HomeMy WebLinkAbout12.18.23 PRAB PacketAGENDA
All agenda times are approximate
I.APPROVAL OF AGENDA (2 minutes)
II.JOINT STUDY SESSION AGENDA (6pm – 7:30pm)
A.Call to Order
B.Staff Presentation
C.Board Discussion
D.Adjournment - convene with PRAB Agenda
III.FUTURE BOARD ITEMS AND TOURS (7:30pm - 2 minutes)
IV.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.
V.CONSENT AGENDA (5 minutes)
A.Approval of Minutes from November 27, 2023
B.Updates from the Director of Parks and Recreation
C.Parks and Recreation Planning, Design and Construction Updates
D.Parks and Recreation Operations Updates
VI.ACTION ITEMS
A.None
VII.MATTERS FOR DISCUSSION/INFORMATION
A.None
VIII.MATTERS FROM THE DEPARTMENT
A.PLAY Boulder Foundation
IX.MATTERS FROM THE BOARD
A.View of Final PRAB Handbook
B.PRAB Matters (Verbal) (5 minutes)
X.NEXT PRAB BOARD MEETING:
A.6:00 p.m. January 22, 2024
Parks & Recreation Advisory Board and Landmarks Board Joint Study Session
Hybrid Meeting
6:00 p.m., December 18, 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
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STUDY SESSION MEMORANDUM
To: Members of Landmarks Board and Parks & Recreation Advisory Board
From: Brad Mueller, Planning & Development Services Director (P&DS)
Alison Rhodes, Parks and Recreation Director (BPR)
Kristofer Johnson, Comprehensive Planning Manager (P&DS)
Mark Davison, Planning Senior Manager (BPR)
Marcy Gerwing, Principal Historic Preservation Planner (P&DS)
Shihomi Kuriyagawa, Senior Landscape Architect (BPR)
Date: December 18, 2023
Subject: Proposed Civic Area Historic District
EXECUTIVE SUMMARY
The purpose of this study session is to provide the Landmarks Board and the Parks & Recreation
Advisory Board with an update on the process for the Proposed Civic Area Historic District, to
request feedback on the draft design guideline framework, and to review the Cultural Landscape
Assessment (CLA) findings for Central Park.
The historic district process evaluates an application for a proposed historic district designation
of a portion of the Civic Area. The application was submitted by three historic preservation
organizations as allowed by Section 9-11-3, B.R.C. 1981, in May 2023. The Landmarks Board
voted to initiate the designation process at their meeting on July 12, 2023.
Concurrent to the Historic District timeline and as a response to Council’s direction June 14,
2022 meeting (item 4B), BPR staff have developed the CLA process to evaluate Central Park
within the proposed historic district boundary. This assessment will determine if the park land
has significance and integrity as a cultural landscape per National Park Service Guidelines. The
CLA will be considered along with the city’s local historic designation criteria to inform the
boundary of the proposed historic district. The CLA is grounded in research, inventory,
documentation, analysis, and evaluation of the landscape’s characteristics and associated features
and the seven aspects of integrity for the site. The CLA will also be integrated into the Civic
Area Phase 2 process and timeline to ensure this work informs this next phase of park design for
the Civic Area.
This memo describes the historic district process to date, including department and agency
coordination, community engagement, racial equity strategies, and development of a draft design
guideline framework. This memo also includes the findings from the CLA process described in
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the City Council Information Packet on May 18, 2023 to evaluate Central Park for historic
significance and integrity of the site as a designed landscape.
The Landmarks Board, Parks & Recreation Advisory Board and Planning Board will review the
proposed designation in early 2024. City Council review is anticipated in April 2024.
BOARD DISCUSSION
1.Do board members have questions on the designation process?
2.Do board members have feedback on the draft design guidelines (intent, table of contents,
guiding principles)?
3.Do board members have questions on the CLA process or findings?
BACKGROUND
x On August 27, 2021, the Landmarks Board received a letter from the Friends of the
Bandshell (link) requesting Landmarks Board consider an expansion of the landmark
boundary of the Glen Huntington Bandshell, an individual local landmark (Ordinance 5751),
to include the entirety of Block 13 (1236 Canyon Blvd.).
x In November 2021, the Landmarks Board initiated the process to expand the boundary and in
April 2022, the Landmarks Board voted to recommend expansion of the boundary. The Parks
and Recreation Advisory Board (PRAB) requested that the decision be postponed in order to
allow time for additional review and coordination with the forthcoming Civic Area Phase 2
planning and design process.
x On June 14, 2022, City Council held a public hearing to consider expanding the designation
boundary of the Glen Huntington Bandshell. The City Council gave a Nod of Five to “have
Landmarks staff investigate and explore the creation of a downtown area historic district that
would include this area, saying they would work with the Landmarks Board and Parks Board
moving forward.” See City Council 06.14.2022 recording (link).
x Following Council’s direction at the June 14, 2022 meeting (item 4B, page 70), Historic
Preservation and Parks and Recreation staff jointly established an approach to evaluate a
Historic District in the Civic Area that included developing a Cultural Landscape
Assessment, which will be integrated into the Civic Area Phase 2 process and timeline, and
inform the next phase of park design for the Civic Area. See the April 24, 2023 PRAB Packet
(link), the April 12, 2023 Landmarks Board Meeting (link) and the City Council 05.18.2023
information packet item (link).
x On May 30, 2023, the Planning & Development Services Department accepted a complete
application for a proposed historic district in the Civic Area from Historic Boulder Inc.,
Friends of the Teahouse and Friends of the Bandshell.
x On July 12, 2023 the Landmarks Board voted (3-1, C. Castellano dissenting) to initiate the
historic district process with the understanding that the applicants would extend the timeline
defined in sections 9-11-4 and 9-11-5, BRC 1981. See Landmarks Board 07.12.23 Minutes
(link).
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x On August 23, 2023, the applicant group and city signed an agreement to extend the public
process and hold the designation hearing on February 7, 2024.
x This memo describes the progress of this project, including department and agency
coordination, community engagement, racial equity strategies and development of draft
design guidelines.
x The purpose of this December 18 Joint Landmarks Board and Parks & Recreation Advisory
Board Study Session is to review the process to date and provide feedback on the draft design
guidelines.
x The Parks & Recreation Advisory Board will provide feedback on the proposed designation
on January 22, 2024, followed by the Landmarks Board designation hearing on February 7,
2024. The application will then be reviewed by the Planning Board for feedback on potential
land use implications.
x The City Council designation hearing is anticipated to occur in April 2024.
BOARD & COUNCIL ROLES
Members of the city’s various boards and commission are outlined in the City Charter and
Boulder Revised Code. As it relates to historic designation:
x The Landmarks Board’s role is to make a recommendation to the City Council on the
proposed designation, and to adopt design guidelines. As stated in Section 9-11-5
Landmarks Board Designation Public Hearing, the criteria for the Landmarks Board’s
review is to determine whether the proposed designation conforms with the purposes and
standards in sections 9-11-1 Legislative Intent and 9-11-2 City Council May Designate
Landmarks and Historic Districts.
x As provided in Section 9-11-5(e) Planning Board Review, the Planning Board’s role is to
review the proposed designation and report to the City Council on its land use
implications.
x The Parks & Recreation Advisory Board does not have a formal role in the historic
district designation process as outlined in Chapter 9-11 Historic Preservation. Per the
City Charter, one of the PRAB’s functions is to make recommendations to City Council
regarding the protection and maintenance of park lands; the PRAB’s input will inform the
design guidelines and be included in materials for reviewing boards and City Council.
City Council designates landmarks and historic districts by ordinance. The criteria for City
Council’s review is to determine whether the proposed designation meets the purposes and
standards in Subsection 9-11-1(a) and Section 9-11-2, "City Council May Designate or Amend
Landmarks and Historic Districts," B.R.C. 1981, in balance with the goals and policies of the
Boulder Valley Comprehensive Plan. The City Council may approve by ordinance, modify and
approve by ordinance, or disapprove the proposed designation.
OVERVIEW OF PROPOSED DISTRICT
The proposed boundary of the historic district as submitted in the application includes Central
Park, the 13th Street and Sister Cities plazas, five individually designated landmarks, and
portions of Broadway, 13th Street, the Boulder Slough and Smith and Goss Ditch, and Boulder
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Creek. The boundary extends from the west side of the Penfield Tate II Municipal Building
(1777 Broadway) to 14th Street, and from Canyon Boulevard to Arapahoe Avenue. The privately
owned parcels on the northeast corner of Arapahoe and Broadway (1201 Arapahoe Ave. and
1724 Broadway) are not included in the proposed boundary.
On July 12, 2023, the Landmarks Board voted to accept the application and initiate the historic
district designation process to further explore the area’s eligibility based on:
1) Its inclusion of five significant buildings and their sites that have been previously
designated;
2)Its historic significance in the history of Boulder’s park development and for the role
played by the Boulder City Improvement Association, Frederick Law Olmsted Jr., the
Lions Club, and consulting city planner S.R. DeBoer and its contribution to the social and
cultural life of the city for over a century;
3)Its architectural significance that includes work by notable architects, master builders,
and urban planners representing examples of a progression of architectural styles;
4)Its environmental significance for its planned and natural site characteristics that
represents an established and visual feature of the community.
HISTORIC DISTRICT UPDATES
The historic district designation process is outlined in Section 9-11-4 Public Process for Historic
Districts, B.R.C. 1981. The following is a summary of efforts between July until November
2023.
Department and Agency Coordination
In August, Planning & Development Services (P&DS) staff met individually with representatives
from Transportation and Mobility, Parks & Recreation (BPR), Planning & Development
Services, Public Works - Utilities, Community Vitality, Facilities & Fleet, City Manager’s
Office, City Attorney’s Office and Communications and Engagement. The purpose of the
meetings was to provide information about the process, discuss the effects of historic
designation, answer questions and listen to concerns. P&DS staff also solicited interest from
departments to participate in the Technical Advisory Group to develop draft design guidelines
(see additional information below).
P&DS and BPR staff have been meeting bi-weekly to coordinate efforts on the development of
the Cultural Landscape Assessment (CLA) and the overall project management of the historic
district application.
Public Works – Utilities staff facilitated coordination with the Boulder and White Rock Ditch,
North Boulder Farmers Ditch and Boulder Left Hand Ditch companies, as the proposed
boundary includes a reach of the Boulder Slough and Smith & Goss Ditch. Staff proposed
utilizing the same approach as the landmark designation of the Boulder-Dushanbe Teahouse,
which includes language in the designation ordinance that acknowledges that use of the
respective ditch easements will not require Landmark Alteration Certificate review.
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P&DS staff spoke with representatives of the Colorado Department of Transportation (CDOT),
as a portion of Broadway (Highway 93) is included in the proposed historic district boundary.
Similar to the ditch companies, management of Broadway will not require Landmark Alteration
Certificate Review if the area is designated.
Racial Equity Instrument
This designation process is the first Historic Preservation project to use the Racial Equity
Instrument. The process included elevating the voices of historically excluded peoples and
amplifying the message that the historic narrative of the area has been dehumanizing and used to
perpetuate dominant social structures.
Research
The designation process provided an opportunity to fill research gaps in the history of the area, in
particular the history of residents and businesses that were displaced. Historic Preservation staff
were able to access recently digitized information from the Library of Congress and National
Park Service, and other state and local sources. Staff focused on primary sources (first-hand
accounts, period newspaper articles, maps and photographs) for research, but additionally
consulted local experts and contemporary secondary sources.
Engagement Strategy
The engagement levels for this project are consult for the general public; and involve for the key
stakeholders, which include property owners and the applicants.
To date, the project team has used different methods to:
x share information about the area’s historical significance,
x raise awareness and understanding of the designation proposal,
x gather feedback from historically excluded communities,
x facilitate discussions from key stakeholders on draft design guidelines, and
x solicit feedback on whether a portion of the Civic Area should be designated a historic
district.
1.Consultation with Community Connectors-in-Residence (CC-in-R): The city’s CC-in-R
represent historically excluded communities. The project team met online with four CC-
in-Rs representing Black, Latine, Indigenous and people living with a disability to answer
questions about the designation process and to discuss the racial equity strategies for the
project, including engagement. Following on these consultations, the main opportunity
identified by the project team to advance racial equity is to explore and build more
comprehensive narratives of our city’s development by researching, elevating and telling
the stories of historically excluded populations. The CC-in-R agreed to participate in a
‘dry run’ of the walking tour to provide feedback on the script through a racial equity
lens.
2.Walking Tours: The project team and applicants collaborated over the course of six
weeks to refine a walking tour script for the public. The project team’s goal was to
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continue to tell the stories of Central Park and the five landmarked properties within the
proposed district – while also telling a more complete and multi-dimensional history of
the area. This included researching and telling the stories of people that once lived here.
It included amplifying the message that the narrative about the area adjacent to the
Boulder Creek, referred to as “The Jungle” from the 1920s, is dehumanizing and used to
perpetuate dominant social structures.
-The three tours were advertised on the city’s social media, the city calendar and
website and by the applicant groups.
-Twenty-three people signed up in advance and only eight people attended. The tours
were held on Saturday, Oct. 14 at 10 A.M., Wednesday, Oct. 18 at 12 P.M. and 5
P.M.
-The project team led a walking tour for city staff on Oct. 12 (about 20 attendees).
-The project team also led a walking tour with Community Connectors-in-Residence
(CC-in-R) (5) on Sept. 21 to help identify white, privileged bias in the script that
could be exclusionary and hurtful. The applicants participated in this walking tour
with CC-in-R as observers. CC-in-R feedback was used to update the script.
3.Webpage, StoryMap 1 & online questionnaire: The project team developed a webpage,
that has been available online since August 28. The webpage provides an overview of the
project, background information, details of upcoming engagement opportunities and
latest news, and an explanation of the timeline and process. Additionally, the webpage
includes a StoryMap of the area’s history that seeks to tell a more inclusive history of the
area. It has been available online since Nov. 28 and viewed by 1,045 people as of Dec.
12.
The webpage also includes a questionnaire asking whether people support or do not
support the designation. The questionnaire will be available until Jan. 15, 2024. It also
provides the opportunity for people to share their own historic photos of the area.
4.Communications and Media Coverage: Media coverage of the project includes an update
in the Winter 2023 issue of the Boulder Community Newsletter (p10); a press release
announcing the publication of the StoryMap was issued on Nov. 29 and project manager
Marcy Gerwing was interviewed for a Channel 8 segment that aired Dec. 1, 2024. Social
media posts include Nextdoor on Dec. 5 and Facebook on Dec. 7.
5.What’s Up Boulder: The project team participated in the What’s Up Boulder event at
Foothills Community Park on Sept. 10. The project team was available to share
information about the project and answer questions. The project team handed out
coloring postcards of the landmarked buildings within the proposed district, along with
an aerial view of the park and surrounding buildings.
6.Carnegie Library for Local History “Boulder Rewind” event. The project team
participated in a celebration of 40 years of local history at the Carnegie Library on Oct. 1,
1 ArcGIS StoryMaps is a story authoring web-based application that allows you to share your maps in the
context of narrative text and other multimedia content.
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2023 with a presentation on some of the research completed on the history of the
proposed district.
CULTURAL LANDSCAPE ASSESSMENT (CLA) PROCESS AND FINDINGS
In April, BPR staff started scoping the CLA, researched the park history in the summer of 2023
and prepared a draft CLA in early fall. This approach was defined by the National Historic
Preservation Act of 1966 and the criteria for the National Register of Historic Places as well as
the 1998 National Parks Service Guide to Cultural Landscape Reports criteria. The CLA
analyzed the site within the historic periods for significance and the major landscape
characteristics and features and seven aspects of integrity to understand if there was integrity for
the identified historic periods.
As described in the City Council Information Packet on May 18, 2023, the CLA follows
National Park Service guidelines to identify significance and integrity through a two-step
process. The CLA uses the same criteria (seven aspects of integrity) for identifying integrity as
the city’s local historic designation integrity criteria to inform the boundary of the proposed
historic district. The CLA and city’s local historic code differ on the criteria used to identify
significance. The CLA follows National Park Service Guidelines (4 areas of significance), and
the city has a code the uses three area of significance. For a landscape to be historic they must
have both significance and integrity. For Central Park, the seven aspects of integrity ultimately
inform the boundary of the historic landscape, which will contribute to the overall historic
district evaluation per the city’s local historic designation criteria.
In October, the draft was sent to a nationally recognized historic preservation consultant for a
third-party review of the methodology and determinations regarding historic significance and
integrity of the park area. This review included evaluation of the site history, existing conditions
inventory, and the evaluation of landscape character and features of the entirety of Central Park
(boundary in blue in the below diagram), an area of approximately 4 acres and encompasses the
current Bandshell landmark boundary (boundary in yellow within the blue boundary in the below
diagram). The park is bounded by Canyon Blvd. to the north, 13th Street to the east, Arapahoe
Ave. to the south, and Broadway to the west. All other areas and previously historically
designated areas are out of scope for the CLA.
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Figure 1. Study Area of Cultural Landscape Assessment (blue boundary).
The site history the CLA provides is an overview of the timeline of the major events that had an
impact on the design and development of Central Park area. Four eras of physical development
were identified and include the acquisition of the park, its initial development, and major
redesigns or alterations. The major historical periods the CLA outlines in its research are:
• 1903-1922: Acquiring the Land for Central Park
• 1923-1936: Olmsted Jr. Design for Central Park
• 1937-1973: Huntington/DeBoer Design for Bandshell and Seating
• 1970-2023: Modern Updates
Overall landscape characteristics evaluated in the existing conditions as well as the final
evaluation of integrity are:
x Topography
x Vegetation
x Circulation
x Buildings and Structures
x Views and Viewsheds
x Land Use
x Spatial Organization
x Small-Scale Features (for the Huntington/DeBoer Period only)
The seven aspects of integrity that were evaluated are:
x Location
x Design
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x Setting
x Materials
x Workmanship
x Feeling
x Association
The draft summary of findings and the evaluation of the site can be found in Attachment A from
the historic preservation consultant. The below diagram outlines the summary of findings of
significance and integrity in the identified historic periods of significance using the landscape
characteristics and seven aspects listed above:
Figure 2. Cultural Landscape Assessment, Significance Findings
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Figure 3. Cultural Landscape Assessment, Integrity Findings
The final assessment of the CLA will be completed by the consultant in the coming weeks and
the full CLA document will be shared with PRAB, Landmarks Board, and public in January.
DRAFT DESIGN GUIDELINES
Technical Advisory Group
A Technical Advisory Group, comprised of representatives from Community Vitality, Facilities
& Fleet, Parks & Recreation, Planning & Development Services and Public Works – Utilities,
and representatives from the three applicant groups met over the course of three meetings to
create draft design guidelines. Representatives from other city departments, City Manager’s
Office, City Attorney’s Office, Community & Engagement, Transportation & Mobility, chose to
review the draft design guidelines once complete rather than participate in the Technical
Advisory Group.
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Scope of Draft Design Guidelines
The scope of the draft design guidelines includes the intent and scope of the design guidelines,
preliminary Table of Contents, and guiding principles. If the City Council designates the historic
district, a separate project will commence to develop district-specific design guidelines.
Draft Design Guidelines
Intent
What is the purpose of these design guidelines? How will they be used?
(Language from Boulder’s General Design Guidelines and University Place Historic District
Design Guidelines)
The purpose of the guidelines is to facilitate both the Landmark Alteration Certificate (LAC)
application and approval of alterations proposed for design review by assisting owners and
designers as they plan maintenance and changes to buildings and public spaces and to provide
the Landmarks Board with a framework for evaluation of proposed improvements.
The guidelines reflect the Landmarks Board’s philosophy that underlies all its decisions: to
encourage the preservation and careful treatment of the city’s historically significant resources,
while recognizing the need for continuing adaptation and improvements to these resources.
The guidelines have been developed to recognize the unique character of the district and are
intended to supplement the General Design Guidelines for Boulder’s Historic Districts and
Individual Landmarks (the General Design Guidelines), which apply unless otherwise stated.
Where the two guidelines conflict, the district-specific guidelines shall prevail.
The design guidelines are intended to be used as an aid to appropriate design and not as a
checklist of items for compliance. In some cases, unusual circumstances may allow for projects
to deviate from them.
Table of Contents
What areas will the guidelines address?
x Review Process
x Roles and Responsibilities
o Include review bodies, policies and regulations (i.e. floodplain, Park Plan for the
Civic Area, Art Acquisition Policy, Downtown Urban Design Guidelines, plans
and policies related to the list in Guiding Principal #2, etc.)
x What Requires Review?
o Define what does and doesn’t require review in the design guidelines to
streamline and clarify the review process (i.e. maintenance, emergency repairs,
new work)
o Clarify that improvement or maintenance work within the ditch easements and
CDOT easement (Broadway) is exempt from LAC review
x History of the Area
o Summary of area history based on new research to tell more inclusive history of
area.
x Design Guidelines
o Rehabilitation of Historic Structures
o Additions to Historic Structures
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o New Construction
o Coordination with Floodplain Development Regulations
o Central Park
o Boulder Creek
o Public Art
o East Bookend
o 13th Street
o Plazas
Guiding Principles
What values are important to inform the district-specific design guidelines?
1.The Secretary of the Interior’s Standards for Rehabilitation are the foundation for
the historic district design guidelines.
Rationale: Adopted by the Landmarks Board in 1985 (revised in 1990), the Standards for
Rehabilitation are the foundation of the General Design Guidelines and the eight district-
specific design guidelines. As a Certified Local Government, design review is required to
be consistent with the Secretary of the Interior's Standards.
2.Preserve maintenance access and align the design guidelines with management
practices in adopted city plans and policies for utilities infrastructure, urban trees,
park design standards, flood mitigation and transportation networks related to life
safety and accessibility.
Rationale: The City has established programs and professional staff that manage the
many assets within the historic district. The design guidelines should reinforce the
importance of life safety and accessibility within the boundaries of the district.
Additionally, defining what does and does not require review in the design guidelines will
clarify and streamline the review process and ensure that emergency repairs and regular
maintenance projects can be swiftly executed.
3.The area has character-defining features that contribute to its historic character
and setting. Define these key historic features within the historic district and
consider drawing inspiration from them. Key features include but are not limited
to:
x Boulder Creek as a living entity that is significant to Boulder’s past, present and
future and provides critical public safety, health, flood conveyance, water supply,
and environmental benefits.
x The unique architectural character of the area as defined by five distinct,
individually landmarked structures, each representing a forward-looking and
progressive city identity.
x The area is a place for recreation, gathering and play that contributes to the health
and well-being for all and should continue to reflect the variety of community
needs and desires for the enjoyment of the site.
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Rationale: The area has character-defining features that contribute to its historic
character. While this is not a complete list, this guiding principle emphasizes the
importance of Boulder Creek, the unique architectural character of the structures,
and the importance of the area as a place for recreation, gathering and play.
4.The area is significant for its association with Boulder’s municipal, social and
political history. As part of Boulder’s Civic Area, this district continues to have a
symbolic, geographic, and functional importance and therefore should serve as an
inclusive place where all feel welcome. Celebrate the diversity of our community
and enrich our collective understanding of different periods of Boulder’s history by
acknowledging stories of historically excluded populations.
Rationale: The historic district process provided an opportunity to tell a more complete
history of the area. While there is additional work to be done, it is evident that the area
currently tells only a portion of Boulder’s history. As the civic center of Boulder, it is
even more important that it be inclusive and welcoming, and broad representation
through art, educational opportunities and programming is encouraged. This principle
aligns with the Park Plan for Boulder’s Civic Area, which states “Preserve, reflect and
celebrate the area's fully inclusive history (e.g., Indigenous Peoples, mining, the railroad,
Olmsted's linear park and landmarked structures).”
5.Align the selection of works of art within the Civic Area Historic District with
adopted city plans and policies to encourage creativity, contribute to a sense of
place, spark conversation, tell our shared stories and capture our moment in time,
foster the enjoyment of diverse works of art, and be thoughtfully designed
contributions to the urban environment of our vibrant city. Additionally, select
artwork within the Civic Area to attract, inspire, educate and engage the
community.
Rationale: The Civic Area Park Plan identifies this area as one of the major art centers
of Boulder, and new artwork within the proposed historic district is anticipated and
encouraged in the future. This guiding principle repeats the mission of the Acquisition
Criteria of the Public Art Policy, as well as language from the Park Plan for the Civic
Area. Both of these statements are compatible with the intent of historic district
designation, which among other things, seeks to promote tourist trade and interest and
foster knowledge of the city's living heritage.
JOINT BOARD MEETING PURPOSE
The purpose of this study session is to provide the Landmarks Board and the Parks & Recreation
Advisory Board with an update on the process for the Proposed Civic Area Historic District, to
request feedback on the draft design guideline framework, and to review the Cultural Landscape
Assessment (CLA) findings for Central Park. No formal vote will be taken. The study session is
scheduled for 90 minutes and will take place prior to the regular PRAB meeting and will be
guided by the PRAB meeting procedures. The meeting will be facilitated by Comprehensive
Planning Manager Kristofer Johnson in an effort to hear from all voices.
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BOARD DISCUSSION
1.Do board members have questions on the designation process?
2.Do board members have feedback on the draft design guidelines (intent, table of contents,
guiding principles)?
3.Do board members have questions on the CLA process or findings?
NEXT STEPS
The historic district application will be reviewed by Boards and the City Council in early 2024.
The anticipated schedule includes:
x January 22, 2024 - Parks & Recreation Advisory Board
x February 7, 2024 – Landmarks Board Designation Hearing
x March 2024 – Planning Board (Land Use)
x March 2024 – City Council, 1st Reading
x April 2024 – City Council, 2nd Reading and Public Hearing
ATTACHMENTS
x Attachment A – Peer Review Summary of the CLA Findings
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toShihomi Kuriyagawa and Mark Davison (City of Boulder)
fromEleanor Cox and Laurie Matthews (MIG)
rePeer review of DRAFT Central Park Cultural Landscape Assessment Report
date12/12/2023
Certification of Peer Review and Summary of Findings
Peer Review
In September of 2023, Shihomi Kuriyagawa and Mark Davison from the Parks
Department at the City of Boulder contracted Laurie Matthews at MIG to provide
peer review for a department-authored cultural landscape assessment of Central
Park. Eleanor Cox is providing technical guidance on the report content to the
City while Laurie Matthews is providing QA/QC on MIG deliverables. Our
professional qualifications are attached to this memo.
On Oct 27, 2023, MIG received a copy of the DRAFT Boulder Central Park,
Cultural Landscape Assessment from the Parks Department. Minor comments
regarding missing context and organization of the report were provided in
response, and on November 29 MIG received a revised draft for full peer review.
After reviewing the revised report, MIG finds that sufficient evidence is presented
to support the findings. Further refinement and organization of the content is
needed before the report should be considered final, but the chronology is well
researched and the integrity analysis presented meets professional standards.
MIG concurs with the findings as described below.
Summary of Findings
The design and development of Central Park in 1923-1924 is historically
significant under National Register Criterion C (design) as the work of a
recognized master, landscape architect Frederick Law Olmsted Jr. Additionally,
the northern portion of Central Park is already an established historic district that
has been determined historically significant under National Register Criteria A
(Events) and C (Design) for its role in the social and cultural life of Boulder and
the design improvements implemented between 1938 and 1950 by Glen
Huntington and Saco Rienk DeBoer, including the band shell, the amphitheater,
and the associated vegetation and grading.
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MIG, Inc.
Over the past century the Central Park landscape has experienced changes that
include:
Physical changes to the landscape, such as the realignment and redesign
of the vegetation and circulation systems, and substantial regrading of the
topography.
A change in use through the construction of the bandshell and its evolution
as an activated space for entertainment and performance.
These changes have resulted in a lack of historical integrity of design, materials,
workmanship, feeling, and association, which are needed for Central Park to
convey its 1923-1924 design and association with Olmsted Jr. The character of
Central Park relating to the Olmsted Jr.-era has been altered to the point where it
is no longer visible in the landscape.
Both historic significance and historical integrity are required to meet eligibility
thresholds for listing in the National Register. While Central Park has its origins in
the 1920s and the Olmsteds’ recommendations and designs for a park system in
Boulder, it is no longer able to tell that story through the existing landscape. As
such, while the park’s history is significant the lack of integrity in the landscape
disqualifies the park as a whole for listing in the National Register as the work of
master landscape architect Olmsted Jr.
However, the northern portion of park is still able to convey its historic
significance and association with the 1938-1950 era of park development
associated with Huntington and DeBoer. Therefore, Central Park remains eligible
for the National Register under Criteria A and C for the period in which the
bandshell and associated amphitheater seating were designed and built (1938-
1950). The area associated with these improvements is roughly outlined in yellow
in the graphic on page 3 of this memo; it does not constitute the full park
boundary as no evidence exists linking the southern portion of the park to the
Huntington-DeBoer improvements.
17
MIG, Inc.
Attachments:
Professional resumes for Laurie Matthews and Eleanor Cox. Both staff meet the
Secretary of the Interiors Professional Qualifications Standards in the areas of
history, architectural history, and/or historical landscape architecture.
18
EDUCATION
»MLA, University of Oregon
»BLA, Landscape Architecture,
University of Oregon
»BFA, Lewis & Clark College,
Portland, Oregon
PROFESSIONAL AFFILIATIONS
»American Society of
Landscape Architects
»Alliance for Historic
Landscape Preservation
»National Trust for Historic
AWARDS
»Oregon ASLA Distinguished
Practitioner Award, 2022
»Oregon Recreation and Parks
Association, South Park
Blocks Master Plan, 2022
»Oregon ASLA Award of
Excellence, Lithia Park
Master Plan, 2019
»Oregon ASLA Award of
Excellence, Willamette
Falls Cultural Landscape
Report, 2019
»Historic American
Landscape Survey Challenge
Award, Gaiety Hollow
Documentation, 2014
Laurie Matthews, FASLA
DIRECTOR OF PRESERVATION PLANNING AND DESIGN | MIG
Laurie Matthews is a nationally recognized expert in preservation
planning and cultural landscapes. Her work has helped to maintain and
manage some of the most iconic and precious historical sites in the
country such as Hearst Castle, Ellis Island, and Yosemite National Park.
Laurie is fascinated by the complexities and stories associated with
landscapes and the history they reveal. Her expertise and experience
are invaluable in assisting clients interpret and apply The Secretary of
the Interior’s Standards and the National Register of Historic Places
guidelines to the cultural properties under their stewardship. Laurie’s
analytical and communication skills enable her to readily identify issues
and clearly outline potential choices and tradeoffs related to design and
management. She is inspired by the passion of her public and private
clients and recognizes the impact the planning and design projects she
prepares have on cultural landscapes. Laurie has garnered national and
regional awards for her work, and she frequently speaks at national
conferences on historic preservation and design.
SELECTED PROJECT EXPERIENCE
»Willamette Falls Cultural Landscape Report, Oregon City, OR
»Yosemite Lodge Cultural Landscape Report, Yosemite National Park, CA
»South Park Blocks Master Plan, Portland, OR
»Dorris Ranch Master Plan, Springfield, OR
Preservation Sand Creek Cultural Landscape Inventory, Sand Creek Massacre
National Historical Site, CO
»Lithia Park Master Plan, Ashland, OR
»Point Reyes Light Station Cultural Landscape Report and Rehabilitation,
Point Reyes National Seashore, CA
»Oliver Kelley Farm Master Plan, Elk River, MN
»Bassett Farms Cultural Landscape Report, Kosse, Texas
»Denali Park Road Cultural Landscape Report, Denali National Park and
Preserve, AK
»Scotty’s Castle Cultural Landscape Report, Death Valley
National Park, CA
»Minidoka National Historical Park Visitor Center, ID
»Menlo Community Residential, Menlo, CA
»Greasy Grass Battlefield Cultural Landscape Report, Little Bighorn
Battlefield National Monument, MT
»Curry Village Cabins Rehabilitation, Yosemite National Park, CA
»Gaiety Hollow Cultural Landscape Report, Salem, OR
»White Pass Cultural Landscape Report, Klondike Gold Rush National
19
EDUCATION
»MS, Historic Preservation,
Columbia University in the
City of New York
»BA, History, University of
California, Santa Cruz
CERTIFICATIONS
»Certificate of Cultural
Landscape Preservation and
Management, University of
California, Berkeley
PROFESSIONAL AFFILIATIONS
»Vice-President, California
Garden and Landscape
History Society
PRESENTATIONS
»"Understanding Cultural
Landscapes and PlanninH for
Change at the National Mall,"
National Trust for Historic
Preservation Conference,
2023
»“Climate Adaptation for
Buildings and Landscapes,”
National Trust for Historic
Preservation Conference,
2022
»“Landscapes Lost or
Forgotten: University Mound
Nursery in San Francisco,”
California Garden and
Landscape History Society,
2020
Eleanor Cox, MS
PRESERVATION SPECIALIST | MIG
Eleanor Cox is a highly accomplished preservation specialist and project
manager dedicated to broadening the application of cultural landscapes
as a framework for holistically managing and maintaining historic sites and
resources. An internship with the National Park Service put Eleanor on the
path to graduate school and a 10-year career in historic preservation planning
and cultural resources management spanning the United States. Using
cultural landscapes as a lens to examine a project, she helps clients consider
a place and all its layers and components—historic and archeological,
social and spiritual, natural and man-made—as they decide upon its future.
Combined with her research, analysis, and writing skills, Eleanor’s expertise
and experience enable her to efficiently guide clients through often complex
planning processes that require balancing client and stakeholder needs
with cultural resources. She is passionate about applying her knowledge to
create effective long-term stewardship strategies that allow for change while
recognizing and maintaining the significant past.
SELECTED PROJECT EXPERIENCE
»Bear Lodge Indigenous Cultural Landscape Report, Devils Tower National
Monument, WY
»Keys Ranch Historic District Cultural Landscape Report, Joshua Tree
National Park, CA
»Camp Namanu National Register of Historic Places Nomination,
Sandy, OR
»Ukiah Railroad Depot Historic Resource Evaluation, Ukiah, CA
»Bacon Ranch Historic District Cultural Landscape Report, Pinnacles
National Park, CA
»Bassett Farms Cultural Landscape Report, Limestone County, TX
»Thousands Cabins Determination of Eligibility and National Register
Update, Yosemite National Park, CA
»Merced Manor Reservoir and Pump House Historic Resource Evaluation,
San Francisco, CA*
»Capitol Annex Replacement Project Landscape Evaluation and Historic
Context Statements, Treatment Report, and Environmental Review,
Sacramento, CA*
»Capitol Extension Group Historic District National Register Update,
Sacramento, CA*
»Camp Locket Cultural Resources Technical Report, Campos, San Diego
County, CA*
»Golden Gate Village Maintenance Projects, Section 106 Compliance and
Memorandum of Understanding Between the Marin Housing Authority
and County of Marin, Marin City, CA*
* Completed prior to joining MIG
20
AGENDA SETTING
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-epth analysis.
•City Council Item (cc)
•Boards and Commissions (obc)
•Community Engagement and/or Events (e)
•Holiday/Closure (h/c)
Italics indicate a tentative date or plan.
PRAB Future Board Items Agenda
2024 18-Dec 22-Jan 26-Feb
Consent Agenda 1) 2024 Budget - key changes
2) Harbeck House Entry Drive and Blinds
3) ANS overview
Summary of Civic Area Study Session with City Council Crestview Maintenance Upgrades
Action Items
Matters for Discussion/Information Hold for Joint Landmarks Board Meeting - Civic Area
Historic District
1) Court System Plan: Planning Analysis (30 min) 2)
Civic Area Design Guidelines Follow up?
1) 2023 Year End Financial Review
2) Pleasantview: Schematic Design
3) Park on Violet: Planning Analysis with Vision and
Value
Matters from the Department
•PLAY Boulder Foundation (10 min)
1) 2024 BPR Action Plan (20 minutes) Boulder Creek Safety Update
Matters from the Board •View of complete PRAB Handbook Tentative: B&C Report Debrief and Discussion
Other Mtgs or Topics •Dec 7:
Flatirons Lease Agreement (cc)
•Dec 14:
Study Session: Historic District Nomination in Civic Area
(cc)
•Dec 18:
B&C Recruitment Begins for 6 weeks
• Jan 29:
B&C application deadline
TBD – PRAB Study Session
• BPR Equity Work
• Water Safety Access
• PRAB Handbook deep dive
-PRABs role and authority
-PRAB process
-Feb 12-Feb23:
B&C applicant interviews
Dept Event & Items of Interest Dec 22:
COB ½ Day Christmas Eve closure
Dec 25:
COB Christmas Day closure
Dec 29:
COB ½ Day New Year’s Eve
Jan 1:
COB New Year’s Day closure
Jan 15:
COB Martin Luther King, Jr. Day Closure
Jan 29:
Board Recruitment Closes
Feb 19:
COB President’s Day closure
Feb TBD:
Court System Plan Public Meeting
Study Session
City Council Meeting Date
21
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: December 18, 2023
A. Approval of Minutes November 27, 2023
22
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: November 27, 2023
Contact Information Preparing Summary: Rosa Kougl; 303-413-7223
Board Members Present: Charles (Chuck) Brock, Elliott Hood, Andrew (Bernie) Bernstein, Sunny
van der Star, Anna Segur
Board Members Absent: Jason Unger, Anita Speirs
Staff Present: Ali Rhodes, Rosa Kougl, Scott Schuttenberg, Jackson Hite, Stacie Hoffmann, Megann
Lohman, Mark Davison, Stephanie Munro, Charlotte O’Donnell, Tina Briggs, Chris Passarelli,
Jonathan Thornton, Bryan Beary, Regina Elsner, Stacy Cole
Guests Present: Michael Svetz, Pros Consulting
Type of Meeting: Regular
Agenda Item 1: Call to Order
The meeting was called to order at 6 p.m. A quorum was present for the conduct of business. Motion to
approve agenda. First motion by Hood, second by Bernstein. 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:
•Patrick O’Brian shared idea of new outdoor Japanese game called Park Golf; a cross between
croquet and real golf. It uses only one mallet and one ball to sink in a cup 8” across. The game
is extremely popular in Japan, with over 2,000 courses.
•Clifford Moss agrees that the results of the survey that Parks and Recreation shared regarding
the court study plan are accurately portrayed. He stated that he and the rest of the court
community enthusiastically support the Parks and Recreation Department in this project and
their thanks go to Tina and Charlotte specifically.
Agenda Item 4: Consent Agenda
A.Approval of Minutes from October 23, 2023, Business Meeting
Motion to approve the minutes from the October 23, 2023, Regular PRAB meeting. First
motion by Hood, second by Segur. The motion passed 5-0.
B, C, D. Updates from the Director, Project Updates, Operations & Development
No PRAB follow up questions or comments
23
Agenda Item 5: Items for Action
A.Public Hearing and Consideration of a Motion to Approve the Fee Schedule
Hite presented this item.
PRAB had the following questions or comments:
•During normal operating hours at the reservoir, is there a fee for large vehicles?
•Do tennis courts have to be reserved every time or is it first come first served?
•How do you calculate break-even for outside of business hours at the reservoir?
•What are other similar sized municipal courses charging for similar passes to our value plan
card? $100 increase sounds like a lot.
•Does the fee schedule contemplate for dockage fees for boats stored at the reservoir?
Public hearing opened.
•Larry McKeogh shared that access to the Boulder reservoir should not be universally labeled as
an individual benefit when the user groups are operating in alignment to augment the city
services at no cost to the city. Meeting or exceeding the 100% cost recovery should be
questioned.
Motion to adopt Attachment B – Proposed Parks and Recreation Department Fee Schedule for fee
setting for 2024 and direct staff to publicly notice the 2024 fee updates pursuant to the Boulder Revised
Code Section 8-2-8.: Motion by Hood. Second by Segur. The motion passed 5-0.
B.Public Hearing and Consideration of a Motion to authorize the City Manager to enter into an
Agreement with Tanoa Inc, covering a full-service restaurant at Flatirons Golf Course.
Munro presented this item.
PRAB had the following questions or comments:
•What are the terms of the agreement?
Public hearing opened. As there was no one who wanted to speak, the public hearing closed.
Motion to approve the Agreement between the City of Boulder Parks and Recreation Department and
Tanoa Inc. and to authorize the City Manager to make minor amendments prior to or during the term of
this agreement in order to ensure that the Flatirons Golf Course Food and Beverage Restaurant is
managed in a manner that is consistent with applicable laws and the policies and regulations of the City
of Boulder.: Motion by Brock. Second by Hood. The motion passed 5-0.
Agenda Item 6: Matters for Discussion
•Facility Evaluation: Updated Annual Process
Lohman and Munro presented this item. PRAB had the following questions/comments:
•What were key takeaways from the feedback?
•How are people prompted to fill out this survey?
•It would help if the results showed what benefits these places have for the community.
24
•Do we do intercept surveys, for example for people at the reservoir?
•What are some possible strategies to increase participation from financial aid recipients?
•Shared that there is a lot more benefit from using texting programs to get people to engage,
rather than emails.
•Is there anything reasonable to do about goose poop at the reservoir?
Agenda Item 7: Matters from the Department
•Court System Plan: Process and Community Engagement Findings
O’Donnell and Svetz presented this item. PRAB had the following questions/comments:
•Do we know how many known tennis players there are in Boulder?
•Is this survey a statistically valid representation of the community?
•There should be a potential for getting some of our low-income communities and immigrant
communities engaged in tickle ball.
•How do we let people, who are not already engaged in one of these two sports, know the work
Boulder is planning here?
•What are some strategies for sound reduction and absorption?
Agenda Item 8: Matters from the Board Members
a.PRAB Recruitment: Prospective Board Member Application Questions
PRAB had the following questions or comment:
•No changes
b. Future meetings coordination and planning
PRAB had the following questions or comment:
•Doodle Poll in lieu of Google Form for Study Session date
Agenda Item 9: Next Board Meeting
Next Board meeting. Joint Study Session with Landmarks Board, Monday, December 18, 2023, Hybrid
Agenda Item 10: Adjourn
The meeting was adjourned at 8:45 p.m.
Approved by: Attested:
___________________ _____________________
Chuck Brock Rosa Kougl
Board Member BPR Staff
Date: ______________ Date: _________________
25
B. Parks and Recreation Project Update
•B. Parks and Recreation Planning, Design and Construction 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.
•Overview of Project Status
Staff or contractors continue to work on the following projects and will update the PRAB as
major milestones are achieved.
Project Status
Civic Area Reimagining –
Phase 2
Contracting
Civic Historic District
Evaluation
Planning
Central Park Cultural
Landscape Assessment
Planning
Court System Plan Planning
Future of Recreation Centers:
Rec Centers as a System
Scoping
North Boulder Park Contracting
Flatirons Golf Course Construction
Pleasantview Access Design
Park on Violet Planning
Coot Lake Bridge
Replacement
Construction
Park Signs for Holiday and
Washington School Park
Design
Pearl Street Place Making Anticipated Start 2024
Boulder Creek Safety Plan Anticipated Start 2024
Boulder Creek Management
Plan
Anticipated Start 2024
Boulder Junction Pocket Park Anticipated Start 2024
Crestview Play and
Discovery Area Replacement
Design
East Boulder Community
Park
Anticipated Start 2024
Universal Access Plan Anticipated Start 2024
26
Planning
•Facilities development partner search
The City of Boulder is seeking a development partner to form a public-private
partnership (P3) to help design, construct, finance, operate and maintain several city
facilities, including the East Boulder Community Center. Potential partnerships will be
considered as part of the Future of Recreation Centers project. Staff is currently working
on scoping the Future of Recreation Centers project and will update PRAB in 2024 as
more information is available.
•Coot Lake Foot Bridge Replacement
Construction at Coot Lake is still pending permit approval at this time. The planning
team is tracking for a construction start in mid-late December.
•Harbeck House Entry Drive and Window Blinds
Driveway: In late September, a Landmark Alteration Certificate was issued for the repair
of the driveway at the Harbeck-Bergheim House. The proposed work was reviewed and
approved by the Landmark Design Review Committee. Over a period of two days, the
damaged portion of the driveway was removed by an outside contractor and replaced
with fiber-reinforced concrete. The new driveway is in the same footprint as the original
driveway, and with the addition of a low-profile swale/pan, drainage at the site is
improved as well as the overall appearance of the landmark property.
Window Blinds: Window blinds have been installed on both the first and second floor
windows of the Harbeck-Bergheim House. Previously, only a few windows had blinds,
most of which did not match or function properly. These new blinds will reduce UV
damage to the original floors, increase energy efficiency, and provide a greater level of
security for the building’s occupants.
C. Parks and Recreation Operations Update
Boulder Reservoir Aquatic Nuisance Species (ANS) overview
Eurasian Watermilfoil (EWM) was detected in the Boulder Reservoir in August 2022. The
invasive plant has spread quickly. Through drone footage and a follow-up survey of the
reservoir conducted by Colorado Parks and Wildlife (CPW), staff has found that EWM covers
roughly one-quarter to one-third of the reservoir primarily along the western coves. Staff have
surveyed Coot Lake, Dry Creek, Lake Valley Estes ponds, and Framers Ditch and have not
found EWM therefore, it is still unclear on the origin at the Reservoir. The city is working
toward implementing an adaptive management approach, likely using some combination of
biological, mechanical, and chemical approaches. To help inform the process and ensure we are
implementing productive and cost-effective measures, the city is hiring a consultant to develop
an EWM Management Plan. BPR staff are collaborating with the Utilities Department and
Northern Water to review proposals, with an expected start date in early January 2024. A
completed draft plan is anticipated in March. Depending on the approach implementation of the
EWM management would begin in April or May. City staff are also working with the city of
Westminster to utilize their expertise and success in habituating and harvesting weevils from
27
their established program. Westminster was not successful in harvesting weevils this fall and
will attempt again in the spring or early summer. BPR staff will continue to provide the PRAB
with updates as the Management Plan is developed and will keep the PRAB informed regarding
any significant recreational operational adjustments.
Drone photos: The two photos below illustrate the degree to which the reservoir has changed
because of this plant. The top photo is from late 2021; the bottom photo is from September 2023.
Flatirons Golf Course – Contractor Lease Agreement update
The Tanoa Inc. Contractor lease agreement that PRAB approved at the business meeting in
November was approved through the consent agenda at the city council meeting held on
December 7. BPR staff will execute the agreement and Tanoa Inc. can begin procurement of the
liquor licensure and development operations. The restaurant is scheduled to begin operations
with the completion of the building in Summer 2024.
28
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: December 18, 2023
A.PLAY Boulder Foundation Presentation. Angie Jeffords.
29
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: December 18, 2023
A.View of Final PRAB Handbook
a.Attachment A
B. PRAB Study Session Poll Results
C.PRAB Matters (Verbal)
30
Page 1 of 18
City of Boulder
Handbook for Members of
Parks and Recreation Advisory Board (PRAB)
Adopted: February 2008
Amended: October 2023
Attachment A
31
Page 2 of 18
Welcome to the Parks and Recreation Advisory Board! We, your fellow Board Members, look
forward to meeting and working with you. We hope this welcome packet will provide a
foundation for your five years of service by providing an overview of the role of the PRAB in City
government, our responsibilities, and the meeting process. We strongly encourage you to read
this packet thoroughly before your first meeting. Being on a board will often require reviewing
relatively large volumes of information. Foundational materials for the PRAB include the PRAB
Handbook (attached) and the Parks and Recreation Plan. The latter is a large document that is
best read over time.
The PRAB staff liaison is Rosa Kougl, the Executive Assistant in the Boulder Parks and Recreation
(BPR) Director’s Office. Rosa can be reached at PRABAdmin@bouldercolorado.gov or 303-413-
7223. As you will learn in the Boards and Commissions Orientation, to ensure that public
business is conducted publicly and in compliance with the Colorado Open Records Act, we do
not communicate using “reply all” or chains of e-mails or other means of group or serial
communication. If you wish to share information with other PRAB members (without further
group discussion except in a public meeting), the staff liaison can forward the e-mail on to
members of the PRAB and appropriate staff, while preserving the e-mail as part of the public
record. One-on-one chats with other PRAB members are fine; just please make sure you don't
communicate, serially or otherwise, with three or more PRAB members outside of a public
meeting.
Your fellow board members are:
Term Ending 2024
Charles “Chuck” Brock,
President
Cell: 303-887-2523
charles.a.brock@comcast.net
Term Ending 2025
Jason Unger 202-380-7535
junger29@yahoo.com
Term Ending 2026
Elliott Hood
Vice Chair
312-607-9295
ehood@celaw.com or elliott.hood@gmail.com
Term Ending 2027
Anita Speirs 720-987-0195
anitaspeirsboulder@gmail.com
Sarah “Sunny” van der Star 303-956-4207
sunny.klaber@gmail.com
Term Ending 2028
Andrew Bernstein Cell: (610) 618-6272
boulder.bernstein@gmail.com
Anna Segur 720-412-6847
annasegur@yahoo.com
Attachment A
32
Page 3 of 18
You will find that we all have different backgrounds and perspectives, and we know that you will
bring your own to the PRAB. To help new PRAB members become familiar with the role of the
PRAB and our meeting processes, you have the option of accepting an existing PRAB member as
a mentor; this process will be discussed at the time of your first meeting.
Our regular meetings are generally held on the fourth Monday of each month, with some
exceptions for conflicts with holidays, etc. We also have 2-3 additional study sessions or joint
meetings with other city boards during the year. Most meetings are in hybrid format (in-person
with remote public participation), but we request that you attend in person unless special
circumstances apply. Please pay attention to e-mails from PRABAdmin@bouldercolorado.gov,
which will include information on the meetings. Most meetings are held in the City Council
Chambers in the municipal building, but occasionally we may meet in different public venues or
take tours of department facilities. Dinner will be provided; please notify Rosa Kougl about any
dietary restrictions you may have. In the week before each meeting, you will receive a link to the
"packet", which is a collection of documents that will be discussed at the meeting. The PRAB
Handbook describes the different components of this packet (e.g., Matters from the
Department, Items for Action, Matters from the Board) and summarizes the work flow of each
meeting.
The Parks and Recreation department is a large department serving the needs of the people and
environment in Boulder. As you learn about all of the services provided, please feel free to ask
questions and explore resources like the Parks and Recreation website and the PRAB website.
Our community outreach toolkit will help you navigate upcoming meetings and potential
communications from community members.
Parks and Recreation has excellent social media and email lists. You are invited to sign up for
newsletters and follow the accounts on Facebook, Twitter, and Instagram, as well as BPR’s
official non-profit philanthropic partner, the PLAY Boulder Foundation, to learn more about
events and the work of Parks and Recreation.
We look forward to having you on the PRAB!
Sincerely,
The Parks and Recreation Advisory Board
Attachment A
33
Page 4 of 18
I.LAWS RELEVANT TO PRAB’S WORK
A.City of Boulder Charter – PRAB’s Creation and Function
The City of Boulder and its government is established through its Charter. The Charter
establishes a City Council to govern the City, a City Manager to exercise all executive and
administrative powers vested in the City, and administrative departments of the City, including
the Department of Parks and Recreation (the “Department” or “BPR”). See Charter, Article II
(Council), Article V, Secs. 63 (City Manager), Article XI (BPR). The Charter also establishes the Parks
and Recreation Advisory Board (“PRAB”). See Charter, Article XI, Sec. 157.
1.Basic Requirements of the PRAB
Under the Charter, the PRAB shall consist of seven members appointed by City Council
who serve presumptive terms of five years. Id. Sec. 158. The Charter further states that the PRAB
shall choose a Chair and secretary, who may be the BPR director. Id. Sec. 159. The PRAB shall have
regular meetings once a month, though special meetings may be called at any time by three
members of the PRAB upon 24 hours’ notice to all members of the PRAB. Id. Four members of the
PRAB shall constitute a quorum, id., which is the minimum number of members required to hold
a meeting and conduct business for the PRAB. A majority vote is required to authorize action by
the PRAB. Id. The PRAB must keep minutes of its meetings and its transactions. Id. Pertinent here,
the PRAB “shall have the power to make reasonable rules for the conduct of its business.” Id.
2.PRAB’s Function and Core Responsibilities
The Charter also specifies the PRAB’s function. See Article XI, Sec. 160. Under the Charter,
“the [PRAB] shall not perform any administrative function unless expressly provided in this
charter. The [PRAB]:
(a)Shall make recommendations to the council concerning the disposal of parks lands
pursuant to Section 162 of [the] charter;
(b)Shall make recommendations to the council concerning any expenditure or
appropriation from the permanent park and recreation fund pursuant to Section 161
of [the] charter;
(c)Shall make recommendations to the council concerning the grant or denial of any
license or permit in or on park lands, pursuant to Section 164 of [the] charter;
(d)Shall review the city manager’s proposed annual budget as it relates to park and
recreation matters and submit its recommendations concerning said budget to the
council;
(e)May, at the request of the council or the department of parks and recreation, prepare
and submit to the council city manager, or the department recommendations on such
park and recreation matters as are not provided for by paragraphs (a), (b), (c), and (d)
above; and
Attachment A
34
Page 5 of 18
(f)May request information and recommendations from the department pursuant to the
provisions of Section 155(d) above.
Further, City Council and BPR “shall not act on any of the matters set forth in paragraphs
(a), (b), (c), and (d) above without securing a recommendation from the board as above provided;
however, the council and department may act on the matters set forth in paragraphs (c) and (d)
above without a board recommendation if the board fails to submit its recommendation to the
council within thirty days after request therefor is made by the council.” Id. Further, the PRAB’s
recommendations pursuant to this section “shall not be binding on the city council unless
expressly provided by this charter.” Id.
Moreover, the Charter specifies how BPR must function in relation to the PRAB. Article XI,
Sec. 155. For instance, Section 155 of the Charter states that the Department: “(c) shall prepare
and submit to the [PRAB] written recommendations on those matters where this article requires
a recommendation from said board prior to council or department action”; “(d) may, at the
request of the [PRAB], prepare and submit to the [PRAB] information and recommendations on
such park and recreation matters as are not provided for by (c) above”; and “(e) may request
advice on any park and recreation matter from the [PRAB]”. Article XI, Sec. 155.
3.Franchises, Leases, Permits, and Licenses in Parks
The Charter also specifies a role for PRAB regarding franchises, leases, permits, and
licenses in parks. Under Section 164 of Article XI, City Council “may by motion grant leases,
permits, or licenses in or on park lands, but only upon the affirmative vote of at least four members
of the [PRAB].” The City Council “may, by ordinance, delegate all or any part of this authority to
the [PRAB] to approve such leases, permits, or licenses.” Id. As described below in Section I.B., the
City Council, by ordinance, has delegated to the PRAB the authority to approve leases, permits, or
licenses on park lands “whose term does not exceed three years.” B.R.C. 8-3-23.
Further, “the [PRAB] may, by motion, subdelegate all or any part of its delegated authority
to approve such leases, permits, or licenses to the city manager.” Id. The City Manager “may enter
into standard commercial licensing agreements for automatic food vending machines on park
lands without the approval of the [PRAB] or the council.” Id.
4.Acquisition and Disposal of Park Property
Regarding acquisition of park land, Section 163 of Article XI specifies that, while City
Council may acquire park land for the city, it “shall not make any expenditure of money for the
purpose of acquiring park lands without first securing a recommendation from the planning board
and the [PRAB], provided, however, that City Council “can act without such recommendations if
said board fail to submit their recommendations to the council within thirty days after request
therefor is made by the council.” Id. These recommendations “shall not be binding on the council
except that the recommendation of the [PRAB] concerning expenditures from the permanent park
and recreation fund shall be binding on the council pursuant to Section 161 of [the] charter.” Id.
Similarly, regarding disposal of park property, Section 162 of Article XI states that park lands may
be disposed of by City Council, “but only upon the affirmative vote of at least four members of the
[PRAB].” Id. City Council may obtain a non-binding “advisory recommendation” from the planning
board on land disposal. Id. Lastly, “park land” "park property," and "recreation facilities" are
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defined in Section 154, “…all lands donated to the city for park or recreation purposes, acquired
by the city through purchase, dedication, deed, or condemnation for park or recreation purposes,
or purchased or improved in whole or in part with funds from the permanent park and recreation
fund”.
5.Permanent Park and Recreation Fund
The permanent park and recreation fund consists of: “(a) an annual levy of nine-tenths of
one mill on each dollar of assessed valuation of all taxable property within the city; (b) gifts and
donations to the fund; (c) proceeds of the sale of any part or recreation property or equipment
whether real, personal, or mixed; and (d) appropriations made to the fund by the city council.”
Charter, Article XI, Sec. 161. Expenditures from this fund “shall be made only upon favorable
recommendations of the [PRAB] and appropriation by the council.” Id. the fund “shall not be used
for any purpose other than the acquisition of park land or the permanent improvement of park
and recreation facilities.” Id.
B. City of Boulder Municipal Code
While the City Charter establishes the city and its government, the City’s Revised Municipal
Code establishes additional laws and rules based on the Charter so that the City can properly
function. Think of the City’s Charter as the City’s “constitution” and its municipal code as statutes
or laws enacted based on that constitution. All laws in the municipal code flow from the Charter
as well as applicable state and federal laws. The Charter can be amended only by voter approval
while the municipal code can be amended by majority vote of City Council.
The municipal code has laws that apply generally to all city functions, including its boards
and commissions, and many of which apply only to the administration of our parks system. For
instance, the code generally provides that boards and commissions must:
•hold regular meetings open to the public;
•keep minutes of those meetings;
•appoint a chair, vice chair, and secretary
•conduct its meetings under the then-current Robert’s Rules of Order, unless the boards
or commissions adopt different rules; and, among other things,
•determine whether to hold meetings in person, remotely, or in hybrid format.
B.R.C. 2-3-1.
The code also has rules that apply specifically to the PRAB. For example, as mentioned
above in Section I.A., under B.R.C. 8-3-23, pursuant to Section 164 of Article XI of the City’s Charter,
“the [PRAB] is delegated the authority to approve any lease, license, or permit in or on park lands
whose term does not exceed three years, as may be recommended to it by the city manager.”
Section 2-3-10 of the municipal code codifies the role and responsibility of the PRAB as set
forth in the Charter, but also adds additional rules not inconsistent with the Charter:
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(a)The City of Boulder Parks and Recreation Advisory Board consists of seven members,
appointed by the city council for five-year terms;
(b)The city manager shall serve as secretary of the board;
(c)Four members of the board constitute quorum. The board may only act on affirmative
vote of at least a majority of all members present at a meeting. Three members of the
board may call a special meeting.
(d)The Board’s functions are:
1)To approve or disapprove proposals concerning the disposal of park lands and
forward such recommendations to the city council;
2)To approve or disapprove expenditures or appropriations from the permanent
park and recreation fund and forward such recommendations to the city
council;
3)To make recommendations to the council concerning the grant or denial of any
license or permit in or on park lands;
4)To make recommendations to the council concerning protection and
maintenance of park lands;
5)To review the city manager’s proposed annual budget relating to parks and
recreation matters and submit its recommendations concerning that budget to
the council;
6)At the request of council, the city manager or the department of parks and
recreation matters and submit its recommendations concerning that budget to
the council;
7)At the request of council, the city manager[,] or the department of parks and
recreation, to prepare and submit to the council, manager[,] or department,
recommendations on any additional park and recreation matters; and
8)To request information and recommendations from the department of parks
and recreation pursuant to the provisions of Charter Section 155.
(e)The board is not authorized to issue subpoenas.
C.Colorado Open Meetings Law
As a local public body, the PRAB is subject to the requirements of the Colorado Open
Meetings Law (COML), which is codified at Colorado Revised Statute (CRS) 24-6-401 and 402.
Under COML, “all meetings of a quorum or three or more members of a local public body,
whichever is fewer, at which any public business is discussed or at which any formal action may
be taken are declared to be open to the public at all times.” C.R.S. § 24-6-402(2)(b) (emphasis
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added). A “meeting” is defined as “any kind of gathering, convened to discuss public business, in
person, by telephone, electronically, or by other means of communication.” Id. § 402(1)(b).
Further, “any meetings at which the adoption of any proposed policy, position, resolution, rule,
regulation, or formal action occurs or at which a majority or quorum of the body is in attendance,
or is expected to be in attendance, shall be held only after full and timely notice to the public.” Id.
§402(2)(c)(I). This “notice” can be accomplished by a number of means but must at minimum be
“posted in a designated public place within the boundaries of the local public body no less than
twenty-four hours prior to the holding of the meeting.” Id. Moreover, “the public place or places
for posting such notice shall be designated annually at the local public body’s first regular meeting
of each calendar year” and “shall include specific agenda information where possible.” Id.
Essentially, our meetings are and should be open to the public. We must notify the public
at least 24 hours in advance of any meetings where “public business is discussed or at which any
formal action may be taken,” whether those meetings are in person, over the telephone, or
electronically. Please note that, under this law, a meeting of three or more PRAB members, or a
quorum of the PRAB if less than three people, constitutes a "meeting” under the law—whether
that is an in-person meeting, telephone discussion, or email chain—and must therefore be
publicly noticed. Failure to follow these requirements could result in a violation of this law and
possible legal action against the City, the Department, or the PRAB.
You can access and read the entire COML here.
D.COLORADO OPEN RECORDS ACT (CORA)
Another important law that impacts the PRAB’s work is the Colorado Open Records Act
(CORA), codified at C.R.S. § 24-72-201-205.5. CORA declares that “all public records shall be open
for inspection by any person, at reasonable times,” unless the records fall into very specific
statutory exceptions. C.R.S. § 24-72-203(1)(a). A “public record” is “a writing made, maintained,
or kept by the state, any agency, institution, . . ., or political subdivision of the state, . . ., and held
by any local-government-financed entity for use in the exercise of functions required or
authorized by law or administrative rule or involving the receipt or expenditure of public funds.”
C.R.S. § 24-72-202(6)(a)(I). A “political subdivision” includes “every county, city and county, city,
town, school district, special district, public highway authority, regional transportation authority,
and housing authority within this state.” Id. § 202(5).
Our board is subject to the provisions of this statute and, thus, our correspondence and
other documents concerning official PRAB business, as well as our correspondence with BPR staff,
are subject to CORA. Note that documents created or maintained by BPR staff are also subject to
CORA, so their emails and other correspondence with us, subject to certain statutory exceptions,
are public records. In other words, subject to specific statutory exceptions, your emails and other
documents used in furtherance of this body’s business likely applies as public records and,
therefore, may be subject to public disclosure if requested under CORA. Please be mindful of that
when you are creating or maintaining documents or sending correspondence on the PRAB.
II.PRAB RULES FOR CONDUCTING BUSINESS
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As noted, the PRAB is authorized to create its own rules to conduct its business, so long as
those rules are consistent with the Charter and municipal code. Sections II, III, and IV of this
Handbook shall constitute the rules of the PRAB and shall be amended only as provided below.
A.Basic Principles
The following is a non-exhaustive list of the basic principles of fair parliamentary procedure
that members of the PRAB shall strive to uphold:
1.Rules should facilitate the transaction of business and promote cooperation and
harmony;
2.All members have an equal vote concerning business of the PRAB;
3.The PRAB acts by majority vote, but the rights of minority votes must be
respected and protected;
4.PRAB members have a right to full and free discussion of any and all issues
presented to the board for action, recommendation, or otherwise, but balanced
with the duty to efficiently and timely address all topics set for discussion in a
meeting agenda;
5.No member of the PRAB shall be forced to take a vote on any item if that member
does not feel he or she fully comprehends the meaning and effect of the vote
being taken (but note that abstaining from a vote is considered a vote in the
affirmative under the City’s municipal code, see B.R.C. 2-3-1(f));
6.Meetings should be characterized by fairness and conducted in good faith.
B.Officers
The PRAB shall have a chair, a vice-chair, and a secretary. Pursuant to the City’s municipal
code, the secretary shall be the City Manager or someone designated by the City Manager. The
secretary of the PRAB is not a member of the PRAB and therefore has no voting authority.
The chair and vice-chair shall be current PRAB members chosen by majority vote of the
PRAB at its first business meeting following the annual City Council board appointments.
The chair shall run PRAB meetings consistent with these rules and Robert’s Rules of Order.
The chair shall, in running meetings, shall:
•recognize a quorum;
•call meetings to order;
•call for motions and for debate on such motions;
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•ensure that public comment, if any, is heard according to these rules and the policies
of the City of Boulder and the BPR;
•ensure that BPR staff and other non-board participants have the opportunity to report
information to and seek action, guidance, or recommendations from the PRAB;
•ensure that the board’s business is conducted timely, fairly, and efficiently;
•facilitate discussion between among board members;
•enforce rules and expectations of decorum;
•ensure that each board member who wishes to speak on an issue is heard;
•rule on all questions of parliamentary procedure; and
•close the meeting.
The vice chair shall, without the need for a majority vote or appointment by the chair, run
meetings consistent with these rules when the chair is not able to attend a PRAB meeting or is
otherwise not able to run the meeting.
The chair and vice chair shall work with BPR staff to set the agenda and ensure necessary
information and materials are available for PRAB meetings.
The PRAB may, by an affirmative vote of a majority of the current members of the PRAB,
at a publicly noticed meeting, remove the chair or vice-chair from their position in leadership of
the PRAB. Should a vacancy arise in the office of either the chair or vice-chair, the PRAB shall fill
the vacancy by majority vote at a publicly noticed meeting of the PRAB.
C.Conduct & Rights of PRAB Members
PRAB members shall conduct themselves consistent with these rules and consistent with
City of Boulder policies concerning service on boards and commissions. Along these lines, each
PRAB member must ensure that he, she, or they:
•do not purport to act on PRAB’s behalf unless a majority of PRAB members, in a publicly
noticed meeting, have delegated authority for that member to so act;
•clearly identify in any forum whether they are speaking on behalf of the PRAB or for
themselves, including but not limited to city council meetings, newspaper articles or
letters, and other public or private engagements;
•recuse from matters raising a conflict of interest consistent with Section II.D., below;
•act professionally and courteously with each other and with city council, city staff, and
the public.
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During meetings, PRAB members have a right to make motions, vote on such motions,
speak in debate on motions, call for the retaking of a motion if the result is doubted by that
member, make a point of order to insist on the enforcement of the rules, provide comment to
other PRAB members or BPR staff on matters under discussion, and make a parliamentary inquiry
of the presiding officer if that member is not certain whether there is a breach on which a point
of order should be made.
Further, while the PRAB chair shall rule on any questions of parliamentary procedure, any
two PRAB members can require the chair to submit a ruling to the vote of the PRAB by moving for
and seconding an appeal immediately after the presiding officer has made such a ruling. This
motion divests final decision of the parliamentary ruling from the chair and vests that final
decision with the PRAB.
D.Conflicts of Interest/Code of Conduct
A PRAB member shall not perform an official act that has a direct benefit to the member
or on a business or other undertaking in which such member has a direct or substantial financial
interest. If an actual conflict of interest exists, the member shall disclose the basis of the actual
conflict of interest in a public meeting to the other members in attendance before discussion of
the relevant matter or as soon thereafter as the member identifies or recognizes the actual
conflict and shall recuse from further discussion on the matter and disqualify himself, herself, or
themself from taking official action on the matter.
A PRAB member may also or alternatively have an apparent or perceived conflict of
interest, meaning the member does not have an actual conflict of interest but may reasonably be
perceived as having an interest in the outcome of a vote which could be viewed by the public as a
conflict of interest. A PRAB member who believes, or reasonably should believe, that he, she, or
they may have an apparent or perceived conflict of interest: (1) shall disclose the basis of the
apparent or perceived conflict of interest in a public meeting to the other members in attendance
before the discussion, hearing, or official action related to the matter in question, and (2) may
recuse from any discussion on the matter and disqualify himself, herself, or themself from taking
any official action on the matter. In other words, PRAB members with an apparent or perceived
conflict have discretion to recuse in the exercise of sound judgment. If a PRAB member believes
that they may have a conflict of interest or are unsure they should reach out to the City Attorney
that supports PRAB for advice.
Please note that the definition of “member” for this conflict policy is broad and can be
found in the City’s municipal code at Title 2-7-14. Please also familiarize yourself with the City’s
Code of Conduct, which can be found at Title 2, Chapter 7, which can be accessed here.
E.Speaking on PRAB’s Behalf/Code of Conduct
PRAB members may communicate with members of the public, including City Council,
individual City Council members, other boards or commissions, press publications, or otherwise,
in their personal capacity and noting that he, she, or they are members of the PRAB.
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However, as noted above in Section II.D., PRAB members may not speak on PRAB’s behalf
unless a majority of the PRAB members have delegated that member to speak on PRAB’s behalf
consistent with these rules. If a PRAB member is delegated to speak on PRAB’s behalf, the
delegating PRAB members shall endeavor to direct or instruct the speaking member as clearly as
possible on the purpose and scope of the delegation and authority to speak on PRAB’s behalf.
Any motion presented to Council by the PRAB shall be in writing. PRAB may designate a
PRAB member to present the motion to City Council during the period of public comment or, if
requested by City Council, the City Manager, or the Department, during the Council meeting. The
PRAB member authorized to present the motion shall provide written copies of the motion to City
Council and request to read the complete text of the motion to City Council.
This conduct also falls within the City’s Code of Conduct, which can be accessed here.
F.Resolutions of the PRAB
From time to time, the PRAB may desire to act through a resolution. A resolution is a
written document that sets forth a board’s decision or action. A board may adopt resolutions for
any purpose the board deems appropriate, including taking formal action on a particular business
item or communicating the board’s position on a matter of public concern.
A resolution may be proposed by any PRAB member. If a resolution is proposed, the chair
shall call for a discussion of the proposal and, after such discussion, shall ask for a motion on
proceeding with a resolution for the purposes proposed. If a majority of the PRAB votes to proceed
with a resolution, the chair shall designate a PRAB member to draft the resolution with the
assistance of BPR or other City staff, including the office of the City Attorney. The PRAB shall
consider and vote to adopt the written resolution at a publicly noticed meeting. It is important to
note that PRAB may adopt resolutions so long as they are within the PRAB’s scope of legal
authority. However, only city council has authority to set policy for the city.
G.Making, Debating, and Voting on a Motion
Any member of the PRAB may make a motion during a meeting.
If a motion is made, the chair shall ask for a second. If no member seconds the motion, the
chair shall not recognize the motion and the motion dies. If a member seconds the motion, the
chair shall recognize the motion and ask for debate on the motion.
In parliamentary procedure, “debating” a motion allows members of an assembly to
discuss the merits of a particular question, stating that they “support the motion” or “do not
support the motion” and providing specific reasons for that position. Discussion shall focus on the
substance and merits of the motion and not on the motive for bringing the motion. Asking a
question of clarification on the motion or subject-matter underlying the motion is not considered
a statement in the debate.
Once it appears that all PRAB members have had an opportunity to “debate,” or discuss,
the motion, the chair shall ask whether there is any further discussion on the motion. If not, the
chair shall call for a vote on the motion, at which point roll shall be taken to obtain the vote of
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each member of the PRAB, including the members who made and seconded the motion. The
board secretary or designee shall tally the votes and announce whether the motion carries or fails.
A member may ask that a motion be amended. Amendments must be closely related to
the subject of the motion. While amendments may be hostile to or intended to defeat the purpose
of the original motion, such amendments are discouraged. Amendments may insert or add words
into the motion, strike words from the motion, or substitute words from the motion. If a member
desires to amend a motion, the member shall move to amend the motion. If the motion is
seconded, the presiding officer shall recognize the amendment and call for debate on the
amendment. If no second is obtained, the amendment dies. Once discussion on the amendment
is over, the presiding officer shall put the amendment for a vote.
The secretary of the PRAB or his or her designee shall tally the vote of any motion and
announce whether the motion carries or fails. The chair shall then announce that the motion has
carried or failed and proceed with the meeting.
Motions are improper if they: conflict with the City Charter, the municipal code, or state
or federal law; it is outside the PRAB’s scope of legal authority; it is dilatory, out of order, seeks to
thwart the will of PRAB, or is objectively absurd in substance. If an improper motion is made, the
presiding officer shall state that the motion is improper and is thus not recognized.
Voting shall be by roll call on a rotating basis of the roll for motions concerning: disposal
of parks land, expenditures or appropriations from the permanent parks and recreation fund,
grant or denial or any license or permit in or on park land, review of the budget, and
recommendations on the budget.
For all other motions, the vote may be taken by voice, by show of hands, or by roll call on
a rotating basis of the roll as determined by the presiding officer, subject to appeal.
Unless otherwise provided in the City Charter or municipal code, an affirmative vote of a
majority of the members of the PRAB shall be necessary to authorize any action of the PRAB.
Any member who doubts the result of a voice vote may require a retake of that voice vote
as a show of hands or other means.
Any PRAB member may abstain from voting if that member is not adequately informed on
the motion or the subject of the motion, but the abstaining member must state a basis for
abstaining. Please note that abstaining from voting is, under the City’s municipal code, considered
a vote in favor of the motion. See B.R.C. 2-3-1(f).
Any PRAB member may recuse from a vote based on a conflict of interest.
III.MEETING PROCEDURES AND EXPECTATIONS
A.Meeting Time, Place, and Format
Meetings are held on the fourth Monday of each month starting at 6:00 p.m. and are
publicly noticed on the PRAB’s web page.
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Historically, all meetings were held in City Council chambers. However, the COVID-19
pandemic, which began in March 2020, prompted the PRAB, other boards and commissions, and
Council itself, to hold its meetings virtually. Since January 2023, the PRAB has held its meetings in
a “hybrid” format, allowing members to attend in person or virtually. Members of the public may
be limited to virtual attendance, including during public comment, if there is a public health or
safety concern as provided in B.R.C. 2-3-1(b)(7).
Within this new hybrid format, the PRAB has established a preference that all members
attend meetings in person, though members may attend virtually if they are not able to physically
attend a meeting. PRAB members do not need permission or an affirmative vote from the PRAB
to attend a meeting virtually, but members attending a meeting virtually are asked to notify the
PRAB and BPR staff prior to the meeting of their need to attend virtually so that BPR staff, the
agenda committee, or other PRAB members may make appropriate arrangements for that virtual
attendance. PRAB members attending virtually are strongly encouraged to have their screens
turned on at all times so the public may ensure that the member is present and participating.
Meeting locations are determined by the Agenda Committee.
Hybrid or virtual meetings present unique challenges, including the ability to recognize
whether a member is asking to speak. The presiding officer shall recognize speakers desiring to
speak and PRAB members shall attempt to claim the floor by raising their hand (physically or using
a virtual hand-raise feature) before speaking. The chair shall recognize speakers in the order in
which the speakers raised their hands or otherwise indicated a desire to speak.
B.Preparing for Meetings
BPR staff shall distribute meeting packets to the PRAB before each meeting. Meeting
packets are typically distributed the Wednesday before Monday meetings.
PRAB members are expected to review meeting packets and otherwise come prepared to
each meeting. Any questions about the meeting packet should be directed to BPR staff or PRAB
officers in accordance with the Open Meetings Law discussed above.
C.Presiding Officers
The chair of the PRAB presides over each meeting. If the chair is absent, the vice chair shall
preside. If both the chair and the vice chair are absent, the present PRAB members shall elect a
provisional presiding officer by majority vote. Presiding officers shall conduct themselves and
recognize the rights of others consistent with the rules set forth in this handbook.
The secretary of the board shall be present for each meeting. If the secretary is absent, the
PRAB shall appoint a provisional secretary for the meeting by majority vote.
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D.Quorums
Four members of the PRAB constitute a quorum as specified in Article XI, Section 159 of
the City Charter. The presiding officer of each meeting shall determine whether a quorum is
present and shall thereafter call the meeting to order.
The only actions that may occur without a quorum are: fixing a time at which to adjourn,
adjourning, recessing, and taking measures to obtain a quorum. A non-quorum may proceed with
a meeting, but no action may be taken during the meeting without a quorum.
E.Consent Agenda
A “consent agenda” is an omnibus agenda item that groups routine, non-controversial
items together for approval or consideration. The consent agenda is a tool for streamlining the
process for meetings and saving time. Consent items are typically not discussed in open session,
so it is essential that PRAB members review consent agenda items before the meeting. Consent
agendas can include approval of meeting minutes, approval of the agenda for the current meeting,
appointment of a PRAB member as provisional member on the agenda committee, or action items
that have been discussed at length in a past meeting, among other things.
The chair shall ask for a motion to approve the consent agenda, at which point a member
may so move. When the motion is seconded, the chair shall call for debate or discussion on the
consent agenda. Any PRAB member may ask for debate or discussion on the consent agenda.
Because consent agendas are typically routine and non-controversial, PRAB members rarely
object to the approval of the consent agenda, though sometimes a member may move that
meeting minutes or agenda item be modified. If such an amendment is proposed, the chair shall
ask for a motion that the consent agenda be approved as amended.
F.Public Comment
Public comment allows members of the public to speak to the board on matters that
concern BPR or PRAB business not otherwise scheduled for a hearing in the agenda. Instructions
for public comment are provided on the PRAB’s web page, which is managed by the City of
Boulder. Speakers must sign up to speak to the board by a certain time before the meeting.
The PRAB may, by majority vote, allow members of the public to speak to the PRAB at a
meeting even if the speaker failed to follow the instructions for public comment. It has been the
practice of the PRAB to allow speakers to address the board even if they fail to follow those
instructions unless the speaker has repeatedly failed to follow such instructions.
Following public comment, the chair shall ask for and allow discussion from the board on
any matters raised during public comment. Any member of the PRAB may also ask that BPR staff
address a specific issue raised during public comment. The chair may also, at his or her discretion,
ask that a representative of the Department, usually the Director, to follow up with a specific
speaker or speakers concerning matters raised during public comment.
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G.Action Items
Action items are those items upon which the board must act consistent with the City
Charter and City municipal code. As noted, the PRAB may act by voting on a motion or through
approval of a written resolution.
The Agenda Committee shall endeavor to ensure that PRAB members are made aware at
a prior meeting that an action item is forthcoming and further ensure that the PRAB has sufficient
opportunity to discuss and obtain information and recommendations related to any such action
item. BPR staff typically present to the PRAB information and recommendations related to such
action items, and PRAB members are given the opportunity to ask for additional information and
recommendations from staff. Any PRAB member who feels as if they are not adequately informed
on a specific action item may abstain from any vote on that action item.
While public hearings on action items are discretionary, in the interests of transparency
and accountability to the community, the PRAB shall hold public hearings prior to voting on an
action item concerning Sections 160(a), (b), (c), and (d) in the City Charter.
Following presentation from staff and public hearing, the chair shall call for a motion on
the action item and ask for debate (or discussion) on the motion. The exact language of the motion
shall appear in the meeting minutes.
Any member of the PRAB may move, preferably at the beginning of the meeting, to add
an action item to the agenda. If such a motion is made, the chair shall call for debate on the
motion. An action item may only be added to the agenda during a meeting if a majority of the
PRAB votes in favor of the motion to add the item.
H.Matters from the Department
“Matters from the Department” typically includes a summary update from BPR on key
priorities for BPR, including a summary of upcoming work, events, and collaborative activities. For
expediency, BPR staff prepare a written update for the PRAB that is included in the meeting
packet, though staff may elaborate on key items during the meeting if, for instance, that item
involves PRAB’s input or guidance.
During this segment of the meeting, the PRAB, by majority vote, may move to request
additional information or recommendations from BPR on a matter or matters discussed. Individual
members may, without a motion, provide comment to BPR on a matter presented by BPR.
As noted, under Section 155(d) and 160(f) of Article XI of the Charter, the PRAB may, by
majority vote, request information and recommendations from the Department on any park and
recreation matter not otherwise specified in the Charter. The Department may, in its discretion,
provide such information or recommendations and, if necessary, shall ensure that the Agenda
Committee sets an agenda item for such information or recommendations.
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I.Matters from the Board
“Matters from the Board" is an opportunity for board members to share their thoughts on
issues or matters involving the PRAB or BPR’s work. This could include: feedback for staff on park
and recreation facilities, interactions with the public, providing the PRAB with an update on work
for a collaborative committee, requests for agenda items at future meetings, and so on. PRAB
members are not required to speak during this segment.
If, during this segment of the meeting, a PRAB member wishes to add an agenda item for
a future meeting, or to be considered for addition by the agenda committee, the member shall
request that the Agenda Committee (see Section J, below) add the item to a future agenda.
J.Agenda Committee
The agenda committee is composed of the chair, vice-chair, BPR Director, and any BPR
staff necessary to set future agendas. If the PRAB chair or PRAB vice-chair cannot attend an agenda
committee meeting, the absent committee member shall request that another PRAB member be
appointed as a provisional agenda committee member, and the accepting board member shall
serve as provisional agenda committee member for so long as the absence shall last.
The agenda committee usually meets on a weekday following the most recent PRAB
meeting to set the agenda for the following meeting or meetings.
The agenda committee typically receives a draft agenda from the BPR Director.
The agenda committee sets the agenda for the PRAB as a body; thus, PRAB officers, or
provisional members, shall endeavor to advocate for the interests of the PRAB as a whole when
setting the agenda.
In helping to set the agenda, PRAB officers shall prioritize agenda items requiring PRAB
action or recommendations consistent with the City Charter and municipal code.
The agenda committee shall also set the meeting location if the PRAB is holding physical
or hybrid meetings.
K.Role of BPR During Meetings
The Parks and Recreation Department prepares meeting packets containing the agenda
and any materials necessary for the meeting. Meeting packets are typically provided the
Wednesday before Monday meetings.
Packet materials should clearly articulate the subject on which PRAB’s action or input is
sought and why the PRAB’s involvement is necessary or requested. Packet materials should be
provided with enough time before a meeting for PRAB members to sufficiently review the
materials and prepare for each meeting.
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Packet materials shall endeavor to provide objective information for PRAB’s consideration.
When alternatives are proposed, BPR shall present and explain the range of alternatives and, if
appropriate, BPR staff’s recommended course of action.
Further, BPR provides notice of PRAB meetings as provided in B.R.C. 2-3-1(b)(5).
L.Other Meetings
The PRAB may hold meetings other than the monthly business meeting. Such meetings,
typically referred to as “special meetings,” shall be called by PRAB by a majority vote on a motion,
which shall include the time, place, and format of the meeting. Such meetings are subject to the
Open Meetings Law discussed above and may be study sessions, working meetings with BPR and
PRAB, or other meetings as needed.
M.Parliamentary Procedure
Except as provided in these rules or in the City Charter or municipal code, all matters of
procedure are governed by the current edition of Robert’s Rules of Order.
IV.AMENDING AND REVIEWING THESE RULES
This Handbook and the rules therein may be amended by a majority vote of PRAB members
so long as the City Attorney representing PRAB reviews and approves. Any proposed changes must
be provided in writing to the PRAB and to the Office of the City Attorney at least fifteen days
before the meeting at which the vote to amend is taken.
All PRAB members, now or existing, shall review this Handbook annually to maintain
familiarity with the contents of this Handbook, to assess the appropriateness of the rules therein,
and to evaluate if any amendments to the Handbook are needed.
V.RESOURCES
City of Boulder Charter
City of Boulder Revised Code (Municipal Code)
BPR Web Page
PRAB Web Page
Colorado Open Meetings Law
Colorado Open Records Act
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