09.25.23 PRAB PacketAGENDA
All agenda times are approximate
I.APPROVAL OF AGENDA (2 minutes)
II.FUTURE BOARD ITEMS AND TOURS (2 minutes)
III.PUBLIC PARTICIPATION (15-30 minutes)
A.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.
IV.CONSENT AGENDA (5 minutes)
A.Approval of Minutes from August 28, 2023
B.Parks and Recreation Planning, Design and Construction Updates
C.Boulder Parks and Recreation Fee Policy Update
V.MATTERS FROM THE DEPARTMENT
A.2023 Budget Review & 2024 Budget Update
B.Park on Violet Avenue
VI.MATTERS FROM THE BOARD
A.Study Session planning
B.Future meetings coordination and planning
C.PRAB Matters (Verbal) (5 minutes)
VII.NEXT BOARD MEETING:
A.6:00 p.m. October 23, 2023
VIII.ADJOURN
Parks & Recreation Advisory Board
Hybrid Meeting
6:00 p.m., September 25, 2023
Boulder Parks & Recreation
Advisory Board Members 2023
Andrew Bernstein
Charles Brock
Elliott Hood
Anna Segur
Anita Speirs
Jason Unger
Sarah van der Star
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
1
PRAB Future Board Items Agenda
SEPTEMBER 25 OCTOBER 23 NOVEMBER 27 DECEMBER 25
Hybrid for members & staff.
Public Comment remains
Virtual.
Hybrid for members & staff.
Public Comment remains
Virtual.
Hybrid for members &
staff. Public Comment
remains Virtual.
Hybrid for members &
staff. Public Comment
remains Virtual.
Regular
Mtg (c) •Pleasant View Access
Study
•Fee Policy update
•Snow Removal
Overview
•Boulder Youth
Nature Initiative
(BYNI)
Regular
Mtg (a)
•Accept Fee Schedule •Flatirons GC F&B
partner
Regular
Mtg
(d/i)
•Marketing Plan
Overview
•Fee Schedule
•Flatirons F&B Vendor
Selection and Lease
Negotiations
Regular
Mtg
(md)
•Financial Update (30
min)
•Park on Violet Avenue
(15 min)
•PLAY Boulder
Foundation
•Overview of water
safety and access
•Peak Season After-
Action Review
•Final 2024 Operating
Budget w/significant
changes
•Court System Plan
•ANS Update
Regular
Mtg
(mb)
•PRAB Study Session
Planning (10 min)
•Future Meetings:
December Regular
Meeting Date, and Joint
Landmark Board meeting
dates for Civic Historic
District
•Guidance for Annual
Letter to Council
•PRAB Recruitment
•PRAB input for
Council Retreat
(TBD)
Other
Mtgs or
Topics
•September 1 – Proposed
Budget shared with
council & public
•September 5 - CIP at
Planning Board
•September 14 – Budget
Study Session (cc)
•Oct 5: Budget 1st
Reading & Public
Hearing w/Fee Policy
(cc)
•October 19: Budget 2nd
Reading and Public
Hearing w/ Fee Policy
(cc)
•Potential for Joint
Study Session with
Landmarks Board for
Civic Area Historic
District
•Dec 7: Flatirons Lease
Agreement (cc)
Dept
Events
& Items
of
Interest
Sept 5:
•COB Labor Day Closure
•Outdoor Pools and
Reservoir Swim Beach
close for the season
Sept 10:
What’s Up Boulder and
Satellite event at Violet
Oct 4:
Court System Plan Public
Meeting, 6-7:30 p.m. OSMP
Hub, 2520 55th Street
Oct 14:
Temple of Tranquility
opening ceremony
Oct 26 and 27:
Drive In Movie @ Reservoir
Nov 4:
Temple of Tranquility
closing ceremony
Nov 10:
COB Veterans Day
Closure
Nov 23:
COB Thanksgiving Day
Closure
Dec 22:
COB ½ Day Christmas Eve
closure
Dec 25:
COB Christmas Day
closure
Dec 31:
COB New Year’s Eve
limited hours/closure
AGENDA SETTING
2
PRAB Future Board Items Agenda
The PRAB Chair, PRAB Vice Chair and BPR staff set the agenda for the next month on Thursday directly following the regular PRAB meeting. PRAB members can
submit agenda requests to the Chair and Vice Chair by Wednesday following the PRAB regular meeting for consideration. If time-sensitive matters arise, PRAB
Chair and Vice Chair may amend the agenda as needed.
LEGEND
Action Item (a): A public hearing item to be voted on by the Board (public comment period provided).
Procedural Item: (p): An item requiring procedural attention.
Consent Item (c): An item provided in written form for consent, not discussion by the Board; any consent item may be called up by any Board member for discussion
following the consent agenda.
Discussion/Information Item(d/i): An item likely to be a future action item (or council item) and/or that benefits from an in-depth discussion.
Matters from the Department (md): Items that will be reviewed and discussed during the meeting but not requiring as much in-depth analysis.
Matters from the Board (mb): Items initiated by the Board that will be reviewed and discussed during the meeting but not requiring as much in-depth analysis.
City Council Item (cc)
Other Boards and Commissions (obc)
Community Engagement and/or Events (e)
Holiday/Closure (h/c)
Italics indicate a tentative date or plan.
3
TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Mark Davison, Senior Manager, Planning
Regina Elsner, Senior Manager, Natural Resources
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Stephanie Munro, Senior Manager, Regional Facilities
Scott Schuttenberg, Deputy Director
Dennis Warrington, Senior Manager, Urban Parks
SUBJECT: Consent Agenda
DATE: September 25, 2023
A. Approval of Minutes August 28, 2023
4
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 and Tour
Date of Meeting: August 28, 2023
Contact Information Preparing Summary: Rosa Kougl; 303-413-7223
Board Members Present: Charles (Chuck) Brock, Andrew (Bernie) Berstein, Elliott Hood, Sunny van
der Star, Anna Segur. Jason Unger and Anita Speirs arrived at Consent Agenda, Item B.
Board Members Absent:
Staff Present: Ali Rhodes, Rosa Kougl, Scott Schuttenberg, Mark Davison, Shihomi Kuriyagawa,
Deryn Wagner
Guests Present: N/A
Type of Meeting: Annual Capital Projects Tour
Agenda Item 1: Call to Order
The meeting was called to order at 5 p.m. A quorum was present for the conduct of business. Motion to
approve agenda. First motion by Hood, second by Segur. The motion passed 5-0.
Agenda Item 2: Future Board Items:
Rhodes, Director of Parks and Recreation, reviewed upcoming agenda items and events.
No PRAB follow up questions or comments.
Agenda Item 3: Public participation:
•No public comment.
Agenda Item 4: Consent Agenda
A.Approval of Minutes from July 24, 2023, Business Meeting
Motion to approve the minutes from the July 24, 2023, Regular PRAB meeting. First motion by
Hood, second by van der Star. The motion passed 5-0.
B, C, D. Updates from the Director, Project Updates, Operations & Development
•No PRAB follow up questions or comments.
Agenda Item 5: Items for Action
•No items
Agenda Item 6: Matters for Discussion
•No items
5
Agenda Item 7: Matters from the Board Members
A.PRAB Study Session
PRAB had the following questions or comment:
•Consensus to forego the Study Session in the October / November timeframe due to the need
for a joint session with the Landmarks Board in November/December.
•Move to January timeframe.
•Moving the study session to a later date allows the coordinating members to plan and allow for
another round of questions regarding what members would like to see on the agenda.
B. PRAB Matters
PRAB had the following questions or comment:
•A consortium of swim enthusiasts would be interested in more pool time in the facilities and
add volunteer lifeguards to the pools so that pool access hours can be extended.
•Bernstein will be meeting with leaders of the pickleball and tennis associations as liaison to the
Court System Plan.
Agenda Item 8: Matters from the Department
a.Capital Improvement Program Tour
Rhodes presented this item to PRAB prior to Tour
Agenda Item 9: Next Board Meeting
Next Board meeting: Monday, September 25, 2023, Hybrid
Agenda Item 10: Adjourn
The meeting was adjourned at 5:14 p.m.
Approved by: Attested:
___________________ _____________________
Chuck Brock Rosa Kougl
Board Member BPR Staff
Date: ______________ Date: _________________
6
B. Parks and Recreation Planning, Design and Construction Updates
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.
Overview of Project Status
•Planning Projects Underway: Staff or contractors continue to work on the following
projects and will update the PRAB as major milestones are achieved:
o Civic Area Reimagining – Phase 2 (design phase)
o Civic Historic District Evaluation (planning phase)
o Central Park Cultural Landscape Assessment (planning phase)
o Courts System Plan (planning phase)
o Flatirons Golf Course (construction phase)
o North Boulder Park (design phase)
o Recreation Facilities Plan (planning phase)
o Violet Park (planning phase)
•Planning Projects in Scoping: Staff are working on scoping the following projects for
2023 and 2024 and will update the PRAB as projects get underway.
o Pearl Street Place Making – planning scoping for 2024.
o Pleasantview - design scoping for Q4 2023
Planning
•Court System Plan:
Staff are in the final stages of contracting with the selected firm. Once the contracts are signed,
staff will share more information.
A public kick-off meeting will be held on October 4 at 6:00 p.m. to 7:30 p.m. at the OSMP Hub
Community Room (2520 55th St., Boulder, CO 80301). PRAB members are welcome to attend
public meetings.
In addition to the public meeting, a public questionnaire will be available online October 4
through October 18.
Staff continue to meet with stakeholders regularly and will now be posting notes from these
meetings on the project webpage to promote accurate and timely information sharing with all of
those who are interested in following this project.
For more information and to sign up for email updates, visit the project webpage.
•North Boulder Park:
BPR is moving into the design and construction phases of this project. Phase 1 covers the critical
path to support the implementation of the design covering park utilities and the Fitness Court.
Phase 2 will focus on the play areas, teen areas, gathering spaces and associated improvements.
7
As shared during the August PRAB tour of North Boulder Park, as part of phase 1
improvements, staff are close to completing the bathroom improvement, planning for stormwater
improvements and in the process of installing a Fitness Court at North Boulder Park to replace
the old exercise equipment thanks to a partnership and grant from the National Fitness Campaign
and UC Health.
The concrete pad for this new Fitness Court is now in place to the west of the shade shelter. The
new fitness equipment will be installed in October once the concrete is fully cured. After the new
Fitness Court is in place, BPR will remove the old exercise equipment and update the
underground stormwater infrastructure, which needs to be done before replacing the playground.
Until the new playground equipment is in place, the former home of the exercise equipment will
feature fun, temporary pop-up play opportunities.
For more information and to sign up for email updates, visit the project webpage.
Picture 1(below left): Concrete pad poured for new Fitness Court
Picture 2 (below right): Example Fitness Court
8
Figure 1 (below): Map showing location of Fitness Court and stormwater construction.
•Pleasantview Access Study
BPR has programmed $1,200,000 in the 2025 Capital Improvement Program (CIP) to improve
safe access and circulation to and through the highly utilized Pleasantview Sports Complex;
improvements will also promote alternate modes of transportation.
This item provides a brief update since the PRAB’s last update in May 2023. With a final
feasibility report from Fox Tuttle complete, staff are moving towards final design to inform
construction in 2024.
This includes hosting a final round of engagement to inform neighbors and stakeholders about
existing conditions and gather input regarding physical and operational improvements to the site.
In early 2024, staff will share the results of engagement with the PRAB, as well as final designs
that incorporate community feedback.
While BPR has dollars allocated for on-site improvements, funding for options such as
significant improvements to multiuse paths are not funded and will be pursued in partnership
with Transportation and Mobility.
9
•Temple of Tranquility
The Temple of Tranquility is a community-based art project led by Boulder residents who have
secured a permit to install a temporary exhibit at Harlow Platts Community Park, as well as host
opening and closing events. In accordance with the city’s art policies, community leaders sought
support from neighbors and city residents to minimize disruptions to the neighborhood. The
group distributed a community feedback survey, accessible through a QR code online, and
received 9 responses. Links to the survey were posted on: Boulder Collective Facebook Page, all
three public libraries, Table Mesa King Soopers break room, and numerous Burning Man
community pages. The responses were overwhelmingly in support of the project. Of the 9
responses: 77.8% felt fully supportive (5/5 ranking), 11.1% were mostly supportive (4/5 ranking)
and 11.1% were ambivalent (3/5 ranking). All respondents reported Boulder zip codes, and
33.3% reported living in the Table Mesa/Devil's Thumb Rolling Hills neighborhoods behind
Harlow Platts Community Park. Some of the specific feedback received was:
•An innovative approach to bring community back together is awesome.
•A safe intentional place that creates a space to process
•It's a beautiful project...I wish it was going to be a permanent art installation.
•The fire was devastating to us in south boulder and the subsequent fires were traumatic.
We hope this brings healing to the community.
•Building large art installations is what burners are supposed to do.
•Because it’s empowering to see a community of like minded thinkers co-create a sacred
space, with positive energy to support each other through love and hope. To know that
you’re not alone.
In addition, the door hangers below will be hand delivered to residences within three streets of
the installation site.
10
The installation process will start in early October, and the structure will be open to the public
during park hours from October 14 – November 4, 2023. An opening ceremony will be held on
October 14, and a closing ceremony is planned for November 4. All members of the PRAB are
welcome to attend either or both events, both of which are open to the public.
C.Boulder Parks and Recreation Fee Policy Update
At the July 24, 2023, PRAB meeting, the PRAB accepted the Boulder Parks and Recreation Fee
Policy with a commitment from staff to be more explicit about the policy’s intentions to support
addressing equity in the community.
Staff has made the following addition into Section I, Purpose of the Policy: The Fee Policy
should be applied to all programs to promote access for community members who are
historically excluded and that have been prioritized by the community. This will ensure that
limited subsidies are focused where they can have the most community benefit, with an
understanding that additional support may be provided based on additional funding as called for
in the 2022 Parks and Recreation Plan.
11
This emphasizes equity within the purpose, and this is further established under Section V -
Procedure of the Fee Policy, which now includes the following language: To ensure there is
equitable access for populations the community has prioritized, the department will continue to
subsidize access for low-income individuals, people with disabilities, youth, and seniors. The
department is committed to maintaining financial aid programs to qualifying Boulder residents,
providing subsidized access to facilities and programs, as funding allows.
These adjustments follow input from the PRAB as well as engagement with the Community
Connectors in Residence (CCiR) on June 9, 2023, which included the full use of the racial equity
instrument to evaluate the equity impacts from the Fee Policy. At the June 26, 2023, PRAB
meeting, staff provided attachments with the Summarized Feedback from Community
Connectors in Residence and the Racial Equity Instrument for BPR’s Fee Policy to ensure
alignment with equity priorities in the final document.
Attachment A: Red-Lined Recreation Fee Policy
12
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page1 Policy Title Boulder Parks & Recreation Fee Policy
Administrative Policy
Number
05-02
Effective Date July 24, 2023
Last Amended N/A
Review Cycle Every 2 years
Inactive/Repealed N/A
Primary Audience BPR Staff and Supervisors with Fee Based programs
Policy Sponsor Jackson Hite, Parks and Recreation Sr. Manager – Business
Services
Director Approval Alison Rhodes, Parks and Recreation Director
Related Policies
Included Procedures,
Workflows, or other
materials
I.Purpose of Policy:
The purpose of the fee policy is to establish clear and consistent guidance for how fees are set
and subsidies are awarded. In establishing a fee policy, BPR intends to create a standard
approach for all fees collected, develop transparent fee categories and definitions of the types of
access or programs which are subject to various fees, and create clear cost recovery targets.
The Fee Policy should be applied to all programs to promote access for community members
who are historically excluded and that have been prioritized by the community. This will ensure
that limited subsidies are focused where they can have the most community benefit, with an
understanding that additional support may be provided based on additional funding as called for
in the 2022 Parks and Recreation Plan. In determining the subsidy levels, BPR will provide
subsidies based on the level of funding available and the level of community benefit each
program provides.
II.Background:
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.
BPR operates from five primary funds. These funds are the Recreational Activity Fund (RAF),
.25 Cent Sales Tax Fund (.25ST), General Fund, Permanent Park and Recreation Fund, and
Lottery Fund.
Recreation Activity Fund: 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.
This fund is supported through user and participation fees, grants and donations, and an annual
subsidy transfer from the General Fund.
.25 Cent Sales Tax Fund: 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
Attachment A: Red-Lined Recreation Fee Policy
13
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page2 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.
General Fund: 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
pressure from other 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.
Permanent Park and Recreation Fund: 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 taxes, 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.
Lottery Fund: A special revenue fund that accounts for State Conversation Trust 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.
III. Definitions:
Residency:
Resident: any individual who lives at an address located within the City of Boulder
service area.
Non-Resident: any individual who lives outside of the City of Boulder.
Resident/Worker: individuals who live or work in the City of Boulder are eligible for
Resident/Worker rates for facility entry. Resident or non-resident status applies for all
other types of programs.
Age Based Fee Groupings:
Youth: participants between 3 and 18 years old.
Adult: participants between 19 and 59 years old.
Senior: participants who are over the age of 60.
Household: any adults, seniors or youth residing at the same address. Proof of address
is required and no more than 8 members aged 19 or older.
Attachment A: Red-Lined Recreation Fee Policy
14
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page3 Costing Definitions:
Cost Recovery: the collection of revenue to pay for the direct and/or indirect costs of
providing a service or program. The level of cost recovery will vary based upon the
service, type of program, program category benefit level, targeted skill level, market
costs and other factors.
Direct Costs: The costs directly related or attributed to providing a specific service.
Direct costs include staff time, materials and supplies directly related to providing the
service.
Indirect Costs: Costs incurred across the department that are not directly attributed to a
specific service but benefits the department as a whole. Indirect costs typically include
marketing expenses, software, utilities, space allocation, and management staff that
support a variety of services or programs.
Market Analysis: A point-in-time analysis or survey of prices charged by other
agencies, public and private for a similar service. Market Analysis is typically limited to
benchmark communities, local private business and non-profit organizations.
Subsidy: Funding provided by the city to offset the costs of a service to support a higher
level of community benefit. Based upon community input, subsidies are typically
awarded to programs that support low-income residents, people with disabilities, older
adults and youth.
Discounts: Discounts may be provided associated with marketing and/or volume-based
discounting to provide benefits to participants who are regularly using a service or
program.
Attachment A: Red-Lined Recreation Fee Policy
15
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page4 Program Benefit Categories:
Community: Services that enhance the health, safety and livability of the community
and therefore require minimal obstacles to participation.
Recreation: Services that benefit a broad range of users and are targeted to promote
physical and mental well-being.
Individual: Services targeted to specific individuals or user groups with limited
community benefit.
IV.Policy:
The Department of Parks and Recreation’s Fee Policy represents a standardized approach to
program categorization and definitions, while aligning a clear subsidy level based on the level of
community benefit provided. Fees are an efficient and equitable way to distribute the costs
associated with providing services that exceed the ability of the tax base to support the costs.
This comprehensive policy will promote community understanding with clear fee practices and
financial sustainability. This Fee Policy was developed through the documentation of previous
policy guidance from the Parks and Recreation Advisory Board, includes guidance received
from the 2022 Parks and Recreation Plan, along with significant input from the Parks and
Recreation Advisory Board, Community Connectors in Residence and City Council. This Fee
Policy identifies and informs the program types and a consistent method to assign services to
those types and includes the appropriate benefit level of subsidy and cost recovery target that
should be achieved. Tax subsidy provided each year from the General Fund and/or other
sources such as .25 Cent Sales Tax Fund should be allocated in a way that supports the cost
recovery targets based on available funding, which then directs the corresponding pricing
strategy each year.
Attachment A: Red-Lined Recreation Fee Policy
16
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page5 The concept of cost recovery involves setting fees based on the total cost of providing the
service and factors in the program category benefit level so that the total funding received
(Taxes and User Fees) equals the total cost of providing a particular service. This is critical to
the financial sustainability of public parks and recreation.
V.Procedure:
The department will review fees and charges for all programs and services along with cost
recovery performance at least every two years as part of the annual citywide budget
development process. Once the cost to provide services is analyzed, each service area will
review cost recovery performance compared to stated goals within the Fee Policy. Total cost of
service as well as the department’s Service Delivery Model, market analysis, and feedback from
staff and participants, will inform any recommendations to the Department Director to update
fees.
The Department’s pricing strategy is based on several considerations:
•Level of Community Benefit
•Supply and Demand
•Market Comparisons
•Residency/Non-residency priority
•Age-based prioritization with an emphasis on youth and seniors
•Accessibility and health promotion
•Value of Program (availability of alternative providers, quality of program)
•Cost recovery philosophy
•Availability of subsidy to support age-based discount, community benefit recreation and
financial aid.
Each activity will be sorted into a program type. Each program type will have a minimum cost
recovery rate and a target cost recovery rate. Programs that are being introduced will likely be
at the minimum cost recovery rate; over the lifecycle of the program, the goal will be to achieve
the target cost recovery rate. While setting rates, staff must evaluate market rates and demand
for the activity to determine price sensitivity for any proposed price adjustments. If the price is
too high and/or there is little demand for the program, staff must consider the feasibility of
reducing costs, reducing fees or propose the elimination of the program. To minimize impacts to
participants, fee increases may be limited to 10% in a year for any community or recreation level
programs. Fee increases may be phased in over a 2-to-3-year period to minimize impacts to
participants.
When establishing fees, BPR will support fees that the market will bear, even if this exceeds the
cost recovery targets. Additionally, BPR will not undercut the market as it is not a good use of
subsidy and jeopardizes the overall health of the market. Programs with high demand should
also evaluate fee increases to improve cost recovery. Both tactics will allow the department to
reinvest in other program areas with lower cost-recovery goals, in turn allowing the department
to reduce the reliance on tax subsidy and reinvest in priority programs. During future updates to
the Fee Policy, BPR will adjust the cost recovery targets accordingly based on actual
performance.
Attachment A: Red-Lined Recreation Fee Policy
17
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page6 To ensure there is equitable access for populations the community has prioritized, the
department will continue to subsidize access for low-income individuals, people with disabilities,
youth and seniors. The department is committed to maintaining financial aid programs to
qualifying Boulder residents, providing subsidized access to facilities and programs, as funding
allows.
All fee updates will be reviewed annually by the Parks and Recreation Advisory Board and for
consideration by City Council with the adoption of the operating budget each year. The City
Manager shall give notice regarding changes in fees by filing a schedule of fees with the City
Clerk and displaying the changed fees on the City’s website. Increases shall not take effect until
at least two weeks have passed since notice was given. Fees shall be in effect as of the
effective date specified in the schedule.
Fees may be temporarily discounted or reduced through special promotional pricing as warranted.
The City Manager may reduce fees from time to time as market conditions warrant, and may also
raise them again, so long as the fee never exceeds that specified in the fee schedule.
Below are the program types with associated category benefit level and cost recovery target
goals, definitions and examples of activities. These are examples of various types: they are not
all-inclusive lists and program offerings change over time.
Program
Type
Program
Category
Benefit
Level
Cost
Recovery
Program Definition Examples of
Services Included
Open Access Community 0% Access to parks, park
amenities, pathways and
natural areas. Open
access allows for self-
directed activity and does
not include supervision
or oversight by staff.
Pocket,
neighborhood, and
community parks,
skateparks,
playgrounds, multi-
use paths, non-
reserved outdoor
courts, dog-parks
Grants,
Philanthropy
& Donations
Community Grants, philanthropy and
donations which further
the mission of the
department by providing
outside funding for a
specific focus which
increases access and/or
removes barriers to
participation
Health Equity Funds,
Grants, Memorial
Benches, Tree
Donations, Project
Specific Donations
Special
Events
Community 10%+ Large-scale events that
appeal to a broad portion
of the community.
Snow Much Fun,
Holiday Lights
Attachment A: Red-Lined Recreation Fee Policy
18
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page7 Recreation 70%+ Large-scale events
produced by the
department and/or city
intended for a specific
demographic within the
community.
Drive-in movies,
Sweetheart Dances,
Halloween Carnival
Individual 100%+ Large-scale events with
pre-registration required
for a niche market or
specific interest.
Typically provided by
non-department
organization
Organized races
Recreation
Services
Community 50%+ Foundational classes,
leagues and workshops
which include instruction
and the primary goal of
introducing participants
to basic skills at a “learn
to” level; programs which
facilitate access to other
program types
Facility childcare,
beginner level sports,
fitness orientations,
EXPAND programs,
Youth Services
Initiative (YSI),
aquatics clinics
Recreation 70%+ Classes, leagues, clinics
and workshops with
instruction provided at an
intermediate level
Intermediate level
sports, enrichment
classes, youth sport
leagues, camps
Individual 100%+ Classes, leagues, clinics
and workshops with
instruction provided at an
advanced level of
training and
development; private or
semi-private setting to
meet unique needs of an
individual or small group
Advanced level
sports, specialty
fitness, adult sports
leagues, competitive
team events, boating
Facility Entry Recreation 90%+ Access to recreation
centers, indoor & outdoor
pools, outdoor swim
beaches and passive
recreation at Boulder
Reservoir where
monitored access is
provided for self-directed
activity with general
supervision and
oversight provided by
department staff
Facility admission,
drop-in classes, swim
beach, passive
recreation at Boulder
Reservoir
Attachment A: Red-Lined Recreation Fee Policy
19
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page8 Resale Items Individual 100%+ Consumable and non-
consumable goods
available for purchase
Swim diapers, locks,
food or concessions,
clothing, pro-shop
items
Contracted
Programming
Individual 100%+ Registered programs
offered by a non-
city/department agency
that operate under a
revenue share/profit split
Specialty summer
camps, Tennis
lessons
Golf Course Individual 100%+ Utilization of golf course
and related amenities
Driving range, rounds
of golf, cart rentals,
tournaments
Rentals Individual 100%+ Space, facility,
equipment, park and
shelter reservations for a
use by an individual,
group or organization.
Field rentals, court
rentals, facility
rentals, shelter
rentals, lane rentals,
private access
rentals
Commercial
Use
Individual 100%+ Fee based instruction,
education, care or
supervision on park land
provided by an individual,
group or organization.
Yoga in a park,
summer camps or
nature programs held
exclusively at a park.
Attachments:
•Attachment A – Parks and Recreation Department Fee Schedule
Attachment A: Red-Lined Recreation Fee Policy
20
TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Scott Schuttenberg, Deputy Director
Bryan Beary, Senior Manager, Community Building and Partnerships
Mark Davison, Senior Manager, Planning
Regina Elsner, Senior Manager, Natural Resources
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Stephanie Munro, Senior Manager, Regional Facilities
Dennis Warrington, Senior Manager, Urban Parks
SUBJECT: Matters from the Department
DATE: September 25, 2023
A.2023 Budget Review & 2024 Budget Update
To keep PRAB updated on the financial status of the department, staff are providing some key
updates, which includes a breakdown of the 2019 to 2023 actual expenses year-to-date, revisions
to the 2023 budget, and Recreation Activity Fund performance. This also includes an update on
the proposed 2024 budget and 2024-2029 CIP budget that was shared with the public and City
Council.
Expenses by Category
Following typical practice, BPR will report on the expenses by category for January to August
from 2019 through 2023. The main expense categories are:
•Operating – Personnel
o This includes all salaries and benefits for standard full-time employees as well as
seasonal and temporary employees.
•Operating – Non-Personnel Expenses (NPE)
o This includes all operating expenses for materials, supplies and services.
•Capital
o This includes all capital related projects funded from typical Parks and Recreation
funds (.25 Cent Sales Tax, Permanent Parks and Recreation Fund, Lottery Fund)
•Capital – Other Funds
o This includes capital related projects funded by non-Parks and Recreation funds
(General Fund – Capital, Boulder Junction Capital Improvement Fund, Capital
Development Fund, Community, Culture, Resilience and Safety Tax Fund)
•Cost Allocation & Interdepartmental Transfers
o This includes expenses for internal city services provided by other departments
such as IT, HR, and Facilities.
The department continues to rely on 2019 as a pre-pandemic baseline year to highlight recovery
measures. While 2019 serves as a helpful snapshot, since that time there have been many
21
changes beyond COVID, including increased cost of labor, accelerated cost escalation (which
directly impacts operating and capital expenses), and a year-over-year fluctuation in capital
projects based on staffing capacity, funding, and project timelines.
The presentation at the PRAB meeting will include the YTD spend by both the departments
primary Funds and the budget category for 2019 through 2023 to indicate year over year trends.
Additionally, the presentation will include a breakdown of revenues to expenses within the
Recreation Activity Fund given the quasi-enterprise nature of the fund.
Revisions to 2023 Budget
The city adopts a budget for the following year each October, but continues to revise it through a
process called the Adjustment to Base (ATB) in May and November. This allows an opportunity
to adjust revenues and expenses based on updated financial projections and serves as an
opportunity to recognize additional revenue, such as grants and donations.
In the May 2023 Adjustment to Base 1 (ATB1), BPR received approval for 6.5 ongoing FTE.
This includes 2.0 FTE (3 positions) for Aquatics to provide additional full-time coverage of
pools, supporting more daytime lap lane hours. To sustain continued program growth,
Gymnastics was approved for 1.0 FTE while Golf received 1.5 FTE (2 positions). All these
positions are offset by additional earned revenue from those program areas. Additionally, 2.0
FTE were added to the Planning and Construction service area to support the capital projects
identified in the Capital Investment Strategy. These positions are funded in the .25 Cent Sales
Tax Fund and supported by a decrease in capital project budgets, recognizing that these
employees will support delivery of the project in a cost-effective manner (e.g., producing in-
house CAD drawings and other design elements). As of September, 5.75 FTE of the roles above
have been filled.
In the first half of 2023, BPR received a total of $124,446 in grants. These grants included the
state’s Childcare Stabilization and Workforce Sustainability Grant programs for $48,946. BPR
also received two City of Boulder Health Equity Fund Grants which support the Recquity
Program and Mobile Rec Van Program, in the amounts of $45,500 and $30,000 respectively.
BPR continues to receive grants and donations and will include these in the next ATB in
November 2023. Most of this ATB will be focused on grants and donations received in the
second half of the year.
Recreation Activity Fund (RAF) Performance
The chart below (Chart 1) demonstrates the significant impacts since the pandemic across
recreation services. This is intended to illustrate the impacts of COVID as well as the recovery
by facility. Indoor facility visitation has not yet returned to 2019 levels, however, continues to
grow steadily.
22
Chart 1: January – August 2019-2023 Key Statistics
BPR 2019 – 2023 Recreation Activity Fund Statistics January 1 to August 31
Change 19-23 Change 22-23
2019 2020 2021 2022 2023 $ % $ %
RAF Earned
Revenue $6.9M $3.4M $5.3M $6.4M $7.3M $0.5M 7% $0.9M 15%
All
Recreation
Centers
Visitation
330,320 106,162 87,648 161,591 223,817 -106,503 -32%62,226 39%
Outdoor
Pools
Visitation
21,414 11,635 67,929 58,398 59,060 37,646 176% 662 1%
Boulder
Reservoir
Entrances
60,718 51,697 54,493 52,954 51,753 -8,965 -15%-1,201 -2%
Rounds of
Golf Played 30,771 30,894 33,202 34,675 32,064 1,293 4% -2,611 -8%
There are several caveats to the data listed above based on operations:
•All services were impacted by a 6-week closure in 2020, with varying levels of reopening
based on staff availability, funding, and health guidelines.
•Reservoir entries include those visitors that entered using a daily gate fee, punch, or
unlimited pass. They do not include estimated attendance at special events, picnics, or
rentals.
•Outdoor Pool visits cannot be analyzed consistently due to varying facility availability
each year: Scott Carpenter Pool closed for construction in 2019 and Spruce Pool
remained closed in 2021 and 2022 due to staffing limitations. This is the first summer the
new Scott Carpenter and Spruce Pool have both been open since 2018.
•Flatirons Golf Course’s construction project in 2023 has severely limited parking and tee
sheet times; however, the course is still performing quite well. Rounds of golf are only
one mechanism to track golf utilization.
Overall, the RAF continues to improve across the board. Recreation participation levels are
starting to stabilize at what is likely the new normal. BPR continues to be strained by the
availability of staffing to fully deliver services and will continue to address this with focused
efforts on recruitment, training, and retention.
2024 Recommended Budget
The PRAB discussed the BPR budget at various meetings through the spring and summer. Staff
then met with the Executive Budget Team in July and August to coordinate department priorities
and citywide strategies given the fiscally constrained environment. This item provides an update
on activity since the PRAB’s last review of the 2024 budget proposal. City Manager released a
Recommended 2024 Budget on September 1. The budget message is focused on a constrained
23
budget due to many uncertainties and the need to be strategic across the entire city. The Parks
and Recreation Budget is described in more detail along with key changes within the Department
program pages. The 2024 department budget is proposed at $44.7 million, which is comprised of
a $33.6 million operating budget and $11.1 million capital budget for CIP.
BPR’s operating budget supports continued investment in department programs including
staffing, cost escalation, and program growth in areas that are continuing to experience an
increase in demand.
BPR requested a total of 15.0 FTE and received approval for 6.0 FTE in the 2024 proposed
budget (with 3.0 FTE being fixed term through December 2024). This is in addition to
maintaining the 6.5 FTE that were approved through ATB1 in mid-2023, as discussed above.
The positions that are included for 2024 include:
•3.0 FTE (Fixed-Term through 2024) for the continuation of the Urban Ranger Program to
support the Safe and Managed Public Spaces (SAMPS).
•2.0 FTE to support the expansion of youth recreation in the Gymnastics and Sports
workgroups. These positions are offset by additional earned revenue within the
Recreation Activity Fund.
•1.0 FTE will be added to the Planning and Construction service area to support
department wide asset management, which will help with the 2022 Parks and Recreation
Plan key theme of “Taking Care of What We Have”.
The city could only fund limited positions in 2024 due to many constraints on the budget and
financial uncertainty. Positions that were not funded in 2024 will be saved for consideration with
future budget cycles.
As a continuation of the commitment to invest in staff, there is a citywide increase to Living
Wage for benefited city workers and service contractors who will receive a base wage of $22.44
per hour. Living Wage increases impact some of BPR teammates in Park Operations and
Recreation Operations and were already factored into the workforce modelling for 2024’s
budget. The city also has updated the collective bargaining agreement with the Boulder
Municipal Employees Association so that members and Non-Union Employees are subject to
increased market rate wages, stipend allowances and performance-based merit increases.
BPR’s capital budget for 2024-2029 includes funding for Asset Management to implement the
2022 BPR Plan’s key theme of Taking Care of What We Have, along with investment across
parks and recreation facilities and system planning.
After the initial CIP was reviewed with the PRAB on June 26, 2023, the Executive Budget Team
modified the CIP budget to change the funding sources for several projects: spending from the
Lottery Fund was increased by $3.8 million (from $2.6 million up to $6.4 million), reducing the
burden on the Perm Parks and .25 Cent Sales Tax Funds by $0.9 million and $2.9 million,
respectively. Previously, BPR has shared Lottery Fund allocations with the Greenways and Open
Space and Mountain Parks; however, the Executive Budget Team recommended all Lottery
Funds for the 6-year CIP go towards Parks and Recreation Capital Projects. The increase in
Lottery dollars for BPR projects created capacity for the .25 Cent Sales Tax Fund to support
community benefit recreation via a conditional subsidy transfer that PRAB reviewed at the June
24
26, 2023, meeting. Ultimately, there was not a change in total CIP project budgets for BPR’s
dedicated capital funds, just a shift in which funds were paying for which projects.
The proposed budget also includes funding from the citywide Community, Culture, Resilience
and Safety Tax for Civic Area Phase 2, the future park on Violet Avenue, and East Boulder
Community Center. BPR received partial funding for three out of the four projects that were
requested. The 2024 – 2029 CIP includes funding for the following capital projects:
•Civic Area Phase II: $18.0 million in planned spending is included in the 2024-2029 CIP
to support schematic design and scoping for Boulder’s most centralized park and public
spaces.
•East Boulder Community Center (EBCC) Retrofit and Renovations: A total of $51.5
million in panned spending is included in the six-year CIP for a full energy efficiency and
infrastructure retrofit of the EBCC. Of note is that the funding also identifies money in
future years to support findings from the Recreation Center Futures project related to the
North and South Boulder Recreation Centers.
•Pearl Street Mall Refresh: A total of $1.2 million in CCRS funding to support capital
maintenance and transformative enhancements on the Pearl Street Mall ahead of the 50th
Anniversary celebration in 2027. This project will be further supported with funding from
the Downtown Commercial District (CAGID) Fund.
The department will rely on the Fee Policy to update fees in 2024 to ensure access to public
parks and recreation and promote financial sustainability.
City Council hosted a budget study session on September 14. The only comments that evening
pertaining to Parks and Recreation related to understanding CIP funding for the recreation
centers. Members of City Council are reviewing the budget through the end of September and
are to send comments for response or consideration by September 25. Then, City Council will
conduct a public hearing related to the 2024 Budget and 2024-2029 CIP on October 5 followed
by a second public hearing and adoption on October 19. Following budget adoption,
appropriated funds will be available on January 1, 2024. PRAB will receive confirmation when
the budget has been adopted, and a reminder at the end of the year about any major changes the
public would notice in 2024.
25
B. Park on Violet Avenue
The intent of this item is to update the PRAB on progress over the last several months for design
and construction of the Park on Violet, including engagement and the consultant selection
process, as well as to preview park planning work upcoming over the next few months. The table
below outlines the overall project timeline and following the table is a summary of each phase.
Timeframe Phase
June - Sept 2023 Vision & Values
September 2023 Execute contract with consultant team
Fall 2023 Site analysis
Late 2023 - Early 2024 Site design concepts
Mid 2024 Preferred site plan
Late 2024 Detailed design
2025 Final design & permitting
2025-28 Phased construction
Vision and Values
Since June 2023, planning staff have been building relationships with residents in the Boulder
Meadows and Ponderosa mobile home communities as well as neighbors of the park to elevate
their voices in the process of envisioning a different and better future for this site. With the park
directly serving those living close by, many are disproportionately affected by systemic issues
such as rising costs of housing, healthcare, and food. Therefore, it is critical that these voices
play a central role in imagining future possibilities for the site and for the surrounding
community. To deepen connections with the land and with each other, neighbors have been
invited to recognize the park as open to the public now and to activate the site through small,
multicultural engagements with children, youth, and families. A participant in one such program
noticed and appreciated how young children who speak Spanish and Nepali enjoyed playing in
nature together where language was not a barrier.
The table below summarizes engagement methods during this first phase of understanding the
community’s vision and values for this place. These efforts involve going to meet the community
where they are at and have been informed and supported by paid community connectors helping
to expand relationships with Spanish- and Nepali-speaking residents.
Engagement Location(s) Audiences Attendance
JUNE
Youth workshop On site Youth Services Initiative
participants who live in Boulder
Meadows, ages 8-14
9
JULY
Youth workshop Iris offices Youth Services Initiative
participants who live in Boulder
Meadows, ages 8-14
9
26
Youth outreach North Boulder
Recreation Center
Children, youth, and families in
North Boulder, ages 7-25
32
Resource Fair
and Block Party
Ponderosa Mobile
Home Park
Residents of Ponderosa, all ages ~20
AUGUST
Early Childhood
Gathering
On site Children under 5 and their
parents/caregivers
13
Resource Fair
and Block Party
Crestview Park Residents of Boulder Meadows
Mobile Home Community, all ages
~40
SEPTEMBER
What’s Up
Boulder
On site Neighbors within ½ mile, all ages ~100
TOTAL CONTACTS ~220
Staff are still in the process of analyzing public comments received at each of these events;
however, initial review suggests that the following themes factor strongly in the community’s
values and desired activities for this site:
•Nature play covering water play, climbing.
•Community gatherings and celebrations.
•Informal field sports covering soccer and frisbee, and exercise.
•Gardening, including fruit trees, as well as preparing and enjoying food.
•Peaceful connections with wild nature and opportunities for free play.
•Walk and roll access to and through the park, including across the creek.
•Universal accessibility for all ages and abilities.
•Inclusive, intergenerational spaces and activities.
•Community health and safety.
•Enjoyment of wildlife.
•Tree preservation.
•Disaster preparedness and resilience (fires and floods).
This fall, staff will finalize comment analysis, check in with community members to ensure
analysis reflects their sentiments, and prepare a report that captures the community’s vision and
values for the site.
Planning
Staff are also working to get a consultant team under contract to begin site analysis, which will
inform the development of initial site plan concepts, as well as future engagement this winter.
Topics for analysis include, but are not limited to:
•Existing plans for the surrounding area, including Fourmile Canyon Creek Drainageway
Plan.
•Floodplain modeling.
•Recreation activities analysis.
•Youth play needs.
27
•Park amenities capacity analysis.
•Tree inventory and condition assessment.
•Wildlife data, including surveys of bats and breeding birds.
•Boundary, topographic, and geotechnical surveys.
•Transportation data.
•Demographic and community indicators.
Next Steps
As the first engagement window wraps up, staff will continue communicating status and progress
with community members through email, web updates, flyers, and collaboration with paid
community connectors. In preparation for the next engagement window, staff are also exploring
ways to broaden engagement to include focused engagement with the disability community,
immediate neighbors, and property management staff from Boulder Meadows.
The PRAB’s next involvement in the park design process is anticipated to be in December, once
consultants have prepared site analysis findings and in advance of the next engagement window.
28
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: September 25, 2023
A.PRAB Study Session planning
a.At the August meeting, the board decided to hold an annual retreat in January to
allow space for the joint Landmarks Board meeting.
i.Discussion Needed: PRAB will review possible dates in January along
with agenda input.
B.Future meetings coordination and planning:
a. December Regular Meeting Date: The regularly scheduled December meeting
falls on Monday, the 25th, the observance of the Christmas holiday and the closure
of city offices.
i.Discussion Needed: PRAB’s input on rescheduling is necessary to meet
prior to the observed holiday.
b. Joint Session with Landmarks Board for Civic Historic District: The joint session
with the Landmarks Board has been recommended for December 6, at 6pm in the
chambers of the Tate Building. The board meets in person and has invited the
PRAB to meet in person with them although virtual accommodations can be
made.
i.Discussion Needed: PRAB will review poll responses to inform if the
PRAB can accommodate the December 6th recommendation or if an
alternate date is necessary.
C.PRAB Matters (Verbal)
29