HomeMy WebLinkAbout04.22.24 PRAB PacketAGENDA
All agenda times are approximate
I.APPROVAL OF AGENDA (2 minutes)
II.PROCEDURAL ITEMS
A.Induct new members (5 minutes)
B.Welcome new members (2 minutes)
C.PRAB Mentor assignments for onboarding (2 minutes)
D.Officer Elections (5 minutes)
III.FUTURE BOARD ITEMS AND TOURS (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 March 18, 2024
B.Updates from the Director of Parks and Recreation
C.Parks and Recreation Operations Updates
D.Parks and Recreation Planning, Design and Construction Updates
VI.ITEMS FOR ACTION
A.None
VII.MATTERS FOR DISCUSSION
A.None
VIII.MATTERS FROM THE DEPARTMENT
A.Boulder Reservoir Aquatic Nuisance Species; Eurasian Watermilfoil (30 min)
B.2025 Budget Development Strategy Roadmap and First Touch of Capital
Investment Program (45 min)
IX.MATTERS FROM THE BOARD
A.August 26, CIP Annual Field Trip (2 min)
B.PRAB Matters (Verbal) (5 min)
X.NEXT BOARD MEETING: May 20, 2024, 6pm, fully hybrid
XI.ADJOURN
Parks & Recreation Advisory Board
Fully Hybrid Meeting
6:00 p.m., April 22, 2024
Boulder Parks & Recreation
Advisory Board Members 2023
Andrew Bernstein
Elliott Hood
Waylon Lewis
Eric Raffini
Jennifer Robins
Anna Segur
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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PRAB Future Board Items Agenda
April 22 May 20 June 24
Fully hybrid for members, staff, and
community.
Fully hybrid for members, staff,
and community.
Fully hybrid for members,
staff, and community.
Regular Mtg
(c)
•2024 Hiring Campaign
•Coot Lake Dog Memorial
•Update on status of Proposed Civic
Area Historic District
•Crest View Maintenance Design Build
•Submitted ATBs
•Update on citywide strategic
plan and City Council
priorities
•Reservoir concessions update
Regular Mtg
(a) •Approve: 2025 CIP and
Fee Policy, Recommend
2025 operating) – (30
min)
Regular Mtg
(d/i) •3rd Touch: 2025 Budget
Development (Rev, Exp, Fee
Policy Updates, Fee Schedule,
CIP) (60 min)
Regular Mtg
(md)
•Boulder Reservoir Aquatic Nuisance
Species; Eurasian Watermilfoil
•2025 Budget Development Strategy
Roadmap and First Touch of Capital
Investment Program
•Court System Plan: Final Plan
•Park on Violet: Conceptual
Design + Preliminary Name
Recommendation
•Natural Lands System Plan
Kick-Off (15 min)
•
• Civic Area: Planning
Analysis and Park
Perceptions
Regular Mtg
(mb)
•Induct new members
•Welcome new members
•PRAB Mentor assignments for
onboarding
•Officer Elections
•Save the Date: August 26 CIP Annual
Field Trip
•Annual Board Email Response
and Liaison roles check-in (10
min)
•Annual Board Email
Response Check-in (10
min)
Other Mtgs
or Topics
•April 4-5: City Council Retreat
•April 11: City Council, 2nd Reading
and Public Hearing for Proposed Civic
Area Historic District
•June 19: Flatirons Golf Course
Liquor license hearing
Dept Events
& Items of
Interest
•April 24: Community Walk 'n Roll
Audit for the park on Violet (Safe
Routes to Parks)
•June 1 & 2: Arts in the
Park – Boulder Ballet
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-depth analysis.
City Council Item (cc)
Other Boards and Commissions (obc)
Community Engagement and/or Events (e)
Holiday/Closure (h/c)
Italics indicate a tentative date or plan.
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TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Mark Davison, Senior Manager, Planning
Regina Elsner, Senior Manager, Natural Resources
Jackson Hite, Senior Manager, Business Services
Aaren LeMieux, Acting Senior Manager, Urban Parks
Megann Lohman, Senior Manager, Recreation
Stephanie Munro, Senior Manager, Regional Facilities
Scott Schuttenberg, Deputy Director
SUBJECT: Consent Agenda
DATE: April 22, 2024
A.Approval of Minutes March 18, 2024
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CITY OF BOULDER
BOULDER, COLORADO
BOARDS AND COMMISSIONS MEETING MINUTES
To listen to the Parks and Recreation Advisory Board meetings in their entirety, please go to the
following link: www.boulderparks-rec.org
Name of Board/Commission: Parks and Recreation Advisory Board
Date of Meeting: March 18, 2024
Contact Information Preparing Summary: Rosa Kougl; 303-413-7223
Board Members Present: Charles (Chuck) Brock, Jason Unger, Sunny van der Star, Andrew
Bernstein, Anna Segur
Board Members Absent: Anita Speirs (resigned)
Staff Present: Ali Rhodes, Scott Schuttenberg, Rosa Kougl, Stephanie Munro, Bryan Beary, Jonathan
Hite
Guests Present: Mike Svetz
Type of Meeting: Regular
Agenda Item 1: Call to Order
The meeting was called to order at 6:02 p.m. A quorum was present for the conduct of business.
Motion to approve agenda. First motion by Hood, second by Unger. 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:
•Randall Bare, along with community support, desires that the Stone Heart Pet Memorial at Coot
Lake is allowed to stay, how and where it is.
•Lynn Segal shared that she does not want her recreation center hours cut like what Denver is
proposing to do with their recreation centers.
PRAB had the following questions/comments:
•Has the memorial been in place for over 15 years?
•What is the process for approving a formal memorial?
•Suggestion for a permanent memorial brick giving campaign.
•Question as to current status of the memorial
•Suggestion that the city treat this lightly.
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Agenda Item 4: Consent Agenda
A.Approval of Minutes from February 26, 2024, Business Meeting
Motion to approve the minutes from the February 26, 2024, Regular PRAB meeting. First
motion by Bernstein, second by Segur with an amendment to correct the language in Agenda
Item 7: Matters from the Department, Pleasant View Access Improvements, to read “How are
we going to engineer this “connection” to Kalmia in such a way that people don't use it as an
entrance to the complex”. This removes the repetition of the word “entrance” in the comment.
The motion passed 5-0.
B, C, D. Updates from the Director, Project Updates, Operations & Development
PRAB had the following questions/comments:
•Are there opportunities for more culturally diverse offerings and programming for Arts in the
Park and Bands on the Bricks?
•Excited to support the PLAY Boulder Community Forest Corp Initiative.
•How are we using our existing resources and facilities instead of thinking about new projects?
Would like a conversation about what it means for these things that are in the planning phases.
Agenda Item 5: Items for Action
•No items
Agenda Item 6: Matters for Discussion
•No items
Agenda Item 7: Matters from the Department
A.Court System Plan
O’Donnell and Briggs presented this item. PRAB had the following questions/comments:
East Boulder Community Park:
•There seems to be a misconception that we are going to build an indoor facility.
•The community is concerned that we would add these three courts and stop there.
•Does the total number of courts include just what we have the capital to build over the next 5 to
10 years, or does it include the possibility that we might build somewhere else in the future that
we don't currently have funding for.
•The handball courts are to the left, and then the playground is to the right. There needs to be
500 feet from the residential area. Is there any luck expanding beyond this or is this the
maximum capacity right here.
Valmont:
•Are road changes part of the scope. There are no shoulders and it is very frustrating.
•Currently the Park Operations yard is in this space, where would they go?
•The location of a potential facility is far away from housing, does it make sense to place it
closer to Valmont to improve access.
•Would the “up to 12” tennis courts all be new?
Tom Watson:
•There are 22 new tennis courts and 22 new pickleball courts, is the 22 the lower end of that.
•How often are Tom Watson’s courts used, have we done an analysis?
•Is another 4 years going to give us another meaningful look at how this growth of pickleball
will be sustained.
Foothills Park:
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•Will there really be an expanded parking lot with 115 spaces?
Next Steps:
•Impressed with how quickly the process is going and taking community input seriously.
B.2025 Budget Strategy Roadmap
Hite and Hoffmann presented this item. PRAB had the following questions/comments:
•Who determines the allocation of dollars from the Lottery Fund?
•Do lottery sales go up and down with the economy?
•Why is it called the .25 sales tax fund? Do the people of Boulder approve this fund?
•Is the General Fund primarily for user fees?
•Why do the sources and uses not balance?
•In terms of the sales tax being a regressive tax, is there any information on what percentage of
sales tax revenues are from tourists in Boulder.
•What is the source of money that has the most variance from year to year, what is the most
stable?
•There is a downward use in our programming, has that been reflected in our charts in the last
five years? What about in 2019, was that trending up or down?
•Are the numbers in the chart’s inflation adjusted?
•What does it mean to “realign” budget?
•What is the term fiscally constrained? W t would it be like if we had another Covid year.
•What is the biggest source of inflation?
•Given the increase in energy costs, are we looking into green retrofits?
•We do not communicate to the public how we differentiate ourselves from other facilities, we
could drive more revenue with solid marketing.
•It was a pleasure to hear Stacie and Jackson; they are very concise and have answers to every
question.
Agenda Item 8: Matters from the Board Members
A. PRAB Matters
PRAB had the following questions or comment:
•April 11 Civic Historic Area meeting will be attended by Bernstein.
•Hood was at Viele Lake sledding with the kids and noticed that the entire time, volunteers were
shoveling the tennis courts at South Boulder Rec Center; everyone seemed to have a smile on
their face.
B. PRAB Recruitment, Orientation and Departing Members
PRAB had the following questions or comment:
•Departing thoughts shared by all members to departing members.
C.Chair & Vice Chair selection process
PRAB had the following questions or comment:
•Email suggestions to board secretary by April 8.
D.Finalization of City Council Letter
PRAB had the following questions or comment:
•Bernstein will finalize and send it to the board secretary by March 19.
Agenda Item 9: Next Board Meeting
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Next Board meeting: Monday, April 22, Hybrid
Agenda Item 10: Adjourn
The meeting was adjourned at 8:42 p.m.
Approved by: Attested:
___________________ _____________________
Elliott Hood Rosa Kougl
Board Member BPR Staff
Date: ______________ Date: _________________
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B.Updates from the Director of Parks and Recreation
2024 Hiring Campaign
Boulder Parks and Recreation has launched its 2024 hiring campaign. The theme for
2024 hiring is “Play Here, Work Here, and Grow Here” recognizing many BPR staff
started their careers in seasonal positions and have grown into other roles with the
department. This includes staff who come back year-after-year in new roles and staff that
have transitioned from seasonal roles into standard year-round positions.
BPR anticipates hiring approximately 150+ seasonal positions that support nearly every
work group. After a successful 2023 hiring season, staff are building on that momentum
to keep existing staff, rehire returnees, and create opportunities for new hires.
The department has a Summer Squad Matrix Team that supports hiring for the 2024
summer season. The team is comprised of teammates from across the department and
builds leadership and project management skills while also building cross-departmental
connections. This year’s initiatives have focused on marketing BPR jobs, attending job
fairs, swag items for seasonal staff, referral and rehire stipends, and training for front-line
supervisors. On Wednesday, March 6, the city issued a press release to share the hiring
campaign with the community. BPR has a dedicated hiring webpage highlighting the
positions being recruited for and organized by the minimum age for each position. This
page also includes the many benefits of working for BPR. Most materials are also in
Spanish to support bilingual engagement and awareness for community members who
want to work for BPR. There are recruitment tables at each of the 3 recreation centers
that include all the materials listed above.
BPR hired a community connector through the Communications and Engagement
Department to share hiring materials and meet with community organizations from
traditionally under-represented communities.
Responding to comments shared by the PRAB at the March meeting, staff wanted to
provide the following updates on recruitment efforts. BPR staff have contacted the
following schools to share BPR’s marketing materials for summer jobs: Arapahoe Ridge
High School, Broomfield High School, Boulder High School, Boulder Preparatory High
School, Boulder Technical Education Center (TEC), Boulder Universal K-12 Online
School, Centaurus High School, Fairview High School, Justice High School, Nederland
Middle-Senior High School, New Vista High School, Peak to Peak Charter School,
September School, Shining Mountain Waldorf School, Tara Performing Arts, Temple
Grandin School and Watershed School.
Summer Squad Staff has attended the following job fairs: Broomfield Workforce Job
Fair, Boulder Older Adult Services Job Fair, CU Career and Internship Fair, and
Workforce Boulder / BVSD Job Fair at Fairview High School to meet candidates and
share hiring information with job seekers. Hiring resources and materials were also
shared with the Eldora Summer Employment Job Fair.
Other marketing materials have been distributed by Youth Services Initiative (YSI) staff
when they are at manufactured homes and Boulder Housing Partners (BHP) communities
delivering programming. Banners are displayed at the 2 outdoor swimming pools,
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Valmont Bike Park, 3 Recreation Centers, Boulder Reservoir and Flatirons Golf Course.
Select BPR vehicles have magnets on them advertising summer jobs. Ads have also been
placed inside of the HOP buses in Boulder. The Youth Opportunity Advisory Board
(YOAB) has created marketing videos that will be shared on social media platforms.
They are based on the popular social media meme of “I am a ____. Of course I ____.”
These videos are shared here:
-Lifeguard video
-Camp Counselor video
-Recreation Center Member Services Representative video
As of April 15, BPR has approximately 390 non-standard employees currently employed,
compared to a goal of approximately 600 non-standard staff over the summer months.
Since the March 6, 2024, press release, BPR has seen 42 employees hired for non-
standard roles. There are an additional 146 candidates in the recruitment process, with
expected start dates prior to May 24.
C.Parks and Recreation Operations Update
Arts in the Park
In response to COVID-19's significant impact on local arts and culture, and in alignment
with Boulder’s Civic Area Plan, BPR developed Arts in the Park in 2021 as a new
program providing a vibrant blend of arts and cultural performances to be held at the
historic Glen Huntington Bandshell in Central Park. For a fourth year, the city will
present Arts in the Park with performances running from June 1st to August 31st.
“Signature Performances” sponsored by the city have been scheduled on June 1st and 2nd
for Boulder Ballet, July 4th for Boulder Symphony, August 3rd for Boulder Opera, and
August 24th for Boulder Philharmonic.
Additionally, a new programming option for 2024 has been opened to provide a more
diverse range of local artists and art professionals with a viable outdoor venue to provide
art performances and experiences to the community. Community Spotlight Performances
are open to artists, arts non-profits, or arts businesses producing a performing arts event
focused on the Boulder community. In addition to fully subsidized use of the band shell
space, event support and marketing are provided to approved applicants along with a
$250 stipend for production costs. Interested applicants can apply online, and nine
applications are currently under review to be scheduled.
Performance information and tickets are available at BoulderArtsInThePark.com.
Coot Lake Dog Memorial
Staff met with interested community members in early April to discuss the potential for a
sanctioned memorial at Coot Lake. It was a productive conversation where community
members shared their thoughts and ideas, and staff were able to convey concerns and the
information necessary to evaluate any proposal. Staff are working to provide additional
information and resources, such as example agreements and resources for organizational
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documents for the group. BPR staff are eager to continue these collaborative
conversations to reach a mutually beneficial outcome for all.
Forestry EAB Expertise
Kathleen Alexander, Boulder’s Forestry Manager was recently invited to present on
Boulder’s experiences with Emerald Ash Borer (EAB) at a workshop sponsored by the
Rocky Mountain Chapter of the International Society of Arboriculture. The workshop
was hosted in Billings, Montana, in early April. While Montana has not yet detected
EAB, they are seeking to proactively prepare for the detection, planning, and
management of EAB. Billings has approximately 40% green ash in their urban canopy,
but some communities in Montana have up to 80% ash in their inventories. Kathleen,
along with Ralph Zentz of Fort Collins, presented on the importance of assembling a
team to engage in a collaborative approach to EAB management. The workshop was
attended by approximately 80 arborists and other forestry professionals from central and
eastern Montana and northern Wyoming. In addition to the professional sessions, a public
meeting hosted one evening was attended by approximately 75 community members
interested in learning more about EAB. Kathleen will be presenting on April 24th to the
Central Plant Board on Boulder’s specific experience with EAB. The National Plant
Board is a non-profit organization of the plant pest regulatory agencies of each state.
Forestry Recognition
The Arbor Day Foundation has recognized the City of Boulder with the Tree Cities of the
World designation for the fifth year in a row. Boulder is one of only 200 cities from 22
countries recognized, and one of only 48 cities in the U.S. The international program
celebrates cities across all continents that meet core standards for the care and planning of
urban trees and forests. To achieve recognition, the city met the five core standards:
establish responsibility, set the rules, know what you have, allocate the resources, and
celebrate achievements. The vision of the Tree Cities of the World program is to connect
cities around the world in a network dedicated to sharing and adopting the most
successful approaches to managing city trees and forests. More information is available at
TreeCitiesoftheWorld.org.
The Tree Cities of the World program is built off the success of the Arbor Day
Foundation’s Tree City USA program, which has provided recognition to cities within
the United States for more than 45 years. In addition to the Tree Cities of the World
designation, Boulder has been named “Tree City USA” for 41 consecutive years.
Boulder Forestry is celebrating Arbor Day with events in April and May. Boulder
Forestry staff are teaming up with the PLAY Boulder Foundation and Cool Boulder to
give away tree seedlings to Boulder community members on Saturday, April 27 at
McGuckin Hardware at 2525 Arapahoe Ave. Several planting events are also being
planned, and details will be posted to the Boulder Forestry website as they become
available.
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D.Parks and Recreation Planning, Design and Construction Updates
The following information is intended to provide the PRAB with relevant updates on
specific projects as they reach major milestones. This section is not all inclusive of all
current projects and only illustrates major project updates. For a complete list of all
current projects and details, please visit www.BoulderParkNews.org.
Overview of Major Projects
Staff continue to work on the following projects and will update the PRAB as major
milestones are achieved:
Project Status
Child-friendly City Initiative /
Youth Action Plan
Planning
Civic Area – Phase 2 Planning
Court System Plan Planning
Future of Recreation Centers Scoping
North Boulder Park Design
Flatirons Golf Course Facility Construction
Pleasantview Access Design
Park on Violet Design
Boulder Creek Safety Plan Design
East Boulder Community Park
Court Enhancement
Anticipated Start 2024 Q3
Pearl Street Place Making Anticipated Start 2025
Boulder Creek Management Plan Anticipated Start 2025
Planning, Design and Construction (PD&C)
Update on status of Proposed Civic Area Historic District
At the April 11, 2024 meeting, City Council reviewed the application for a Civic Area
Historic District City Council voted 7-1 to deny the application (Mayor Brockett
opposed). This concludes the historic district process. The response to the community-
led application included significant staff time to support the relevant board and council’s
review of the matter. Supported by the Cultural Landscape Assessment of relevant
parkland and significant research by staff in Planning and Development Services, the
council discussion included positive feedback and interest in newly discovered and
shared history on historic uses of this area. City staff commit to elevating the history that
had been forgotten or dismissed as part of the Civic Area Phase II process. Several
members of council also voiced support for a potential park renaming, which can also be
explored through the Civic Area Phase II project. The process for park naming in the
city of Boulder is outlined in the Park Naming and Dedication Policy.
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New park on Violet Avenue
Engagement window 2 for the new park on Violet Avenue is underway. Community
connectors, staff and partners are gathering input about site design preferences, naming
the new park, and making routes to and from the future park safer and universally
accessible. Staff will share the results of this engagement with the PRAB in May,
including the community’s recommendation for a new park name. As outlined in the Park
Naming policy, the PRAB will vote on that recommendation in June.
As part of this current engagement window, neighbors, partners, people with disabilities,
Crest View students and parents, and members of the PRAB are invited to attend a
community audit of park access routes on Wednesday, April 24. Those interested are
encouraged to arrive at Crest View Elementary at 2:50pm. Participants will then make
their way together up 19th St. to the future park site, capturing perceptions and
recommendations for safe, accessible routes to and from the park. More information can
be found on the project website
Crest View Maintenance Design Build
As described in the March 2024 PRAB packet, a portion of Crest View Park is
undergoing maintenance activities to address aging and defunct infrastructure in the
wetland area located immediately adjacent to Crest View Elementary School. The 2013
flood significantly impacted the wetland function, resulting in substantial damage to a
boardwalk and small amphitheater once used for outdoor learning and discovery. This
minor project will repair trails and benches in the wetland to enhance accessibility and
install a low-cost replacement nature discovery area outside the wetland where it will be
less prone to deterioration.
When funding allows, a future phase will involve community-led restoration efforts to
improve wetland function, as well as more major maintenance on park assets like the
boardwalk and amphitheater.
Figure 1: Known as "The Habitat", this wetland is immediately adjacent the school property.
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This project is in partnership with the city’s Public Works-Utilities department,
Classrooms for Climate Action (CFCA), the PLAY Boulder Foundation, Boulder Valley
School District, and Crest View teachers. For example, CFCA is leading a year-long
project-based learning unit with 5th graders on the benefits of outdoor learning, the
environmental benefits of wetlands, and the importance of taking local climate action.
These students have studied and identified plants and animal species in the wetland,
learned how effectively wetlands capture and store and store carbon, and developed
recommendations about ongoing care of this area.
All three 5th-grade classes hope to reinvigorate community stewardship of the wetland.
They also hope to reinvigorate outdoor learning opportunities for the Crest View
community and neighborhood. City staff from BPR and Utilities staff met out on site
with students and teachers to gather their ideas on how to do both, within the limited
funding and capacity currently available from the city. As the following examples
demonstrate, many students expressed interest in small-scale improvements like shade,
seating, storage for teachers, and fun, educational elements like birdhouses.
Figure 2: 5th graders' recommendations for maintenance enhancements.
These recommendations guided BPR’s approach to minor maintenance, which includes:
•Trail improvements to enhance accessibility.
•Planting additional trees with help from PLAY Boulder.
•Using wood from BPR’s forestry yard to replace benches and add stumps for
seating.
•Working with teachers and local artists to install interpretive birdhouses and a
central sculpture, also made of local wood.
•Installing an outdoor whiteboard and storage for teachers and community
partners.
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Figure 3: Illustration of the replacement discovery area (Renderings by BPR staff)
Currently in construction, maintenance activities have begun and are scheduled to conclude early
summer. During this time, staff will attend Crest View’s Spring Fling on April 26 to support 5th
grade students as they share and celebrate their work on this collaborative project with the
broader school community. BPR will continue to partner with the community to foster ongoing
stewardship of this small, but important part of the overall BPR system.
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TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Mark Davison, Senior Manager, Planning
Regina Elsner, Senior Manager, Natural Resources
Jackson Hite, Senior Manager, Business Services
Aaren LeMieux, Acting Senior Manager, Urban Parks
Megann Lohman, Senior Manager, Recreation
Stephanie Munro, Senior Manager, Regional Facilities
Scott Schuttenberg, Deputy Director
SUBJECT: Matters from the Department
DATE: April 22, 2024
A.Boulder Reservoir Aquatic Nuisance Species; Eurasian Watermilfoil
OVERVIEW
Boulder Reservoir, a locally and regionally important water supply and recreational
facility, is owned by the city and operated by the Northern Colorado Water Conservancy
District (Northern Water). Boulder Reservoir is part of the Colorado-Big Thompson
project, which includes a series of reservoirs, canals, and pipelines which transport water
from the West Slope to the Front Range. The city’s Parks and Recreation (BPR)
Department manages recreation activities on Boulder Reservoir and has been
implementing an Aquatic Nuisance Species (ANS) watercraft inspection program since
2009. Colorado Parks and Wildlife (CPW) staff spot-check and sample for ANS in the
Boulder Reservoir each year.
The Boulder Reservoir Master Plan requires annual reporting on the Boulder Reservoir
ANS program. This item summarizes the ANS program and the management strategies at
the Boulder Reservoir. City of Boulder Utilities, BPR staff, and Northern Water work
collaboratively to protect Boulder Reservoir from ANS and update their respective
boards on key management decisions. This item also summarizes the collaborative
response to Eurasian Milfoil (EWM) providing project updates of the EWM Adaptive
Management Plan to inform short- and long-term management actions.
BACKGROUND
Aquatic Nuisance Species (ANS)
ANS are invasive, non-native animals and plants that can be introduced to waterbodies
primarily via boating, angling, and dogs. Key ANS of concern in Colorado include zebra
and quagga mussels, New Zealand mud snails, and Eurasian watermilfoil (EWM). Once
introduced, these ANS can establish, and spread rapidly, and are nearly impossible to
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eradicate. ANS can adversely impact utility infrastructure and water quality, increase
water treatment costs, and limit recreational uses.
City Watercraft Inspection Program
Since 2009, the City of Boulder has enacted some of the most stringent ANS procedures,
above and beyond those required by the State of Colorado. All watercraft entering
Boulder Reservoir are inspected for ANS by state-trained and certified BPR staff.
Depending on the type of watercraft, the presence/absence of a Boulder Reservoir boat
tag, and the outcome of the inspection, the watercraft may also be decontaminated and
quarantined. Since the boat inspection program was first implemented in 2009, staff have
made continuous improvements to the program, which is self-funded via user fees per
policy direction in the Boulder Reservoir Master Plan. Since the program’s inception,
Parks and Recreation staff have intercepted two mussel-impacted boats – one in 2018 and
one in 2019.
State Program
In 2023, Colorado Parks and Wildlife (CPW) conducted 452,225 inspections and 33,833
decontaminations statewide, an increase over 2022. There continues to be a large increase
in the number of decontaminations performed as a direct result of CPW adapting to
mitigate new threats. The Regional Watercraft Inspection and Decontamination (WID)
Data Sharing System is in use at more than 200 locations across the West, including 54
in Colorado. CPW developed the System and maintains ownership and oversight. The
System is used for data entry, viewing, editing, querying, and reporting. An included risk
assessment tool shows where boats are moving after launching in mussel infested waters
and sends an alert to the next known destination. This improved timely communication
has directly increased the number of infested watercraft being intercepted within the
western region before launching in un-infested waters.
Boulder Reservoir Program
As part of the Boulder Reservoir Master Plan guided Adaptive Management practices,
the Boulder Reservoir enhanced ANS protocols in 2019 by introducing a watercraft
classification system (see Table 1) and increased requirements for when a watercraft
requires inspection, decontamination, and quarantine. As a result of these enhancements
in the ANS program protocols, the number of decontaminations has significantly
decreased over the past several years. Permit sales for the City of Boulder are presented
in Table 1 below. At the Boulder Reservoir, motorboat permit sales were consistent with
previous years with about 200 total sales in 2023.
Table 1. City of Boulder’s ANS Risk classification system for watercraft and 2022-
2024 permits sold.
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By far the greatest risk to introducing ANS is through standing water present in
watercraft, most notably in ballast tanks, and in boats moving between bodies of water.
Due to this heightened risk, boats with ballasts are considered a Class 5 craft based on the
Boulder Reservoir classification system and subject to the most stringent requirements.
The number of class 5 watercraft has continued to decrease due to the reservoir adjusted
ANS protocols implemented in 2022 for this classification of watercraft.
ANS Program Adjustments Implemented in 2023
• Implementation of outgoing inspections for all watercraft: This measure was
introduced to ensure that all watercraft leaving the reservoir underwent inspections to
prevent the unintentional transport of ANS to other bodies of water.
• Increase in education efforts: Education initiatives were intensified through the
installation of additional signage at both the north and south shores. Ongoing in-
person education conversations were conducted for permit holders to raise awareness
about ANS prevention and control measures.
• Continue Moratorium on new Class 5 boats. BPR will continue the moratorium on
new class 5 watercraft. This includes any new Class 5 permits for any boater and for
current boaters to replace their current Class 5 watercraft.
EURASIAN WATERMILFOIL
Eurasian watermilfoil (EWM), an ANS plant and List B noxious weed under the
Colorado Noxious Weed Act, was discovered in August 2022 in Boulder Reservoir
during a routine ANS spot check by CPW. EWM may impact water quality, source
water conveyance, recreational uses and aquatic life. CPW and city staff confirmed the
plant was established during a shoreline vegetation survey in October 2022 (Figure 1).
The origin of EWM in Boulder Reservoir is unknown, since the plant can reproduce from
a single fragment transported by a wide variety of vectors. EWM spread significantly in
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the western coves in 2023, limiting watercraft accessibility in those areas. Staff
implemented numerous management actions to protect recreational uses in 2023 (refer
to Figure 1 and PRAB Agenda December 18, 2023, page 27).
Figure 1. Map of approximate EWM growth in Boulder Reservoir in October 2022
(hashed areas) and October 2023 (solid areas).
Adaptive Management Plan
In late 2023, the city’s Utilities department BPR and Northern Water contracted with
Barr Consulting to develop an EWM Adaptive Management Plan to inform short- and
long-term management actions. Recognizing that EWM eradication is not likely, the
goals of the plan are to protect recreational and water supply uses, as well as water
quality and the aquatic ecosystem.
Current impacts of EWM to the reservoir are recreational, primarily limiting watercraft
use in the western coves and affecting the use of the swimming areas. To manage these
impacts and inform next steps, the City of Boulder will be implementing the following
actions, as guided by Barr Consulting:
•Conduct manual removal of EWM in swim areas - BPR staff will manually
remove EWM from the designated public swim area, and/or modify the swim
location to eliminate any potential EWM risks to public safety. In addition, staff will
monitor the swimming courses..
•Close the west side of the reservoir: The closure of the west side of the reservoir to
motorized watercraft and the year-round closure of the west shore reduces plant
fragmentation and subsequent EWM spread.
•Utilize EWM weevils: BPR staff will support a productive environment for EWM
weevils, which have been found in the reservoir and prefer to feed on EWM. If
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Westminster has EWM weevils to spare this summer from Stanley Lake, Boulder will
work to relocate more in Boulder Reservoir to increase predation on EWM in the
reservoir.
• Conduct monthly vegetation surveys to assess/track EWM growth season,
spread, and help inform management actions. Detailed survey data allows for
more precise prescriptions of selected actions, tracking of action effectiveness, and
identifying when additional actions may be warranted. BPR has purchased the
required equipment to conduct vegetation surveys which includes a new Sonar unit
and a subscription to a mapping software program. Barr’s subcontractor, Freshwater
Scientific Services will provide city staff training protocols to execute the EWM
surveys and mapping.
Staff will use the monthly vegetation surveys to help inform potential management
approaches and costs, such as mechanical, biological, and chemical controls. Based on
preliminary recommendations from Barr, ongoing vegetation surveys, lake bottom
barriers, and targeted use of herbicides may be part of the long-term strategy for
managing EWM in the reservoir. Staff will know more when the final recommendations
from Barr are provided next month.
Next Steps:
Barr Consulting is actively working on finalizing the EWM Adaptive Management Plan,
which is expected to be presented to city staff in May 2024. After reviewing the Barr’s
recommendations, city staff and Northern Water will formulate a plan for additional
actions, including long-term management and funding strategies. Additionally, a
comprehensive communication plan will be developed to ensure the community, City
Council and appropriate boards have a clear understanding of how EWM will be
managed.
BPR Staff will also continue to evaluate the growth and impacts of EWM, making
operational adjustments as necessary to minimize the potential spread and ensure a safe
recreational environment for reservoir users as we strive to preserve the reservoir
ecosystem and protect water quality.
B. 2025 Budget Development Strategy Roadmap and First Touch of Capital
Investment Program
The intent of this item is to get the new board members oriented with the 2025 Budget
Strategy and review the first touch of the Capital Improvement Program (CIP).
The Parks and Recreation Advisory Board (PRAB) has formal approval for capital
expenditures from the Permanent Park and Recreation Fund and an advisory role in
developing Boulder Parks and Recreation’s (BPR) annual operating budget.
The PRAB will be consulted monthly on BPR’s operating and capital budgets through
May, with the PRAB’s input shaping the final recommendation for the 2025 Operating
Budget and Capital Improvement Program coming at the June PRAB meeting.
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Background
At the March 18, 2024 meeting the PRAB reviewed 1) BPR’s Diverse Funding Sources,
2) 2025 Budget Strategy and Analysis and 3) the Fee Policy and Fee Schedule. Staff
appreciated the feedback and questions asked by the board and have provided additional
context to help inform the PRAB through 2025 budget development. The core
information related to BPR’s Diverse Funding Sources, 2025 Budget Development
Strategy and Analysis, and BPR Fee Policy is repeated from the March 18 memo;
however, contains additional context based on PRAB’s questions. The Capital Investment
Program – First Touch is new for all members. The Next Steps have been updated to
reflect key milestones associated with the operating budget, Fee Policy and Capital
Investment Program.
Staff are currently preparing their budgets and providing feedback on the Fee Policy, that
are not substantial updates to share related to the operating budget for PRAB with this
month’s discussion. At the April meeting, staff will provide updated Year to Date actuals
through the first quarter for each of the funds and show current projections for each of the
funds. At the May PRAB meeting, staff will provide proposed 2025 revenues and
expenses, key budget realignments, and areas of sustained investments.
BPR’s Diverse Funding Sources
BPR benefits from diverse funding streams including dedicated taxes (sales and
property), user fees, general fund support and other fund support. Understanding these
varied funding sources is an important first step in the 2025 budget development process;
please see Attachment A (2024 BPR Sources and Uses of Funds) for a funding overview
of BPR’s primary source of revenues and use of funds (expenses) in 2024.
At the March PRAB meeting, there were conversations on the general outlook for each of
the funds, along with bigger questions on where the funds originated. More context is
provided for each of the funding sources to identify the long-term financial outlook. The
diversity of BPR’s funding means some forms of funding are more stable than others,
some are regressive and some are progressive. Ultimately, the department relies on the
diversity of fundings to support operations and access as called for in the 2022 BPR Plan.
General Fund: The city’s General Fund is supported by fees, sales, property, and other
taxes. General Fund dollars are managed by the Finance department and allocated each
year to city departments and projects by City Council through the annual budget process.
The department primarily uses its allocation to fund park and forestry operations and
department administration.
The outlook for the General Fund is fiscally constrained. Sales tax revenues account for
40% of all revenue. Current trends indicate the flattening of sales tax and growth is less
than inflationary increases. The General Fund has the greatest flexibility, but also has the
greatest demands given it funds most city departments.
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Permanent Park and Recreation Fund: Funded by property and development excise
taxes, the fund is dedicated for acquiring land and renovating or improving existing parks
and recreational facilities. It may not be used to fund daily operations or routine
maintenance.
The outlook for the Permanent Park and Recreation Fund is conservative. While assessed
property values increased significantly in 2023, there are legislative proposals that could
impact the long-term revenue associated with this fund.
Recreation Activity Fund (RAF): The RAF is a quasi-enterprise fund used to operate
the department’s many recreation, fitness and sports facilities and programs. RAF funds
are largely derived from program and facility user fees with some supplemental funding
from the General Fund (primarily to subsidize programs for individuals with disabilities,
provide financial aid to those with low incomes and age-based discounts for youth and
seniors).
The outlook for the Recreation Activity Fund requires attention each year. BPR operates
the RAF as a quasi-enterprise fund, which is treated as a social enterprise. Rather than
making a profit from services, the RAF seeks to break even to provide access to the
portfolio of community recreation. This means that in good years, the RAF reinvests in
community benefit programs, and in other years, the .25ST Fund will provide a subsidy
to support these programs.
.25 Cent Sales Tax Fund (.25ST): The department receives voter-approved sales tax
funds (.25 cent) dedicated to acquiring, developing, operating, and maintaining parks and
recreation facilities. In November 2012, voters renewed the tax with an 85% voter
approval through 2035.
The outlook for the .25ST Fund is fiscally constrained due to sales tax revenue flattening
and not keeping pace with inflation. This fund provides both an ongoing and conditional
subsidy to the RAF to help support community benefit recreation and fund health. The
ongoing subsidy from the .25ST Fund to the RAF supports the realignment of the sports
turf workgroup and certain community benefit positions in 2024. The purpose of this is to
align revenues and expenses for field rentals and to support positions that further
community benefit goals identified in the 2022 BPR Plan. The conditional subsidy is a
placeholder to ensure the RAF is balanced. This amount is expected to decrease year over
year and is intended to support the RAF with fluctuations in revenue generation.
Lottery Fund: The Lottery Fund is a special revenue fund that accounts for state
conservation trust fund monies allocated to local governments based on population. State
conservation trust fund monies are dedicated to parks, recreation, and open space site
maintenance and capital improvements. The city receives lottery money on an annual
basis from the state and allocates money to the department based upon a percent
allocation.
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The outlook for the Lottery Fund assumes modest growth compared to 2023 based on a
three-year trend analysis. The Colorado Lottery Commission is the representative body
for Lottery Funds, which distributes revenues to voter-selected beneficiaries who use the
funds to preserve and protect Colorado. 40% of all state lottery funds are allocated to the
Conversation Trust Fund (CTF). Local parks and recreation providers receive money
from the CTF in proportion to their population so that every town, city, county, and
special district in Colorado benefits. These funds must be used for open space and lad
acquisition, equipment purchases, facility development, park maintenance and renovation
or restoration of local facilities. Of the approximately $1 million a year received, the city
has historically provided 37.5% to BPR and OSMP, with the remaining 15% going to
Utilities – Greenways. Starting in 2024, BPR now receives the entire portion of the city’s
allocation of Lottery funds.
Other Funds: The department receives additional funding on a limited basis from the
Capital Development Fund, General Fund Capital, Boulder Junction Capital
Improvement Fund and Community, Culture and Safety (CCS) capital improvement bond
(2012 and 2017, which was reapproved by voters in 2021 as the Community, Culture,
Resilience, and Safety tax (CCRS). These funds vary in frequency each year and are
primarily intended for one-time capital improvement program projects and are funds
shared with other departments.
These funds are intended for one-time capital investments and should not be considered
ongoing funds. The funding source for each of these varies, that BPR only looks at what
the citywide allocation is to BPR for distinct projects in the CIP.
Table 2 – Summary of BPR Funds, identifies for each of the funds whether the funds are
restricted, how the funding mechanism was created, whether is supports capital or
operating dollars, and who is responsible for revenue and expense development.
Restricted
Use
Creation of
Fund
Capital or
Operating
Revenue
Development
Expense
Development
General
Fund
No City Voters Both Budget Office Department
Staff
Permanent
Park and
Recreation
Fund
Yes City Voters Capital;
minimal
operating
for
maintenance
Budget Office Department
Staff
Recreation
Activity
Fund
Quasi City
Council
Operating Department
Staff
Department
Staff
.25 Cent
Sales Tax
Fund
Yes City Voters Both Budget Office
& Department
Staff
Department
Staff
Lottery Fund Yes State Voters Capital Budget Office Department
Staff
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Capital
Development
Fund
Yes City
Council
Capital Budget Office Department
Staff
Boulder
Junction
Capital
Improvement
Fund
Yes City
Council
Capital Budget Office Department
Staff
Community,
Culture,
Resilience
and Safety
Tax
Yes City Voters Capital Budget Office Department
Staff
Table 2 – Summary of BPR Funds
To submit a balanced budget, the department must have balanced fund financials that
ensure expenses do not exceed revenues over the course of the current year plus five
additional years. Due to cost savings in previous years, operating reserves and money that
carries over from beginning fund balance there are years where expenses will exceed
revenues. This typically occurs with capital projects that require several years of setting
aside money for a project, and then spending those funds down in a short term on a large
capital project. Excluding capital dollars, operating revenues and expenses should be
aligned year over year.
The revenue projections are developed in consultation with the Finance Department’s
Budget Office who collaborates with the University of Colorado. Expenses are developed
for consistency in citywide guidelines, reviewing historical actuals, and accounting for base
cost increases such as inflationary pressure or contractual cost increases. After staff
development and PRAB review, the department’s budget proposal is reviewed by the
Executive Budget Team before being recommended by the City Manager to City Council.
City Council will review the budget in September and October, with formal approval
coming from a public hearing.
2025 Budget Development Strategy and Analysis
At the March PRAB meeting, staff reviewed opportunities, challenges, and
recommendations as part of the 2025 budget development strategy. The PRAB agreed
with the staff’s recommendations which are listed below and will be utilized as
developing the 2025 budget.
Recommendations
Recommendations associated with the 2025 Budget Strategy are aligned with the
Financial Sustainability (p. 76-77) and Taking Care of What We Have (p. 78-80) goals in
the 2022 BPR Plan. The recommendations align with the goals and initiatives prioritized
by PRAB, City Council and community with the unanimous adoption of the 2022 BPR
Plan.
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•Realignment of existing department budget without alternate funding or reducing
service levels elsewhere.
o Financial sustainability Goal 3.1 Establish a transparent process for financial
decisions to communicate to staff and the community.
•Pursue non-traditional funding sources.
o Financial Sustainability Goal 1.1. – Evaluate and pursue non-traditional funding
sources like grants, philanthropy, and sponsorship
•Equitable Access Focus throughout budget development
o Financial Sustainability Goal 2.1 – Employ Budgeting for Resilience and Racial
Equity tools and principles in budget development and execution to ensure that
resource allocation aligns with community priorities.
•Updated PRAB input on Fee Schedule for Special Events and Commercial Use
o Financial Sustainability Goal 2.5 – Regularly assess total cost of services for all
programs and facilities to inform budgeting and fee setting.
o Financial Sustainability Goal 2.6 – Identify, track, and compare annual cost
recovery targets against actuals.
•Update underfunded and unfunded capital maintenance needs based on current
replacement value with an understanding of total cost of ownership
o Financial Sustainability Goal 2.7 – Collaborate with the Central budget Office on
how tax revenues can be used to fund future capital projects.
o Taking Care of What We Have – Goal 3 – Budget for the operation maintenance
and replacement of existing assets.
•Recommend the Parks and Recreation Department 2025 operating budget.
o Financial sustainability Goal 3.1 Establish a transparent process for financial
decisions to communicate to staff and the community.
o PRAB function identified in BRC 2-3-10 (d)(5)
•Approve the 2025 recommended expenditures from the Permanent Park and
Recreation Fund to City Council for appropriation
o PRAB function identified in BRC 2-3-10 (d)(2)
•Recommend the 2025 – 2030 Parks and Recreation Department Capital Improvement
Program to Planning Board and City Council for approval and appropriation
o PRAB function identified in BRC 2-3-10 (d)(5)
BPR Fee Policy
After significant engagement with the PRAB and Community Connectors in Residence,
the PRAB adopted the BPR Fee Policy (Attachment B) on July 24, 2023. At the
November 27, 2023, meeting, the 2024 Fee Schedule was approved by the PRAB.
The adopted Fee Policy specifies ten (10) separate categories of services across
programming, facilities, and partnerships based on community benefit and corresponding
cost recovery targets. Programs and activities that yield the greatest community benefit
are primarily funded through subsidy from the General Fund and grants. Activities that
primarily deliver individual benefit are expected to recover a minimum of 100% of their
costs through user fees. This structure overlays existing direction that the department
offer discounted access based on age and residency status.
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Table 2 – Program Type and Fee Changes identifies the program types and mechanisms
to adjust fees. As called out, the two areas with a greater emphasis in 2024 will be
Commercial Use and Special Events.
Program Type Fee Change
Golf Course Included in 2024 Fee Schedule
Rentals Included in 2024 Fee Schedule
Commercial Use Coming in 2024
Special Events Coming in 2024
Facility Entry Alternative Mechanism – updated biannually
Recreation Services Alternative Mechanism – Service Delivery Model
Contracted Programming Alternative Mechanism – contract negotiations
Resale Items Alternative Mechanism – when materials are ordered
Open Access No Fee Setting
Grants, Philanthropy and Donations No Fee Setting
Table 2 – Program Type and Fee Changes
Since the Fee Policy was adopted, staff and community members have provided feedback
on areas within the policy that could use additional clarification on the intent and
practices. BPR intends to address this feedback through proposed revisions which will be
shared with the PRAB in May.
As BPR develops the budget for both the revenues and expenses, the PRAB will be
informed of potential impacts to cost recovery targets. Based on the cost to provide
services and market research, fees listed in the Fee Schedule will be reevaluated for
potential updates. Any changes to the Fee Schedule would include a further explanation
of the cost increase in terms of a dollar and percentage amount.
The Fee Policy will return as a discussion item in May, and an action item in June. Due to
the timing of the budget development, BPR will leave a placeholder for what the Fee
Schedule updates are expected to generate; and will work with the PRAB in June and
July to update the fee schedule based on cost recovery targets, forecasted expenses, and
market conditions.
Capital Investment Program – First Touch
The Capital Investment Program (CIP) is a six-year plan to prepare for capital projects
that exceed $50,000 for the purchase, construction, or major replacement of physical
assets. The department relies on a “three touch” approach that includes: 1) a matter from
the department in April communicating process, policies, procedures, and the
definitions/criteria that guide the CIP development; 2) a discussion item at the May
meeting to review projects and prioritization as it relates to CIP; 3) a PRAB Public
Hearing to consider motions approving and recommending the department CIP.
The department’s CIP is funded primarily from the Permanent Park and Recreation Fund,
.25 Cent Sales Tax Fund and Lottery Fund. Additional source of funding that have
limitations of the type of capital investment that funding can be spent on and are not
managed exclusively by the department include the Capital Development Fund, Boulder
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Junction Improvement Fund, General Fund Capital, and the extension of the Community,
Culture, Safety and Resilience Tax.
The department has chosen to focus on the Capital Investment Strategy (CIS) to identify
a 2-year workplan for capital items, while planning for the full duration of the 6-year
CIP. The CIS was developed relying on the 2022 BPR Department Plan the maturing
Asset Management Program and planning efforts that cover System and Park Plans. The
CIS identifies the projects over the next 2 years to create more refined project charter
which include scope, schedule, rough cost estimate and project purpose. The CIS has
three components which include Asset Management, Park Plans, and System Planning.
Each of these categories is detailed below:
Asset Management: this is where the department mostly focuses on “taking care of what
we have” by enhancing, maintaining, or replacing a series of assets in the BPR system
under a specific category (i.e., courts, athletic fields, parking lots & accessibility, etc.)
Park Plans: Developing a comprehensive plan for a major facility, an existing or new
park that includes concept and schematic design with cost estimating. These plans inform
implementation of new assets, replacement of existing, and enhancement of aging assets,
as well as major maintenance actions to ensure service levels are maintained (i.e., Violet
Park Plan, Civic Area Plan). Once at the schematic design phase, projects can be phased
to build and construct new assets and/or replace existing assets that have reached the end
of their lifecycle (i.e., North Boulder Park and Bill Bower Park)
System Planning: Provide an in-depth review of specific aspects of the system as a
whole to understand how best to manage and maintain specific categories of assets in the
BPR portfolio (i.e., Historic Places Plan, and Courts System Plan)
The CIS seeks to fund the 2022 BPR Plan’s key objectives for Parks and Facilities as
identified below in Figure 1 and Figure 2. The department is striving to achieve all
projects listed in the “fiscally constrained” column. As one-time funding is approved,
BPR can support Action and Vision level projects. One-time funding such as CCRS for
East Boulder Community Center renovations and Civic Area Phase 2 make larger
projects possible. Staff and PRAB continue to hear from community members that more
of the Action and Vision level amenities are desired; however, there isn’t the funding to
provide this currently.
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Figure 1: guidance for park investments from the 2022 Department Plan
Figure 2: guidance for facilities investments from the 2022 Department Plan
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In the long-term, additional funding will be needed to improve service standards for
maintenance operations, to fund deferred maintenance, replacement of assets at the
end of their life cycle, and fund major park renovations as well as new facilities that
retain service levels or provide equity across our system (i.e. the new Park on
Violet).
Staff continues to evaluate deferred maintenance and the replacement needs for assets
at the end of their lifecycle to assist in capital planning. The current maintenance and
facility improvements backlog, including major repairs and replacements, is
significant. The department anticipates that this backlog will continue until funding
levels reach appropriate levels to accommodate life-cycle management for the
department’s assets.
BPR does not have enough funding to manage BPR assets to ensure all are in good
condition. Current funding levels require staff to prioritize projects that will leave
other projects either unfunded or underfunded. Staff have used a number of industry
standard methods to make decisions that will help BPR keep as much of the system
in the best condition possible. These tools include:
Reduce the number of projects: make tough decisions to eliminate the number of
projects and accept fair to poor asset condition or reduced service levels.
Value Engineering: do an early value engineering exercise to reduce budgets for all
projects to keep more projects above the total available budget line.
Phasing: review projects to see if they can be completed in separate chunks, reducing
scope but allow staff to keep a number of projects going. Future phases could be placed
in out years and/or added to the deferred list.
Target Budgeting: improve the scope of projects to get a better understanding of need
and therefore align scope closer to reality of an allocated budget rather than a needed
budget.
Economies of Scale: for example, doing 3 play areas at once, rather than renovating one
at time, could decrease overall design and construction costs due to site mobilization and
volume-based discounting.
At the May PRAB meeting staff will bring an updated list of under and unfunded
projects.
Next Steps
The 2025 Budget Strategy is laid out below regarding what the PRAB can expect to
review each month.
April 2024: Revisiting Budget Strategy and Capital Investment Strategy
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Operating Budget Development: review funding sources and uses; and YTD actuals
through Q1 for each of the funds to show current projections for each of the funds.
Capital Investment Program: communicating process, policies, procedures, and the
definitions/criteria that guide the CIP development.
May 2024: Preliminary 2025 Budget
Operating Budget Development: discussion item on the proposed 2025 revenues and
expenses, key realignments and changes are areas of sustained investment based on staff
budget development, recognizing that 2025 will be fiscally constrained.
Fee Policy: a discussion item on the Fee Policy and suggested revisions based on staff
and community feedback.
Capital Investment Program: a discussion item at the May meeting to review 2023, 2024,
and 2025 projects and prioritization as it relates to CIP for 2025 – 2030. The CIP will be
based on the foundational work included in the 2024 – 2029 CIP (Attachment C – CIP
Action Item from June 26, 2023 Meeting). Staff will provide an update on the asset
management work being done for one asset type based on the PRAB’s input on the Court
Study Plan. Staff will provide an updated list of underfunded and unfunded CIP projects
for PRAB and community awareness.
June 2025: Recommendation of 2025 Operating Budget; 2025-2030 CIP
Operating Budget Development: PRAB will be asked to recommend the 2025 operating
budget as an action item.
Fee Policy: the PRAB will be asked to approve the Fee Policy revisions as an action item.
BPR will leave a placeholder for what the fee schedule updates are expected to generate;
and will work with the PRAB in June and July to update the fee schedule based on cost
recovery targets, forecasted expenses, and market conditions. New fees would not take
effect until January 2025.
Capital Investment Program: PRAB will be asked to recommend the 2025 expenditures
form the Permanent Park and Recreation Fund to City Council for appropriation and
recommend the 2025-2030 BPR Capital Improvement Program to Planning Board and
City Council for approval and appropriation.
In addition to the PRAB items that focus on the 2025 Budget Development, staff will
share efforts related to BPR’s accreditation process through the Commission for the
Accreditation of Parks and Recreation Agencies (CAPRA), with a particular focus on
Chapter 5 – Financial Management. Should PRAB input or approval be required on any
financial management procedures, staff will return with materials for the PRAB to
review.
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Questions for the PRAB:
1) What information or data does the PRAB need to help inform their decision-
making process as the 2025 budget is developed?
2) Does the PRAB have input on the process or tools related to the CIP decision
making?
Attachments:
A: 2024 BPR Sources and Uses of Funds
B: Fee Policy
C: CIP Action Item from June 26, 2023 Meeting
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Main1100 - General Fund 2110 - Lottery Fund 2180 - .25 Cent Sales Tax Fund 2300 - Recreation Activity Fund 3300 - Permanent Park &
Recreation Fund Other Capital Funds
Desc.Governmental Fund accounts for the revenues
and expenditures necessary to carry out basic
governmental activities of the city which are not
required to be accounted for in another fund.
Special Revenue Fund accounts for State
Conservation Trust Fund proceeds to be utilized
for the acquisition, development, and
maintenance of new conservation sites or for
capital improvements or maintenance for
recreational purposes on any public site.
Special Revenue Fund accounts for earmarked
sales tax authorized by the voters in 1995 for
Parks & Recreation operating and capital needs.
Special Revenue/Quasi-Enterprise Fund to
account for fees and services related to the
provision of recreation, reservoir and golf course
services/programs.
Capital Improvement Fund accounts for dedicated
property tax for the acquisition of park land or
permanent improvements of park and recreation
facilities.
Other Capital Improvement Funds
account for the permanent
improvements of park and recreation
facilities.Summary of Sources of Funds$6,410,407 $1,555,000 $11,489,343 $14,959,554 $4,593,966 $7,000,000
City wide fund comprised of: •
Sales Tax
• Property Tax
• Fees
• Other taxes (accommodations, admission, etc.)
• State of Colorado distributes revenue to entities
on a per capita basis
• Parks & Recreation receives a portion of the City
of Boulder's annual contribution
• Fund specific to Parks & Recreation
• Approved by voters in 1995 for a 20 year period
was extended by voters with an approval of 85%
through 2035.
• Fund specific to Parks & Recreation
• Grants/donations, user and participation fees
• Subsidy transfer provided by the General Fund
for community benefit programming
• Fund specific to Parks & Recreation
• The City of Boulder receives $.14 of every
property tax $ collected in Boulder. Out of the
$.14, Parks & Recreation receives $.01
• Funds support Parks & Recreation
• Parks & Recreation receives a portion
of the City of Boulder's annual
contribution based on approved CIP for
one-time projects. Summary of Uses of Funds$6,410,407 $1,555,000 $14,521,341 $14,746,843 $5,013,610 $7,000,000
Operations and Maintenance
• General Park Maintenance & Mgmt.
• Playground and Shelter Maintenance
• Horticulture, Turf and Irrigation Maint.
• Pearl St. Mall and Boulder Creek Path
• Ballfield Maintenance
• Trash and Snow Removal
• Forestry
• Urban Ranger Program
Administrative Support Services
• Office of the Director
• Business and Financial Mgmt
• PRAB Support
Capital Improvements
• Land Improvements
• Park Development
Operations and Maintenance
• General Park Maintenance & Mgmt.
• Horticulture, Turf and Irrigation Maint.
• Trash and Snow Removal
• Forestry
• Natural Lands
• Valmont City Park
Administrative Support Services
Community Building & Partnerships
• Special Events
• Community Outreach & Volunteerism
Renovation and Refurbishment
Capital Improvements
• Park Development
• Asset Management
Cost Allocation
Recreation Facilities
• East, North & South Recreation Centers
• Aquatics (Indoor & Outdoor Pools)
• Health & Wellness
• Admin Support & Marketing
Recreation Services
• Gymnastics
• Camps
• Sports and Sports Turf (Ballfield Maint.)
• Contracted programs
Regional Facilities
• Boulder Reservoir
• Flatirons Golf Course
Access & Inclusion
• Therapeutic Recreation & Youth Services
Initiative
Acquisition and Development
• Acquisition of Park Land
• Planning
• Park Development/Construction
• Construction
Renovation and Refurbishment
Capital Improvements Program
• Asset Management
Cost Allocation
2024 Funds
• Boulder Junction - Pocket Park
• CDET: Capital Development Fund - Park
on Violet
• CCRS: Community, Culture, Resilience,
and Safety Tax - joint project with
Facilities for EBCC RestrictionsThe General Fund allocation was established to
finance the basic functions of Parks and
Recreation. Note: The General Fund Subsidy
allocation dedicated for Recreation is provided
through an annual transfer to the Recreation
Activity Fund.
Funding can be used for the acquisition,
development, and maintenance of new
conservation sites or for capital improvements or
maintenance for recreational purposes on any
public site.
Primarily used for park maintenance, urban park
refurbishment, renovation of facilities, pools,
urban parks, historic/cultural facilities, civic center
complex, development of all categories of parks,
and new recreation facilities.
Department manages all expenses, receives
revenues from grants/donations, user and
participation fees related to the provision of
recreation, reservoir and golf course
services/programs, and relies on a subsidy from
the General Fund to support community benefit
programming.
Appropriations of the fund must be approved by
the PRAB. The fund shall not be used for any
purpose other than for the acquisition of park
land or permanent improvements of park and
recreation facilities.
Funds can only be used for approved
projects; and have certain restrictions
based on the funding sources.
Parks & Recreation Funds - 2024 Approved - Sources: $46.0 Million / Uses: $49.2 Million
General Fund
$6,410,407
100%
Admin $1,141,783
18%
Historic Assets
$51,268
1%
Urban Parks & Ranger Program $4,249,118
66%
Forestry,
$968,23815%
Colorado Lottery Fund
$1,555,000
100%
Sales Tax
$11,369,343…
Interest
$55,000
<1%
Valmont
City Park
$65,000
1%
Cost Allocation
$697,144
5%
Urban
Parks
$2,493,186
17%
Admin
$1,513,65…
Comm. Building &
Partnership $631,694
4%
Valmont
City Park
$506,931
4%
R&R
$300,000
2%CIP $2,903,000
20%
Planning &
Natural
Resources
$1,714,893
12%
Transfer- RAF
$3,226,414 22%
Transfer,
$534,424,
4%
Recreation Facilities
$3,815,625
25%
Recreation
Services
$2,769,462
18%
Access &
Inclusion
$107,000
1%
Golf
$1,945,054
13%
Reservoir
$1,485,000
10%
Transfers -
General Fund
Subsidy
$1,607,713
11%
Other
Transfers
$3,229,699
3%
Recreation Facilities
$7,538,567
51%
Recreation Services $2,937,953
20%
Access &
Inclusion
$880,507
6%
Golf
$1,948,152
13%Reservoir
$1,441,663
10%
Property Tax
$4,538,966
99%
Interest
$55,000
<1%
Construction & Maint Mgt
$756,985
15%
CIP
$3,000,000
60%
Planning
$858,813
17%
Cost
Allocation,
$197,812
4%
R&R,
$200,000,
4%
CIP
$1,555,000
100%
Bldr Junction
$500,000
7%
CDET
$2,000,000
29%
CCRS
$4,500,000
64%
Bldr
Junction
$500,000
7%
CDET
$2,000,000 29%
CCRS
$4,500,000
64%
4/17/2024
Attachment A: 2024 BPR Sources and Uses of Funds
31
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page1 Policy Title Boulder Parks & Recreation Fee Policy
Administrative Policy
Number
05-02
Effective Date July 24, 2023
Last Amended N/A
Review Cycle Every 2 years
Inactive/Repealed N/A
Primary Audience BPR Staff and Supervisors with Fee Based programs
Policy Sponsor Jackson Hite, Parks and Recreation Sr. Manager – Business
Services
Director Approval Alison Rhodes, Parks and Recreation Director
Related Policies
Included Procedures,
Workflows, or other
materials
I.Purpose of Policy:
The purpose of the fee policy is to establish clear and consistent guidance for how fees are set
and subsidies are awarded. In establishing a fee policy, BPR intends to create a standard
approach for all fees collected, develop transparent fee categories and definitions of the types of
access or programs which are subject to various fees, and create clear cost recovery targets.
The Fee Policy should be applied equitably to all programs, with an understanding that
additional support may be provided based on General Fund Subsidy as called for in the 2022
Parks and Recreation Plan. In determining the subsidy levels, BPR will provide subsidies based
on the level of funding available and the level of community benefit each program provides.
II.Background:
The City of Boulder Parks and Recreation Department promotes the health and well-being of
the entire Boulder community by collaboratively providing high quality parks, facilities and
programs.
BPR operates from five primary funds. These funds are the Recreational Activity Fund (RAF),
.25 Cent Sales Tax Fund (.25ST), General Fund, Permanent Park and Recreation Fund, and
Lottery Fund.
Recreation Activity Fund: A special revenue/quasi-enterprise fund that is specific to the Parks
and Recreation Department. The fund is the primary funding mechanism used to support
recreation centers and facilities and subsidize fees for services related to the provision of
recreation, reservoir and golf course services/programs that do not cover all their direct costs.
This fund is supported through user and participation fees, grants and donations, and an annual
subsidy transfer from the General Fund.
.25 Cent Sales Tax Fund: A special revenue fund that is specific to the Parks and Recreation
Department. The fund is primarily supported through a designated sales tax that was approved
by voters in 1995. In 2013 voters renewed the sales tax through 2035, with 85% of votes
supporting the tax. The fund supports multiple aspects of the department, including operations
Attachment B: Fee Policy
32
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page2 and maintenance, administrative support services, renovation and refurbishment, and capital
improvements.
General Fund: The city’s largest fund that serves as the primary funding source for most
governmental services. BPR uses its portion for park operations, forestry and department
administration. The general fund is mostly supported through a blend of taxes, permits, fees,
and intergovernmental transfers. As a result of the fund’s heavy reliance on tax revenue and
pressure from other departments, the fund’s revenues, and ability to contribute to the
department’s budget can fluctuate, although it has been relatively stable over the years.
Permanent Park and Recreation Fund: A fund specific to the Parks and Recreation
department, this source of funding is permanent according to the City of Boulder’s charter and is
supported through earmarked property taxes, with the Parks and Recreation Department
receiving $0.01 for every dollar of property tax collected by Boulder County. These funds are
limited to the acquisition or permanent improvement of parkland, renovations, and refurbishment
of recreation facilities, and is a source of funds for capital improvements.
Lottery Fund: A special revenue fund that accounts for State Conversation Trust proceeds that
are distributed to municipalities on a per capita basis. Money from the Lottery Fund must be
used only for the acquisition, development, and maintenance of new conservation sites or for
capital improvements or maintenance for recreational purposes on any public site.
III.Definitions:
Residency:
Resident: any individual who lives at an address located within the City of Boulder
service area.
Non-Resident: any individual who lives outside of the City of Boulder.
Resident/Worker: individuals who live or work in the City of Boulder are eligible for
Resident/Worker rates for facility entry. Resident or non-resident status applies for all
other types of programs.
Age Based Fee Groupings:
Youth: participants between 3 and 18 years old.
Adult: participants between 19 and 59 years old.
Senior: participants who are over the age of 60.
Household: any adults, seniors or youth residing at the same address. Proof of address
is required and no more than 8 members aged 19 or older.
Costing Definitions:
Attachment B: Fee Policy
33
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page3 Cost Recovery: the collection of revenue to pay for the direct and/or indirect costs of
providing a service or program. The level of cost recovery will vary based upon the
service, type of program, program category benefit level, targeted skill level, market
costs and other factors.
Direct Costs: The costs directly related or attributed to providing a specific service.
Direct costs include staff time, materials and supplies directly related to providing the
service.
Indirect Costs: Costs incurred across the department that are not directly attributed to a
specific service but benefits the department as a whole. Indirect costs typically include
marketing expenses, software, utilities, space allocation, and management staff that
support a variety of services or programs.
Market Analysis: A point-in-time analysis or survey of prices charged by other
agencies, public and private for a similar service. Market Analysis is typically limited to
benchmark communities, local private business and non-profit organizations.
Subsidy: Funding provided by the city to offset the costs of a service to support a higher
level of community benefit. Based upon community input, subsidies are typically
awarded to programs that support low-income residents, people with disabilities, older
adults and youth.
Discounts: Discounts may be provided associated with marketing and/or volume-based
discounting to provide benefits to participants who are regularly using a service or
program.
Program Benefit Categories:
Attachment B: Fee Policy
34
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page4 Community: Services that enhance the health, safety and livability of the community
and therefore require minimal obstacles to participation.
Recreation: Services that benefit a broad range of users and are targeted to promote
physical and mental well-being.
Individual: Services targeted to specific individuals or user groups with limited
community benefit.
IV.Policy:
The Department of Parks and Recreation’s Fee Policy represents a standardized approach to
program categorization and definitions, while aligning a clear subsidy level based on the level of
community benefit provided. Fees are an efficient and equitable way to distribute the costs
associated with providing services that exceed the ability of the tax base to support the costs.
This comprehensive policy will promote community understanding with clear fee practices and
financial sustainability. This Fee Policy was developed through the documentation of previous
policy guidance from the Parks and Recreation Advisory Board, includes guidance received
from the 2022 Parks and Recreation Plan, along with significant input from the Parks and
Recreation Advisory Board, Community Connectors in Residence and City Council. This Fee
Policy identifies and informs the program types and a consistent method to assign services to
those types and includes the appropriate benefit level of subsidy and cost recovery target that
should be achieved. Tax subsidy provided each year from the General Fund and/or other
sources such as .25 Cent Sales Tax Fund should be allocated in a way that supports the cost
recovery targets based on available funding, which then directs the corresponding pricing
strategy each year.
The concept of cost recovery involves setting fees based on the total cost of providing the
service and factors in the program category benefit level so that the total funding received
(Taxes and User Fees) equals the total cost of providing a particular service. This is critical to
the financial sustainability of public parks and recreation.
V.Procedure:
The department will review fees and charges for all programs and services along with cost
recovery performance at least every two years as part of the annual citywide budget
development process. Once the cost to provide services is analyzed, each service area will
review cost recovery performance compared to stated goals within the Fee Policy. Total cost of
service as well as the department’s Service Delivery Model, market analysis, and feedback from
staff and participants, will inform any recommendations to the Department Director to update
fees.
The Department’s pricing strategy is based on several considerations:
•Level of Community Benefit
•Supply and Demand
•Market Comparisons
•Residency/Non-residency priority
Attachment B: Fee Policy
35
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page5 •Age-based prioritization with an emphasis on youth and seniors
•Accessibility and health promotion
•Value of Program (availability of alternative providers, quality of program)
•Cost recovery philosophy
•Availability of subsidy to support age-based discount, community benefit recreation and
financial aid.
Each activity will be sorted into a program type. Each program type will have a minimum cost
recovery rate and a target cost recovery rate. Programs that are being introduced will likely be
at the minimum cost recovery rate; over the lifecycle of the program, the goal will be to achieve
the target cost recovery rate. While setting rates, staff must evaluate market rates and demand
for the activity to determine price sensitivity for any proposed price adjustments. If the price is
too high and/or there is little demand for the program, staff must consider the feasibility of
reducing costs, reducing fees or propose the elimination of the program. To minimize impacts to
participants, fee increases may be limited to 10% in a year for any community or recreation level
programs. Fee increases may be phased in over a 2-to-3-year period to minimize impacts to
participants.
When establishing fees, BPR will support fees that the market will bear, even if this exceeds the
cost recovery targets. Additionally, BPR will not undercut the market as it is not a good use of
subsidy and jeopardizes the overall health of the market. Programs with high demand should
also evaluate fee increases to improve cost recovery. Both tactics will allow the department to
reinvest in other program areas with lower cost-recovery goals, in turn allowing the department
to reduce the reliance on tax subsidy and reinvest in priority programs. During future updates to
the Fee Policy, BPR will adjust the cost recovery targets accordingly based on actual
performance.
To ensure there is equitable access for populations the community has prioritized, the
department will continue to subsidize access for low-income individuals, people with disabilities,
youth and seniors. The department is committed to maintaining financial aid programs to
qualifying Boulder residents, providing subsidized access to facilities and programs, as funding
allows.
All fee updates will be reviewed annually by the Parks and Recreation Advisory Board and for
consideration by City Council with the adoption of the operating budget each year. The City
Manager shall give notice regarding changes in fees by filing a schedule of fees with the City
Clerk and displaying the changed fees on the City’s website. Increases shall not take effect until
at least two weeks have passed since notice was given. Fees shall be in effect as of the
effective date specified in the schedule.
Fees may be temporarily discounted or reduced through special promotional pricing as warranted.
The City Manager may reduce fees from time to time as market conditions warrant, and may also
raise them again, so long as the fee never exceeds that specified in the fee schedule.
Attachment B: Fee Policy
36
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page6 Below are the program types with associated category benefit level and cost recovery target
goals, definitions and examples of activities. These are examples of various types: they are not
all-inclusive lists and program offerings change over time.
Program
Type
Program
Category
Benefit
Level
Cost
Recovery
Program Definition Examples of
Services Included
Open Access Community 0% Access to parks, park
amenities, pathways and
natural areas. Open
access allows for self-
directed activity and does
not include supervision
or oversight by staff.
Pocket,
neighborhood, and
community parks,
skateparks,
playgrounds, multi-
use paths, non-
reserved outdoor
courts, dog-parks
Grants,
Philanthropy
& Donations
Community Grants, philanthropy and
donations which further
the mission of the
department by providing
outside funding for a
specific focus which
increases access and/or
removes barriers to
participation
Health Equity Funds,
Grants, Memorial
Benches, Tree
Donations, Project
Specific Donations
Special
Events
Community 10%+ Large-scale events that
appeal to a broad portion
of the community.
Snow Much Fun,
Holiday Lights
Recreation 70%+ Large-scale events
produced by the
department and/or city
intended for a specific
demographic within the
community.
Drive-in movies,
Sweetheart Dances,
Halloween Carnival
Individual 100%+ Large-scale events with
pre-registration required
for a niche market or
specific interest.
Typically provided by
non-department
organization
Organized races
Recreation
Services
Community 50%+ Foundational classes,
leagues and workshops
which include instruction
Facility childcare,
beginner level sports,
fitness orientations,
Attachment B: Fee Policy
37
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page7 and the primary goal of
introducing participants
to basic skills at a “learn
to” level; programs which
facilitate access to other
program types
EXPAND programs,
Youth Services
Initiative (YSI),
aquatics clinics
Recreation 70%+ Classes, leagues, clinics
and workshops with
instruction provided at an
intermediate level
Intermediate level
sports, enrichment
classes, youth sport
leagues, camps
Individual 100%+ Classes, leagues, clinics
and workshops with
instruction provided at an
advanced level of
training and
development; private or
semi-private setting to
meet unique needs of an
individual or small group
Advanced level
sports, specialty
fitness, adult sports
leagues, competitive
team events, boating
Facility Entry Recreation 90%+ Access to recreation
centers, indoor & outdoor
pools, outdoor swim
beaches and passive
recreation at Boulder
Reservoir where
monitored access is
provided for self-directed
activity with general
supervision and
oversight provided by
department staff
Facility admission,
drop-in classes, swim
beach, passive
recreation at Boulder
Reservoir
Resale Items Individual 100%+ Consumable and non-
consumable goods
available for purchase
Swim diapers, locks,
food or concessions,
clothing, pro-shop
items
Contracted
Programming
Individual 100%+ Registered programs
offered by a non-
city/department agency
that operate under a
revenue share/profit split
Specialty summer
camps, Tennis
lessons
Golf Course Individual 100%+ Utilization of golf course
and related amenities
Driving range, rounds
of golf, cart rentals,
tournaments
Rentals Individual 100%+ Space, facility,
equipment, park and
shelter reservations for a
Field rentals, court
rentals, facility
rentals, shelter
rentals, lane rentals,
Attachment B: Fee Policy
38
3198 North Broadway • Boulder, Colorado 80304-2644
TEL 303-413-7200
www.BoulderParks-Rec.org Page8 use by an individual,
group or organization.
private access
rentals
Commercial
Use
Individual 100%+ Fee based instruction,
education, care or
supervision on park land
provided by an individual,
group or organization.
Yoga in a park,
summer camps or
nature programs held
exclusively at a park.
Attachments:
•Attachment A – Parks and Recreation Department Fee Schedule
Attachment B: Fee Policy
39
C I T Y O F B O U L D
E R
PARKS AND RECREATION ADVISORY BOARD AGENDA
ITEM MEETING DATE: June 26, 2023
EXECUTIVE SUMMARY:
As part of the city’s annual budget process, departments develop a six-year Capital
Improvement Program (CIP). The current CIP for Boulder Parks and Recreation
(BPR) outlines plans for 2024 through 2029, including an update on 2023 capital
projects, with funds appropriated only for the year 2024. The Parks and Recreation
Advisory Board reviewed and discussed the CIP with two previous agenda items
on March 20 and April 24; this is the PRAB’s third and final touch on the CIP. The
PRAB’s role related to the CIP is defined in the Boulder Revised Code (B.R.C.),
1982 TITLE 2 GOVERNMENT ORGANIZATION, Chapter 3 Boards and
Commissions, Section 10, Parks and Recreation Advisory Board (d)(2): “To
approve or disapprove expenditures or appropriations from the Permanent Park and
Recreation Fund and forward such recommendations to the City Council.” It is
within this context that the PRAB is requested to hold a public hearing and provide
a recommendation on the CIP to Planning Board and City Council. After a motion
is passed by the PRAB, the department’s CIP will be submitted to the Planning
Board and City Council for review and their respective consideration and
approvals. The PRAB is also asked to provide a recommendation for City Council
consideration on the department’s annual budget, and so a second motion provides
the opportunity for PRAB to fulfill this responsibility.
AGENDA TITLE:
Public Hearing and Consideration of Motions Approving the 2024 Expenditures from the
Permanent Parks and Recreation Fund and Recommending the 2024-2029 Parks and
Recreation Department Capital Improvement Program for Planning Board and City Council
approval.
PRESENTERS:
Alison Rhodes, Director
Jackson Hite, Senior Business Services Manger
Mark Davison, Senior Planning Manager
Stacie Hoffman, Budget Analyst Senior
Attachment C: CIP Action Item from June 26, 2023 Meeting
40
The CIP focuses on
implementing the 2022 BPR
Plan, with an emphasis on six
key themes that emerged through
engagement with the community
in the 2014 department plan and
were reaffirmed by the
community with the 2022 Master
Plan. They provide a framework
to help organize the BPRs
policies, goals and initiatives and
help shape the strategies that are
the focus for future action and
decision-making.
The themes are driven by
decision makers representing the
Boulder community, including
the Boulder City Council and
PRAB. They provide direction
and help set the framework
within which BPR operates by
supporting consistent operations
and transparent decision making.
They also lay the groundwork
for the development of BPR
goals and initiatives.
All six themes provide guidance
to the CIP. Of critical importance
to maintaining community assets
is Taking Care of What We
Have. The themes of Community
Health and Wellness and Youth
Engagement & Activity ensure
BPR is providing the best
facilities, amenities, and
infrastructure to retain or expand
upon service levels. In addition,
BPR considers the most efficient, sustainable, and robust approach to managing
assets across the system and implement the policy as guided by the Financial
Sustainability and Organizational Readiness themes. Building Community &
Relationships provides strategies to build social capital and leverage community
investments, for example working with recreation groups to consider ways to fund
and manage facilities that can help achieve greater levels of investment.
BPR also is in alignment with city-wide objectives guided by the Sustainability, Equity and
Resilience (SER) Framework. As outlined in the agenda item on the 2024 Budget, the SER
framework includes objectives necessary to achieve Boulder’s vision of a great community,
Attachment C: CIP Action Item from June 26, 2023 Meeting
41
organized around seven goal areas: Safe, Healthy and Socially Thriving, Livable, Accessible and
Connected, Environmentally Sustainable, Economically Vital, and Responsibly Governed. The
process began in 2022 by aligning organizational efforts to the SER Framework, including
budgeting by program, and aligning these investments to the goal areas.
IMPACTS:
Fiscal: With revenues exceeding conservative projections in 2023, the department’s
primary CIP budget (Lottery, .25 Cent Sales Tax Fund, Permanent Parks and
Recreation Fund) is budgeted at $36.0 million from 2024-2029, up from $28.1
million in 2023-2028. This is an annual average increase of $1.3 million or 28%. In
addition, the department is requesting a total of $67.5 million in other capital funds
including the Community, Culture, Resilience and Safety (CCRS) tax funding for:
EBCC Refresh (joint request with Facilities), Civic Area Park Reimagining Phase II,
Boulder Creek Path, and Pearl Street Mall Refresh.
PUBLIC FEEDBACK:
The June agenda item includes a public hearing, and the community will have the
opportunity to comment on the proposed CIP. The department conducted extensive
community engagement in developing the 2022 BPR Plan, and this CIP is guided by
the plan. The CIP is also informed by multiple plans and studies outlining capital
needs, each included community input as part of plan development. These projects are
outlined in the Plan Alternatives, page 88, of the 2022 BPR Master Plan, and the
associated guiding documents listed in each element of BPR’s system.
The 2022 BPR Plan provides clear direction on investment in facilities, parks, and
major asset categories across the system including courts, athletic fields, aquatics,
parking, and accessibility. Figures 1 and 2 summarize the major CIP projects,
organized by the three budgeting scenarios utilized city-wide to frame the city’s
ability to invest in the system. The Fiscally Constrained alternative prioritizes
spending within existing funding, focusing resources on maintaining service levels.
The Action alternative describes the extra services or capital improvements that could
be undertaken with additional funding. The Vision alternative represents the complete
set of services and facilities desired by the community, without regard to resources or
viability.
Attachment C: CIP Action Item from June 26, 2023 Meeting
42
Fig 1. Table highlighting overarching guidance for park investment in the BPR capital program.
Attachment C: CIP Action Item from June 26, 2023 Meeting
43
Fig 2. Table highlighting overarching guidance for facility investment in the BPR capital
program.
The project needs outlined in the 2022 BPR Plan and other planning studies have
directly informed the department’s CIP and will continue to be discussed with the
community as projects are developed. The public will also have an opportunity to
comment during the Planning Board’s upcoming CIP review and City Council’s
discussions and review of the 2024 recommended budget during future public
hearings with Planning Board and City Council.
BACKGROUND:
Capital Projects
CIP projects are defined as any major project with a cost greater than $50,000 for
purchase, construction, or major replacement of physical assets. CIP projects are
potentially subject to a Community and Environmental Assessment Process (CEAP)
review that evaluates any potential environmental, traffic or social impacts to Boulder
residents, neighborhoods, and businesses.
Attachment C: CIP Action Item from June 26, 2023 Meeting
44
Capital Funding
The department’s CIP is funded primarily from the Permanent Park and Recreation Fund
.25 Cent Sales Tax Fund and Lottery Fund. Additional sources of funding that have
limitations on the type of capital investment that funding can be spent on and are not
managed exclusively by the department include the Capital Development Fund, Boulder
Junction Improvement Fund, General Fund Capital, and the extension of the
Community, Culture, Safety and Resilience Tax.
The Permanent Park and Recreation Fund (Perm Parks Fund) is funded specifically
from property and development excise taxes. By city charter, this fund is dedicated to
the purposes of acquiring land and renovating or improving existing park and
recreation assets. It may not be used to fund daily operations or routine maintenance.
Due to increasing assessed property values, the outlook on this fund is currently
positive, with growth expected every two years, tied to Colorado’s assessment periods.
CIP Process
The capital budget is how the city manages its assets and implements projects and
programs that are chosen by its citizens through their elected representatives, City
Council. As discussed with PRAB in 2022 and early 2023 in developing the Capital
Investment Strategy (CIS), BPR’s approach to developing the CIP included process
improvements to provide more transparency and efficiencies as well as alignment
with the department master plan and other department projects across the city. A
major update is providing a two-year outlook that better aligns with the reality of how
capital projects occur. The other major update was to update the categories defining
the types of capital investment BPR makes in the system:
Asset Management: this is where the department mostly focuses on “taking care of what we
have” by enhancing, maintaining, or replacing a series of assets in the BPR system under a
specific category (i.e., courts, athletic fields, parking lots & accessibility, etc.)
Park Plans: Developing a comprehensive plan for a major facility, an existing or new park
that includes concept and schematic design with cost estimating. These plans inform
implementation of new assets, replacement of existing, and enhancement of aging assets, as
well as major maintenance actions to ensure service levels are maintained (i.e., Violet Park
Plan, Civic Area Plan). Once at the schematic design phase, projects can be phased to build
and construct new assets and/or replace existing assets that have reached the end of their
lifecycle (i.e., North Boulder Park and Bill Bower Park)
System Planning: Provide an in-depth review of specific aspects of the system as a whole to
understand how best to manage and maintain specific categories of assets in the BPR
portfolio (i.e., Historic Places Plan, and Courts System Plan)
BPR is updating how assets are managed across the system using national standards. The first
phase of asset inventory is complete, and staff are beginning the work of implementing the asset
management program (AMP). In the last three years, BPR has worked through many
configuration challenges, learned how to better coordinate staff efforts with other departments,
and started the Phase 2 task of updating how BPR will keep track of maintain assets in the BPR
system of parks and facilities. In 2023, staff are developing a strategy to achieve full deployment
Attachment C: CIP Action Item from June 26, 2023 Meeting
45
of the asset management program in line with CAPRA standards to update and complete the
inventory of assets, complete condition assessments, and develop a method for understanding the
criticality of the work needed. This next phase of work will remove the paperwork and
institutional memory required to uncover critical questions or prioritize efforts around assets and
infrastructure. The goal of fully implementing an asset management system is to use data that
will support BPR in making informed decisions about how best to prioritize capital investment
maintenance funds. The AMP informs prioritization of assets, as staff further improve the AMP,
BPR will be able to make more transparent this process for future CIPs.
Once again this year, staff has provided the PRAB with a “three touch” approach that included:
1) a discussion item at the March meeting communicating process, policies and procedures and
the definitions/criteria that guide the CIP development; 2) a discussion item at the April meeting
to review draft projects and prioritization as it relates to the CIP; and 3) this PRAB Public
Hearing to consider motions approving and recommending the department CIP.
The development of the 2024-2029 Capital Improvement Program (CIP) is an opportunity to
continue refreshing social infrastructure in alignment with department and citywide goals. A
challenge BPR faces is the pace of capital project spending in a given fiscal year. In 2022, BPR
spent about half of the capital appropriation approved in the budget. This reflects many factors
including recovering from COVID, supply chain issues, staffing capacity, cost escalations, and
other natural delays in construction. While the budget is a plan, it is also a commitment to
community and council that staff will execute on approved funding.
Capital projects, and capital dollars supporting those projects, present a true reflection of
anticipated work plans and project timelines. This will help BPR ensure it maintains strong
financial stewardship of public dollars. All projects within the CIP will also articulate their
alignment and impact on Citywide Sustainable, Equity, and Resilience (SER) goals and
objectives as well as the 2022 BPR Master Plan. Additionally, capital projects will also articulate
their alignment with the Boulder Valley Comprehensive Plan. The capital budget reflects a
considerable annual investment in community goals and priorities and aligning to an outcome-
based approach will help demonstrate the investments and prioritize where needed. In summary,
the proposed CIP for 2024 is informed by city-wide goals (SER framework), the 2022 Master Plan,
BPR existing plans for parks and facilities, and the AMP.
Analysis
For 2024 and the full 6-year CIP, staff performed careful analysis and projections for
all funds that contribute to the department CIP. Projected spending ensures that
spending remains within funding projections while still maintaining an appropriate
fund balance for reserves. Stable and dedicated funding is focused on “Taking Care of
What We Have”, or the asset management side of the CIP. Other funding sources
support specialized needs or projects above the Fiscally Constrained alternative, such
as the Community, Culture, Resiliency, and Safety tax (CCRS) for projects such as
the East Boulder Community Center retrofit. Balancing the community’s desires with
BPR’s financial reality requires that the department prioritize what can be
accomplished over the next six years.
Attachment C: CIP Action Item from June 26, 2023 Meeting
46
As discussed above, staff have developed three categories to better reflect the
organization structure for how we manage the CIP, the three categories are described
in the diagram below and the following tables identifies the project underneath each.
We have also updated the workplan to reflect 2023 and 2024 project work in order to
be more transparent with how we manage and better reflect the typical life cycle of
for the duration of projects.
2023 and 2024 Capital Project Priorities (6-year plan provided in Attachment A)
Investments in Asset Management Program - reoccurs annually.
Asset Category Initial
Allocation in
2023
Updated Annual
Allocation for 2024
Bathrooms & Picnic Shelters No allocation $150k
Courts $200k $360k
Fields $200k $200k
Irrigation $100k $70k
General Maintenance $310k $0k (now in operating)
Forestry $500k $500k
Natural Lands No allocation $50k
Parking Lots, Access & Mobility $200k $300k
Play Areas $200k $0 (see North Boulder
Park)
Regional Parks No allocation $300k
Attachment C: CIP Action Item from June 26, 2023 Meeting
47
Investments in Parks & Facilities - project specific.
Parks and Facilities Year Allocation Notes
Bill Bower Site Plan 2023 $8,000 Minor park
enhancements
EBCC Facility
Revitalization Plan 2023 $100,000
Larger facility
renovation – $100k for
initial
community engagement
Flatirons Golf Course
Facility 2023 $9,407,338 Construction in 2023
with opening in 2024
NBRC Revitalization
Plan 2023 TBD
Larger facility
renovation – awaiting
financial
strategy findings
North Boulder Site Plan 2023 $2,500,000 Major park renovations
SBRC Revitalization
Plan 2023 TBD
Larger facility
renovation – awaiting
financial
strategy findings
Violet Park Plan
(working title) 2023 $3,373,000
New park development
(including $500k
Greenway funding)
EBCP Park Plan 2024 $2,200,000 Major park renovations
Pleasant View Park Plan 2024 $1,200,000 Major park renovations
Historic Property 2024 $60,000 Informed by HiPP
recommendations
Attachment C: CIP Action Item from June 26, 2023 Meeting
48
Investing in System Planning to identify and prioritize future needs.
System Plans Year Cost Est.
(OoM) Notes
Design Standards Manual:
Cost Estimating Update 2023 $100,000
This will inform
project cost
estimating and CRV
BPR Drought Plan 2023 $75,000 Coordinated with
Citywide efforts
Park Recreation Activity
Survey 2023 $80,000
Understand park
recreation activity
trends and user
groups
Courts System Plan 2023 $120,000
Identify court needs
across the system for
racket sports
Boulder Reservoir Business
Plan 2023 $75,000
Will also support
design development
plans for park and
facilities
Natural Lands System Plan 2024 $120,000 Update resource
management needs
Nature Play System Plan 2024 $75,000
Identify overarching
themes, approach to
nature play sites, and
programming
Unfunded Projects and Emerging Needs
In the long-term, additional funding will be needed to improve service standards for
maintenance operations, to fund deferred maintenance, and to fund major park
renovations as well as new facilities.
Staff continues to evaluate deferred maintenance to assist in capital planning. The
current maintenance and facility improvements backlog, including major repairs and
replacements, is significant. The department anticipates that this backlog will continue
Attachment C: CIP Action Item from June 26, 2023 Meeting
49
until funding levels reach appropriate levels to accommodate life-cycle management
for the department’s assets. This list will be comprehensively updated following phase
2 of the departments AMP update.
BPR does not have enough funding to manage BPR assets to ensure all are in good
condition. As AMP Phase II comes on-line, current funding levels require staff to
prioritize projects that will leave other projects either unfunded or under-funded. In
this reality, staff have used a number of industry standard methods to make decisions
that will help BPR keep as much of the system in the best condition possible. These
tools include:
Reduce the number of projects: make tough decisions to eliminate the number of
projects and accept fair to poor asset condition or reduced service levels.
Value Engineering: do an early value engineering exercise to reduce budgets for all
projects to keep more projects above the total available budget line.
Phasing: review projects to see if they can be completed in separate chunks, reducing
scope but allow staff to keep a number of projects going. Future phases could be placed in
out years and/or added to the deferred list.
Target Budgeting: improve the scope of projects to get a better understanding of need
and therefore align scope closer to reality of an allocated budget rather than a needed
budget.
Economies of Scale: for example, doing 3 play areas at once, rather than renovating one
at time, could decrease overall design and construction costs due to site mobilization and
volume-based discounting.
Attachment C: CIP Action Item from June 26, 2023 Meeting
50
Key Unfunded Projects Include:
The major unfunded or underfunded projects are listed below:
Attachment C: CIP Action Item from June 26, 2023 Meeting
51
Staff Recommendation:
Staff recommends that the PRAB approve the 2024 expenditures planned from the
Permanent Park and Recreation Fund and recommended 2024-2029 Parks and
Recreation Department CIP for Planning Board and City Council approval.
NEXT STEPS:
In July, staff across the organization will review the CIP to ensure organization-wide
alignment and to provide non-department perspective on projects. The Planning
Board will consider the CIP in September 2023, and City Council will consider and
ultimately approve the CIP in October 2023. PRAB will be updated if any
refinements to the department’s CIP is considered.
2024 - 2029 CIP Process/Timeline (Projected)
Planning Board Hearing August
Council Study Session September
Council Public Hearing October
Appendix A 2024-2029 DRAFT BPR Capital Improvement Program
Suggested Motion Language:
Staff requests the PRAB’s consideration of this matter and action in the form of the
following motions:
•Motion to approve the 2024 recommended expenditures from the Permanent Park and
Recreation Fund to City Council for appropriation.
•Motion to recommend the 2024-2029 Parks and Recreation Department Capital
Improvement Program (CIP) to Planning Board and City Council for approval and
appropriation.
Attachment C: CIP Action Item from June 26, 2023 Meeting
52
Fund/Project Name Project Type2024 Projected 2025 Projected 2026 Projected 2027 Projected 2028 Projected 2029 Projected6 Year Total (2023-2028)CIP Total $ 10,708,000 $ 8,498,000 $ 11,060,000 $ 27,333,333 $ 27,933,333 $ 19,153,334 $ 104,686,000 .25 Cent Sales Tax Fund Budget Proposal 4,030,000$ 2,360,000$ 2,455,000$ 2,425,000$ 2,625,000$ 2,395,000$ 16,290,000$ Facility RevitalizationParks & Recreation Facilities100,000$ -$ 100,000$ Operational PlanningSystem Planning270,000$ 270,000$ East Boulder Community ParkParks & Recreation Facilities1,127,000$ 1,127,000$ Violet ParkParks & Recreation Facilities1,023,000$ 1,023,000$ Valmont Park Phase IIParks & Recreation Facilities800,000$ 400,000$ 1,200,000$ Asset Management- Aquatics FacilitiesAsset Management500,000$ 500,000$ Asset Management- Restrooms and Picnic Shelter Asset Management150,000$ 150,000$ -$ 300,000$ Asset Management- General MaintenanceAsset Management100,000$ 530,000$ 100,000$ 100,000$ 830,000$ Asset Management- Flatirons Golf Course Asset Management100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 600,000$ Asset Management- Boulder ReservoirAsset Management100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 600,000$ Asset Management- Valmont City ParkAsset Management100,000$ 100,000$ 100,000$ 100,000$ 400,000$ Asset Management- ForestryAsset Management500,000$ 500,000$ 500,000$ 500,000$ 500,000$ 500,000$ 3,000,000$ Asset Management- Sports FieldsAsset Management200,000$ 300,000$ 300,000$ 300,000$ 300,000$ 300,000$ 1,700,000$ Asset Management- Parking Lots/Access & MobilityAsset Management300,000$ 300,000$ 300,000$ 200,000$ 200,000$ 200,000$ 1,500,000$ Asset Management- CourtsAsset Management360,000$ 400,000$ 400,000$ 400,000$ 400,000$ 400,000$ 2,360,000$ Asset Management- IrrigationAsset Management70,000$ 210,000$ 125,000$ 125,000$ 125,000$ 125,000$ 780,000$ Perm ParksTax Fund 2024 Budget Proposal 3,000,000$ 2,010,000$ 3,627,000$ 2,547,000$ 2,947,000$ 2,997,000$ 17,128,000$ Operational PlanningSystem Planning-$ 200,000$ -$ 200,000$ System PlanningSystem Planning195,000$ 120,000$ 60,000$ 50,000$ 50,000$ 350,000$ 825,000$ East Boulder Community ParkParks & Recreation Facilities1,073,000$ 1,073,000$ Harlow Platts Park Parks & Recreation Facilities300,000$ 300,000$ Pleasant View ParkParks & Recreation Facilities752,000$ 448,000$ 1,200,000$ Violet ParkParks & Recreation Facilities920,000$ 920,000$ Tom Watson ParkParks & Recreation Facilities-$ 2,200,000$ 550,000$ 2,750,000$ Valmont Park Phase IIParks & Recreation Facilities-$ 1,700,000$ 1,500,000$ 3,200,000$ North Boulder ParkParks & Recreation Facilities570,000$ -$ -$ -$ -$ 570,000$ Asset Management- Aquatics FacilitiesAsset Management-$ -$ 500,000$ 500,000$ Asset Management- Restrooms and Picnic Shelter Asset Management-$ -$ 150,000$ 150,000$ 150,000$ 150,000$ 600,000$ Asset Management- General MaintenanceAsset Management-$ 100,000$ 570,000$ 100,000$ 100,000$ 100,000$ 970,000$ Asset Management- Play AreasAsset Management-$ 72,000$ 72,000$ 72,000$ 72,000$ 72,000$ 360,000$ Asset Management- Valmont City ParkAsset Management100,000$ 100,000$ 200,000$ Asset Management-Natural Lands Asset Management50,000$ 50,000$ 75,000$ 75,000$ 75,000$ 75,000$ 400,000$ Asset Management- Historic Property Asset Management60,000$ 100,000$ 100,000$ 100,000$ 100,000$ 100,000$ 560,000$ Boulder Reservoir South Shore Capital EnhancementsAsset Management-$ 400,000$ 1,500,000$ 600,000$ 2,500,000$ CDET Development Impact Fees 2024 Budget Proposal 500,000$ 2,000,000$ -$ -$ -$ -$ 2,500,000$ Violet ParkParks & Recreation Facilities500,000$ 2,000,000$ 2,500,000$ Perm ParksTax Fund 2024 Budget Proposal 428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 2,568,000$ North Boulder ParkParks & Recreation Facilities428,000$ 428,000$ Asset Management- Play AreasAsset Management428,000$ 428,000$ 428,000$ 428,000$ 428,000$ 2,140,000$ Boulder Junction 2024 Budget Proposal 2,000,000$ 500,000$ -$ -$ -$ -$ 2,500,000$ East Mapleton ParkParks & Recreation Facilities2,000,000.00$ 2,000,000$ Boulder Junction ParkParks & Recreation Facilities500,000.00$ 500,000$ General Fund Capital 2024 Budget Proposal -$ -$ 1,250,000$ -$ -$ -$ 1,250,000$ Attachment C: CIP Action Item from June 26, 2023 Meeting53
Reservoir Access Road-$ 1,250,000.00$ 1,250,000$ CCRS 2024 Budget Proposal 750,000$ 1,200,000$ 3,300,000$ 21,933,333$ 21,933,333$ 13,333,334$ 50,066,666$ CCRS - EBCC Refresh* Joint request with Facilities -$ CCRS - Boulder Creek Path Plan $500,000$700,000 $2,800,000 $4,000,000 $4,000,00012,450,000$ CCRS - Reimagining Civic Area East Phase II$250,000$250,000 $250,000 $13,333,333 $13,333,333 $13,333,33427,916,666$ CCRS Pearl Street Mall Refresh$250,000 $250,000 $4,600,000 $4,600,0009,700,000$ Attachment C: CIP Action Item from June 26, 2023 Meeting54
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: April 22, 2024
A. August 26, CIP Annual Field Trip
B. PRAB Matters (Verbal)
55