project in the city’s press
release or the Boulder Daily Camera article that includes this story.
•Volunteer Programs: The annual Birds of Special Concern monitoring program began
in April with volunteers around the Boulder Reservoir looking and listening for species
of concern, including but not limited to Burrowing owl, American bittern, Northern
harrier and osprey. Since monitoring began this year, volunteers have submit ted 120
16
reports. Early analysis indicates mixed success for the Northern harriers, but a good year
for American bittern. Reports indicate three to four pairs of bittern on the west side of the
Reservoir and the return of a pair in the Coot Lake wetlands. In 2021, a single bittern was
documented once in Coot Lake, but the last documented pair in the Coot Lake wetlands
was in 2018.
Forestry
Boulder Forestry performed emergency response to tree damage resulting from the May 21, 2022
snowstorm. Forestry crews and contractors removed failed trees, hanging branches and large
diameter downed limbs from public rights-of-way to mitigate public safety hazards.
Forestry received 137 snowstorm-related Inquire Boulder requests between May 20 and June 7.
Between the Inquire Boulder requests and a city-wide survey performed by Forestry staff, 260
Beehive (the city’s asset management software) events (a work order) were generated for storm
damage pruning or removal of public trees. Two hundred events were assigned to the Forestry
crew, and 60 events to Forestry contractors. As of June 15, the Forestry crew is 75% complete and
contractors are 83% complete with emergency response. Contracted expenses from this storm have
totaled $23,760 to date, with the remaining contracted work not yet billed.
Staff dedicated approximately 3 weeks responding to the storm and surveying for damage and are
still responding to Inquire Boulder requests trickling in regarding tree damage. Forestry
categorized this as a “moderate” storm event based upon the overall impact to the urban tree
canopy, number of public trees impacted, and size of tree branches affected.
17
The city did not perform a citywide branch clean-up. City wide branch cleanup is a resource
intensive service and reserved for storms categorized as “extreme” that impact a large number of
both public and private trees. Past examples include the March and April 2016 and September
2020 snowstorms.
During typical storm response, such as the May 21 snowstorm, Forestry crews will only collect
downed tree branches greater than 10 inches in diameter from public trees. In advance of this storm
event, this expectation was communicated to the community and consistently recommended the
following mitigation options for residents through social media, press releases, news, City web
pages, and the Inquire Boulder System:
Please pull downed limbs out of or to the side of the Right of Way and do one of the following for
mitigation:
-Haul to Western Disposal: 5880 Butte Mill Rd, Boulder CO 80301
-Call a licensed tree care contractor: https://bouldercolorado.gov/services/arborists-and-
tree-contractors
-Put into compost disposal bin
One action item from the 2018 Urban Forest Strategic Plan is the development of a Forestry
Emergency Response Plan to improve response to storms causing tree damage. Tentatively
scheduled for development in 2024, the plan will include a storm damage rating system and
recommend appropriate levels of clean-up based upon storm extent and damage severity to ensure
consistent citywide coordination and response.
Recreation Facilities and Programs
South Boulder Recreation Center (SBRC): The SBRC will be closed June 18-26 for a routine
annual maintenance shutdown. Larger facility projects will continue during this time, the building
will be deep cleaned and routine maintenance to be performed.
During the initial leak repair of the SBRC pool, additional leaks have been found. Facility staff is
currently working with contractors to understand the full scope of the pool repair project and
determine the most appropriate plan to address deficiencies. The result of this work may cause
minimal delays to the installation of the new gym flooring within the former racquetball room
adjacent to the pool.
Health, Wellness & Gymnastics: The department recently hired a new Recreation Program
Manager (Health & Wellness) to support the growth of drop-in and registered fitness and mind-
body programming as the fall season approaches. The team of program managers is currently
working to on-board additional front-line staff, such as class instructors and personal trainers, to
enhance the health and wellness offerings within recreation centers. Drop-in programming is a
large driver of facility usage and the growth in this program will support community health and
wellness as well as adding value for pass holders.
18
Gymnastics programming continues to outpace projected recovery as shown with registration
representing 136% participation when comparing summer 2022 to summer 2019.
2019 Summer 2022 Summer
100% 136%
381 518
Dance: The department has recently ended its contract relationship with Kinesis Dance for youth
and adult dance programming. Staff intend to repost a Request for Proposals (RFP) for dance
vendors in late summer or early fall for a reimplementation of programming in winter 2023.
Existing department staff may introduce some dance type actives for youth and adults in the
meantime, however, the scale will remain limited until a new vendor is selected to foster the
program.
Aquatics: Summer operations are in full swing and the aquatics team continues to recruit for
seasonal, variable hour, and standard positions. The team is currently in the process of interviews
for a new Facilities Lead Technician (Aquatics ). This recently vacated position is responsible for
the mechanical and chemical management of the city’s pools. One additional Aquatic Facility Lead
(AFL, standard lifeguard position) is in process of being hired and recruitment continues for two
more AFL positions. Additionally, recruitment continues for both lifeguard and head lifeguard
roles with certification trainings available to only those who have applied and passed a swim test
as part of an interview. Employees are paid to attend this training. Certification classes are
scheduled once every two weeks, in alignment with required start dates for new employees.
2023 Operating Budget Submission
Between February and May, Boulder Parks and Recreation (BPR) staff provided regular updates
on the Recreation Activity Fund (RAF) based on impacts from COVID and gathered the Parks and
Recreation Advisory Board’s (PRAB) input on 2023 recreation user fees and levels of service.
Concurrent to this RAF-specific process, staff has worked to develop a 2023 budget submission
for the whole department that integrates community feedback from the 2022 Parks and Recreation
Master Plan, rebuilds parks and recreation programming in a way that is responsive to community
feedback, and provides equitable service delivery for acces s to parks and recreation facilities and
programs.
The department developed the 2023 proposed budget between April and early June in
consultation with staff and the PRAB and in alignment with the city wide goals articulated in the
Racial Equity, Sustainability and Resilience framework, and the department’s 2022 Master Plan
(98% complete). Department staff are presenting the budget proposal to the Peer Review Team
19
(PRT) and Executive Budget Team (EBT) throughout June and into July. These teams review the
department’s proposal as it relates to 2023 key policies and desired outcomes and in the context
of the City’s overall budget. The proposed budget as submitted by expense type and fund is
summarized in Table 1.
Table 1: 2023 Proposed Expense Type by Fund
Fund Personnel Operating
(NPE)
CIP Cost
Allocation
Total
General Fund $5.1 million $1.8 million $0 $0 $6.9 million
.25 Cent ST $4.3 million $2.7 million $1.6 million $0.7 million $9.3 million
RAF $8.2 million $4.1 million $0 $0 $12.3 million
Perm Parks $1.1 million $0.4 million $2.2 million $0.2 million $3.9 million
Lottery $0 $0 $0.4 million $0 $0.4 million
Capital Other
Funds
$0 $0 $3.2 million $0 $3.7 million
Total $18.7 million $9.0 million $7.4 million $0.9 million $36.0 million
The Central Budget guidance for 2023 budget development has focused on strategic service level
restoration for services impacted during COVID, while also accounting for the changing labor
market and inflationary pressures which are increasing the cost of goods, services , and capital
projects.
At the May 11, 2022 Study Session, PRAB received a presentation on the major budget requests
the department was submitting as part of the 2023 budget proposal. The requests are summarized
by fund here:
•Within the General Fund, the department has requested ongoing financial support for
Urban Parks, Forestry, and continuation of the Ranger Program. These budget requests
are tied to personnel and non-personnel costs to ensure the park system and urban tree
canopy are kept up to the standards called for in the General Maintenance and
Management Plan and the Urban Forestry Strategic Plan, while providing additional
education and enforcement of park rules across the 1,800+ acre system.
•Within the .25 Cent Sales Tax Fund, budget enhancements would support additional
maintenance work at Valmont Park and across the Natural Lands areas, along with
general park maintenance focused on taking care of existing assets. Additionally, a grants
and philanthropy position would be added to support a recommendation of the 2022
Master Plan to seek additional outside funding.
•The Permanent Parks and Recreation Fund request includes an additional seasonal staff
member for the Parks Construction crew to help add staff capacity wi th peak work
seasons.
•The budget proposals for the Recreation Activity Fund are focused around continued
restructuring and stabilization of recreational services to provide consistent levels of
20
service with an emphasis on access and programming for low-income individuals, people
with disabilities, youth and seniors. These budget requests would support the current
levels of services for recreation centers and expand staff capacity at growing programs
such as the Reservoir and Gymnastics, while accounting for increased costs to operate
our facilities and provide different programs.
•Finally, BPR has requested additional General Fund subsidy to the RAF in line with
actual costs of providing access and programs to current financial aid participants along
with subsidies to youth and seniors. This increased subsidy is offset by the proposed
facility access fee increase that PRAB recommended on May 23, 2022.
Staff anticipate further refinement to the budget submission based ongoing analysis of revenues ,
and expenses as well as citywide policy direction. Staff will continue to work with Central
Budget on the department’s budget proposal before City Council reviews the budget (September
2022) and approves it (October 2022). Staff will report back to the PRAB with a final
recommended budget later this year.
Impacts
Operating Budget: Based on the 2023 base budget and departmental proposals, the operating
budget totals $28.6 million: $18.7 million in personnel costs, $9.0 million in operating non-
personnel costs and $0.9 million in cost allocation. Collectively this amounts to an
approximately 20% increase in expenses or $4.8 million when compared to the 2022 approved
budget.
CIP Budget: $7.4 million is recommended for 2023 with the 2023-2028 CIP projecting an
investment of $34.9 million throughout the six-year program. This equates to average annual CIP
funding of $5.8 million and reflects the total uses of funds projected from the Lottery Fund, .25
Cent Sales Tax Fund, Permanent Park and Recreation Fund, along with other expenses planned
in the Boulder Junction Capital Development Fund, Governmental Capital Fund, Capital
Development Fund, and Community, Culture, Resilience and Safety Tax Fund.
NEXT STEPS
At a future PRAB meeting, staff will provide an update on the 2023 proposed budget. The
proposed budget will be reviewed by the city’s Executive Budget Team in June and July,
discussed by City Council in September 2022, and is scheduled for adoption by City Council in
October 2022. All funds would be appropriated and available starting in January 2023.
Attachments:
•Attachment A – May 11, 2022 PRAB Presentation
21
2023 Budget
Development PRAB May 20221
Attachment A - May 11 presentation
22
Intent
•The Department is requesting PRAB’s input in developing the 2023 Budget
Strategy
•Review of the proposed 2023 Budget Submission
•Discuss several options to help achieve a balanced budget for the RAF in 2023
•Answer any question about the Capital Improvement Program (CIP) for 2023-28 PRAB May 20222
Attachment A - May 11 presentation
23
3
PRAB
February2022
Fee Development
Process
Budget Framework
2023 Strategy
Overview
PRAB
March 2022
Financial Update
Review Fee Options
PRAB Select Levers
CIP First Touch
PRAB
April 2022
Respond to
Proposed Fees
CIP Second Touch
PRAB May
2022
2023 Budget Review
Approve Perm Parks CIP
BPR
May 2022
2023 Budget
Submittal
(June-December:
Approval Process)
BPR
March 2022
2023 Budget Kickoff
2019-Q1 2022 Financial
and Service Level Analysis
Develop Fee
Levers/Options
BPR
April 2022
Complete Financial Modeling
for PRAB Prioritized
Levers/Options
BPR
February 2022
2019-2021 Financial and
Service Level Analysis
Develop 2023 Budget
Strategy
PRAB ENGAGEMENT
TIMELINE
PRAB May 2022PRAB
May 2021
Special Study
Session
A ttachment A - M ay 11 pr es entation
24
City Manager
Goals and
Priorities for
2023 Budget
Continued Service Restorations and
Capacity Increases to Deliver Services
Responsive to Organizational
Workplans and Council Priorities that
are in Alignment with City Goals
Budget Proposals Articulate Intended
Outcomes with a Focus on Equity
Capital Improvement Plan Reflects
Opportunity of Multiple Funding
Options PRAB May 2022A ttachment A - M ay 11 pr es entation
25
5 PRAB May 2022BPR 2023 Budget Development Strategy, Key Impacts & Outcome
Deliver a Balanced
Budget
All funds are balanced for
2023 except for the
Recreation Activity Fund
Alternate funding is needed
to balance the RAF without
significantly decreasing
service levels
Master Plan
Alignment
2023 budget proposal is
aligned with current
Master Plan
Looking to further define &
align budget philosophy and
policy direction with the
Master Plan Update
Prioritize Service
Levels
Prioritized service
delivery based on safety,
financial sustainability
and classification of
services
Maintained important
services and those with the
greatest community benefit.
Equity/Equitable Access Focus
Evaluate Staffing
Levels
Adjusted staffing levels to
support long-term
sustainability and provide
quality services
Department is requesting to
increase 16.0 FTE and increase
NS staffing hours to support
service levels
A ttachment A - M ay 11 pr es entation
26
0.00
5,000,000.00
10,000,000.00
15,000,000.00
20,000,000.00
25,000,000.00
30,000,000.00
35,000,000.00
40,000,000.00
2019 Actual 2020 Actual 2021 Actual 2022 Approved Budget 2023 Proposed
Operating- PE Operating- NPE Capital Capital - Other Funds September Snowstorm Cost Allocation & Interdepartmental Transfer
6 PRAB May 2022BPR Uses of Funds: 2019 Actual –2023 Budget Proposal
$38.1
$29.8
$23.8
$28.3
$35.8
$21.5
$17.8
$18.9
$23.1
$27.5
2023 Budget Proposal
Total: $35.8M
Operating
Total: $27.5M
PE: $18.5M
NPE: $9.0M
Base Budget: $24.9M
PE: $17.0M
NPE: $7.9M
2023 Proposal: $2.6M
PE: $1.5M (16.0 FTE)
NPE: $1.1M
CIP
2023 Total: $7.4M
Capital: $4.2M
Capital Other: $3.2M
Cost Allocation: $0.9M
A ttachment A - M ay 11 pr es entation
27
7 PRAB May 2022 $-
$5,000,000.00
$10,000,000.00
$15,000,000.00
$20,000,000.00
$25,000,000.00
$30,000,000.00
$35,000,000.00
$40,000,000.00
$45,000,000.00
2019 Actual 2020 Actual 2021 Actual 2022 Approved Budget 2023 Proposed
General Fund .25 Cent Sales Tax Fund Recreation Activity Fund Permanent Parks & Recreation Fund Lottery Fund Capital Other
BPR Uses of Funds per Fund: 2019 Actual –2023 Budget Proposal
$38.1
$29.8
$23.8
$28.3
$35.8
2023 Budget Proposal
Total: $35.8M
Base: $24.9M
Operating Proposal: $2.6M
General Fund: $6.7M
Base:$5.6M
Proposal: $1.1M
.25 Cent Sales Tax Fund: $9.0M
Base: $6.3M
Proposal: $0.8M
CIP: $1.2M
Cost Allocation: $0.7M
RAF: $12.1M
Base: $11.5M
Proposal: $0.6M
Perm Parks: $4.3M
Base: $1.5M
Proposal: $24k
CIP: $2.6
Cost Allocation: $0.2M
Lottery: $428k
CIP Other: $3.3M
A ttachment A - M ay 11 pr es entation
28
Aligning with the City’s Key Goals: 2023 Operating Budget Requests
Envir. Sustainability Livability Health & Safety Responsibly Governed &
Economically Vital
Provide multi-use parks &
greenspace
Protect and enhance ecological
systems
Enhance buffering against climate
extremes
Build community and connect
neighbors
Provide passive and
active recreation
Equitable and inclusive
access
Variety of programs and community
events
Family friendly & fun environment
Attract and sustain businesses &
provide jobs
Model stewardship &
sustainability of assets
Enhance partners &
community relationships
Support mental and
physical health PRAB May 2022Family friendly & fun
environment
8
A ttachment A - M ay 11 pr es entation
29
2023 Operating Budget Requests: General Fund & Dedicated Funds
General Fund
Budget Proposal: $1.1M
FTE Request: 7.0 FTE
#1:Urban Parks
Catch up on maintenance/Taking Care of What We Have
Budget Request: Important; $352k Ongoing
#2: Forestry Services
Build and sustain the Urban Canopy
Budget Request: Important; $233k Ongoing
#3: Ranger Program
Funding for continuing the pilot program
Budget Request: Important, $467k Ongoing/One-Time
9
.25 Cent Sales Tax Fund
Budget Proposal: $800k
FTE Request: 2.0 FTE
#4: Parks System
Restore maintenance services across the parks system
Budget Request: Important, $34k Ongoing
#5: Urban Parks
Funding for maintenance across the parks system
Budget Request: Important, $465k Ongoing
#6: Donations & Philanthropy
Access navigation across the parks system
Budget Request: Helpful, $107k Ongoing
Permanent Park & Recreation Fund
Budget Proposal: $24K
FTE Request: 0.0 FTE
#7: Perm Parks Construction
Capital Refurbishment Projects
Budget Request: Helpful, $24k Ongoing
A ttachment A - M ay 11 pr es entationA ttachment A - M ay 11 pr es entation
30
2023 Operating Budget Requests: Recreation Activity Fund
Recreation Activity Fund
Budget Proposal: $665k
FTE Request: 4.0 FTE
#8: Regional Facilities
Staffing resources and services
Budget Request: Helpful, $155k Ongoing
Reservoir: $88
Golf Course: $67k
#9: EXPAND/Inclusion
Widen program offerings for people with disabilities
Budget Request: Important, $32k Ongoing
#10: Recreation Centers
Funding to rebuild operations
Budget Request: Helpful, $403k Ongoing
#11: Recreation Programs
Recovery and new programs
Budget Request: Helpful, $75k Ongoing
Sports: $68k
Gymnastics: PE: $7k
A ttachment A - M ay 11 pr es entation
31
PRAB May 2022 $-
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
$14,000,000
2019 ACTUAL 2020 ACTUAL 2021 APPROVED
BUDGET
2021 ACTUAL 2022 APPROVED
BUDGET
2023 BUDGET
SUBMITTAL
2019-2023 Revenue To Expense Comparison
REVENUE EXPENSE
ARPA
FUNDING
$1.3M
Recreation Activity Fund
11
A ttachment A - M ay 11 pr es entation
32
$9,500,000.00
$10,000,000.00
$10,500,000.00
$11,000,000.00
$11,500,000.00
$12,000,000.00
$12,500,000.00
Revenue Expense
2023 Revenue to Expense
2023 SUBMITTAL Fee Increase General Fund Subsidy Increase
2023 Options to Close the Delta: Recreation Activity Fund PRAB May 2022Recommendation: Blended Approach Is Required
12
1.) Fee increase is recommended for 2023
•Adult Drop-In baseline fee increase of $1.00
•Non-Resident fee increase premium to 25%
•Hours of operation to support 80% visitation recovery goal
Projected Increase in Revenue: $500k
2.) Funding Alternatives
•Request increase in General Fund Subsidy
•Community benefit programming
•Sustain access discounts for youth and older adults
•Support Financial Aid
Proposed Increase in Subsidy: $850k
3.) If alternate funding is not available
•Staff will engage with the PRAB and reduce discounts, subsidy or
financial assistance. Additional service reductions may occur in
community benefit programming.
Revenue Increase $1.3M
Fund is Balanced
A ttachment A - M ay 11 pr es entation
33
2023 Operating Budget Requests
PRAB May 202213
$9,500,000.00
$10,000,000.00
$10,500,000.00
$11,000,000.00
$11,500,000.00
$12,000,000.00
$12,500,000.00
Revenue Expense
Revenue to Expense
Fund is Balanced
GF Community Benefit Funding General Fund Subsidy Increase
Fee Increase 2023 SUBMITTAL
Master Plan Update Recommendation
Recreation Activity Fund
Budget Proposal: $290k
FTE Request: 3.0 FTE
#12: General Fund Additional Support
Community benefit funding
Budget Request: Important, $290k Ongoing
•Add additional staffing resources of 3.0 FTE
•Youth Programming Manager
•Youth Recreation Coordinator
•Bi-lingual Access Navigation position
A ttachment A - M ay 11 pr es entation
34
Questions
•Does the PRAB support the proposed recommendations to the topics
just presented?PRAB May 202214
A ttachment A - M ay 11 pr es entation
35
Input shared by the PRAB at the Study Session will
influence the final fee proposal to be presented at
the May PRAB meeting
Next Steps
PRAB April 202215
Staff will return with an action item at the June 27, 2022
PRAB meeting to review the recommendation of the
2023-2028 CIP and appropriate funding for the capital
expenses in the Permanent Parks and Recreation Fund.
A ttachment A - M ay 11 pr es entation
36
Thank you!PRAB April 202216
A ttachment A - M ay 11 pr es entation
37
AGENDA ITEM #___V-A___PAGE___1____
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: June 27, 2022
AGENDA TITLE: Public Hearing and Consideration of a Motion to Recommend that
City Council Accept the 2022 Boulder Parks and Recreation Master Plan
PRESENTERS:
Alison Rhodes, Director, Parks and Recreation Department
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
Eric Krohngold, Project Manager, Design Workshop
Sarah Horn, Planner, 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 plan is an update to the 2014 Boulder Parks and Recreation Master 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 action item is for the Parks and Recreation Advisory Board (PRAB) to review
and consider recommendation of the 2022 Master Plan for acceptance by City Council. The PRAB
provided final input on the 95% draft of the 2022 Master Plan at the May 2022 business meeting.
Edits based on that feedback have been incorporated into the final 2022 Master Plan presented in
Attachment A. With PRAB’s recommendation, this item will be scheduled for Planning Board
recommendation and City Council review and acceptance, as required for all department master
plans.
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 costs to maintain aging
assets, and operations and maintenance of facilities, department expenses are outpacing funding
levels.
38
AGENDA ITEM #___V-A___PAGE___2____
To deliver on the department’s mission and achieve financial sustainability, the following issues
must be addressed:
•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 2022 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 B.
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 project 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.
39
AGENDA ITEM #___V-A___PAGE___3____
Specifically, council supports the Fiscally Constrained Plan Alternatives contained within the
2022 Master Plan. To achieve and maintain financial sustainability, council supports both a
further prioritization of core servic es 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.
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 plans. 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 emerging 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 desires 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 final phase of the project, Master Plan Acceptance, began in April 2022. City Council,
Planning Board and the community reviewed the 80% draft of the 2022 Master Plan. The
engagement summary for this final window of engagement provides a brief summary of the
feedback on the draft 2022 Master Plan. A 95% draft of the 2022 Master Plan was provided to
the PRAB in May 2022 that include refinements based on feedback from City Council and final
staff review. The final 2022 Master Plan, provided in Attachment A, reflects PRAB’s final
comments from May 2022 and is presented here for recommendation to City Council for
acceptance.
40
AGENDA ITEM #___V-A___PAGE___4____
ANALYSIS:
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
•Taking Care of What We Have
•Financial Sustainability
•Building Community and Relationships
•Youth Engagement and Activity
•Organizational Readiness
In addition, the community confirmed that Sustainability, Equity and Resilience are important
issues that must be addressed within the 2022 Master Plan. That input led to the decision-making
framework of this plan used to inform all master plan policy, goals and initiatives. This blended
approach to incorporating quantitative and qualitative data into recommendations is illustrated in
Figure 1.
Figure 1. Blended Approach
Community engagement throughout this planning process has revealed a clear vision from the
community of what parks and recreation services could look like, without consideration to
funding or feasibility. 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 Cons trained funding scenario in Chapter 3 of the 2022
41
AGENDA ITEM #___V-A___PAGE___5____
Master Plan. Those are BPR’s commitment to the community for core services and service levels
without additional funding.
Figure 2 (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 appropriate funding for community benefit programming.
The total funding gap identified through data gathering and research is $4.7 million annually. In
2021, voters reapproved the Community, Culture, Resilience and Safety tax for an additional 15
years. While parks and recreation projects may address some backlog as projects are selected,
funded and completed, this funding is not intended to close the funding gap, but to fund updating
the system with opportunities for community members to recreate and maintain healthy and
active lifestyles.
Figure 2. Current versus Recommended Funding Levels
Changes to the 95% 2022 Master Plan Draft
At the May 2022 PRAB meeting, members of the PRAB provided input on the 95% draft of the
2022 Master Plan, primarily related to sustainability, climate change and use of Latinx
terminology within the plan. Below is a brief summary of the changes made to the plan to
address that feedback.
Sustainability and Climate Change
To acknowledge the reality of climate change and BPR’s role in helping the city meet climate
targets, several specific changes were made. To reflect the change in the city’s Sustainability and
Resilience Framework to the Sustainability, Equity and Resilience Framework, similar changes
have been made throughout the 2022 Master Plan. Sustainability and Resilience are called out as
complementary ideas throughout the plan. To ensure a clear understanding of the climate
42
AGENDA ITEM #___V-A___PAGE___6____
emergency and how BPR can address it, additional background and trend information relative to
Boulder’s climate was added on pages 24-25 of the final 2022 Master Plan.
Equity and Use of Latinx
In response to questions about the use of the term “Latinx” within the 2022 Master Plan, BPR
staff reached out to city staff that are experts in language access and equity issues within the city.
Within this group, there was agreement that there is no one word that is all-encompassing to
describe this portion of the community. The term Latinx has evolved since the 1990s to make the
term inclusive of both male and female genders when written in English. While not
grammatically correct when written in Spanish, Latinx can be considered inclusive of not only
both male and female genders, but also non-binary individuals within the Latinx LGBTQ+
community. Latinx was recommended to remain in the plan, as well as other city English
language communications with the explanation that it is used out of respect for all individuals. It
remains for each individual to identify for themselves how they would like to be referred. An
explanation of the city’s use of “Latinx” is now included in the glossary.
STAFF RECOMMENDATION:
Staff recommends the PRAB conduct the public hearing and requests PRAB action in the form
of the following motion:
Suggested Motion Language:
Motion to recommend the 2022 Boulder Parks and Recreation Master Plan for acceptance by the
City Council.
NEXT STEPS:
The next steps in the acceptance process for this master plan are:
•July 19, 2022:Planning Board Public Hearing and Plan Recommendation
•August 4, 2022:City Council Public Hearing and Plan Acceptance
With the acceptance of this master plan, BPR commits to the initiatives identified as part of the
fiscally constrained plan alternatives. These initiatives will guide the strategic actions of the
department which will be developed annually in tandem with the department’s operating budget
and capital plans and with PRAB’s guidance. Staff will update the community, boards and staff
on the progress of the master plan goals annually.
ATTACHMENTS:
Attachment A: 2022 Boulder Parks and Recreation Master Plan
Attachment B: Full Project Timeline
43
BOULDER PARKS AND RECREATION Master Plan Update
Restore | Connect | Sustain
20 2 2
44
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.
45
| 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
46
d |
This page:
An aerial view of downtown Boulder. Boulder parks are an
integral part of the community’s outdoor recreation and sports
opportunities.
Cover:
East Boulder Community Park Dog Park; Kidz Summer
Camp nature play; Fitness class at East Boulder Community Center
47
| e
48
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.
PARKS & RECREATION ADVISORY BOARD
Charles Brock, Vice-Chair
Elliott Hood
Mary Scott
Anita Speirs
Jason Unger
Sunny van der Star
Pamela Yugar, Chair
Past PRAB Members
Raj Seymour, Chair
BOULDER COMMUNITY
A special thanks to community members, partners and
stakeholders who participated in the engagement for
this master plan.
BPR STAFF CONTRIBUTORS
Gabriel Aksamit
Kathleen Alexander
Bryan Beary
Cassy Bohnet
Tom Buzbee
Chelsea Cerny
Stacy Cole
Tim Duda
John Falkenburg
Alma Garcia
Doug Godfrey
Lori Goldman
Justin Greenstein
Ashley Hansen
Nick Haupt
Stacie Hoffmann
Megann Lohman
Heidi Mallon
Joy Master
Keely Miller
Christy Munoz
Stephanie Munro
Charlotte O’Donnell
Chris Passarelli
Ellen Pesek
Matt Pilger
Mike Rossi
Christy Spielman
Tim Stabbe
Jonathan Thornton
Dennis Warrington
BOULDER CITY COUNCIL
Matt Benjamin
Aaron Brockett, Mayor
Lauren Folkerts
Rachel Friend, Mayor Pro Tem
Junie Joseph
Nicole Speer
Mark Wallach
Tara Winer
Bob Yates
Past City Council Members
Mary Young
Sam Weaver
CITY MANAGER’S OFFICE
Nuria Rivera-Vandermyde, City Manager
Chris Meschuk, Deputy City Manager
CORE PROJECT TEAM
Alison Rhodes, Parks & Recreation Director
Regina Elsner, Planning & Ecological Services Manager
Jackson Hite, Business Services Manager
Tina Briggs, City Senior Planner
CONSULTANT TEAM
Design Workshop, Planning & Design
Polco, National Research Center, Stastically Valid Survey
Barker Rinker Seacat Architecture, Indoor Facilities Assessment
Ballard King, System Assessment
ALIGNED CITY DEPARTMENTS & PROGRAMS
Climate Initiatives
Community Connectors
Facilities
Finance
Growing Up Boulder (501c3 city partner)
Housing & Human Services
Open Space & Mountain Parks
Racial Equity
Transportation
Youth Opportunities Advisory Board
49
Contents
EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .i
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 27
Financial Overview 46
Key Issues & Observations 53
WHERE WE ARE GOING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .61
Strategic Direction & Decision Making 63
Strategic Plan 73
Plan Alternatives 88
HOW WE WILL GET THERE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93
Implementation 95
WORKS CITED . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .100
ACRONYMS LIST . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
GLOSSARY OF TERMS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .102
50
i | Executive Summary
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.
Executive Summary
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.
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.
51
MASTER PLANNING 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 an integrated input model, weaving
public engagement and research througout the process.
The recommendations are also a result of 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.
37%37%
30%30%
15%15% 13%13%
2% 2%
Recreation Activity Fund (RAF)
0 .25 Cent Sales Tax Fund
General Fund
Permanent Parks & Recreation Fund
Lottery Fund
2021 operating budget
& primary funding sources
$29,936,362
research public
engagement
FUNDING
All of the recommendations included in the Master Plan were
considered in relation to BPR budgets and funding.
BPR’s funding from 2016 through 2021 has remained mostly
flat, though expenditures have risen on an almost annual basis.
Revenues have decreased, on average 0.4% 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.
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 brought on by
the COVID-19 pandemic have altered retail spending, work habits,
integrated input model
Executive Summary | ii
52
iii | Executive Summary
recreational habits, and other fee and tax
generating activities, negatively affecting
funding streams for BPR. 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.
capital & operations &
maintenance (o&m) budgets
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.
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.
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 assets.
programming budget
BPR has made significant strides since
the 2014 Master Plan in improving the
department’s approach to cost recovery,
capital planning, program 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.
53
Executive Summary | iv
$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
A funding gap of approximately $1 million
for recreation programming was also
identified, which is needed 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.
BPR must continue to pursue cost recovery
within its programs and creative means of
revenue generation and/or strategies to
supplement current funding sources to close
funding gaps, remain financially sustainable,
and provide services to the community.
54
v | Executive Summary
STRATEGIC PLAN
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.
KEY THEMES
Six key themes, identified through
community input, provided the framework
for the 2014 Master Plan. These themes
remain important to the community and
are integral to the 2022 Master Plan. They
provide a framework to help organize the
Master Plan policies, goals and initiatives
and help shape the strategies that are the
focus for future action and decision-making,
outlined in Sections 3 and 4 of this plan.
The six key themes are:
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.
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.
55
Executive Summary | vi
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
An unfunded wishlist 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.
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
56
vii | Executive Summary
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 and
Capital Budgets
5 . Implement
Action Plan
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, BPR
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
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
Boulder Valley Comprhensive Plan (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.
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Executive Summary | viii
BPR staff jump into the Scott Carpenter
Pool opening celebration.
58
59
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.
60
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
61
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, workers, students 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.
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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
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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.
COMMUNITY HUBS
BPR parks, facilities, programs, and historic
and cultural resources provide places where
community members can:
»improve their physical and
mental health;
»access core services;
»and gather together.
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.
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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. This includes
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.
Families enjoying the playground at Creekside Park.
65
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 needed 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
66
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
68
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.
Kidz Summer Camp attendees having fun in one of Boulder’s many parks.
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
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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 sustainability, 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
c
hSUSTAINABILITY, E QUITY & RESILIE
N
C
EMaster Plan
Recommendations
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12 | Who We Are
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
other planning documents and policy makers, including the Parks and Recreation Advisory
Board (PRAB) and City Council.
71
Who We Are | 13
Source: BPR
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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 through four
engagement windows.
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 to 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 variety of services BPR offers throughout Boulder.
engagement highlights
73
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 variety of services BPR offers throughout Boulder.
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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 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 TAGs include 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
75
“
“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
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77
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.
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20 | Where We Are Today
The natural features in and around Boulder make
it one of the most beautiful cities in Colorado.
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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.
Spring at the Pearl Street Mall brighten the day for all who visit.
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22 | Where We Are Today
DEMOGRAPHIC TRENDS
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 municipalities, 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% total) than Boulder County
and the state of Colorado. 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 Latinx
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
state forecase may not be realized in Boulder, but the
nationwide trend of an increasing 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%
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24 | Where We Are Today
CLIMATE TRENDS
According to the City of Boulder’s Climate Initiatives website
“the undeniable reality is that climate change is not just
happening — but also accelerating and intensifying. All ten of
the hottest years on record have occurred since 2005, and one
does not have to look far to see these catastrophic impacts play
out in Boulder in real time — whether it was the 2013 floods
or the 2020 Calwood Fire.” When considering the “urgency
of the threat at hand, the City of Boulder declared a climate
emergency in July 2019, triggering the development of several
targets to guide city action.”
BPR is proactive as a department in the face of climate
change and unexpected events, like the COVID-19 pandemic.
The department can adjust and restructure quickly when
needed. This approach helps staff deal with windstorms,
destructive invasive species, like the emerald ash borer,
droughts, wildfire and other climate emergencies. BPR has
also begun updating irrigation systems, following organic
turf management practices, and implementing a zero-waste
program in parks.
Boulder’s Climate Commitment helps align departmental
goals around greenhouse gas emissions, non-electric vehicles
and natural gas use. BPR participates in this commitment
and has begun to reduce fuel use and exhaust emissions by
phasing in electric vehicles and equipment.
bpr’s commitment to sustainability, equity
& resilience
While BPR is a leader in sustainability, climate work and
ecosystem services, the department needs to look even more
holistically at programming, facilities, internal operations
and transportation options to continue to lower the collective
impact of these services on climate change.
To meet the city’s climate goals, all aspects of BPR’s
day to day operations need to be monitored to measure
and mitigate for the carbon footprint associated with
parking, transportation, irrigation, turf versus natural grass
treatments and energy use of facilities. Recreation centers,
next to water utilities, are some of the largest users of energy
in the city system. Staff are committed to continue to find
ways to transition to more energy saving operations.
BPR staff have been, and will continue to be trained in the
science of climate change so everyday decisions across the
department can be informed by a consistent foundation of
BOULDER COUNTY CLIMATE TRENDS
CITY CLIMATE INITIATIVES TARGETS
Major Wildfires
Wildfires have become more common,
especially in the American West. In
Boulder County specifically, since
2003, there have been 7 major
wildfires.
• 2003 Overland Fire
• 2009 Olde Stage Fires
• 2010 Fourmile Canyon Fire
• 2016 Cold Springs Fire
• 2020 Cal-Wood & Lefthand
Canyon Fires
• 2021 Marshall Fire
Hotter Temperatures
All ten of the hottest years on record
have occurred since 2005. Extreme
drought and decreased snowpack
have resulted from these hotter
temparatures.
Extreme Weather
The City of Boulder is at the highest
risk of flash flooding in the state of
Colorado and the recent 2013 floods
caused billions of dollars of damage.
These targets guide the city’s actions
to address the climate crisis.
• 70% reduction of city emissions by
2030
• Become a Net Zero city by 2035
• Become a Carbon-Positive city by
2040
• 85% waste diversion from landfills
by 2025
• 100% renewable electricity by 2030
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Where We Are Today | 25
BPR INITIATIVES
2018 URBAN FOREST STRATEGIC
PLAN (USFP)
The 2018 Urban Forest Strategic Plan is a
comprehensive assessment of, and 20-year
plan for, the Boulder urban tree canopy. In
2013, Boulder had approximately 16% urban
canopy, but due to invasive pests and climate
stressors, this is expected to decrease. The
UFSP plan provides a framework to reach
Boulder’s goal of restoring and maintaining
the urban tree canopy. It includes long-term
adaptive management goals to improve
and preserve the health, value, and climate
benefits of the urban tree canopy.
knowledge and understanding through the city’s Climate
Leaders Program. In 2014, BPR’s Youth Services Initiative
(YSI) program participants were involved as a pilot group in
the Rockefeller Foundation’s 100 Resilient Cities Initiative -
an initiative supporting cities that have experienced natural
disasters.
BPR is also taking action by continuing to reconnect
community members with nature, which is a critically
powerful way to address climate issues. Focusing on values,
along with quantitative data, like emissions reductions, can
get people excited about making a difference.
Parks and open spaces are places to enjoy the outdoors,
clean air, seasonal changes and “unplugging”. Reducing
emissions can be a byproduct of the other important services
BPR offers and the choices community members make.
Getting out of cars, utilizing parks and programming to
live healthier lifestyles contribute to reductions in negative
impacts on climate change, and have positive benefits to the
environment, mind, body and spirit. BPR has an important
role to play in helping improve environmental, social and
health equity through a resilient and healthy parks and
recreation system.
climate initiatives collaboration
As part of the master planning process, other city
departments were consulted to understand how BPR can
support citywide and interdepartmental initiatives. In
terms of meeting citywide climate targets, focusing on the
opportunities to work with staff from other departments to
meet the city’s targets can have big impact citywide.
Collaborating with all departments is important. Specifically,
BPR will focus on working with Climate Initiatives, Open
Space & Mountain Parks, Facilities, Transportation, Health
& Human Services, Racial Equity and Finance to ensure the
department’s efforts are aligned with the work of other
departments and integrated into the daily operations of the
entire city to meet Boulder’s climate intiative targets.
Vehicle Fleet
Entire fleet of vehicles are
either bio-diesel or E85
compatible
Smart Irrigation
59 of 72 BPR irrigation
systems have smart
controls which
continuously monitor
systems for water savings
or breaks that could create
significant water losses.
EV Charging Stations
Free Electric Vehicle charging
stations are provided at all
major recreation facilities,
including all three recreation
centers, Scott Carpenter Pool
and Boulder Reservoir.
Urban Tree Canopy
BPR has committed to a
goal of maintaining 16%
tree canopy through 2037.
Sources:
bouldercolorado.gov/guide/boulder-guide-flooding
bouldercolorado.gov/future-climate-action
bouldercolorado.gov/government/departments/climate-initiatives
84
A Kidz Summer Camp participant “hangs” on at East Boulder Community Center.
26 | Where We Are Today
85
Where We Are Today | 27
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 about priorities 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.”
86
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.
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.
28 | Where We Are Today
87
Where We Are Today | 29
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
Average
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 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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30 | 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
14.6 acres/1,000 residents.
Arts in the Park is a popular event held at Central Park
& Civic Area.
89
Where We Are Today | 31
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, and limited funding sources, 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.
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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32 | 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 | 33
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, 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 and playground facilities
within one-quarter to one-half mile
of residents .”
Boulder Valley Comprehensive Plan Neighborhood
Parks service metric
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34 | 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 | 35
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 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.
Kickball is one of the many sports programs BPR
offers for community members to enjoy.
A healthy tree canopy can help mitigate the negative
impacts of climate change.
94
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
increasing 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 increase 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 demand from 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.
36 | Where We Are Today
Top to Bottom: Gonzo Indoor Tennis; Kidz Summer
Camp EBCC; East Boulder Community Dog Park;
Gerald Stazio Softball Fields
95
Where We Are Today | 37
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*** 50,000+
* 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
96
38 | 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 1.30 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 City Park.
97
Where We Are Today | 39
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 the East Age Well Center, run by Housing and
Human Services. 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 a
change in 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
EAST AGE
WELL CENTER
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40 | 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
includes 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
transportation 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
99
Where We Are Today | 41
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
100
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, Arts in the Park and
Snow Much Fun 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.
42 | Where We Are Today
Top to Bottom: EXPAND Goat Therapeutic Recreation;
Older Adult Cardio Class; Restorative Yoga; Valmont
City Park
101
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.
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:
Where We Are Today | 43
102
PROGRAM BENEFIT & FEE BALANCE
Programming is funded through a combination
of taxes and user fees. Taxes are relied on more
when the community benefits and user fees pay
more when the individual benefits.
program prioritization & community benefit
Assessing programming relies 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
thought 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.
44 | Where We Are Today
WHO PAYS?
WHO BENEFITS?
People with Low
Incomes, People
with Disabilities
& Older Adults
Youth Sports
& Beginners
Advanced
Sports & Adult
Programs
COMMUNITY INDIVIDUAL
TAXES USER FEES
103
IMPORTANCE OF PROVIDING
RECREATION PROGRAMS FOR VARIOUS
POPULATION GROUPS
The top five groups statistically valid survey
respondents think programming is either
essential or very important for include:
»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 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.
Where We Are Today | 45
92%
89%
88%
87%
86%
People with Disabilities
People with Low Incomes
Older Adults (60+ years)
Teenagers (ages 13-19)
Children (up to age 12)
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46 | 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 limited to the acquisition 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 3% 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.
105
Where We Are Today | 47
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 limited to the acquisition 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 3% 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.
37%37%
30%30%
15%15% 13%13%
2% 2%
Recreation Activity Fund (RAF)
0.25 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
106
48 | 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
0.07 was calculated. This 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): 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
OR .35 .50 SERIOUS 1.0 BPR Facility Condition Index (FCI) Score of 0.07
is in the Good to Excellent range of the industry
standard for asset condition values.
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Where We Are Today | 49
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 by voters in 2021 for an
additional 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. This amount is needed 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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50 | Where We Are Today
$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
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 | 51
Table 7: 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% 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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52 | 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 8: 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%
0.25 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 | 53
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.
Key Issues & Observations
A summary of comments related to each Key Theme shared by
community members on BeHeardBoulder during Engagement
Window 1 is below.
COMMUNITY HEALTH & WELLNESS
Benefits of parks and recreation include increased physical and
mental health, which in turn helps decrease pressure on the
healthcare system.
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.
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 & RELATIONSHIPS
A focus on building community and relationships helps to
strengthen and promote a diversity of users through inclusion and
accessibility.
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.
ORGANIZATIONAL READINESS
Change is inevitable and organizational readiness is important to
face this change successfully and continue to thrive.
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54 | 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 sustainability, 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 | 55
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 percent 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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56 | 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 | 57
BUILDING COMMUNITY
& RELATIONSHIPS
KEY ISSUES & OBSERVATIONS
»Partnership opportunities with community
organizations are becoming increasingly
important, especially when considering BPR’s
increased focus on sustainability, 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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58 | 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 | 59
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 BPR’s outdoor spaces.
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119
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
120
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.
62 | Where We Are Going
Top to Bottom: Boot Camp at East Boulder Community
Park; Summer Drama Camp; 2022 Master Plan
Stakeholder Meeting
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Where We Are Going | 63
STRATEGIC 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 five 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.
Strategic Direction & Decision Making
Young explorers discovering new adventures at the Crestview Park playground.CommunityEngagementPolicy Re
s
e
a
r
chSUSTAINABILITY, E QUITY & RESILIE
N
C
E
Master Plan
Recommendations
122
Since implementing the RPI program and
complementary 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 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
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 Subsidy
Low Subsidy
64 | 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
BPR Service Categories
123
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.
AMP: Asset Criticality Scoring
Where We Are Going | 65
AMP: 5 Step Asset Management Process
Plan/Design
Acquire/
Construct
Recapitalize
Operate/
Maintain
Dispose
1
3
5
2
4
Remove, Replace Watch, Maintain
Maintain Rigorously
Consequence of FailureCritically or PriorityHigh
Low
GoodBad
Condition
Likelihood of Failure
adjustable thresholds
Renew, Replace
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66 | 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 | 67
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 sustainability, 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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68 | Where We Are Going
Map 3: Proximity to Parks & Playgrounds
City LimitsCity LimitsCity LimitsCity Limits
Source: BPR GIS Analysis
127
Where We Are Going | 69
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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70 | 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
129
Where We Are Going | 71
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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72 | Where We Are Going
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 | 73
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 sustainability, 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 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.
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.
QUALITY OVER QUANTITY
Community members who responded to the
BeHeardBoulder questionnaire emphasized
“quality over quantity” when considering BPR
facilities.
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74 | 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 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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Where We Are Going | 75
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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76 | 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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Where We Are Going | 77
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
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
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78 | 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, sustainability, 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-warming
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 | 79
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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80 | 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
The stunning Flatirons provide a stunning
backdrop for the CU Boulder Campus.
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Where We Are Going | 81
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82 | 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 sustainability, 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 sustainability,
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 | 83
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 | 85
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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86 | Where We Are Going
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 sustainability,
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
7. Encourage behaviors to reduce the collective
citywide carbon footprint
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
4. Continue to strive for livable and competitive wages
and/or benefits
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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
Constrained, 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, without regard to resources or
viability. While the Vision plan is fiscally unconstrained and unfunded, the
intent is to provide high-level policy guidance by illustrating the ultimate
goals of the community and by providing an aspirational look to the parks
and recreation system, without considering feasibility.
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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Where We Are Going | 89
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, 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 City Park, it just might become a reality.
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90 | 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 East Boulder Community Center.
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Where We Are Going | 91
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
150
151
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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94 | Next Steps
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Next Steps | 95
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 Alternative. Through an annual action planning
process, the department 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 of all ages can enjoy the many recreation activities offered by BPR.
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96 | 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 delivered and that
investment decisions 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 and
Capital Budgets
5. Implement
Action Plan
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Next Steps | 97
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, Equity &
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, Equity &
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, Equity &
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, Equity &
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, Equity &
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, Equity &
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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A summer camp hula hooping class learning to spin their way into the future.
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100 | Next Steps
Works Cited
Plans
BPR 2014 Master Plan
BPR Design Standards Manual
City of Boulder Urban Forest Strategic Plan
City of Boulder Sustainability, Equity
& 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
(available upon request)
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
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 | 101
Acronyms List
AMP: Asset Management Program
API: Asset Priority Index
BPR: Boulder Parks & Recreation
Department
BVSD: Boulder Valley School District
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
FCI: Facility Condition Index
GUB: Growing Up Boulder
HEF: Health Equity Fund
KPI: Key Performance Indicators
LOS: Level of Service
NRPA: National Recreation & Park
Assocation
NBRC: North Boulder Recreation Center
NRPA: National Recreation & Park
Association
OSMP: Boulder Open Space & Mountain
Parks
PLAY: Parks & Leisure for Adults and Youth
(Boulder Foundation)
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
YOAB: Youth Opportunities Advisory Board
YSI: Youth Services Initiative
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102 | 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.
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 long range maintenance planning, as well
as annual work plans and budgets.
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.
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
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Next Steps | 103
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.
Latino, Latina, Latinx: Latino is currently the
most used noun or adjective for a person from, or
whose ancestors are from, Latin American. The
feminine form of this word is Latina. Latinx is a
recently coined term proposed as a gender-neutral
alternative when communicating in English. There
has been much debate around the term, particularly
around its grammatical correctness. Use of the
term varies highly depending on the population
and is more commonly used by individuals who
are non-binary and/or identify within the LGBTQ+
community and who feel that the male/female
(Latino/Latina) dichotomy does not encompass
them. In the spirit of being a welcoming and
inclusive place, the City of Boulder currently uses
the term Latinx when referring to a group that has
not wholly and exclusively self-identified as either
Latino or Latina. In the near future, the city will
be convening a group of residents that are more
directly affected by the use/non-use of this term to
co-create a set of directives for staff, based on what
the community wants to hear and see.
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.
162
163
Restore | Connect | Sustain
BOULDER PARKS AN D RECREATION 2022 Master Plan
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
Project Update
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 - Dec. 2020
Process and Approach
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
CC
Study Session - Dec. 2020
Process and Approach
Attachment B
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AGENDA ITEM #__V-B____PAGE___1____
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: June 27, 2022
AGENDA TITLE:
Public Hearing and Consideration of Motions Approving the 2023 Expenditures from the
Permanent Parks and Recreation Fund and 2023-2028 Parks and Recreation Department
Capital Improvement Program (CIP)
PRESENTERS:
Alison Rhodes, Director
Jackson Hite, Sr. Manager of Business Services
Regina Elsner, Senior Planning Manager – Interim
EXECUTIVE SUMMARY:
As part of the city’s annual budget process, departments develop a six-year Capital
Improvement Program (CIP). The current CIP process includes fiscal years 2023 through
2028, though funds are only appropriated for the first year, 2023. Staff have provided the
Parks and Recreation Advisory Board (PRAB) with two previous agenda items related to
the CIP on March 28, 2022 and April 25, 2022, and this is the third and final item to
complete the required approval process with the PRAB. The PRAB’s role related to the
CIP is defined in the Boulder Revised Code (B.R.C.), 1982 TITLE 2 GOVERNMENT
ORGANIZATION, Chapter 3 Boards and Commissions, Section 10 Parks and Recreation
Advisory Board (d)(2): “To approve or disapprove expenditures or appropriations from
the permanent park and recreation fund and forward such recommendations to the city
council.” It is within this context that the PRAB is requested to hold a public hearing and
provide a recommendation on the CIP to Planning Board and City Council. After a
motion is passed by the PRAB, the department’s CIP will be submitted to the Planning
Board and City Council for review and their respective consideration and approvals. The
current CIP focuses on key findings from the 2022 BPR Master Plan with an emphasis on
“taking care of what we have” and funding repairs and renovations of exiting parks and
recreation assets.
STAFF RECOMMENDATION:
Staff recommends that the PRAB approve the 2023 expenditures planned from the
Permanent Park and Recreation Fund and approve the recommended 2023-2028 Parks
and Recreation Department CIP (Attachment A).
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AGENDA ITEM #__V-B____PAGE___2____
Suggested Motion Language:
Staff requests the PRAB’s consideration of this matter and action in the form of the
following motions:
• Motion to approve the 2023 recommended expenditures from the Permanent Park and
Recreation Fund to City Council for appropriation.
• Motion to recommend the 2023-2028 Parks and Recreation Department Capital
Improvement Program (CIP) to Planning Board and City Council for approval and
appropriation.
IMPACTS:
Fiscal: $7.4 million recommended for 2023 with the 2023-2028 CIP projecting an
investment of $34.9M throughout the six-year program. This equates to average annual
CIP funding of $5.8M and reflects the uses of funds projected for 2022 in the Lottery
(Fund 2110), .25 Cent Sales Tax (Fund 2180), Permanent Park and Recreation (Fund
3300), Capital Development Fund (Fund 2100), Governmental Capital Fund (General
Fund Capital-Fund 1300), Community, Culture, Resilience and Safety Tax Fund (Fund
3700), and Boulder Junction Capital Improvement Fund (Fund 3500).
(Described in greater detail in Attachment A)
PUBLIC FEEDBACK:
The June agenda item includes a formal public hearing and the community will have the
opportunity to comment on the proposed CIP. Over the past 2 years, the department has
conducted extensive community engagement as part of the 2022 Master Plan, which
confirms that the community prioritizes the key theme, “Taking Care of What We Have."
The department has completed considerable public involvement over the past few years
to complete multiple plans and studies outlining capital needs. These projects are outlined
in the Plan Alternatives of the 2022 BPR Master Plan, and the associated guiding
documents listed in each element of BPR’s system. For example, investments in aquatic
facilities are guided by the 2015 Aquatics Feasibility Study and resources spent at the
Boulder Reservoir are guided by the 20XX South Shore Capital Strategy. The project
needs outlined in those plans and studies have directly informed the department’s CIP
and will continue to be discussed with the community as projects are developed. The
public will also have an opportunity to comment during the Planning Board’s upcoming
CIP review and City Council’s discussions and review of the 2023 recommended budget
during future public hearings with Planning Board and City Council.
BACKGROUND:
Capital Projects
CIP projects are defined as any major project with a cost greater than $50,000 for
purchase, construction, or major replacement of physical assets. CIP projects are
potentially subject to a Community and Environmental Assessment Process (CEAP)
review that evaluates any potential environmental, traffic or social impacts to Boulder
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AGENDA ITEM #__V-B____PAGE___3____
residents, neighborhoods, and businesses.
Capital Funding
The department’s CIP is funded primarily from the Permanent Park and Recreation Fund
.25 Cent Sales Tax Fund and Lottery Fund. Additional sources of funding that have
limitations on the type of capital investment that funding can be spent on and are not
managed exclusively by the department include the Capital Development Fund, Boulder
Junction Improvement Fund, General Fund Capital, and the extension of the Community,
Culture, Safety and Resilience Tax.
The Permanent Park and Recreation Fund (Perm Parks Fund) is funded specifically from
property and development excise taxes. By city charter, this fund is dedicated to the
purposes of acquiring land and renovating or improving existing park and recreation
assets. It may not be used to fund daily operations or routine maintenance. Due to
increasing assessed property values, the outlook on this fund is currently positive, with
growth expected every two years, tied to Colorado’s assessment periods.
CIP Process
The capital budget is how the city manages its assets and implements projects and
programs that are chosen by its citizens through their elected representatives, City
Council. Given the Parks and Recreation Master Plan will be accepted later this year,
prior to the city’s budget adoption, the proposed CIP was developed based on the context
of the 2014 Master Plan that was adopted and accepted by City Council in 2014, along
with the key recommendations, community engagement and PRAB and City Council
feedback of the 2022 Master Plan that is 98% complete. The CIP is developed to support
achievement of the department’s master plan goals.
Once again this year, staff has provided the PRAB with a “three touch” approach that
included: 1) a discussion item presented at the March meeting communicating process,
policies and procedures and the definitions/criteria that guide the CIP development; 2) a
discussion item presented at the April meeting to review draft projects and prioritization
as it relates to the CIP; and 3) this PRAB Public Hearing to consider motions approving
and recommending the department CIP.
CIP Guiding Principles
To plan and prioritize capital investments, staff look to the City’s CIP guiding principles
and the department’s master plan goals. The following departmental framework is also
utilized to determine and plan CIP projects and make budget decisions that are
sustainable over time. The CIP guiding principles emphasize maintaining the integrity of
the current infrastructure and facilities before expanding and/or enhancing programs and
facilities and are
1 Safety and Deficiencies:
Projects represent important deficiencies and address essential safety and health
concerns. Project may include ongoing infrastructure repairs, restrooms, replacements
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AGENDA ITEM #__V-B____PAGE___4____
and/or refurbishments of park play equipment and park amenities and critical facility
improvements to prevent shutdowns or emergency closure of assets.
2 Compliance and/or Commitment:
Projects that are required by law or a ballot initiative or are in process of development
and/or are required to be completed within a specific period. Projects on department
action plan or council work plan. (ADA Access Enhancements, Boulder Revised Code,
master plan reference, Boulder Creek Path, Civic Area Phase 2, East Boulder Community
Center, Pearl Street Mall refresh, etc.)
3 Operational Efficiencies:
Projects that represent important operational and/or maintenance efficiencies resulting in
improved life cycles, cost efficiencies and savings in resources, energy, or water usage.
The criterion considers an asset's importance to day-to-day park management. (e.g.
playground resurfacing, parking lot renovation, turf and irrigation repair, tennis court
resurfacing, etc.)
4 Revenue Generation:
Projects that support facilities and assets that generate revenues to support valued
recreational opportunities in the Boulder community. Projects will enhance the
department's ability to earn more revenue after initial investment and operational costs
are considered (e.g. Flatirons Golf Course) and/or possible collaboration/partnerships
leveraging outside funding sources. Asset plays a direct role in providing a profitable
funding source to the community or has a positive cash flow or asset has demonstrated
high Recreation Priority Index (RPI) scoring.
ANALYSIS:
For 2023, as well as the full 6-year CIP, staff performed careful analysis and projections
for all funds that contribute to the department CIP. With PRAB support, staff have
adjusted the spending accordingly to remain within funding projections while still
maintaining a healthy fund balance for reserves. BPR seeks to use dedicated funding for
routine CIP, while relying on other funding sources for more specialized needs such as
the Community, Culture, Resiliency, and Safety Tax for citywide projects such as the
East Boulder Community Center retrofit.
2023 Capital Project Priorities (6-year plan provided in Attachment A)
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AGENDA ITEM #__V-B____PAGE___5____
Athletic Fields
Capital
Enhancements
Based on key recommendations of the Athletic Field
Study, this program will allow implementation of field
repairs and enhancements including turf, field
renovations and expansion to accommodate additional
capacity for sports uses. Average cost for a complete
renovation of an irrigation system is $100,000, which
is necessary to ensure preventative maintenance of the
systems. System failures can lead to field closures and
loss of revenue from field use. 2023’s funding will
support the replacement of the irrigation system at
Stazio Ballfields.
$250,000
Parks and
Recreation
Strategic
Planning
Initiatives
As illustrated in the Boulder Parks and Recreation
Master Plan, the department must consistently review
services to ensure alignment with the community
expectations, best practices in the industry and strategic
focus. This is achieved through ongoing plann ing,
funded through the CIP. In 2023, this funding is
tentatively allocated for a General Maintenance and
Management Plan Update / Ops Maintenance Facility
Assessment in coordination with the Facilities and
Fleet Department as they look at consolidation of city
services at an Eastern Hub.
$100,000
Boulder
Reservoir South
Shore Capital
Enhancements
Continuing to implement the 2012 Boulder Reservoir
Master Plan and recent South Shore Capital Strategy,
this project will provide key improvements to the
South Shore recreation area and various visitor
amenities to serve the region. Funding is planned
through 2026 to address deficiencies outlined in the
recently approved Concept Plan and Capital Strategy.
Projects include a variety of amenities including but
not limited to signage, dock repairs, trail connections,
pavilions, facility maintenance, road repair,
landscaping, and parking lot repair.
$1,300,000
Columbia
Cemetery
Capital
Maintenance
The cemetery is a designated landmark and requires
ongoing maintenance to meet the preservation
requirements associated with all the infrastructure
ranging from headstones, markers, ornamental fencing,
and grounds maintenance. This project will provide
necessary funding to complete projects as well as local
match for leveraging state grant funds.
$32,000
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AGENDA ITEM #__V-B____PAGE___6____
Urban Forest
Management
This project provides annual funding to continue the
Emerald Ash Borer (EAB) response by enabling
critical safety measures including removing identified
trees throughout the city and replacing them with new
tree species to slow the spread of the pest, and ensuring
safety of the public as well as expanded urban forest
management practices. This project also provides
treatment of trees designated for preservation and
associated infrastructure improvements such as
irrigation to ensure sustainability of the new trees.
$500,000
Neighborhood
and Community
Park Capital
Maintenance
This project provides funding for asset maintenance
throughout the system as well as a complete renovation
of one neighborhood park annually to meet the goals
outlined within the BPR Master Plan and Capital
Investment Strategy. The renovations typically include
playground replacement, irrigation renovation, forestry
maintenance, ADA compliance and shelter repairs. In
2023, the main project will be the Martin Park
playground, restroom
and shelter.
$900,000
Capital
Infrastructure
Enhancements
and Partnership
Opportunities
This project will provide capital funding to implement
enhancements at parks and facilities throughout the
system. In 2023, funding is provided to finalize the
design and construction of the undeveloped portions of
Violet Park. This park development has been a priority
for several years to extend the service areas of parks to
adjacent neighborhoods and is planned for 2023 to
align with greenways improvements and construction
of the North Boulder Library.
$1,250,000
East Mapleton
Ballfield
Enhancements
Housing supply in the surrounding area has increased,
resulting in greater demand for neighborhood park and
recreation amenities such as playgrounds, dog parks,
open lawn areas and other multi-use amenities. The
original Boulder Junction area plan indicated a goal of
providing park and recreation amenities to this new
residential area as development occurs. This project
will result in the addition of new amenities at the
existing East Mapleton Ballfield site that is near
Boulder Junction, connected by the underpass along
Goose Creek. A community planning project will be
completed to determine the final design and priorities
for construction. Any reduction in ballfields will be
replaced at other sports complexes as indicated in the
department's 2015 Athletic Field Study.
$250,000
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AGENDA ITEM #__V-B____PAGE___7____
Valmont Bike
Park
Maintenance
Valmont Bike Park opened 11 years ago, and many of
the wood features need to be replaced based on the age
and criticality of these features.
$200,000
Reservoir
Access Road
Repair
The existing Reservoir Access Road needs significant
investment to ensure it continues to serve the needs of
the Reservoir’s South Shore and provides critical
access for Utilities to access the dam and local Fire
agencies\ to access the Fire Training Center. (This item
is not fully funded and is pending citywide
coordination)
$1,250,000
R&R Athletic
Fields
As part of the 2022 Master Plan, BPR has recognized
the need to provide regular funding for the renovation
and refurbishment of different assets. Funding is being
provided to support the renovation and refurbishment
of different athletic fields within the parks system.
Annually, BPR will refurbish fields based upon
condition, prioritization, and equity mapping.
$200,000
R&R Access and
Mobility
As part of the 2022 Master Plan, BPR has recognized
the need to provide regular funding for the renovation
and refurbishment of different assets. Funding is being
provided to support the renovation and refurbishment
of different assets that promote accessibility and
mobility in the park system including sidewalks, multi-
use paths, bike parking and parking lots. Annually,
BPR will allocate these funds based upon condition,
prioritization, and equity mapping.
$400,000
R&R Courts As part of the 2022 Master Plan, BPR has recognized
the need to provide regular funding for the renovation
and refurbishment of different assets. Funding is being
provided to support the renovation and refurbishment
of different courts that can include tennis, pickleball,
volleyball and horseshoe. Annually, BPR will allocate
these funds based upon condition, prioritization, and
equity mapping.
$200,000
R&R Irrigation As part of the 2022 Master Plan, BPR has recognized
the need to provide regular funding for the renovation
and refurbishment of different assets. Funding is being
provided to support the renovation and refurbishment
of irrigation systems. While irrigation systems are
underground, they are important to ensuring BPR’s
parks can stay watered and support climate resiliency.
Annually, BPR will study the criticality and facility
condition index (FCI) to determine which areas to
address and will coordinate with the equity mapping.
$100,000
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AGENDA ITEM #__V-B____PAGE___8____
Civic Area
Phase II
In November 2021, voters approved the ex tension of
the Community Culture and Safety Tax as a rebranded
Community, Culture, Resilience and Safety Tax for 15
years. One of the named projects is the Civic Area
Phase II, which would complement the Civic Area
Phase I completed in 2017. The Civic Area is a highly
visited park, and would include park enhancements to
support the public activation of the space for events
like the Boulder Farmers Market and the Glenn
Huntington Bandshell. Community engagement and
design is planned for 2024, with construction in 2025.
$500,000
Boulder Creek
Improvements
In November 2021, voters approved the extension of
the Community Culture and Safety Tax as a rebranded
Community, Culture, Resilience and Safety Tax for 15
years. The Boulder Creek path was included as a
named projects, with the project to include system
enhancements that enhance the transportation corridor
from 55th Street in East Boulder to Eben G. Fine Park
in West Boulder. The Boulder Creek Improvements
will focus on riparian habitat enhancements including
water quality and urban tree canopy, while also
supporting passive recreation opportunities, in addition
to the multi-modal transportation path along Boulder
Creek. Community engagement and design is planned
for 2024, with construction in 2025.
$450,000
East Boulder
Community
Center – CCRS
Funding
In November 2021, voters approved the extension of
the Community Culture and Safety Tax as a rebranded
Community, Culture, Resilience and Safety Tax for 15
years. The renovation of the East Boulder Community
Center was included as a named project, with Facilities
also planning to upgrade the plumbing, mechanical and
electrical systems in the building. Funding is intended
for design and community outreach in 2023, with
construction occurring in 2024. *Joint project between
BPR and Facilities. Facilities is requesting a total
budget of $1.5M for the 2023 design phase which
includes the request of $500k from BPR.
$500,000*
Operating and Maintenance Impacts
The department prioritizes capital projects based upon maintaining existing assets and
decreasing the maintenance backlog of the department’s portfolio of parks and facilities.
Therefore, most projects included in the department’s Capital Improvement Progr am will
not have an impact on maintenance costs due to replacement of aging infrastructure and
efficiencies associated with new and improved facilities and systems. However, as the
department fulfills commitments relative to long-term planning needs such as the future
phases of Valmont City Park, Boulder Junction Park or Violet Neighborhood Park in the
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AGENDA ITEM #__V-B____PAGE___9____
future, the department will need to carefully design enhancements in sensitivity to the
department’s O&M funding and not overburden funds with maintenance of these new
facilities.
This CIP provides for regular funding for ongoing repair and renovation (R&R) of four
key areas that have been identified in the Master Plan as being underfunded including:
fields, access and mobility, courts, and irrigation. In 2023, $900,000 is being proposed to
be spent across these categories to ensure we continue to take care of what we have.
Unfunded Projects and Emerging Needs
In the long-term, additional funding will be needed to develop any new major facilities as
well as improve service standards for maintenance operations and to fund deferred
maintenance. Base funding in the budget supports the “fiscally constrained” items in the
Master Plan, while “Action” and “Vision” leve l would require additional supplemental
funding. The current master plan includes a list of priority items to complete based on
various funding levels and will be updated as the new plan is adopted later this year.
Staff continues to evaluate deferred maintenance needs, including park sites and
recreation facility needs and have implemented an Asset Management Plan (AMP) to
assist in capital planning and day-to-day operations. The current maintenance and facility
improvements backlog, including major repairs and replacements, is significant. The
department anticipates that this backlog will continue until funding levels reach
appropriate levels to accommodate life-cycle management for the department’s assets. A
list of unfunded projects within the department can be viewed in (Attachment B – BPR
Unfunded Projects). This list will be comprehensively updated following the master
plan finalization based upon the research, community input and policy guidance from
PRAB and City Council.
Key Unfunded Projects Include:
•Boulder Reservoir South Shore enhancements to accommodate increased use and
visitation as well as basic amenities to support the regional destination as outlined in
the Boulder Reservoir Master Plan and currently evaluated through the Concept Pl an
and Capital Strategy.
•The South Boulder Recreation Center is nearing the end of its expected life. BPR will
plan to retire the facility but does not have funding to replace the facility.
•Valmont Phase II includes a phased approach to complete the development of
Boulder’s only City Park. The 2015 Valmont City Park concept plan includes various
amenities based upon community input and to meet the parkland needs of nearby
residents.
•The Recreation Facility Strategic Plan projected a total of $4.5 million in deferred
maintenance and an additional $3 million over the next ten years in the three
recreation centers. This funding need will also be refined and updated following
completion of the 2022 Master Plan and Recreation Facilities Needs Assessment.
•Meeting energy compliance required by the Building Performance Ordinance.
•Increased capacity and additional facilities for youth and adult sports fields.
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AGENDA ITEM #__V-B____PAGE___10____
•Expansion and enhancement of recreation centers and aquatics facilities that
accommodate increased demand for lap swimming, fitness equipment and multi-use
classroom space that could be expanded.
•Enhancement of existing facilities to stand up increased use, such as conversation of
athletic fields to artificial turf and renovation of courts to more durable concrete
foundations.
•Climate-related enhancements to mitigate against climate change, such as
electrification of facilities and other infrastructure.
NEXT STEPS:
Staff will keep the PRAB updated on the status of the CIP process as it proceeds to
Planning Board and City Council during the summer months and ultimately upon
approval. PRAB will be updated if any refinements to the department’s CIP is
considered.
2023 - 2028 CIP Process/Timeline (Projected)
Planning Board Hearing August
Council Study Session September
Council Public Hearing October
Attachments:
A.BPR Draft 2023-2028 CIP 6-Year Plan
B.BPR Unfunded Projects
174
Fund/Project Name Description 2023 Proposal 2024 Projected2025 Projected 2026 Projected 2027 Projected2028 Projected6 Year Total(2023-2028)CIP Total $ 6,932,000 $ 6,772,000 $ 3,273,500 $ 6,492,000 $ 5,182,000 $ 5,282,000 $ 33,933,500 .25 Cent Sales Tax Fund (Fund 2180) Total1,600,000$ 1,200,000$ 1,300,000$ 2,230,000$ 2,200,000$ 3,250,000$ 11,780,000$ Aquatics Facility Capital EnhancementsBased on recommendations of the 2015 Boulder Aquatics Feasibility Plan, this project provides capital funding to complete priority indoor and outdoor pool enhancements for Boulder's aquatics programs. In 2025, funding is provided to partner with City Transportation to begin the design of the 30th Street improvements along Scott Carpenter park to remain in compliance with necessary infrastructure required through the city's regulatory planning and development review process for Scott Carpenter Pool enhancements. The construction of the 30th Street improvements is anticipated to be approximately $1M and is required to be complete by 2026. In 2027, new leisure activities for children will be improved by adding spray amenities and splashpad as identified within the Aquatics Feasibility Plan at Spruce Pool.100,000$ 530,000$ 550,000$ 1,180,000.00$ Urban Forest Management- EABThis project provides annual funding to continue the Emerald Ash Borer (EAB) response by enabling critical safety measures including removing identified trees throughout the city and replacing them with new tree species to slow the spread of the pest, and ensuring safety of the public as well as expanded urban forest management practices. This project also provides treatment of trees designated for preservation and associated infrastructure improvements such as irrigation to ensure sustainability of the new trees.500,000$ 500,000$ 500,000$ 500,000$ 500,000$ 500,000$ 3,000,000.00$ Recreation Facility Capital MaintenanceBased on recommendations of the 2016 Facility Strategic Plan and upcoming Recreation Needs Assessment, this program will provide annual capital funding for implementation of key facility repairs and renovations at the city's three recreation centers to ensure acceptable facility conditions and continue cost-effectively meeting the needs of health and wellness opportunities within Boulder. This project is combined with funding from the Facilities Department of Public Works. 500,000$ 1,000,000$ 1,500,000$ 3,000,000.00$ Valmont Bike Park MaintenanceValmont Bike Park opened 11 years ago, and many of the wood features need to be replaced based on the age and criticality of these features. 200,000$ 200,000.00$ R&R FieldsAs part of the 2022 Master Plan, BPR has recognized the need to provide regular funding for the renovation and refurbishment of different assets. Funding is being provided to support the renovation and refurbishment of different fields within the parks system. Annually, BPR will refurbish fields based upon condition, prioritization, and equity mapping.200,000$ 200,000$ 200,000$ 200,000$ 200,000$ 200,000$ 1,200,000.00$ R&R Access& MobilityAs part of the 2022 Master Plan, BPR has recognized the need to provide regular funding for the renovation and refurbishment of different assets. Funding is being provided to support the renovation and refurbishment of different assets that promote accessibility and mobility in the park system including sidewalks, multi-use paths, bike parking and parking lots. Annually, BPR will allocate these funds based upon condition, prioritization, and equity mapping. 400,000$ 200,000$ 200,000$ 200,000$ 200,000$ 200,000$ 1,400,000.00$ Attachment A - CIP 2023-2028175
R&R CourtsAs part of the 2022 Master Plan, BPR has recognized the need to provide regular funding for the renovation and refurbishment of different assets. Funding is being provided to support the renovation and refurbishment of different courts that can include tennis, pickleball, volleyball and horseshoe. Annually, BPR will allocate these funds based upon condition, prioritization, and equity mapping. 200,000$ 200,000$ 200,000$ 200,000$ 200,000$ 200,000$ 1,200,000.00$ R&R IrrigationAs part of the 2022 Master Plan, BPR has recognized the need to provide regular funding for the renovation and refurbishment of different assets. Funding is being provided to support the renovation and refurbishment of irrigation systems. While irrigation systems are underground, they are important to ensuring BPR’s parks can stay watered and support climate resiliency. Annually, BPR will study the criticality and facility condition index (FCI) to determine which areas to address and will coordinate with the equity mapping. 100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 600,000.00$ Permanent Park & Recreation (Fund 3300) Total2,154,000$ 2,144,000$ 1,545,500$ 3,834,000$ 2,554,000$ 1,604,000$ 13,835,500.00$ Aquatics Facility Capital EnhancementsBased on recommendations of the 2015 Boulder Aquatics Feasibility Plan, this project provides capital funding to complete priority indoor and outdoor pool enhancements for Boulder's aquatics programs. In 2025, funding is provided to partner with City Transportation to begin the design of the 30th Street improvements along Scott Carpenter park to remain in compliance with necessary infrastructure required through the city's regulatory planning and development review process for Scott Carpenter Pool enhancements. The construction of the 30th Street improvements is anticipated to be approximately $1M and is required to be complete by 2026. In 2027, new leisure activities for children will be improved by adding spray amenities and splashpad as identified within the Aquatics Feasibility Plan at Spruce Pool.-$ -$ -$ 470,000$ 450,000$ 920,000.00$ Athletic Field Capital EnhancementsBased on key recommendations of the Athletic Field Study, this program will allow implementation of field repairs and enhancements including turf, field renovations and expansion to accommodate additional capacity for sports uses. Average cost for a complete renovation of an irrigation system is $100,000 which is necessary to ensure preventative maintenance of the systems. System failures can lead to field closures and loss of revenue from field use. 2023’s funding will support the replacement of the irrigation systems at Stazio Ballfields. 250,000$ 100,000$ 100,000$ 450,000.00$ Natural Lands Management The department's natural lands team manages over 1,000 acres of wildlife and vegetation conservation areas to support the regions vulnerable ecosystems within urban areas. Capital funding helps support planning and implementation of critical conservation measures and management strategies on the properties. -$ 575,000$ 575,000$ Parks and Recreation Strategic Planning InitiativesAs illustrated in the Boulder Parks and Recreation Master Plan, the department must consistently review services to ensure alignment with the community expectations, best practices in the industry and strategic focus. This is achieved through ongoing planning, funded through the CIP. In 2023, this funding is tentatively allocated for a General Maintenance and Management Plan Update / Ops Maintenance Facility Assessment in coordination with the Facilities and Fleet Department as they look at consolidation of city services at an Eastern Hub. 100,000$ 120,000$ 120,000$ 60,000$ 50,000$ 50,000$ 500,000$ Attachment A - CIP 2023-2028176
Boulder Reservoir South Shore Capital EnhancementsContinuing to implement the 2012 Boulder Reservoir Master Plan and recent South Shore Capital Strategy, this project will provide key improvements to the South Shore recreation area and various visitor amenities to serve the region. Funding is planned through 2026 to address deficiencies outlined in the recently approved Concept Plan and Capital Strategy. Projects include a variety of amenities including but not limited to signage, dock repairs, trail connections, pavilions, facility maintenance, road repair, landscaping, and parking lot repair.1,300,000$ 355,000$ 721,500$ 100,000$ 500,000$ 500,000$ 3,476,500$ Columbia Cemetery Capital MaintenanceThe cemetery is a designated landmark and requires ongoing maintenance to meet the preservation requirements associated with all the infrastructure ranging from headstones, markers, ornamental fencing, and grounds maintenance. This project will provide necessary funding to complete projects as well as local match for leveraging state grant funds.32,000$ 32,000$ 32,000$ 32,000$ 32,000$ 32,000$ 192,000$ Flatirons Golf Course Capital EnhancementsThe Flatirons Golf Course is the only public course in Boulder and provides a highly desired recreation amenity while also contributing to funding sources through revenue generation. The funding associated with this project will allow the golf course to complete planned enhancements and repairs to ensure playability and provide necessary visitor amenities. 250,000$ 250,000$ 500,000$ Neighborhood and Community Park Capital MaintenanceThis project provides funding for asset maintenance throughout the system as well as a complete renovation of one neighborhood park annually to meet the goals outlined within the BPR Master Plan and Capital Investment Strategy. The renovations typically include playground replacement, irrigation renovation, forestry maintenance, ADA compliance and shelter repairs. In 2023, the main project will be the Martin Park playground, restroom and shelter.472,000$ 572,000$ 572,000$ 672,000$ 672,000$ 772,000$ 3,732,000$ Valmont City Park Phase 2 DevelopmentThe Valmont City Park Concept plan was updated in 2015 through community involvement and approval from the Parks and Recreation Advisory Board. This project provides for the development of the next major phase identified for the park, south of Valmont Road. Potential amenities to be built include adventure playground elements, community garden space, a splash pad, adult playgrounds, an event pavilion and additional parking. Design and permitting will occur in 2024 with construction to commence in 2026. This project also allows for increased park service to the surrounding areas of east Boulder as well as the entire Boulder community.240,000$ 2,500,000$ 500,000$ 250,000$ 3,490,000$ Capital Development Fund (Fund 2100) Total1,250,000$ 500,000$ -$ -$ -$ -$ 1,750,000$ Capital Infrastructure Enhancements and Partnership OpportunitiesThis project will provide capital funding to implement enhancements at parks and facilities throughout the system. In 2023, funding is provided to finalize the design and construction of the undeveloped portions of Violet Park. This park development has been a priority for several years to extend the service areas of parks to adjacent neighborhoods and is planned for 2023 to align with greenways improvements and construction of the North Boulder Library.1,250,000$ 500,000$ 1,750,000$ Lottery Fund (Fund 2110) Total428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 2,568,000$ Attachment A - CIP 2023-2028177
Neighborhood and Community Park Capital MaintenanceThis project provides funding for asset maintenance throughout the system as well as a complete renovation of one neighborhood park annually to meet the goals outlined within the BPR Master Plan and Capital Investment Strategy. The renovations typically include playground replacement, irrigation renovation, forestry maintenance, ADA compliance and shelter repairs. In 2023, the main project will be the Martin Park playground, restroom and shelter.428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 2,568,000$ Boulder Junction Capital Improvement Fund (Fund 3500) Total250,000$ 2,000,000$ -$ -$ -$ -$ 2,250,000$ East Mapleton Ballfield EnhancementsHousing supply in the surrounding are as increased, resulting in greater demand for neighborhood park and recreation amenities such as playgrounds, dog parks, open lawn areas and other multi-use amenities. The original Boulder Junction area plan indicated a goal of providing park and recreation amenities to this new residential area as development occurs. This project will result in the addition of new amenities at the existing East Mapleton Ballfield site that is near Boulder Junction, connected by the underpass along Goose Creek. A community planning project will be completed to determine the final design and priorities for construction. Any reduction in ballfields will be replaced at other sports complexes as indicated in the department's 2015 Athletic Field Study.250,000$ 2,000,000$ 2,250,000$ General Fund Capital (Fund 1300)1,250,000$ -$ -$ -$ -$ -$ 1,250,000$ Reservoir Access RoadThe existing Reservoir Access Road needs significant investment to ensure it continues to serve the needs of the Reservoir’s South Shore and provides critical access for Utilities to access the dam and local Fire agencies to access the Fire Training Center. (This item is not fully funded and is pending city-wide coordination.) 1,250,000$ -$ 1,250,000$ Community, Culture, Resilience and Safety Tax Fund (Fund 3700)-$ 500,000$ -$ -$ -$ -$ 500,000$ CCRS - EBCC Refresh* Joint request with Facilities not included in totalIn November 2021, voters approved the extension of the Community Culture and Safety Tax as a rebranded Community, Culture, Resilience and Safety Tax for 15 years. The renovation of the East Boulder Community Center was included as a named project, with Facilities also planning to upgrade the plumbing, mechanical and electrical systems in the building. Funding is intended for design and community outreach in 2023, with construction occurring in 2024. *Joint project between BPR and Facilities. Facilities is requesting a total budget of $1.5M for the 2023 design phase which includes the request of $500k from BPR. $ 500,000*-$ CCRS - Boulder Creek ImprovementsIn November 2021, voters approved the extension of the Community Culture and Safety Tax as a rebranded Community, Culture, Resilience and Safety Tax for 15 years. The Boulder Creek path was included as a named projects, with the project to include system enhancements that enhance the transportation corridor from 55th Street in East Boulder to Eben G. Fine Park in West Boulder. The Boulder Creek Improvements will focus on riparian habitat enhancements including water quality and urban tree canopy, while also supporting passive recreation opportunities, in addition to the multi-modal transportation path along Boulder Creek. Community engagement and design is planned for 2024, with construction in 2025. 450,000$ 450,000$ Attachment A - CIP 2023-2028178
CCRS - Civic Area Phase IIIn November 2021, voters approved the extension of the Community Culture and Safety Tax as a rebranded Community, Culture, Resilience and Safety Tax for 15 years. One of the named projects is the Civic Area Phase II, which would complement the Civic Area Phase I completed in 2017. The Civic Area is a highly visited park, and would include park enhancements to support the public activation of the space for events like the Boulder Farmers Market and the Glenn Huntington Bandshell. Community engagement and design is planned for 2024, with construction in 2025.500,000$ 500,000$ CCRS Pearl Street Mall RefreshIn November 2021, voters approved the extension of the Community Culture and Safety Tax as a rebranded Community, Culture, Resilience and Safety Tax for 15 years. Pearl Street Mall is nearing it's 50-year anniversary and a refresh would look at updating the public amenities including horticulture beds, a restroom, park benches, lighting, etc. This CIP project would include extensive community engagement with collaboration from the Downtown Boulder Partnership and Community Vitality Department. Requested funding with this proposal is intended for design and community outreach in 2023. 500,000$ 500,000$ Attachment A - CIP 2023-2028179
PROJECT CAPITAL COST
O&M COST
(Annually)DESCRIPTION
Master
Plan
Funding
Plan
NOTES
Maintenance
Facility
Enhancements
$ 139,500 $ 2,790.00
The GMMP study has indicated that the lack of indoor storage for machinery and equipment is a
significant shortfall in the building designs and capacity on the golf course property. Given the
location of the buildings in a flood plain it is recommended to commission a complete
recommendation that will include facility(s) size recommendations, feasibility study and funds needed
to complete the structural additions or adjustments. The study shall further give cost construction
estimates and location feasibility information for the addition of a permanent shade structure located
adjacent to the current grill area and the feasibility and design for enhancements to the grill area
structure to increase seating capacity and access.
Fiscally
Constrained
Parking Lot
Renovation $ 500,000 $ 10,000.00
The golf course parking lot is in poor condition and needs repair. As the lot is currently not designed
to existing City standards, the repair of the lot should include redesigning the lot to include
appropriate size stalls, accessible spaces, drainage, landscape elements and walkways among other
required features. It is also recommended that the design of the lot include the consideration of
expanding the width of the practice range to the west. This work will try to be achieved wtih the
upcoming facility improvements in 2021.
Fiscally
Constrained
Included in new facility
devleopment
Golf Course
Irrigation Pond
Dredging
$ 225,000
The main irrigation pond located on hole #17 has lost approximately 40% of its original storage
capacity. In 2008 when the pumphouse was rebuilt it was recommended that the pond be dredged in
the near future as the amount of silting observed was projected to threaten the viability of the intake
and wet well systems. The original capacity was also observable during that project. Golf course
industry standards recommend the main irrigation ponds be dredged every 20 years. This pond has
not been dredged in at least 35 years. Water storage on hole #9, two ponds on the west side of the
hole would also be included in this project. $75K each pond.
Fiscally
Constrained
Various Course
Improvements $ 288,500 $ 5,770.00
An assessment has been completed on each hole of the course with recommended improvements
for playability and maintenance. The enhancements include cart path extensions, tree removals and
bridge repairs.
Fiscally
Constrained
Historic Roney
House Restoration $ 400,000 $ 8,000.00
Complete the restoration of the landmarked property south of Valmont Road per the recommedations
to come with the proposed preservation plan.Action
New Restroom at
Dog Park $ 300,000 $ 6,000.00 Design and develop a new, year-round restroom on the east side of the park near the dog park. Action
Disc Golf Site Plan $ 15,000
The Valmont Disc Golf course was built in 2013 as a temporary course until a more permanent
course will be built. Disc golf has increased in popularity and the Valmont course reflects that
increase. The course enjoys a strong volunteer presence and has a nice partnership with the Boulder
Disc Golf Club. The 2015 Valmont City Park Master Plan update called for 16.5 acres designated for
a new disc golf course. The area is designed to have mounds trees and other hazards for enhancing
the playing experience not currently offered at the temporary course. By funding the course design
portion, we can more accurately project total costs and can utilize the disc golf community and PLAY
Foundation to fundraise now towards aiding the City’s construction efforts.
Action
Maintenance
Facility
Enhancements
$ 15,000 $ 300.00 Enhancements to the current maintenance building to provide additioanl covered storage of
equipment, vehicels and materials.
Fiscally
Constrained
Skills Loop Shelter $ 40,000 $ 800.00
Design and construct a new shade shelter in the skills loop area of the park to serve children and
families.Action
New playground
near dog park and
skills loop
$ 250,000 $ 5,000.00 Design and construct a new childrens play area near the dog park on the east side of the park. Action
South park
development $ 45,000,000 $ 900,000.00 Implementation of the 2015 Concept Plan for the development of various amenities south of Valmont
Road.Vision
Maintenance
Building
Repair, Paint and
Elect.
$ 30,000 $ 600.00 Fiscally
Constrained
Picnic Shelters
add 2 $ 50,000 $ 1,000.00
Fiscally
Constrained
Covered Parking
for maint. vehicles $ 40,000 $ 800.00
Fiscally
Constrained
Primary Road
Asphalt
Repair and maint. $ 1,275,000 $ 25,500.00 Fiscally
Constrained
Secondary Road
Asphalt
Repair and maint.
$ 25,000 $ 500.00
Fiscally
Constrained
Unpaved Road
Grade to overflow lot $20,000 $ 400.00 Fiscally
Constrained
Paved Parking
Maint. and repair
existing
$ 50,000 $ 1,000.00
Fiscally
Constrained
Flatirons Golf Course
Valmont City Park
Boulder Reservoir
Roads, Parking and Trails
Structures and Facilities
Attachment B - BPR Unfunded Projects
180
Paved Parking
Porous asphalt for
new boat parking
$ 1,008,000 $ 20,160.00
There are critical repairs needed to the asphalt in the Coot trailer parking lot. This lot is at the top of
the priority list for repair of parking lots at the Boulder reservoir. The large cracks and the dip in the
lot where the new sewer line was installed pose safety hazards for thousands of patrons and risk of
damage to patron boats and trailers. The Coot parking lot is a highly used year round by boaters, as
well as special events. This lot is a highly sought after space for boat storage due to its close
proximity to the boat ramp and easy accessible spots for boat parking. In addition to yearly boat
storage this space is used as daily parking of vehicles and boat trailers by 60-100 patrons.
The coot lot is also the location of the bike transition area for the full Ironman. During this event the
lot is the location for 3000 bicycles and their athletes to transition from the swim to their bike.
Given the current condition of the lot an assessment would need to be done to determine the most
cost effective solution to address the current status of the lot.
Fiscally
Constrained
Unpaved Parking
Repair and maint.
exisiting
$ 25,000 $ 500.00
Fiscally
Constrained
Paved Walkway
and Plaza
at Central drop-off
$ 43,800 $ 876.00
Fiscally
Constrained
Soft Surface Trail 1
Regional trail $ 169,000 $ 3,380.00
Fiscally
Constrained
Soft Surface Trail 2
New connectintrails $ 29,000 $ 580.00
Fiscally
Constrained
Promenade
Walkway
concrete, asphalt or
soft‐surface at
shoreline
$ 180,000 $ 3,600.00
Fiscally
Constrained
Landscape
Improvements
Native revegetation
on west boundary
57,000$ $ 1,140.00
Fiscally
Constrained
Landscape
Improvements
Screen
Planting/groupred
trees
140,400$ $ 2,808.00
Fiscally
Constrained
Landscape
Improvements
Parking area trees
and srubs
184,950$ $ 3,699.00
Fiscally
Constrained
Picnic Tables
Replace existing 15,000$ $ 300.00
Fiscally
Constrained
Shaded Bench
Area 7,500$ $ 150.00 Fiscally
Constrained
Boat Storage
Racks
small craft
20,000$ $ 400.00
Currently the reservoir sells over 1000 Small watercraft permits per year. This number has steadily
increased over the past 3 years. The demand to store those watercraft on site has also increased.
Currently we have 8 spots that are specifically dedicated to smallcraft storage. Many patrons
purchase a shore mooring spot and build their own racks to store multiple craft in one spot. This
practice leads to a loss of revenue and an inconsistency in structures on site. The storage racks
would allow 6-10 craft per structure and could potentially generate 30K-50K in revenue per year.
The ability for more on site smallcraft storage address goal #4 in the Reservoir master plan to
implement strategies to reduce and manage the risks of ANS infestation by decreasing the number of
times a craft exits and reenters the park. This would also would decrease the amount of boat traffic
through the front gate area and the number of smallcraft inspections that need to be performed
Fiscally
Constrained
Signage for South
Shore
wayfinding, rules,
coutesy, interior
needs
160,000$ $ 3,200.00
Fiscally
Constrained
Signage for North
Shore
minimal additions
while north shore
plan is developed
5,000$ $ 100.00 Fiscally
Constrained
Water
Entertainment
System
$ 240,000 $ 4,800.00
Fiscally
Constrained
Irrigation
Upgrades to more
efficient systems and
support additional
trees, shrubs and
lanscaped areas.
Prepare for future
needs.
$ 50,000 $ 1,000.00
Fiscally
Constrained
Fuel Station
new shell $ 18,000 $ 360.00
Fiscally
Constrained
Rip Rap
overflow from 6‐mile $ 50,000 $ 1,000.00
Fiscally
Constrained
Ped Crossings
Paint, bump, mark at
10 locations
$ 27,000 $ 540.00
Fiscally
Constrained
Regional Trail
Access Gates 4,000$ $ 80.00
Fiscally
Constrained
Accessible Dock
new in 3 locations $ 225,000 $ 4,500.00 Fiscally
Constrained
Existing Docks
Repair and maint. $ 15,000 $ 300.00
Fiscally
Constrained
Boat Ramp
Rip rap 60,000$ $ 1,200.00
Fiscally
Constrained
Site Amenities
Infrastructure and Utilities
Security, Safety and Access
Attachment B - BPR Unfunded Projects
181
Boat Ramp
Repair and
replacement
50,000$ $ 1,000.00
Fiscally
Constrained
Boat Launching
Areas
Rip rap
63,000$ $ 1,260.00
Fiscally
Constrained
Maintenance Area
Compound Fence $ 15,000 $ 300.00
Fiscally
Constrained
West zone
Notification signage 2,500$ $ 50.00
Fiscally
Constrained
Erosion Control
along existing
Shoreline
20,000$ $ 400.00
Fiscally
Constrained
Goose Manure
Collector 8,000$ $ 160.00 Fiscally
Constrained
Prairie Dog Fence $ 10,000 $ 200.00 Fiscally
Constrained
Goose Beacons $ 15,000 $ 300.00
Fiscally
Constrained
Coot Lake
Restoration and
Enhancement
1,500,000$ $ 30,000.00
Plans for south & east shoreline stabilization (north shore is already in progress) at Coot Lake.
Wetland permitting would be needed even for floating islands to be installed. The banks are
experiencing erosion issues due to users accessing the lake wherever they want so fencing would be
installed to create designated access points. Trail repairs will be included over to 55th and to provide
better ADA access around the lake. Signage would be updated. Parking, amenities and facilities
would be updated as they are in a major state of disrepair and are potential liabilities. Work must be
coordinated with nesting birds and other wildlife in mind.
Fiscally
Constrained
ARA
Thunderbird Lake
Dredging 75,000$ $ 1,500.00
Given potential drought conditions and our commitment to keep the water at a certain level, this
project is a priority. The low lake levels, poor water quality and lack of water views and access would
finally be addressed by dredging the lake and installing a pier. Consultants and wetland permits
would be required. Educational signage that was not completed in the last round would be added to
address the value of urban natural lands, nature play, “Bee Friendly” areas, the history of Burke Park
and significance to local farming, the ecology of the current pond and wetlands as well as the
geological formations that are influencing water in the region.
Fiscally
Constrained
ARA
Boulder Reservoir
North Shore
Resource
Management
450,000$ $ 9,000.00
Implement recommendations such as wildlife and vegetation surveys, prescribed burns, erosion
control, habitat improvement, invasive removal/vegetative restoration, closures, etc.
Fiscally
Constrained
Community Park
Enhancements 11,600,000$ $ 232,000.00
Includes the design and development of enhancements to community parks including: Foothills
Community Park, Harlow Platts Community Park, and East Boulder Community Park. Each of these
Community Parks has planned future phases that include additional amenities and recreation areas
not including athletic fields:
Action
Boulder Civic Area
Phase 2
Development
8,000,000$ $ 160,000.00
This project would provide a key next step in the momentum of the Civic Area transformation by
implementing key amenities that support the guiding principles and vision of the Civic Area based on
a wealth of support from the community and City Council. This next phase of Civic Area
implementation would develop the community-supported, public market by renovating the existing
Atrium building at 13th and Canyon. To compliment this phase, the adjacent Central Park would be
renovated and improved to better support an active market, events and programs within the East
Bookend. Additionally, this phase would provide a public restroom, enhancements to 13th Street and
opportunities for a variety of public/private partnerships.
Action
Historic and
Cultural Facility
Improvements
2,758,000$ $ 55,160.00
The city's historic assets must be maintained appropriately to preserve them over time and for future
generations. Additionally, some assets are governed by various grants that require certain
maintenance efforts and upgrades to meet requirements of grant funding. Conservation and
preservation of important historical and cultural assets in the community that are managed by the
Parks and Recreation Department including the Columbia Cemetery, Chautauqua Park, Pottery Lab,
Harbeck House, Boulder Bandshell, Boyd Smelter Site, Roney House at Valmont Park and the
historic locomotive assets housed at the CO Railroad Museum.
Action
Rec Centers and
Indoor Pool
Renovations
8,640,000$ $ 172,800.00
The rec centers are foundational to the city's delivery of programs and services that enhance the
social capital including the health and wellness of the community. The centers serve a broad range
of residents with multi-generational facilities and inclusive to all income levels. This funding would
allow uninterrupted service to the community and enhance the centers to provide quality facilities and
equipment. This will address the existing backlog of maintenance items within the recreation centers
including pools while also providing key upgrades and enhancements to better serve the community
's focus on health and wellness. This would restore the facilities to "like-new" condition by allowing
BPR to catch up on maintenance and provide some new planned amenities to improve the facilities.
Action
Area III Concept
Planning 200,000$
Develop long-term plan for the development of the Area II park planning reserve to support the
department needs within the community.Vision
Sports Complexes
and Athletic Field
Improvements
5,240,000$ $ 104,800.00
Provision of ballfields continues to be a priority for the community and growth continues in sports
leagues and programs. This funding would allow the city to provide critical upgrades and new fields
to support the growing demand as evidenced in the Athletic Field Study. Address backlog of
maintenance needs to keep fields open and up to standards while also enhancing parking and other
amenities. Design and development of new or improved diamond and rectangular athletic fields at
existing Parks and Recreation facilities in support of various team sports leagues and multi-use
practice field needs.
Action
Natural Lands
General Parks and Recreation Needs
Water Quality and Environment
Attachment B - BPR Unfunded Projects
182
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director, Parks and Recreation Department
Jackson Hite, Business Services Manager
SUBJECT: Matters from the Department
DATE: June 27, 2022
A. BPR Workforce Overview
Upon request from the board, this item provides an overview of BPR organizational structure
and staffing levels. At the meeting, staff will share a presentation that outlines BPR’s
Leadership structure shifts over the past several years, current staffing organized by the seven
service areas of the department, and staffing capacity as of June 2022.
With the presentation, staff will provide updates on several recent hires. Two of them will have
regular interaction with the PRAB:
• Senior Planning Manager – Mark Davison joins the BPR team officially on June 27,
2022 and will begin working with the team after the 4th of July holiday and a previously
planned family vacation. Mark brings 25 years of experience in public landscape
design, construction and operation. Mark has a degree in Landscape Architecture from
Manchester School of Design, England and a Masters in Landscape Architecture from
the University of Pennsylvania. Mark’s prior experience includes working for the
National Park Service, Oregon Parks and Recreation, and Boulder’s Open Space and
Mountain Parks department. His experience is broad and deep, enabling him to able fill
the three key competencies for this role:
o Strategic Leadership, aligning our actions, plans and investments with citywide
values and plans and actively participating in the department’s leadership to
inspire continuous improvement and high-quality service delivery. Mark will
also help ensure that BPR is responsive to trends, new technologies and best
management practices in the areas of urban park planning and design, recreation
facility development, and environmental sustainability – including
considerations for equity and climate change mitigation and adaptation.
o Technical Expertise, sponsoring the department’s Asset Management Program
and Design Standards to ensure we care for Boulder’s park system today and
into the future and ensuring sound stewardship of the same through long-range
planning and capital investment.
183
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
o People Leadership – Mark will manage a team and is responsible for fostering
a positive team culture that encourages department and citywide coordination
and promotes a climate where teammates can do their best.
• Executive Assistant, Rosa Kougl – Rosa joins the team after eight years in a similar
role with the City of Arvada. Rosa will spend June 27 in citywide orientation and join
her first PRAB meeting in July. Rosa has a B.S. in Business Administration from the
University of Wyoming and two master’s degrees from Regis University; a Master’s
of Science in Market Strategy and an Master’s of Business Administration. Rosa is
eager to join the city, expressing a strong alignment with the city’s focus on diversity,
equity and inclusion. Rosa is experienced with communications and community
engagement and her experience will add value to departmental efforts related to process
improvement, accreditation, and racial equity. Board members will be contacted in July
with more details about her onboarding and opportunities to get to know Rosa, as she
will be the department’s board liaison.
Attachment A BPR Workforce Overview
184
BPR Workforce Overview
2019-2023
01
185
BPR Leadership: 2014-2019
02
DIRECTOR
COMMUNITY BUILDING +
PARTNERSHIPS BUSINESS SERVICES DEPUTY DIRECTOR
OF OPERATIONS
URBAN PARK
OPERATIONS
DISTRICT SERVICES
PROGRAMS &
PARTNERSHIPS
REGIONAL
FACILITIES
PLANNING + ECOLOGICAL
SERVICES
186
BPR Leadership: June 2020 -Today
03
DIRECTOR
Ali Rhodes
COMMUNITY BUILDING
+ PARTNERSHIPS
Bryan Beary
URBAN PARKS
Dennis Warrington
RECREATION
Megann Lohman
REGIONAL
FACILITIES
Stephanie Munro
PLANNING +
ECOLOGICAL
SERVICES
Regina Elsner -
Interim
BUSINESS SERVICES
Jackson Hite
187
BPR Leadership: July 2022
04
DIRECTOR
Ali Rhodes
BUSINESS SERVICES
Jackson Hite
DEPUTY DIRECTOR OF
COMMUNITY SERVICES
Recruiting
RECREATION
Megann Lohman
COMMUNITY BUILDING
Bryan Beary
REGIONAL FACILITIES
Stephanie Munro
PLANNING
Mark Davison
URBAN PARKS
Dennis Warrington
NATURAL
RESOURCES
Regina Elsner
EXECUTIVE ASSISTANT
Rosa Kougl
188
Business Services
05
Business Services
•Budget Stewardship
•Human Resources
•Systems Administration
•Process Improvement
•Data & Analytics
Sr. Manager
Business Services
Jackson Hite
Budget Sr. Analyst
Stacie Hoffmann
1.0 FTE
Data Analyst
Chris Passarelli
IT Applications Sr.
Administrator
Tim Duda
2.0 FTE
189
Planning
06
Planning
•Capital Improvement Program
•Long-term Planning
•Policy and Land Use
•Asset Management
•GIS
•Construction
Planning Sr. Manager
Mark Davison
City Sr. Planner
Tina Briggs
1.5 FTE
Sr. Landscape
Architect
Vacant
Sr. Landscape
Architect
Doug Godfrey
Construction Team
5.0 FTE
190
Urban Parks
07
Urban Parks
•Park Maintenance
•Irrigation
•Horticulture
•Sports Turf/Athletic Fields
•Asset Management
Park & Landscaping Maintenance Sr.
Manager,
Dennis Warrington
Landscaping &
Irrigation Supervisor
Pete Lockett
South Zone
5.0 FTE
Landscaping &
Irrigation Supervisor
Josh Benedict
Downtown / Civic Area
8.0 FTE
Landscaping &
Irrigation Supervisor
Nick Haupt
North Zone
5.0 FTE
Landscaping &
Irrigation Supervisor
Aaren LeMieux
Athletics / Sports Turf
7.0 FTE
Landscaping
Operations Supervisor
John Falkenberg
Irrigation
6.0 FTE
Landscaping
Operations Supervisor
Gabriel Aksamit
3.0 FTE
Fleet Mechanic I
Tim Sedlack
191
Natural Resources
08
Natural Resources
•Forestry
•Natural Lands
•Urban Park Rangers
•Climate Resilience
Sr. Manager
Natural Resources
Regina Elsner
Forestry Manager
Kathleen
Alexander
7.0 FTE
Ecology
Supervisor
Joy Master
3.0 FTE
Lead Ranger
Aaren Morrell
2.0 FTE
192
Regional Facilities
09
Regional Facilities
•Boulder Reservoir
•Flatirons Golf Course
•Valmont City Park
Sr. Manager
Regional Facilities
Stephanie Munro
Golf Operations
Manager
Tom Buzbee
5.0 FTE
Reservoir
Operations
Stacy Cole
4.0 FTE
Valmont
Supervisor
Mike Rossi
2.0 FTE
193
Community Building +
Partnerships
10
Community
Building +
Partnerships
•EXPAND
•YSI
•Youth/Camps
•Events
•Volunteers
•Partnerships
•Marketing
Sr. Manager Community
Partnerships
Bryan Beary
Recreation Supervisor
(EXPAND, YSI, Inclusion,
Camps)
Lori Goldman
6.25 FTE
Community Access
Administrator
Rosa Wright
Community Outreach
Supervisor
Vacant
Volunteer Program Leads
Cassy Bohnet
Mary Malley
Marketing Manager
Heidi Mallon
2.0 FTE
Communications Program
Manager
Jonathan Thornton
194
Recreation
11
Recreation
•Recreation Centers
•Aquatics
•Health & Wellness
•Gymnastics
Sr. Manager
Recreation
Megann Lohman
Sports Program
Manager
1.0 FTE
General Recreation
Program Supervisor
Kate Houlik
2.0 FTE Health &
Wellness
3.0 FTE Gymnastics
Aquatics Supervisor
Tim Stabbe
6.75 FTE
Recreation Center
Supervisors
Matt Pilger –SBRC
Maxen Jones –EBCC
Matt Gazdik -NBRC
9.5 FTE
195
FTE and Hours worked by Division
12
0
20
40
60
80
100
120
140
160
2019 Actual 2020 Actual 2021 Actual 2022 Budgeted 2023 Proposed
Budgeted FTE
Admin / Business Services Planning Urban Parks
Ecological Services Regional Facilities Community Services
Recreation
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
180,000
200,000
2019 Actual 2020 Actual 2021 Actual 2022 Budgeted 2023 Proposed
Seasonal / Temp / Variable Hours Worked
Admin / Business Services Planning Urban Parks
Ecological Services Regional Facilities Community Services
Recreation
196
FTE & Hours worked by Division
13
PT Hours
2019
Actual
2020
Actual
2021
Actual
2022
Budgeted
2023
Proposed
Admin/
Business
Services 33 ----
Planning ----1,050
Urban Parks 10,696 8,862 11,031 20,770 17,094
Ecological
Services 2,884 1,487 3,163 2,728 3,808
Regional
Facilities 42,689 16,523 33,055 39,247 39,823
Community
Services
26,274 8,239 11,828 18,051 19,488
Recreation 112,237 48,807 60,232 75,107 87,124
Total 194,812 83,917 119,308 155,903 168,387
PT Hours
2019
Actual
2020
Actual
2021
Actual
2022
Budgeted
2023
Proposed
Admin/
Business
Services 14.50 13.50 13.50 13.50 14.50
Planning 11.25 12.00 12.00 12.00 13.00
Urban Parks 40.00 38.00 38.00 41.00 44.00
Ecological
Services 12.00 11.00 11.00 12.00 16.00
Regional
Facilities 15.75 14.75 14.75 15.00 16.00
Community
Services
12.75 8.75 8.75 9.75 13.75
Recreation 35.25 23.00 27.75 30.75 33.75
Total 141.50 121.00 125.75 134.00 151.00
Budgeted FTE Seasonal / Temp / Variable Hours Worked
197
Standard Staff Capacity
14
January 1 –7% Vacancy Rate
May 2, 2022 –6% Vacancy Rate
May 30, 2022 –12% Vacancy Rate
*4 additional FTE added with ATB1 (3 in Ranger program, 1 Deputy)
June 27, 2022 –7% Vacancy Rate
* To be updated every 4 weeks moving forward
Status on Vacancies:
Position FTE Status Division / Workgroup
Executive Assistant 1.0 Rosa Kougl starts 6/27 Director’s office
Sr. Planning Manager 1.0 Mark Davison starts 6/27 Planning
2 Ranger Naturalist Crew Leads 2.0 1 starts 6/27; 1 start date TBD Natural Resources / Urban Ranger
Parks and Recreation Sr. Manager (Natural Resources)1.0 Regina Elsner starts 7/11 Natural Resources
Facility Maintenance Lead Technician 1.0 Screening applicants Recreation / Aquatics
3 Aquatic Facility Monitors 2.25 Accepting Applications –1 hired Recreation / Aquatics
Landscaping & Irrigation Technician I (South Zone)1.0 Accepting Applications Park Operations / South Zone
Landscaping & Irrigation Technician I (Sports Turf)1.0 Accepting Applications Park Operations / Athletics
Deputy Director 1.0 Accepting Applications Director’s Office
Recreation Member Service Representative III 1.0 Accepting Applications for 2 0.5FTE Recreation / Centers
Sr. Landscape Architect 1.0 To be posted 6/27 Planning
Parks & Recreation Program Manager (H&C Assets)0.5 Pending -review JD Planning / Historical & Cultural Assets
Events Sr. Program Manager 1.0 Pending -discuss department needs Community Programs / Special Events
198
2022 Non-Standard Capacity
03
18369
27
30
2022 Hiring Makeup
As of June 13, 2022
New Hire Rehire
Additional Position Position Change
0
50
100
150
200
250
300
350
400
450
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26Non-standard staff working in Pay PeriodPay Period
Seasonal / Temporary Employees working / PP
2019 2020 2021 2022
199
2023 Requested Positions
03
Division Position FTE
Community Services Access Navigation (P1)1.00
Community Services Youth Programming (P1)1.00
Community Services Recreation Supervisor (TBD workgroup)1.00
Community Services Partnership Management (P2)1.00
Natural Resources Forestry Planner 1.00
Natural Resources Ranger Supervisor 1.00
Natural Resources Ranger I 1.00
Natural Resources Ranger I 1.00
Planning Project Manager (P2)1.00
Recreation Aquatics Coordinator 1.00
Recreation Facility Operations Coordinator 1.00
Recreation .5 Recreation Coordinator (H&W)0.50
Recreation .5 Recreation Coordinator (Sports)0.50
Regional Facilities Year Round Boat Inspector 1.00
Urban Parks Landscaping & Irrigation Technician II (North Zone)1.00
Urban Parks Landscaping & Irrigation Technician II (South Zone)1.00
Urban Parks Landscaping & Irrigation Technician II (Civic Area)1.00
200
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
TO: Parks and Recreation Advisory Board
SUBJECT: Matters from the Board
DATE: June 27, 2022
A. PRAB Meeting Format Check-in
As stated in director updates, 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. Given this change in
format for council, boards and commission meetings will remain all-virtual for the time being.
Council will likely transition back to in-person or hybrid meetings before boards and
commissions.
The intent of this item is to gather PRAB feedback on members preferences for moving to hybrid
or in-person meetings in the future. There is not currently a timeline for any transition to occur,
so this is a conversation about preferences to better guide staff resources once hybrid or in -
person options are made available. In-person meetings may occur in council chambers or other
venues given availability determined by staff. Questions for the PRAB to consider include:
• Would members prefer virtual, in-person or hybrid meetings?
• What type of hybrid meeting would members prefer?
o Staff and board members attend in person, public participation virtual only
o All members, staff and public have the option of attending virtually
o Other
B. Holiday Meetings & Retreat (verbal)
C. PRAB Matters (verbal)
201