07.28.25 PRAB PacketAGENDA
All agenda times are approximate
I.APPROVAL OF AGENDA (2 minutes)
II.FUTURE BOARD ITEMS AND TOURS (2 minutes), Page 2
III.PUBLIC PARTICIPATION (15-30 minutes)
A.This portion of the meeting is for members of the public to communicate ideas or
concerns to the Board regarding parks and recreation issues for which a public
hearing is not scheduled later in the meeting (this includes consent agenda). The
public is encouraged to comment on the need for parks and recreation programs and
facilities as they perceive them. All speakers are limited to three minutes. Depending
on the nature of your matter, you may or may not receive a response from the Board
after you deliver your comments. The Board is always listening to and appreciative of
community feedback.
IV.CONSENT AGENDA (5 minutes), Page 3
A.Approval of Minutes from June 23, 2025, Page 4
B.Parks and Recreation Operations Updates, Page 6
C.Parks and Recreation Planning, Design and Construction Updates,
Page 11
V.ACTION ITEMS
A.None
VI.MATTERS FOR DISCUSSION/INFORMATION, Page 19
A.2026 Budget Strategy, Page 19
B.Membership and Entry Fee Options for Cost Recovery, Page 52
VII.MATTERS FROM THE DEPARTMENT (10 minutes), Page 156
A.Safe and Managed Public Spaces overview (verbal)
VIII.MATTERS FROM THE BOARD, Page 157
A.PRAB Meeting Dates
B.PRAB Matters (verbal)
IX.NEXT BOARD MEETING:
A.August 25, 2025
X.ADJOURN
Parks & Recreation Advisory Board
Fully Hybrid Meeting
6:00 p.m., July 28, 2025
Boulder Parks & Recreation
Advisory Board Members
2025-2026
Andrew Bernstein
Yvonne Castillo
Robert Kaplan
Jennifer Robins
Michael Schreiner
Kyra Siegel
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
August September October
Fully hybrid for members, staff and
community.
Fully hybrid for members, staff and
community.
Fully hybrid for members, staff
and community.
Regular Mtg
(c)
•Outdoor Pool Operation Highlights
•Partnerships Team Update
•Amilia (SmartRec) go-live
•Approved 2026 budget
Regular Mtg
(a)
•2026 Budget & 2026 – 2031 CIP
Regular Mtg
(d/i)
•Membership Structure (study
session?)
•Boulder Valley Comprehensive Plan
(BVCP) Board Consultation
•Membership Structure
•Introduce 2026 Fee
Schedule
Regular Mtg
(md)
•City Council Budget Update
•Community Access Framework
•Civic Area Concept Plan
•North Boulder Park:
Schematic Design + Teens
Findings presentation
Regular Mtg
(mb)
Other Mtgs
or Topics
•August 7: cc Public Hearing on
Community, Culture, Resilience
and Safety (CCRS) Tax
•August 8: Draft 2026-2031 CIP
presented to Planning Board
•August 21: cc PRAB 7th Seat
Appointment
Dept Events
& Items of
Interest
•August 9-17: North Boulder
Recreation Center Annual
Maintenance Shutdown
•September 11: City Council –
Recommended Budget Study Session
•September 12: PLAY Golf Tournament
at Flatirons Golf Course
•October 9: 2026 Budget
First Reading
•October 23: 2026 Budget
Second Reading + Special
Districts
AGENDA SETTING
The PRAB Chair, PRAB Vice Chair and BPR staff set the agenda for the next month on Thursday directly following the regular PR AB
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 u p 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 requ iring 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
Denise Dawson, Senior Manager, Urban Parks
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Scott Schuttenberg, Deputy Director
Erynn Simone, Senior Manager, Regional Facilities
SUBJECT: Consent Agenda
DATE: July 28, 2025
A.Approval of June 23, 2025, Minutes
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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: June 23, 2025
Contact Information Preparing Summary: Clarisa Collins; 720-564-2147
Board Members Present: Yvonne Castillo, Robert Kaplan, Jennifer Robins, Michael Schreiner, Kyra
Siegel
Board Members Absent: Bernie Bernstein
Staff Present: Bryan Beary, Clarisa Collins, Tina Dalton, Mark Davison, Denise Dawson, Kate
Hernandez, Jackson Hite, Stacie Hoffmann, Megann Lohman, Matt Pilger, Scott Schuttenberg
Guests Present: None
Type of Meeting: Regular
Agenda Item 1: Call to Order
The meeting was called to order at 6:00 p.m. A quorum was present for the conduct of business.
Motion to approve agenda. First motion by Schreiner, seconded by Kaplan. Motion passed 5-0.
Agenda Item 2: Future Board Items and Tours
Schuttenberg, Deputy Director of Parks and Recreation, reviewed upcoming PRAB agenda items and
events. PRAB had no follow up questions or comments.
Agenda Item 3: Public Participation
Lynn Siegel: Requested clarification on the requirement to sign up in advance for public
comment and shared concerns about the impacts of homelessness on park spaces in Boulder.
Agenda Item 4: Consent Agenda
A.Approval of Minutes from May 19, 2025
Motion to approve the minutes from May 19, 2025. First motion by Schreiner, seconded by
Castillo. Motion passed 5-0.
B, C. Parks and Recreation Operations, Planning, Design and Construction Updates
Board members expressed appreciation for the Civic Area Pop-Up activation. PRAB inquired
about budget realignment impacts on the South Boulder Recreation Center HVAC project,
updates on the turf replacement timeline and funding considerations for the Pleasantview
Fields project.
Agenda Item 5: Action Items
None
Agenda Item 6: Matters for Discussion/Information
A.2026 Budget - Operating & Capital Improvement Program (CIP) 3rd Touch
Hite, Hoffman, Lohman and Davison presented this item.
Board members requested clarification on cost allocation methods, increased departmental
revenue, and the contrast between rising revenue and a 5% expense reduction. Members
also inquired about the decline in property tax revenue, the ongoing hiring freeze and
comparisons to budget reductions during the COVID-19 period.
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The Board inquired about cost recovery targets, trade-offs between pausing community
programs and maintaining infrastructure, potential strategies including sponsorships,
naming rights (e.g. Sundance Festival) and interdepartmental coordination. Board
members placed emphasis on aligning decisions with community values, equity objectives
and the long-term funding of asset management.
Agenda Item 7: Matters from the Department
A. Tom Watson Park Courts: Schematic Design
Davison presented this item.
PRAB inquired about the project schedule, cost, revenue projections, design details and
priorities during the different phases of implementation.
Agenda Item 8: Matters from the Board
A. PRAB Matters (verbal)
Board members inquired about the timeline for appointing the new Board member.
Members inquired about the June 1 violent incident at the Pearl Street Mall, specifically
whether BPR staff such as urban rangers or bathroom attendants were present or
involved, what support was provided to staff affected by the incident and whether the
event would prompt changes to permitting or security procedures for special events.
Additional inquiries included whether there had been any responses to Mr. O’Rourke’s
email regarding the Parks and Recreation plan, and general questions about ongoing park
activities.
Agenda Item 9: Next Board Meeting
Next Board meeting:
Monday, July 28, 2025, hybrid
Agenda Item 10: Adjourn
The meeting was adjourned at 8:10 p.m.
Approved by: Attested:
________________________ ________________________
Jennifer Robins Clarisa Collins
Board Member BPR Staff
Date: ___________________ Date: ___________________
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B.Parks and Recreation Operations Updates
Reservoir Concessions Update – Summer 2025
As shared with the PRAB in March, the City of Boulder entered into a one-year
agreement with Rocky Mountain Paddleboard (RMP) to operate food and beverage
services at the Boulder Reservoir. RMP has been the city’s concessionaire for boat
rentals for over 8 years. The new Lakeside @ the Reservoir Café officially opened
Memorial Day weekend and is serving community members Thursday through Sunday,
11 a.m. to 6 p.m. through Labor Day weekend. The café offers a mix of healthy grab-
and-go snacks, focaccia bread pizzas, burgers, hot dogs, soft-serve ice cream, and
creative mocktails.
Staff and RMP are using this first season to learn what offerings and operations work
best to support visitors and activate the Main Building. The café has already proven to
be a valued amenity, contributing to the visitor experience and enhancing the sense of
place. RMP continues to pursue a liquor license, with a hearing before the Beverage
Licensing Authority scheduled for Wednesday, July 30.
Recreation Center Facility Feedback Highlights
Through parts of May and June, community members provided feedback on recreation
facilities, celebrated what is done well and helped staff understand what could be better.
The intent of this item is to provide the board with key takeaways from the feedback.
This year, staff worked with the community engagement team to improve access to the
survey, providing feedback opportunities for all participants. Both an online feedback
form and in-person engagement opportunities were made available. The online form was
in English only; however, the in-person engagement opportunities were provided in
English and Spanish, and a Nepali translation was made available.
The online feedback form was sent out via the department monthly e-blast to
approximately 58,000 people and via social media. Online responses were modest, with
88 completed surveys. Dot voting in the recreation centers was a hit, with over 2,600
dots counted across the four boards at each facility and more than 350 post-its added to
the boards.
Feedback was collected about the general facilities, cardio equipment, gym spaces, pool
areas, hours of operation, entry options and registered programming. Respondents who
completed the online form could answer questions about any recreation facility of their
choice.
Online and in-person feedback related to general facility questions and membership
questions was entered directly into the online feedback form. Staff asked questions to
better understand which facilities community members would prioritize in a membership
pass, if the community would support selling access to outdoor facilities separately, and
if they would support raising the drop-in entry fee to avoid increases to membership
fees.
When asked to rank facility access in priority order, the North Boulder Recreation Center
(NBRC) was both the most frequent option selected, and the most frequent top choice
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selected. The East Boulder Community Center (EBCC) was the most frequent second
choice and the second most frequent overall selection. The South Boulder Recreation
Center (SBRC) was the second most frequent top selection. Figure 1 below shows how
the community ranked access to the various recreation facilities.
Recreation Center Feedback: Rank Distribution
Figure 1: Recreation facilities rank distribution
When asked, “To reduce future increases to recreation center pass fees would you
support access to outdoor facilities being sold separately?” 52% of respondents said
yes, while only 17% said no. (See Chart 1).
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Chart 1: Should outdoor facilities be sold separately.
When asked, “To reduce future increases to membership fees, would you support a
larger increase in the daily drop-in fee?”, respondents were more split. 42% said yes,
25% no, and 34% were unsure (See Chart 2).
Chart 2: Should daily drop-in fees increase.
The North Boulder Recreation Center (NBRC) received the most feedback from the
online form capturing 61% of respondents, and more than 850 interactions (dots/post-its)
on the engagement boards. Highlights from the NBRC feedback included:
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General satisfaction with safety (93%), cleanliness (92%), and customer service
(89%).
A possible opportunity to improve the variety of drop-in programming (52% very
important; 25% satisfied).
Improved spacing and air flow should be considered in the weight room and
cardio areas.
Kids love slides and diving boards (144 votes), future facility upgrades should
consider improving amenities for kids.
General inconsistencies with water and amenity temperatures at NBRC (sauna,
hot tub, leisure pool, and showers mentioned). One heat exchanger will be
replaced in August.
Additional evening hours should be explored both during the week and on
weekends.
The East Boulder Community Center (EBCC) received just 39% of the feedback from
online responses, however accounted for the most dot voting with nearly 1,000 dots
placed and counted. The highlights at the EBCC included:
General satisfaction with customer service (93%), safety (90%), cleanliness
(90%), and layout/amenities (90%).
Aligned feedback related to the importance of variety in drop-in programming
(81%) and satisfaction (73%).
Pool use trends split nearly evenly across ‘lap swim in a team/group (101 votes),
‘lap swim on my own’ (98 votes), and AquaFit participants (91 votes).
Additional Stair Climbers should be considered.
Additional space is needed in the weight room and cardio areas.
Additional weekend evening hours could be explored.
The South Boulder Recreation Center (SBRC) received 34% of online feedback
responses and accounted for more than 750 dot votes. The highlights at the SBRC
include:
General satisfaction with safety (100%), cleanliness (100%), and customer
service (97%).
Largest pool participation from those who ‘lap swim on my own’ (106)
Additional treadmills, ellipticals, upright bikes, Stair Climbers and SkiErg should
be considered.
Extremely high ‘open gym’ use with 161 dots counted (the most across any
measure on any board)
General asks for ‘more’ in relation to almost everything in the weight and cardio
areas including space, weight equipment, and cardio machines.
Recreation Programming Feedback. New in 2025, staff asked a few select recreation
programming feedback questions as part of the facility survey to gain a high-level
understanding of why people may not participate in registered programming, and to ask
the community what additional programs they may be interested in. Highlights of the
recreation programming feedback included:
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56 respondents indicated the time programs are offered impacted their decision
not to participate, while 26 respondents reported being unaware of what
programs are offered, and 22 respondents stated they chose not to participate
based on the cost of offerings.
38 respondents stated they had a desire for overall facility improvements, with
most feedback related to pool and weight room improvements.
Survey results indicate high demand for more drop-in classes and registered
classes, with variations of yoga being the most common response.
As part of the department’s service delivery model and process, staff will take this
feedback to implement into programs for 2026.
Recreation Service Impacts and Budget Reductions
The South Boulder Recreation Center is currently closed through Labor Day and the
pool will remain closed into October to allow for major maintenance projects to extend
the life of the building. The SBRC’s normal maintenance shutdown was moved from
March to August to allow time for extended closure. Closing the entire building for a
portion of the maintenance will support the projects underway. The full building closure
will also save some funding, allowing the department to ensure continued services
elsewhere while services would be limited due to construction.
As shared previously with the board, revised revenue projections have the city adjusting
service levels to ensure a balanced budget through the end of the year (see here for
additional information). The Spruce Pool will close for the season on August 17. This
change aligns operations at Spruce Pool, a smaller low usage community pool, with
many in the market that close as school returns for the season. Once school begins,
attendance drops, averaging less than 12 visits per hour, and BPR has fewer staff to
support operations. In addition, summer swim teams stop practicing for the season in
early to mid-August, freeing additional lap lanes at all other pool locations. The reduction
in service will save about $25,000 in subsidy and allow limited staffing during a hiring
freeze to be reassigned to other locations.
Urban Parks Update
Urban Parks has recently completed the full transition of small landscaping equipment to
electric. This initiative advances the department’s sustainability practices and ensures
compliance with State Regulation 29. This journey began back in 2016, when some work
groups took early initiative by investing in electric chainsaws and string trimmers. Since
then, BPR has continued to grow the inventory of electric equipment, thanks in part to
assistance from the county’s Partnerships for a Clean Environment (PACE) Voucher
initiative. Today, BPR proudly operates within the state-mandated requirement for cities
to use electric landscaping equipment (10 horsepower or less) during peak ozone
season from June through August, helping to protect air quality and promote healthier
communities.
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Figure 1: A group of electric backpack leaf blowers arranged on the floor alongside
several boxes of accessories and equipment.
Figure 2: Various electric landscaping tools, including trimmers, a lawn mower, and leaf
blowers neatly arranged in a workshop.
C.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.
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Overview of Major Projects
Staff continue to work on the following projects and will update the PRAB as major
milestones are achieved:
Projects Status Next PRAB
Milestone
System Planning
Future of Recreation Centers Planning Q3
Park & Facility Renovation Plans
Boulder Junction Park: Opening a New Park Design On Hold Pending
Capacity
Civic Area Renovation Design Oct
East Boulder Community Center Renovation Design Q3
North Boulder Park Renovation Design Oct
Pearl Street Renovation Start 2026 Q4
Primos Park: Opening a New Park Design Aug
Tom Watson Construction Dec
Barker Park Refresh Start 2025 Nov
Park Asset Management
Bill Bower Park: New Interpretive Display
Garden
Design On hold Pending
Funding
Boulder Reservoir: ADA Dock Replacement Construction Q4
Boulder Reservoir: Road and Parking Lot
Repaving
Construction On hold Pending
Funding
Chautauqua: Courts Replacement Construction Aug
East Boulder Community Park: Courts
Enhancement
Planning On-hold
East Boulder Community Park – Courts Enhancement Project
The concept phase of this project is nearly complete. This phase kicked off in January
and included a site analysis of existing conditions, along with studies related to property
annexation, feasibility and site programming. Staff evaluated opportunities and
constraints for the project and hosted a community open house event on April 8 to
gather input and engage with residents at the East Boulder Community Center. BPR
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staff collaborated with the contracted design firm to explore potential site concepts and
review preliminary cost estimates.
The preliminary estimates to achieve the desired quantity of new and dedicated outdoor
pickleball and tennis courts exceed the available budget for this project by over $1M.
Staff are working to identify options given the site and financial constraints. Staff expect
to provide a more detailed update in the early fall pending upcoming capacity
conversations.
Tom Watson Park – Volunteer Project
Boulderthon, a local organization dedicated to sharing the power and joy of marathons,
has adopted Tom Watson Park. As part of this commitment, the group will assist with
ongoing park maintenance and improvement efforts.
On Saturday, July 12, Boulderthon volunteers completed their first project — and it was
a resounding success. With 100% attendance and impressive enthusiasm, volunteers
removed and stacked more than 12 pallets of landscape block from a raised garden bed
slated for removal. The team moved tons of material, demonstrating strength, teamwork,
and community spirit.
Thanks to their efforts, the block has been saved from the landfill and will be stored for
future reuse in other park projects. The city greatly appreciates Boulderthon’s
partnership and looks forward to more collaboration ahead.
Figure 3: A group of Boulderthon volunteers stand together at Tom Watson Park after
moving landscape blocks during a cleanup project.
Figure 4: Boulderthon volunteers work together at Tom Watson Park, moving landscape
blocks.
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Chautauqua Park - Tennis Court
The Chautauqua Tennis Court is entering the final phases of construction, with
court surfacing scheduled to begin the week of July 21 and be completed by the
end of the month. The court will require 1-2 weeks of final curing time following
surfacing. Once complete, the project will feature a brand-new post-tension
concrete court, with striping for one tennis court and two pickleball courts.
This project is possible due to a substantial donation of more than 50% of the
project’s total cost by Mo and Jennifer Siegel. A plaque recognizing the donor will
be installed following project completion and the receipt of a Landmark Alteration
Certificate (LAC).
Figure 5: A sign reading “Welcome to Chautauqua Courts. Be of good cheer.
Generously sponsored by the Mo and Jennifer Siegel Family,” with a small image of a
ping pong paddle and ball in the center.
Chautauqua Park - Arbor Reconstruction
In early July, the Parks and Recreation Department completed reconstruction of
the Arbor at Chautauqua Park. The 110-year-old structure had several
deteriorated timbers and a full reconstruction was necessary to restore the
Arbor’s integrity and appearance. After consulting with structural engineers, the
department stabilized the masonry structure and arranged 34 new peeled logs in
their original layout.
The Parks and Recreation Department would like to thank Andrew Lattanzi for
his generous donation which contributed to this restoration project.
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Figure 6: The restored Arbor at Chautauqua Park, featuring new logs and preserved
masonry, stands in Chautauqua Park after its reconstruction
Civic Area: Concept Plan Reveal and Nature Play Pop Up with Engagement
Window 3
Figure 7: The map of the Civic Area concept plan shows four main zones: Zone 1 (West
End), Zone 2 (Boulder Beach), Zone 3 (East End), and Zone 4 (The Arboretum Path).
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In the first half of 2025, the Civic Area team used findings from the planning analysis
phase and policy guidance as well as input from community engagement, to develop the
concept plan for the Civic Area. This summer, the city hosts a third engagement window
to gather input on the concept plan.
Based on findings from engagement window 3, the team will bring the design concept
plan to PRAB and council in the 4th quarter for questions and feedback. A critical next
step will then be to identify what aspects of the design concept plan will be prioritized for
the $18 million dollars in funding; the project team will bring recommendations for the
limit of work for phase 2 implementation.
Community members can provide feedback of the Civic Area concept plan during
engagement window 3 through several opportunities available July 14 – August 11:
Through the online feedback form
At the pop-up stations provided at recreation centers and libraries across town
All community members were also invited to enjoy an open house event in the park on
July 14 to give feedback on the concept plan in person; a summary of the successful
event is below:
Approximately 300 people were present at the event and gave feedback on the
concept plan for the Civic Area. Feedback activities were available for youth and
adults. All participants received a free ice cream bar from a local food truck for
taking part.
Local performers Jeff and Paige brought nature-inspired music and education to
the event.
Below are a series of pictures from the event showing the civic area fully
activated with fun, enjoyable and safe experiences for all ages including
decorating the large stick pal in the nature discovery area with handprints.
The project team is also working on several community organization meetings and
community connector events to take feedback from across the city of Boulder.
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Figure 8: A group of four, two adults and two children, look at a concept design plan for
the Arboretum Path while attending a Civic Area engagement session.
Figure 9: Entertainers Jeff and Paige place their handprints with paint onto a tree stump
during a Civic Area engagement session.
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Figure 10: Community members attend Civic Area engagement session, with people
sitting on the grass and enjoying a performance under the trees.
Figure 11: Five community members gather around a large map to provide feedback
during a Civic Area engagement session.
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AGENDA ITEM VI-C_ PAGE 1__
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: July 28, 2025
AGENDA TITLE: 2026 Budget Strategy: Operating Budget, Recreation
Activity Fund Fees and 2026 – 2031 Capital Improvement Program
PRESENTERS:
Alison Rhodes, Director of Parks and Recreation
Scott Schuttenberg, Deputy Director
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Mark Davison, Senior Manager, Planning
Stacie Hoffmann, Senior Budget Analyst
EXECUTIVE SUMMARY:
This memo provides information for the Parks and Recreation Advisory Board’s (PRAB)
discussion on the 2026 budget development process for the Boulder Parks and
Recreation Department (BPR), considering ongoing coordination with the City Manager’s
Office (CMO) and Finance Department to align with a more fiscally constrained
environment. Staff are actively refining the department’s operating and capital budgets to
respond to flattening revenues, increased cost pressures, and the need to reduce
expenses to balance the budget.
Staff will return in August to request formal action by the Parks and Recreation Advisory
Board (PRAB) to recommend the 2026 budget for City Council approval and to approve
and recommend the 2026–2031 Capital Improvement Program (CIP). This item supports
PRAB’s role on the department’s proposed budget, as outlined in Boulder Revised Code
2-3-10 (d)(2) and (5).
BACKGROUND:
At the April 14, 2025 study session, PRAB received an overview of the department’s
budget, including its revenue sources and how funds are allocated. This presentation was
part of the broader onboarding and retreat session and served as a foundational look at
the department’s financial structure.
At the April 28, 2025 meeting, staff introduced the 2025 Budget Development Strategy
Roadmap and provided an initial overview of the CIP. This included a refresher on the
department’s various funding sources, an outlook on revenue expectations for each fund,
and an explanation of the overall budget development process. Staff also outlined key
opportunities and challenges in navigating a fiscally constrained environment, highlighted
ongoing work related to the 2023 Fee Policy, and emphasized the significance of the Long-
Term Financial Strategy (LTFS). The LTFS is a citywide initiative aimed at evaluating
service levels, supporting sustainable revenue development, and exploring potential
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AGENDA ITEM VI-C_ PAGE 2__
voter-approved funding solutions for underfunded services across the city, not just in parks
and recreation.
At the May 19, 2025 meeting, staff provided updates on the department’s operating
budget, including consideration of base cost increases such as contractual obligations,
minimum and living wage adjustments, and other inflationary factors. Staff also shared
budget realignments that shifted historically underspent funds from one area to another
without changing the department’s overall budget. Looking ahead to the 2026 budget
development process, staff identified the need to reevaluate a range of fees, including
facility access, golf, rentals, contracted programming, commercial use, and court access.
Fee adjustments are to be guided by the framework established in the 2023 Fee Policy.
In addition, staff provided updated information on the CIP, accounting for projects
underway in 2025 and those planned to continue into 2026.
At the June 23, 2025 meeting, staff provided an update on an expected budget shortfall
in 2025 in the range of $8 – 10 million. Staff identified how the department is navigating
flattening sales and property tax revenues, cost escalation, and a citywide directive to
reduce expenditure by 5%. The PRAB received an update on the current financial
outlook, options for revising BPR’s membership structure, and proposed capital
investments for 2026–2031.
PRAB asked for examples of budget reductions made during the COVID-19 pandemic
and the key lessons learned from that experience. Unlike the current fiscal situation, the
most significant distinction in 2020 was that the city implemented layoffs to quickly and
significantly reduce spending, which directly impacted service levels. The department
had to evaluate what programs and services could safely resume from a public health
perspective, what had existing budget or revenue potential, and where staff capacity
existed to deliver those services. Most services took approximately 12 to 18 months to
fully restore; however, some programs have still not returned to pre-pandemic levels.
BPR will occasionally start, stop, or phase out services that no longer align with its
mission or where the department can better support the community by filling emerging
gaps. This intentional strategy helps ensure limited resources are directed to programs
that are most needed and can be delivered effectively. Budget reduction strategies that
occurred in 2020 were initially shared with the PRAB at the May 27, 2020 (p. 15)
meeting. The 2020 and 2021 Operating Budget Update reflecting budget reduction
strategies through the end of 2020, and planned spending in 2021 was shared with
PRAB at the December 21, 2020 (p. 49) PRAB meeting. Bot PRAB memos have been
linked as a high level overview of what reductions were taken to balance the budget in
2020 and 2021.
Staff have previously shared that City Council identified the development of a Long-Term
Financial Strategy as a top priority and the PRAB has benefited from multiple updates on
the LTFS. That strategy is currently in development and may include options such as
increased or new fees, as well as new or more flexible tax mechanisms. Two of the
project workstreams have included completing a citywide inventory to understand all
existing fees and the last time they were updated and identifying the restrictions on
dedicated funds that decrease flexibility in how funds can be spent. The city has
engaged an independent research firm to assess voter sentiment regarding potential
November 2025 ballot measures. As a matter of practice, projected revenue from ballot
measures is not incorporated into the city’s budget until voter approval is secured.
Similarly, while events such as the “Coach Prime” effect have generated short-term
boosts to city revenue, these impacts are difficult to forecast in advance and are
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AGENDA ITEM VI-C_ PAGE 3__
therefore not included in revenue projection. The impact of the Sundance Film Festival
starting in 2027 is also not included in future revenue projections.
The department’s work is guided by the policy direction set forth in the PRAB and City
Council approved 2022 BPR Plan. This plan outlines three funding scenarios: Fiscally
Constrained, Action, and Vision. With the current budget, the department can only
implement a portion of the Fiscally Constrained scenario. To advance initiatives
identified under the Action and Vision levels, the department depends on additional
funding sources such as voter-approved taxes, philanthropy, and donations. For
reference, the BPR Plan funding alternatives are included as Attachment A – 2022
BPR Plan Alternatives.
Historically, BPR has maintained a balanced budget through careful management and
strategic realignments, and this approach will continue to guide development of the 2026
operating budget. While CIP is more forward-looking, the department remains focused
on investments in asset management and priority park projects, with an emphasis on
system-wide planning and maintaining the facilities that serve the Boulder community.
ANALYSIS:
Staff have continued working with the City Manager’s Office, Finance Department and
Executive Budget Team to refine what a 5% reduction would look like to the department
in 2025 and have prepared revised options for the 2026 budget development based on
current revenue assumptions. The city is looking holistically across all departments to
develop a balanced budget for 2026. The focus on balancing the budget with a citywide
lens for decision making, focused on alignment with citywide priorities and the Citywide
Strategic Plan, flexibility of funding, performance of programs and services, and
recognizing core services and needs and priorities of community.
Proposed Maximum Budget:
The table below (Table 1: Proposed 2026 BPR Budget) outlines the originally
proposed 2026 operating, capital, and total budgets prior to applying the citywide 5%
reduction target. It also includes an estimated reduction amounts by fund to achieve a
5% target. While each fund has a specific target, these are considered flexible planning
benchmarks, and the actual reductions will be evaluated through a citywide context.
BPR manages expenditures across multiple funding sources, and reductions may
exceed or fall below the 5% threshold depending on fund-specific restrictions and the
department’s ability to reallocate eligible costs. This flexibility allows the department to
prioritize service delivery while still aligning with overall budget reduction goals. Capital
funds, in particular, are not subject to the same level of programmatic reductions for
several reasons: some do not include new 2026 appropriations and are therefore outside
the current budget scope; others are funded with prior-year revenues and are actively
being spent down; and in some cases, Finance has confirmed that planned capital
spending is acceptable and may proceed as proposed. BPR’s focus in achieving its
reduction targets has included reductions to operating and capital budgets.
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AGENDA ITEM VI-C_ PAGE 4__
Table 1: Proposed 2026 BPR Budget
Fund
2026
Operating 2026 Capital 2026 Total
Target
Reduction
General Fund 6,759,477 0 6,759,477 Up to $188k
.25 Cent Sales Tax
Fund 12,100,640 535,000 12,635,640 Up to $1.3M
Permanent Park and
Recreation Fund 2,267,392 1,925,000 4,192,392 Up to $1.M
Recreation Activity
Fund 15,309,597 0 15,309,597 Up To $215k
Lottery Fund 0 1,700,000 1,700,000 Up To $85k
Boulder Junction
Capital Improvement
Fund 0 0 0
Capital Development
Fund 0 0 0 0
CCRS 0 11,000,000 11,000,000 0
Total 36,437,106 15,160,000 51,597,106 Up to $4.0M
In August, staff will return with an Action Item requesting PRAB approval of the 2026
budget, which is expected to fall within a range of $47 to $51.6 million. For planning
purposes, the department is currently assuming a budget closer to the lower end of that
range.
Submitted Budget Reductions:
The department has submitted a list of potential budget reductions to the Executive
Budget Team, which will be under review through July 31. To prepare, staff identified the
maximum funding the department could receive through the city’s allocation process,
along with the specific reductions needed to meet the citywide 5% target. As expected,
any reduction in funding will likely impact service levels and what the community
experiences through parks and recreation offerings. The final decisions will depend on
updated city revenue projections, fund-specific restrictions, and the need to meet the
overall reduction goal across all departments to achieve a balanced citywide budget.
BPR has outlined the budget reduction strategies currently under discussion with the
City Manager’s Office and the Finance Department to meet the citywide 5% reduction
target. The budget reduction strategies focus on three different expense types, which
include personnel, non-personnel and the CIP. These reduction strategies are identified
below by type:
Personnel Strategy: The primary intent is to preserve currently filled positions.
Reductions under consideration focus on:
Vacant Positions
o Review and evaluate current vacancies in light of the ongoing hiring
freeze.
o Delay hiring for select vacant roles until the end of Q1 2026.
Non-Standard Staffing
o Reduce service levels during slow or shoulder seasons.
o Reassess staffing needs based on seasonal program demand and
priorities.
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AGENDA ITEM VI-C_ PAGE 5__
Non-Personnel Strategy: staff is identifying opportunities to reduce or defer non-
personnel expenses, with a focus on protecting critical safety-related needs and fully
cost-recovered revenue-generating programs:
Reduce administrative budgets (e.g., printing, office supplies, materials).
Lower uniform and travel budgets in alignment with reduced staffing levels.
Remove any remaining unspent funds from prior fiscal years.
Capital Strategy: staff will continue supporting key 2026 CIP projects while aligning
scope and timing with available resources:
Maintain funding for currently planned 2026 projects.
Prioritize projects based on staff capacity and funding availability.
Reassess project timing and sequencing to align with fiscal realities.
Defer projects that have not yet started or lack adequate funding due to cost
escalation.
These options reflect difficult decisions, as there is little discretionary spending within
BPR’s existing budget, underscoring the reality that reductions will have noticeable
impacts. Each proposed reduction is shown with an approximate dollar amount, rounded
to the nearest thousand, to provide a general sense of scale. Because of the
department’s funding structure and the need for flexibility across multiple revenue
sources, the table does not assign reductions to specific funds or budget programs. In
August, staff will provide a total expense by fund for the department’s budget that the
PRAB will be asked to recommend, which will be supplemented by Fund Financials for
the 3 BPR funds of Recreation Activity Fund (RAF), .25 Cent Sales Tax Fund, and
Permanent Park and Recreation Improvement Fund.
Additionally, the department is actively collaborating with other city departments to
identify opportunities for service efficiencies, to reduce duplication, and to ensure the
most effective use of limited financial resources. While cross-departmental coordination
is an ongoing practice, the current fiscal environment has elevated its importance. BPR
is working most closely with Open Space and Mountain Parks (OSMP) and Housing and
Human Services (HHS) Departments to evaluate program alignment, service levels, and
opportunities to streamline or consolidate offerings. These efforts include exploring
shared staffing models, joint programming, and coordinated outreach strategies to better
serve the community. Based on preliminary discussions, exact dollar impacts, and
formal proposals have not yet been developed, and any resulting changes would likely
take longer to implement. This approach reflects a broader citywide goal of delivering
high-quality services more efficiently, while maintaining or enhancing the level of service
expected by Boulder residents.
RAF Revenue Assumptions:
Revenue projections for the Recreation Activity Fund (RAF) in 2026 are based on actual
revenue collected in 2024 and year-to-date trends from 2025. These projections
consider evolving community participation patterns—anticipating growth in areas such
as youth programs and outdoor recreation, while recognizing expected declines where
demand has plateaued or services have been reduced. As the department navigates
increased costs related to staffing, materials, and operations, it is essential that revenue
generation strategies respond to both cost recovery goals and current market conditions.
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AGENDA ITEM VI-C_ PAGE 6__
The proposed 2026 budget assumes a certain level of revenue growth, which will need
to be achieved through updated pricing models, including changes to the current
membership structure. While the department is preparing to introduce levers that could
result in changes to the membership structure for PRAB discussion at the July 2025
meeting, formal decisions regarding 2026 fees will not be finalized until a new structure
is approved later in the year. The proposed budget, however, includes estimates aligned
with anticipated membership adjustments and is structured to remain financially
sustainable under that scenario.
To ensure pricing changes are equitable and aligned with city policies, all proposed fee
adjustments will follow the framework laid out in the 2023 Fee Policy (Attachment B –
2023 Fee Policy). The 2025 Fee Schedule (Attachment C – 2025 Fee Schedule)
serves as the current baseline for evaluating changes across service categories,
including facility access, golf, rentals, partnerships, and court use. A companion market
analysis (Attachment C – Market Rate Comparison) compares BPR fees to those of
similar providers, offering important context for setting rates that are competitive yet
financially responsible. A breakdown of projected revenue growth by program or facility
is included in Attachment D – 2024 Actual to 2026 Proposed Revenue by Facility &
Program.
Membership revenue represents a major component of the RAF and is central to cost
recovery efforts. BPR’s current membership model has not undergone a full revision
since 2019, despite notable shifts in operating costs and user behavior. Since that time,
the department has experienced rising expenses, especially related to wages, utilities,
and operational supplies like chemicals, while an increasing portion of users participate
through discounted or subsidized programs. As a result, the financial load is increasingly
borne by a smaller group of full-pay users.
To address these imbalances and align with modern service delivery trends, the
department is considering a more flexible, differentiated membership structure. Rather
than a uniform pricing model, the revised structure could include tiered pricing by facility
type, with distinct rates for drop-ins, punch passes, monthly memberships, and annual
passes. This approach would reflect the unique costs, amenities, and demand patterns
of each facility, and bring BPR more in line with market norms across the region.
The July 2025 PRAB meeting will serve as a forum to present these membership
structure options, gather feedback, and begin shaping a final recommendation.
Throughout Q3 and Q4, the department will continue refining the model based on
feedback from PRAB and internal analysis. This will include a clear communication
strategy, staff training, and a timeline for implementation. PRAB’s input at this phase of
developing the fees is a critical step in ensuring the final structure balances equity,
accessibility, and financial sustainability.
Capital Budget Adjustments:
As of June 2025, the department has $19.9 million in CIP budget available. With a
historical annual spend of approximately $6 million a year on CIP, the department is
prioritizing the use of existing funds before requesting new allocations. During the 2025
reduction exercise, staff identified unspent capital funds that could be carried forward
into 2026, allowing the department to reduce its 2026 capital requests while still
maintaining momentum on project delivery.
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AGENDA ITEM VI-C_ PAGE 7__
The draft 2026 – 2031 CIP (Attachment E – Proposed 2026 – 2031 CIP by Project)
identifies high level projects relying on department funds. The Community Culture,
Resilience and Safety Tax projects are not included given this fund is managed
holistically for the city. The parks and recreation related projects relying on the CCRS
funds include the Civic Area Phase II, East Boulder Community Center and Pearl Street
Mall refresh. The list of CIP projects is still being reviewed by the internal Capital Review
Team and Executive Budget Team that there could be additional changes to named
projects, funding years, and project budgets.
The priority projects for 2026 include the following projects:
Maintaining funding for Asset Management categories
Civic Area Phase II
East Boulder Community Center
North Boulder Park
Primos Park
Tom Watson Park
Deferred projects include:
East Mapleton Ballfield Enhancement
Eben G. Fine Park Refresh
Projects that would be defunded and deprioritized pending further funding and planning
includes:
Boulder Reservoir Access Road
Boulder Reservoir South Shore Capital Enhancements
Pleasant View Park
o Funding was moved to support South Boulder Recreation Center repair
work in 2025
This strategy reflects current staff capacity constraints. Since the financial constraints of
2020 and 2021 created delays in projects, BPR’s Planning, Design and Construction
team has had a workplan that does not align with its capacity to deliver projects. In
addition, the complexity of large projects (e.g. the Civic Area, Primos Park and North
Boulder Park) has required a longer planning horizon than forecasted. As a result,
project durations have increased from one year to two or even three years in some
cases. This shift is due to expanded and necessary community engagement efforts and
the realities of more complex construction timelines. External delays related to contractor
and consultant availability, supply chain disruptions, and permitting processes have
further contributed to challenges in project execution.
In addition to these challenges, the renewal of the .25 Cent Sales Tax Fund in 2015 and
the addition of Community, Culture, Resilience and Safety (CCRS) funding in 2017 and
2021 increased funding for BPR capital projects, no additional planning capacity was
added at the time to support the increased workload.
To address the project backlog, and with support from the City Manager’s Office, the
department has made targeted staffing investments since 2022. These include the
addition of two Landscape Architects to support early-stage project design, the division
of one GIS role into separate GIS and Asset Management positions, and a broader
internal reorganization to better align project management functions.
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AGENDA ITEM VI-C_ PAGE 8__
These structural adjustments are now beginning to improve project delivery capacity.
Based on current staffing and project timelines, the department anticipates being able to
fully expend the 2025 carryforward and 2026 capital allocations within the next two
years. As part of the department’s ongoing commitment to asset stewardship, all current
Asset Management funds will be carried forward and used strategically. In some cases,
these dollars will be reallocated to named park projects that include significant
infrastructure components, such as the restroom replacements at Tom Watson Park and
North Boulder Park, allowing for efficient use of capital resources within broader park
renovation efforts.
To further ensure the effective use of limited resources and align spending with capacity,
the department is intentionally delaying some lower-priority projects to future years,
including portions of the park refresh program. Coupled with the city’s hiring freeze, this
strategy will lead to delays for some projects and reflects a shift toward more realistic
timelines and budgets. It also strengthens transparency and community trust, as the
department will be better positioned to deliver on commitments.
NEXT STEPS:
The budget will be reviewed through the internal city process which includes the Budget
Office, Capital Review Team and Executive Budget Team. The department expects to
have preliminary decisions on which budget requests will be included in the City
Manager’s proposed budget by early August, with the recommended budget being
shared with the community and City Council by late August.
In August, staff will return with an Action Item requesting PRAB approval of the 2026
budget, which is expected to fall within a range of $47 to $51.6 million. For planning
purposes, the department is currently assuming a budget closer to the lower end of that
range.
City Council will discuss the recommended 2025 budget at a Study Session on
September 12, 2024. They will consider it for approval at 1st Reading and Public Hearing
on October 3, 2024, and a 2nd Reading and Public Hearing on October 17, 2024. The
approved budget will take effect on January 1, 2025. As the budget moves through city-
wide coordination and council review in the fall, staff will provide updates to the board.
Questions for PRAB:
1. Given the current fiscally constrained environment, does PRAB have any
questions, concerns, or feedback on the budget changes and strategies outlined
in this update?
2. As the department works to identify up to 5% in budget reductions in alignment
with citywide direction, what guidance does PRAB have on potential areas for
cost savings—such as staffing strategies, materials and supplies, or capital
project adjustments?
Attachments:
Attachment A – 2022 BPR Plan Alternatives
Attachment B – 2023 Fee Policy
Attachment C – 2025 Fee Schedule
Attachment D – 2024 Actual to 2026 Proposed Revenue by Facility & Program
Attachment E – Proposed 2026 – 2031 CIP by Project
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88 | Where We Are Going
FINANCIAL FRAMEWORK
Through the master planning process BPR has gathered feedback on desired
facility and programming improvements from both individual members of
the community and specific user groups. Balancing the community’s desires
with BPR’s financial reality requires that the department prioritize what
can be accomplished over the next five years. Adopted in 2006, the City of
Boulder’s budgeting strategy requires each department to acknowledge and
plan for multiple revenue scenarios. These scenarios are intended to enable
departments to proactively plan for outcomes in which revenues remain flat
or increase. The following section summarizes the three budgeting scenarios
in which future projects and programs are assigned.
plan alternatives
Using the city’s budgeting strategy of defining outcomes for the Fiscally
Constrained, Action, and Vision budgeting scenarios, BPR has developed
three plan alternatives based on variable levels of funding.
fiscally constrained
The Fiscally Constrained alternative plans for prioritized spending within
existing budget targets. The intention of this alternative is to refocus and
make the most of existing resources with the primary goal being for the
department to maintain services. The actions associated with the Fiscally
Constrained alternative require limited or no funding to accomplish and are
focused on providing or enhancing core and/or existing services. The fiscally
constrained scenario reflects BPR’s commitment to the community over the
next five years, focusing on core services and those that benefit the greater
community.
action
The Action alternative describes the extra services or capital
improvements that could be undertaken when additional funding
is available. This includes strategically enhancing existing programs,
beginning new alternative programs, adding new positions, or making
other strategic changes that would require additional operational or capital
funding. In coordination with the Central Budget Department, PRAB, and
City Council, BPR would evaluate and analyze potential sources of additional
revenue, including but not limited to capital bond funding, program income,
grants and existing or new taxes.
vision
The Vision alternative represents the complete set of services and
facilities desired by the community, without regard to resources or
viability. While the Vision plan is fiscally unconstrained and unfunded, the
intent is to provide high-level policy guidance by illustrating the ultimate
goals of the community and by providing an aspirational look to the parks
and recreation system, without considering feasibility.
Plan Alternatives
Using the City of Boulder’s budgeting
strategy of defining outcomes for
the Fiscally Contrained, Action and
Vision budgeting scenarios, BPR has
developed three plan alternatives
based on variable levels of funding.
»Fiscally Constrained
BPR’s commitment to the
community over the next five
years
»Action
Aspirational projects and
programs that may be
accomplished if additional
funding becomes available
»Vision
An unfunded wishlist of projects
and programs
Attachment A: 2022 BPR Plan Alternatives
26
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Where We Are Going | 89
PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Park Maintenance -BPR
Asset Management
Program
Maintain Well at FCI .07,
Develop Violet Park
Enhance and add trending
amenities
Full concept plan
implementation for all
planned parks
Playgrounds 1-2 Parks/Playgrounds per
year refurbished (25-30 year)
Playground enhancement
accelerated (20 year)N/A
Restrooms - Pending LOS
Evaluation
Maintain current LOS,
transitioning to universal
restrooms as facilities are
built or replaced
Add more to appropriate
parks, accelerate transition
to universal restrooms
N/A
Valmont Park - 2015
Concept Plan
Phase 1 development of
adventure and nature play
elements
Phase II development,
including disc golf, athletic
fields
Full concept plan
implementation, including
infrastructure for community
recreation facilities
Urban Canopy - Urban
Forest Strategic Plan
Focus on health of current
canopy through IPM, Tree
Safety, EAB response, and
public tree protection—
Some canopy growth
through tax investment,
philanthropy and partnership
Improved rotation for street
trees, increased planting to
support 16% canopy cover by
2027. Carbon credits could
create additional funding
source.
Industry standard rotation
for all public trees, sufficient
planting to achieve urban
canopy goals.
Civic Area Activation w/ Operations
Focus Phase II development N/A
Area III
Complete Baseline Urban
Service Plan and develop
concept plan, but nothing is
developed
Build core elements Full park development
PARKS
Could the Summer Olympics skateboarding competition be in this skater’s future? If
he keeps practicing his skills at Valmont City Park, it just might become a reality.
Attachment A: 2022 BPR Plan Alternatives
27
28
90 | Where We Are Going
PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Athletic Fields - 2015
Athletic Field Study
Optimize usage through
partnerships, maintenance
and conversion to artificial
turf
8th Field at Stazio,
Redevelopment at Mapleton
and Tom Watson to optimize
usage
Build fields at Valmont City
Park
Recreation Centers
- 2022 Facility Needs
Assessment
EBCC & NBRC - Maintain Well
SBRC - Retire past useful
life facility but not replace;
citywide facility feasibility
study for SOBO area facilities
Enhance Facilities
Modernize EBCC & NBRC;
Design/Build South Boulder
facility
Courts - Study pending
Maintain Well. Court study
to identify LOS—Seek
opportunities to maximize
community benefit through
Joint Use Agreements/
partnerships
Enhance for increased
durability, some additional
facilities
Additional new facilities may
be developed
Aquatics -2015 Aquatics
Feasibility Study
Maintain current service
levels and pools Enhance Spruce Pool Build aquatic training facility
at Valmont City Park
Reservoir -2018 South
Shore Capital Strategy
Improve existing site
connections and ciruclation
Additional shade structures
and group picnic areas,
children’s play and outdoor
education
Marina facility includes
meeting/event space,
boat storage/maintenance
facilities
FACILITIES
Balancing is key to success when taking the BoulderLift class at East Boulder Community Center.
Attachment A: 2022 BPR Plan Alternatives
28
29
Where We Are Going | 91
PLAN ALTERNATIVES
PROJECTS FISCALLY CONSTRAINED ACTION VISION
Facility Access Fees
Continued increases to base
fees to keep up with cost
escalation, maintaining
discounts for youth and
seniors
Increase base fees and
increase discounts for youth
and seniors
Free for target populations
(youth & seniors)
Financial Aid
Maintaining Financial Aid
LOS reliant upon grants and
philanthropy
Funding supports increased
aid and sliding scale for
maximum access
Sliding scale supports full
participation
EXPAND
Core Services for Target
Population funded by GF
subsidy and grants
Service levels increase N/A
Youth / Teens
Additional programming
only possible through
discontinuation of other
services or market based
programs
Programming for youth and
teens grows with additional
donations, grants or subsidy
N/A
Young explorers taking advantage of nature play opportunities during an annual BPR summer camp program.
PROGRAMS & SERVICES
Attachment A: 2022 BPR Plan Alternatives
29
30
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: BPR Fee Policy
31
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: BPR Fee Policy
32
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: BPR Fee Policy
33
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: BPR Fee Policy
34
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: BPR Fee Policy
35
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: BPR Fee Policy
36
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: BPR Fee Policy
37
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: BPR Fee Policy
38
Attachment C: 2025 BPR Fee Schedule
1
Attachment C: 2025 Parks and Recreation Department Fee Schedule
This fee schedule provides detail in support of the BPR Fee Policy for the department’s facilities
and operations. The Definitions found in the Fee Policy apply throughout this document and are
incorporated by reference.
Subsidy Levels
To advance equity by lowering barriers and supporting access based on the priorities identified in
the 2022 BPR Plan, subsidy is provided to programs that support low-income residents, people
with disabilities, older adults and youth.
Other Facility Use and Services
Any other Boulder Parks and Recreation facility or service not listed specifically in this fee
schedule or elsewhere shall be available at the discretion of the Parks and Recreation Department
Director. The Director or their designee will determine the applicable fees and necessary
requirements.
Staffing
Additional fees may be charged for events, rentals, and reservations that require staff above and
beyond those that are regularly scheduled to work. An additional premium applies for staffing
that must take place outside of regular operational hours, recognizing it requires a shift in regular
scheduling and management support to administer.
Specific fees are based on the approximate cost of staff as follows:
Staff Category Hourly Rate Per Employee
Seasonal & Temporary (Non-Standard) Staff $24.50
Standard Operations Staff $40.00
Standard Management Staff $61.00
Overtime/Outside of Operating Hours 2x multiplier
Fees by Program Type
I.Open Access
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.
No fees are associated with the use of Open Access facilities.
II.Grants, Philanthropy & Donations
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.
39
Attachment C: 2025 BPR Fee Schedule
2
Attachment C: 2025 Parks and Recreation Department Fee Schedule
No fees from customers are associated with this revenue category, though a portion of
funds may be due to pass-through organizations.
III.Special Events
Large-scale events that involve reservation of department facilities and parks.
Depending on the intended audience of the event, any of the 3 community benefit
levels may apply.
Typically, most Community and Recreation level programs are produced by the
department and/or city, that fees would primarily apply for Special Events with an
Individual Benefit level. Citywide Special Events Office may have additional fees
beyond fees charged for Parks and Recreation facilities, programs, and staff.
a.Special Event Fees
Special Events Per Day
50 – 250 people $300.00
251 – 1,000 people $500.00
1,001 – 5,000 people $1,250.00
5,001 – 50,000 people $2,000.00
50,000+ people $2,500.00
Glen Huntington Bandshell Per Day
50 + people $900.00
Special Event Locations: Boulder Creek Path, Central Park, EBCC Community Park,
North Boulder Park, SBRC – Harlow Platts Park
b.Reservoir Events
Per Day
April 1 – Oct 31
Per Day
Nov 1 – March 31
Full facility closure $15,000.00 $7,500.00
Reservoir Basic site $400.00 $200.00
Reservoir Premier site $600.00 $300.00
½ Parking Lot (double for full) $250.00 $125.00
Restrooms N/A $200.00
Reservoir Lake Per Hour
April 1 – Oct 31
Per Hour
Nov 1 – March 31
Reservoir Lake closure inside no
wake area
$75.00 $50.00
40
Attachment C: 2025 BPR Fee Schedule
3
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Reservoir Lake wake area ½ $500.00 $250.00
Reservoir Lake wake area Full N/A $500.00
Picnic Fees: Basic Site Per Event Premier Site Per Event
Silver $400.00 $440.00
Gold $625.00 $685.00
Platinum $800.00 $880.00
Custom a la carte pricing A la carte price A la carte price
Per participant impact fees $5.00 - $6.00 per
participant based on
impact of event
$4.00 - $6.00 per
participant based on impact
of event
Per car participant fee for picnics
only
$10.00 $10.00
Room Rentals: Per Hour
Main building dining room $200.00
Outdoor patio $50.00
c.Valmont Events
Valmont hosts limited Special Events during a typical year, so for each of those
instances applicable fees will be calculated based on the projected impact, staff
resources, and exclusivity of the rental based on the principles and targets in the
Fee Schedule and Fee Policy.
IV.Recreation Services
Fees associated with recreation programs and services are determined based upon the
department’s Service Delivery Model and may be updated each program session.
Rates are published in the Recreation Activity Guide each registration session.
V.Facility Entry
Access to recreation centers, pools, and other facilities are consistent across the BPR
system. Visitors may pay for individual daily entries, packages of “punches” to be
used for entrance , or memberships that allow unlimited use during a set time period.
a.General Definitions & Promotions:
i.Resident/Worker Fee: Rate reflects a discount for those who either live
or are paid employees of businesses or organizations within the city limits
of Boulder.
41
Attachment C: 2025 BPR Fee Schedule
4
Attachment C: 2025 Parks and Recreation Department Fee Schedule
ii.Household: Any adults, seniors or youth residing at the same address
(anyone 19 years old and over must provide proof of same-address
residency). The package may not include more than 8 members aged 19 or
older.
iii.Additional Annual Pass Family Members: First family member pays
highest full price; additional family residing at the same address qualify
for 50% off. Unlimited Annual passes only, purchased at the same time.
iv.Military and Public Service Discounts: A 15% discount on monthly or
annual passes is available to Active Military & Veterans; Local, State,
Federal Government employees within the city of Boulder; and University
and School District employees within the city of Boulder.
v.Silver Sneakers, Renew Active, One Pass, Silver & Fit: These programs
encourage older adults to participate in physical activities that will help
them to maintain greater control of their health. Many insurance
companies offer these benefits to their members which allows them to
access the Boulder recreation centers and participate in drop-in activities.
This does not include registered programs (see Section IV – Recreation
Services above).
b.Single Visit – Unlimited facility access within the same day
Ages
Daily Entry Fee
Adult (19-59) $12.00
Senior (60+) $9.00
Youth (3-18) $7.00
Group Daily (4 entries; max 2 adults) $32.00
c.10 Visit Pass
Ages Non-Resident Rate Resident/Worker Rate
Adult (19-59) $114 .00 $96.00
Senior (60+) $85.00 $72.00
Youth (3-18) $66.00 $56.00
d.Monthly Pass
Ages Non-Resident Rate Resident/Worker Rate
Adult (19-59) $87.00 $72.00
Senior (60+) $65.00 $54.00
42
Attachment C: 2025 BPR Fee Schedule
5
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Youth (3-18) $52.00 $43.00
Household $139.00 $11 5.00
e.Annual Pass
Ages Non-Resident Rate Resident/Worker Rate
Adult (19-59) $907.00 $756.00
Senior (60+) $680.00 $567.00
Youth (3-18) $548.00 $453.00
Household $1,451.00 $1,209.00
f.Unlimited Summer Fun Pass
Ages Non-Resident Rate Resident/Worker Rate
Adult (19-59) $261.00 $216.00
Senior (60+) $195.00 $162.00
Youth (3-18) $153.00 $126.00
Household $417.00 $342.00
*Valid from Friday before Memorial Day to Labor Day
g.Reservoir Only Fees:
i.Flank Season & Twilight Entry Fees
Season Individual Carload
Flank Season* $5.00 $10.00
Twilight Entry** $5.00 $10.00
Large Vehicle fee – buses, vans, etc.
* **
$10 + $3 for every person over 10 people
*April 1 to Thursday before Memorial Day & Tuesday after Labor Day to October 31
** 6:00 pm to facility close
*** Large Vehicle Fee – only during Flank Season
ii.Reservoir Only Annual Pass (January 1 to December 31)
Ages Non-Resident Rate Resident/Worker Rate
Adult (19-59) $435.00 $362.00
Senior (60+) $325.00 $273.00
Youth (3-18) $261.00 $217.00
43
Attachment C: 2025 BPR Fee Schedule
6
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Household $695.00 $580.00
VI.Resale Items
Consumable and non-consumable goods available for purchase at BPR facilities.
Resale items change throughout the year based on the season, availability of product
and price. All resale items will be priced at 100% recovery of direct costs or higher.
Discounting may be used to reduce inventory.
VII.Contracted Programming
Registered programs offered by a non-city/department agency that operate under a
revenue share/profit split. If city staff are managing registration and payment, a
revenue split of at least 30% to the city is expected with 70% to the partner, whereas
if the partner is handling those tasks, the revenue split would be at least a 20% to the
city and 80% to the partner. It is expected that contractors support department
priorities of supporting participation among youth, seniors, people with disabilities
and low incomes to encourage a greater diversity of participation.
VIII.Golf Course
The fees for Flatirons Municipal Golf Course year-round are:
a.Per Round (Monday through Thursday)
Ages 9 Hole 18 Hole
Adult $30.00 $48.00
Senior $24.00 $40.00
Youth $20.00 $30.00
b. Per Round (Friday to Sunday) & Holidays
Ages 9 Hole 18 Hole
Adult $33.00 $53.00
Senior $29.00 $47.00
Youth $24.00 $34.00
c.Annual Pass:
Ages Per Year
Adult $1,650.00
Senior $1,320.00
Junior (11 to 17) $425.00
Children (10 and under free w/ paying adult)
44
Attachment C: 2025 BPR Fee Schedule
7
Attachment C: 2025 Parks and Recreation Department Fee Schedule
d.Value Plan Card
Ages Per Pass 9 Hole w/ Value Plan 18 Hole w/ Value Plan
Adult $699.00 $9 per round $12 per round Senior $599.00
e. Tournament Fees
Weekday Tournament* $78.00
Weekend Tournament* $83.00
Add-On’s based on market rate+ Customized with Golf Staff
*Includes 1 round per person; 1 cart for every 2 players
f.Other Fees:
Practice Range Balls Per Item
Small – 40 balls $8.00
Medium – 75 balls $11.00
Large – 100 balls $14.00
Carts (per person) 9 Hole 18 Hole
Riding Cart with GPS $15.00 $20.00
Push Carts $5.00 $7.00
Rental Clubs 9 Hole 18 Hole
Standard Clubs $10.00 $20.00
Performance Clubs $35.00 $50.00
IX.Rentals
Space, facility, equipment, park reservations for a use by an individual, group or
organization.
a.Reservoir-Specific User Groups, Events and Picnics
Exclusive Use Youth Per Hour Adult Per Hour
Hourly Rate Based on 2024 Expenses:
for before and after hours use only.
$284.00
2025 Rates $185.00 $284.00
Add Ons Per Day
45
Attachment C: 2025 BPR Fee Schedule
8
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Fire Extinguisher $10.00
Large Ice tub $20.00
Charcoal Grill $40.00
Picnic Tables $20.00
20’ x 20’ canopy $350.00
20’ x 30’ canopy $400.00
Equipment Use Per Hour
Loader / Tractor $85.00
Personal Water Craft $30.00
Motor Boat $50.00
b.Boating
Decontaminations Per Craft
Small craft $20
Large craft $50-$250 (depends on severity)
Annual Boat Storage: Mooring Per Boat Fee
Rack $380.00
Gravel $830.00
Paved $945.00
Wet $1,110.00
Season – 7 days per week: Per Boat Fee
Powered 50-499 HP $735.00
Powered 1-49 HP and Sail boats $315.00
Weekday – Mon – Fri (excludes
holidays)
Per Boat Fee
Powered 50-499 HP $400.00
Small watercraft
Small Watercraft Non-Resident Rate Resident/Worker Rate
Weekday (Mon – Fri & excludes
holidays)
$45.00 $40.00
7 days per week $70.00 $60.00
c.Outdoor Sport Fields & Tournaments
46
Attachment C: 2025 BPR Fee Schedule
9
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Rental Space Yo uth Group Per Hour Adult Group Per Hour
Inline Hockey Rink $16.00 $19.00
Horseshoe Pits $27.00 $32.00
½ Multi-purpose /
Satellite /Recreation Field
$18.00 $25.00
Multi-purpose / Satellite / Recreation
Field
$28.00 $35.00
Baseball & Softball Diamond / Soccer
Fields
$35.00 $44.00
Premier Field $67.00 $88.00
Add On’s
Lights $45.00 $45.00
Painting & Striping $38-110
Garbage At Cost At Cost
Portalet Rentals At Cost At Cost
Added Prep Costs See staff rates See staff rates
Cost Multipliers:
Daily rate is equivalent to 7.5 hours booked
Multi Day/Tournament rate is equivalent to 6 hours booked over multiple days
Multi-Purpose / Satellite / Recreation Field: Aurora 7 Park, Arapahoe Ridge Park, Columbine
Park, Foothills Community Park, East Boulder Community Park, Harlow Platts Community
Park, Keewaydin Meadows Park, Martin Park, North Boulder Park, Tant ra Park, Summitt Middle
School, Tom Watson Park, Valmont Regional Park
Baseball & Softball Diamond / Soccer Field: East Mapleton Ballfields, Gerald Stazio Softball
Fields, Pleasant View (Fields 2-12)
Premier Fields: East Boulder Community Park (artificial turf only), Pleasant View (Field 1),
Scott Carpenter Park
d.Outdoor Space Rentals
Resident / day Non-Resident / day
Park Shelters $110.00 $135.00
Alcohol Permit $25.00 $25.00
Parking Lots $100.00 $100.00
Chautauqua Lawn Free – permit & deposit required
Valmont Park Resident Non-Resident / day
Shelter - 3 hours $150.00 $150.00
Park Shelters: Foothills Community Park, Harlow Platts Park, Martin Park, North Boulder Park
47
10
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Attachment C: 2025 BPR Fee Schedule
Parking Lots: full closure of a parking lot is per day
e.Outdoor Court Rentals:
Court Type Fee Per Hour
Sand Volleyball Court $30.00
Pickleball Court $6.00
Handball Court $8.00
Tennis Court $6.00
Tennis Court with Lights $10.00
Platform Tennis Court $5.00
Basketball Court $33.00
f.Indoor Space Rentals
Resident / Hour Non-Resident / Hour
Small Room Rental $40.00 $50.00
Large Room $65.00 $80.00
Specialty Recreation Facility $80.00 $100.00
Basketball ½ Gym $50.00 $62.50
Basketball Full Gym $110.00 $135.00
EBCC Ballroom $250.00 $250.00
EBCC Kitchen Surcharge Surcharge
Valmont Farmhouse $125.00 $125.00
NBRC Gymnastics Room $2,575.00 / day
Small rooms: SBRC Lobby and Stretching Room; Indoor Racquetball Court
Large rooms:
All Centers: meeting or classroom space
EBCC: 1/3 of ballroom
NBRC: 2/3 of multipurpose room
SBRC: Ninja Studio; Community Lounge
Specialty Recreation Space: not normally rented except for special occasions:
Full multipurpose room, dance rooms, aerobics room, yoga room, childcare room
g.Aquatics
Rental Space Youth Per Hour Adult Per Hour
Pool Patio $35.00 $42.00
48
Attachment C: 2025 BPR Fee Schedule
11
Attachment C: 2025 Parks and Recreation Department Fee Schedule
Indoor Lap Lane – 25yd $14.00 $16.00
Outdoor Lap Lane – 25yd $16.00 $20.00
Scott Carpenter Lap Lane – 50m $27.50 $33.00$40.00
Leisure Pool Space $64.00 $80.00
Cabana Rental Resident Non-Resident
Rental + admission fee per person
4 hour rental
$65.00 $75.00
X.Commercial Use
User groups and other entities rent space from the department and provide
programming outside the scope of BPR services. This is currently guided by a 2012
pilot program with minimal charges applied based upon participation; to be reviewed
in 2024.
a.Rentable Properties
For all 1+ year leases such as Boulder Reservoir Main Building Restaurant Space,
Flatirons Golf Course Food and Beverage Space, Harbeck House, etc., staff issue a
formal Request for Proposal with lease terms agreed upon by the Department and
confirmed by the Parks and Recreation Advisory Board (leases up to 3 years) and
City Council (leases over 3 years).
The department’s preference is a base rent plus a percentage of revenue, with
tenant responsible for all utilities.
b.Park Commercial Use Program (2012 Pilot)
Minimum Visitors* Maximum Visitors Quarterly Fee
50 250 $50.00
251 500 $250.00
501 1000 $500.00
1,001 2,000+ $750.00
*Total projected visitations over a quarter
49
Row Labels 2024 Actual 2026 Proposed Budget 24 to '26 $ Change2 24 to 26 % Change2
BPR Aquatics Operations 289,802$ 336,000$ 46,198$ 16%
BPR Aquatics Program 165,925$ 192,000$ 26,075$ 16%
BPR Basketball 25,428$ 27,000$ 1,573$ 6%
BPR Contracted Camps 162,080$ 72,000$ (90,080)$ -56%
BPR Contracted Programs 12,830$ 8,000$ (4,830)$ -38%
BPR Contracted Sports 53,855$ 59,000$ 5,145$ 10%
BPR Dodgeball 6,000$ 7,000$ 1,000$ 17%
BPR EXPAND Camp Amico 5,523$ 42,000$ 36,477$ 660%
BPR EXPAND Programs 168,085$ 133,000$ (35,085)$ -21%
BPR Facility Drop-in 557,322$ 534,000$ (23,322)$ -4%
BPR Facility Drop-in Aquatics 210,442$ 250,000$ 39,558$ 19%
BPR Facility Operations 147,645$ 165,000$ 17,355$ 12%
BPR Facility Programs 2,281,007$ 2,482,000$ 200,993$ 9%
BPR Facility Programs Aquatics 271,390$ 250,000$ (21,390)$ -8%
BPR Fitness Programs 345,429$ 380,000$ 34,571$ 10%
BPR Golf Operations 2,240,876$ 2,450,000$ 209,124$ 9%
BPR Golf Programs 4,965$ 3,000$ (1,965)$ -40%
BPR Gymnastics Operations 37,155$ 35,000$ (2,155)$ -6%
BPR Gymnastics Programs 1,269,646$ 1,350,000$ 80,354$ 6%
BPR Kickball 36,445$ 37,500$ 1,055$ 3%
BPR Kidz Kamp 174,930$ 225,000$ 50,070$ 29%
BPR RAF Grants Recreation Administration 91,000$ 150,000$ 59,000$ 65%
BPR RAF Grants YSI 60,000$ 50,000$ (10,000)$ -17%
BPR Reservoir Boating 480,365$ 500,000$ 19,635$ 4%
BPR Reservoir Operations 1,113,969$ 1,185,000$ 71,031$ 6%
BPR School Day Off Camps 28,404$ 35,000$ 6,596$ 23%
BPR Softball 205,409$ 215,000$ 9,591$ 5%
BPR Sports Operations 570,509$ 590,000$ 19,491$ 3%
BPR Tennis 223,009$ 220,000$ (3,009)$ -1%
BPR Volleyball 54,270$ 55,000$ 730$ 1%
BPR Water Sports Camp 77,421$ 65,000$ (12,421)$ -16%
BPR Youth Programming 12,000$ 12,000$ #DIV/0!
Total 11,371,135$ 12,114,500$ 743,365$ 7%
Attachment D:
2024 Actual to 2026 Proposed Revenue by Facility & Program
Attachment D: 2024 Actual to 2026 Proposed Revenue by Facility & Program
50
Attachment E: 2026 - 2031 Draft CIP
Boulder Parks and Recreation
Row Labels 2026 Proposed 2027 Proposed 2028 Proposed 2029 Proposed 2030 Proposed 2031 Proposed Total Average/Year
Asset Management- Courts 0 400,000 400,000 400,000 400,000 400,000 2,000,000 285,714
Asset Management- General Maintenance 100,000 250,000 250,000 200,000 200,000 200,000 1,200,000 171,429
Asset Management- Historic Property 50,000 50,000 50,000 50,000 50,000 50,000 300,000 42,857
Asset Management- Irrigation 125,000 125,000 125,000 125,000 125,000 125,000 750,000 107,143
Asset Management- Parking Lots/Access & Mobility 0 200,000 200,000 200,000 200,000 200,000 1,000,000 142,857
Asset Management- Play Areas 0 500,000 500,000 500,000 500,000 500,000 2,500,000 357,143
Asset Management- Regional Facilities 200,000 300,000 300,000 300,000 300,000 300,000 1,700,000 242,857
Asset Management- Restrooms and Picnic Shelter 250,000 250,000 250,000 250,000 250,000 250,000 1,500,000 214,286
Asset Management- Sports Fields 0 100,000 100,000 100,000 100,000 100,000 500,000 71,429
Asset Management-Natural Lands 75,000 75,000 75,000 75,000 75,000 75,000 450,000 64,286
Asset Management-Urban Forest Management 410,000 500,000 500,000 500,000 500,000 500,000 2,910,000 415,714
Civic Area Phase II CCRS 10,000,000 5,500,000 0 0 0 0 15,500,000 2,214,286
Named Park Refresh 0 2,000,000 2,750,000 2,600,000 2,500,000 2,500,000 12,350,000 1,764,286
North Boulder Park 1,350,000 0 0 0 0 1,350,000 192,857
Pearl St. Mall Refresh 1,000,000 0 0 0 0 0 1,000,000 142,857
Pleasant View Park 1,200,000 0 0 0 0 0 1,200,000 171,429
System Planning 0 300,000 400,000 100,000 100,000 100,000 1,000,000 142,857
Tom Watson Park 400,000 0 0 0 400,000 57,143
Total 15,160,000 10,550,000 5,900,000 5,400,000 5,300,000 5,300,000 47,610,000 6,801,429
July 28, 2025
PRAB Meeting
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AGENDA ITEM VIII-Bi_ PAGE 1__
C I T Y O F B O U L D E R
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: July 28, 2025
AGENDA TITLE: Membership and Entry Fee Options for Cost Recovery
PRESENTERS:
Alison Rhodes, Director of Parks and Recreation
Scott Schuttenberg, Deputy Director
Jackson Hite, Senior Manager, Business Services
Stacie Hoffmann, Senior Budget Analyst, Business Services
Megann Lohman, Senior Manager, Recreation
Erynn Simone, Senior Manager, Regional Facilities
EXECUTIVE SUMMARY:
This item continues the Parks and Recreation Advisory Board (PRAB) discussion related
to the Parks and Recreation department (the department) 2026 Budget Strategy and is
focused on the Recreation Activity Fund and fees.
The PRAB’s role as it relates to fees is advisory, and the intent of this item is to provide
information and to invite feedback on a range of options to support higher cost recovery
for the recreation facilities.
The memo is organized to provide the PRAB first with information to support a shared
understanding of the current state. It then separates analysis into three main sections for
feedback: (1) general membership structures; (2) seasonal facility entry; and (3)
subsidized access. There is also an opportunity to provide feedback on some specific
options based on market alignment. For ease of review, the PRAB can reference each
section on these pages:
Background, pg. 2-4: Information to explain current state of funding, costs and
fee practices.
Definitions, pg. 5-6: Definitions for shared understanding.
Analysis, pg. 6-23
o System-wide data, pg. 6-9
o General membership structures, pg. 9-12
o Seasonal facility entry, pg. 12-17
o Courts, pg. 17
o Subsidized entries, pg. 18-21
o Market alignment, pg. 21-24:
With the board’s input at this meeting and additional analysis, staff will return at the
August meeting to share and discuss recommendations for 2026 membership structure
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AGENDA ITEM VIII-Bi_ PAGE 2__
and access fees. The August discussion will inform the final 2026 fee schedule,
calendared to be shared at the September meeting.
BACKGROUND:
The last major updated to membership structure occurred in 2020. In 2019, staff
completed a membership feedback questionnaire to help inform pass structures and
access options at the six identified facilities (East Boulder Community Center, North
Boulder Recreation Center, South Boulder Recreation Center, Spruce Pool, Scott
Carpenter Pool and Boulder Reservoir). Respondents were asked if they would prefer
that a multi-visit pass be priced and sold based on access to all facilities, multiple
facilities or single facilities. The feedback showed that 67% preferred access to all
facilities, while 20% stated they preferred access to multiple facilities, and 12% preferred
access to single facilities.
Since 2019, the base entry fee to meet cost recovery goals for all facilities has increased
40% and will need to increase an additional $2.67 per entry on average, or more than
39%, to balance the budget for the Recreation Activity Fund (coupled with fee increases
as aligned with the Fee Policy, to other services as outlined in the policy).
The department developed a fee policy in 2023 to standardize its approach to fee setting
and subsidy use aligned with community benefit. The fee policy was informed from
research, policy, and community engagement through the 2022 BPR Plan. The fee
policy sets target ranges for cost recovery as informed by the plan, which shares that
services which serve the community more broadly should be more subsidized and
services which benefit the individual should receive less or no subsidy. As outlined in the
Fee Policy, all services are categorized based upon their degree of community benefit
(see Figure 1).
Figure 1: BPR Service Categories
To support equitable access, the policy commits to subsidizing facility and program
access for low-income residents, people with disabilities, youth, and seniors, through
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AGENDA ITEM VIII-Bi_ PAGE 3__
financial aid as funding allows. It also notes that BPR will consider other factors, such as
market pricing and demand. Accordingly, the proposed strategies in this memo are
guided by market data, financial sustainability, cost recovery goals, and equity
considerations.
Over the past 5 years, the cost of operating recreation facilities has grown substantially,
and the cost to operate outdoor facilities has grown even more significantly. In addition
to increased staffing costs across the system, chemical and heating expenses at outdoor
pools have increased substantially. At the Boulder Reservoir, addressing aquatic
nuisance species and algae brings new expenses. It costs more to operate the newly
renovated Scott Carpenter Pool for 5 months than it costs to operate the South Boulder
Recreation Center for a full year. Scott Carpenter Pool costs more than $600 to operate
per hour, while other facilities cost about $450 per hour. See Table 1 for a summary of
costs and cost recovery by location.
Table 1: Cost Recovery Data by Location
Specialized facilities like Scott Carpenter and the Boulder Reservoir have different
audiences and markets than recreation centers. The existing, one-size-fits-all entry
model does not support tailoring access to facilities based on the comparable markets,
which is the prevailing best practice, is aligned with the department’s fee policy, and
allows for clearer business models. While the existing all-in model benefits users who
frequently use all facilities, it doesn’t serve lighter users of specialized amenities as well.
Some members pay a premium for basic services, while others receive premium access
at a lower relative cost. As a result, the current structure can create access barriers for
average users who only use a subset of facilities.
Given that costs are outpacing revenues across the city, City Council has prioritized a
Long-Term Financial Strategy to explore more flexibility and funding and to explore
additional revenues. In the meantime, and given the pressure on city funds, staff are
pursuing additional revenue streams.
The department plan also highlights trends related to facilities. Notable items include the
increased demand for outdoor facilities, including pools and courts, and the increased
inaccessibility of services for those who don’t qualify for financial aid and may still have
financial challenges. The 2022 BPR Plan outlined three scenarios based on resources
available to meet the goals outlined in the plan: a vision scenario which assumed
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AGENDA ITEM VIII-Bi_ PAGE 4__
abundant funding, an action level scenario which provided options for additional services
should additional funding be found, and a fiscally constrained scenario based on existing
funding. In the fiscally constrained alternative, base fees will continue to increase with
subsidies for youth and seniors maintained (see Figure 2). To maintain the level of
service for the Financial Aid program additional grants and philanthropy would be
required, which has not been received.
Figure 2: Fiscally Constrained Plan Alternative
This memo includes background information by both fee category and facility type to
inform the PRAB of where Boulder is aligned with the market, where it varies, any public
feedback, and will include high-level staff notes for consideration. Staff will also
introduce options to improve cost recovery. Options are introduced in table format from
left to right and from red, yellow to green. Options on the left, in red, do not support
meeting cost recovery goals. Options on the right, in green, have the most potential to
meet or exceed cost recovery goals.
DEFINITIONS:
North Boulder Recreation Center (NBRC): 3170 Broadway
East Boulder Community Center (EBCC): 5660 Sioux Dr
South Boulder Recreation Center (SBRC): 1360 Gillaspie Dr
Scott Carpenter Pool (SCP): 1505 30th St
Spruce Pool: 2102 Spruce St
Boulder Reservoir: 5565 N. 51st St
BPR Fee Policy: 2023 PRAB approved fee policy the guides all fee setting for the
Boulder Parks and Recreation Department.
2022 BPR Plan: Boulder Parks and Recreation 2022 Plan update, which guides the
department’s work for 5-7 years and is based on research, policy, and community
engagement to guide recommendations.
Residency
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AGENDA ITEM VIII-Bi_ PAGE 5__
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
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, Figure 3, outlines who benefits and who pays for
services.
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AGENDA ITEM VIII-Bi_ PAGE 6__
Figure 3: Program Benefit Categories
Community: Services that enhance the health, safety and livability of the
community and therefore require minimal obstacles to participation.
Recreation: Services that benefit a broad range of users and are targeted to
promote physical and mental well-being.
Individual: Services targeted to specific individuals or user groups with limited
community benefit.
ANALYSIS:
The PRAB’s initial feedback on areas of focus for membership structure will inform the
August PRAB meeting. The options to consider are organized first to introduce the
overarching membership structures, then to introduce more specific possible levers
including access options for seasonal facilities, court access, age-based and need-
based subsidy components and select pass options.
To ensure options are aligned with community feedback, staff relied on existing data
from a Recreation Facility Access survey in March 2019 and additional community
feedback received in May 2025 via a Recreation Facility Feedback Form and onsite
engagement events. The 5-minute 2019 questionnaire was sent to 12,775 individuals
who had utilized BPR services in the past year. Over 920 individuals responded to the
questionnaire. A copy of 2019 questionnaire results are provided as Attachment A and
outcomes have been summarized in the analysis below. The survey was not statistically
valid, however, did include a broad section of responses.
The 2025 Recreation Facility Feedback Form was sent to roughly 55,000 individuals
through the department’s monthly newsletter. An onsite community engagement effort
offered in both English and Spanish, with Nepali translations also available onsite, was
hosted in the recreation centers the last two weeks of May. 88 responses were received
for the online feedback form, and more than 2,600 dots counted across the facilities.
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AGENDA ITEM VIII-Bi_ PAGE 7__
Where possible, in-person feedback was added to the online form for ease of reporting,
leading to 108 total form responses. A copy of the 2025 online feedback form is included
in Attachment B and outcomes are also included in the analysis below.
Staff recognizes the valuable role Boulder’s parks and recreation system plays in the
lives of community members and submits the options below with thoughtful
consideration of the need to be fiscal stewards of limited community resources and to
maintain accessibility to all community members.
Membership Structure Background
Introducing tiered membership options—aligned with facility type and market
comparisons—while still offering an all-access membership, could better meet
community needs and reduce barriers for moderate users. Lowering these barriers could
increase both pass sales and facility usage over time.
To inform potential changes, staff have compiled user profiles, market data, public
feedback, and equity considerations, along with recommendations. The following section
presents 2024 system-wide data on pass usage and general user profile definitions to
support the PRAB’s review.
System Entry by Type
Table 2 shows the percentage of facility entries across the system by age category for
daily admission and all pass types. Adults and youth are most likely to enter through
daily admission, seniors and households are most likely to enter using a membership
pass.
Type Pass Entry Daily Admission Total
Adult 34% 55% 36%
Household 21% 3% 19%
Senior 39% 9% 35%
Youth 6% 33% 10%
Total 100% 100% 100%
Table 2: System Entry by Type
System User Profile
To help the PRAB understand the various types of users of the facilities and the potential
impacts on the community, staff have grouped users into the following User Profiles:
Membership Pass: 38% of all entries. Frequent users who access one or more facilities
6+ times per month. Primarily residents (84%).
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AGENDA ITEM VIII-Bi_ PAGE 8__
Punch Pass: 12% of all entries. Occasional users who access facilities less than 6
times per month. Primarily residents (83%).
Daily Entry: 19% of all entries. Users who access a facility on a trial or limited basis.
More common at outdoor pools and the Boulder Reservoir. Residency unknown.
Third Party: 19% of all entries. Occasional to frequent users who access facilities
through a third-party wellness program (e.g. Silver Sneakers). Visitation is not limited,
but reimbursement is capped based on the negotiated contract rate for visits per month.
Financial Assistance: 11% of all entries. Occasional to frequent users who may access
multiple facilities. Only residents qualify for financial assistance.
Entry Per User Profile by Site
Table 3 shows the percentage of entry by user types at each location. Daily entry
accounts for a large percentage of usage at the Boulder Reservoir, 79%. All other user
types represent a minimal amount of usage at the Boulder Reservoir. Daily entry
accounts for a small amount of usage at the EBCC and the SBRC.
Entry per User
Profile by Facility EBCC NBRC SBRC Scott Spruce Reservoir Total
Membership Pass 39% 41% 49% 38% 39% 12% 38%
Punch Pass 14% 12% 12% 9% 14% 3% 12%
Third Party 33% 18% 21% 6% 17% 4% 19%
Financial
Assistance 11% 15% 10% 12% 8% 2% 11%
Daily Entry 3% 13% 7% 35% 23% 79% 19%
Other 1%
Grand Total 100% 100% 100% 100% 100% 100% 100%
Table 3: Entry Per User Profile by Site
Entry Per Facility by User Profile
Table 4 shows the total usage by user types across facilities. Daily entries are most
prevalent at the Boulder Reservoir, 42% of all daily entries, the NBRC (25%), and Scott
Carpenter Pool (20%). Membership pass (84%), punch pass (86%), third party (92%),
and financial aid (85%) user profiles all primarily participate at indoor facilities.
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AGENDA ITEM VIII-Bi_ PAGE 9__
Entry per Facility
by User Profile EBCC NBRC SBRC Scott Spruce Reservoir Total
Membership Pass 25% 39% 20% 11% 3% 3% 100%
Punch Pass 30% 39% 17% 9% 3% 2% 100%
Third Party 42% 33% 17% 3% 2% 2% 100%
Financial
Assistance 24% 48% 13% 11% 2% 2% 100%
Daily Entry 4% 25% 6% 20% 3% 42% 100%
Table 4: Entry Per Facility by User Profile
General Membership Structures
In the current membership structure, meeting cost recovery goals is increasingly
challenging. The proposed options below are in effort to support the rising costs of
operations for recreation facilities and to balance the budget. Each aspect of various
membership structures may help or hinder that effort.
Considering all other funding and revenue sources, and in the existing membership
structure, the average fee recouped per entry will need to increase $2.67 to meet a 67%
cost recovery rate and balance the RAF. That is an increase from the current average
entry fee of $6.79 (48% cost recovery), to $9.46 (67% cost recovery), or a nearly 40%
increase in rates.
At a high level, the following options are what the PRAB will review and consider. More
detailed options included would help staff to refine the final recommendations for the
2026 facility revenue strategy, including potential new membership structures.
Maintain Membership Structure:
The existing membership model includes access to all recreation facilities at one set fee.
Per Facility Entrance Model:
A per facility entrance model would have each unique facility or group of facilities priced
individually based on each market. All facility pass types are sold separately, and there
is no benefit to holding multiple pass types. *The All-In Pass Model can accompany this
option.
Recreation Center Plus Entrance Model:
A recreation center plus entrance model would still allow each facility to be priced
according to its specific market and would provide additional benefits and discounts to
recreation center pass holders. While specialty facility passes may be sold separately,
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AGENDA ITEM VIII-Bi_ PAGE 10__
recreation center passholders would receive discounts to add on the additional passes.
*The All-In Pass Model can accompany this option.
*All-In Pass Model Option:
An all-in pass type would include access to all facilities and be priced to ensure access
to all facilities meets cost recovery goals. This pass type can be offered in addition to
both the per facility and the recreation center plus entrance models.
Membership Structure Option to Consider:
Maintain existing structure
10-20% fee increase
Service level reductions
Recreation Center Plus*
10-20% discount on
additional facilities for rec
center members
Per Facility*
Eligible for age-based and
need-based discounting
only
Market analysis: No other municipality or organization researched offered comparable
services for one flat fee as the standard membership option. Municipalities and
organizations with specialty facilities offer models like the Per Facility and the Recreation
Center Plus. Each facility or group of similar facilities pursues specific pricing and
service strategies as appropriate for the comparable markets. For highly specialized
seasonal facilities membership options are traditionally limited, and do not normally
include monthly payment options, or access for third-party memberships.
Public feedback: Historically, the department has noted very little price sensitivity
through 5-9% increases on a 2-year schedule. In the 2019 survey, 55% of survey
respondents indicated that entry fees should be the same for all facilities, 45% of survey
respondents indicated that entry fees should vary based on the amenities provided. The
2025 feedback form indicated that 52% of respondents supported charging separate
fees at outdoor facilities to reduce future increases to indoor recreation center fees while
only 17% preferred to continue to raise fees to ensure access to all locations.
Equity Analysis: The existing model offers a simple menu option, provides a
consistent rate and access across multiple facilities for users. The model may not
address variable usage needs and requires even those who only use basic services to
pay for access to all. Substantial increases hinder affordability, especially for those just
outside of approval for financial aid. Financial assistance is offered at 100% subsidy
for residents that qualify.
Staff notes: Continuing the existing membership model requires significant price
increases or the reduction of service levels. These increases would continue to misalign
recreation centers with comparable markets. Outdoor facilities would also continue to not
align with the markets specific to their operations. Staff do not recommend continuing
with the existing membership structure.
Seasonal Facility Entry Fees
Entry fees and passes for seasonal recreation facilities at Spruce Pool, Scott Carpenter
Pool, and Boulder Reservoir are currently priced to match indoor recreation center fees.
Special ‘Splash Pass’ memberships have also been offered seasonally at an additional
discount over daily admission for access to seasonal recreation facilities.
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The cost to operate the outdoor seasonal facilities has increased more rapidly than the
indoor facilities. If entry fees were to cover 100% of the costs to operate the outdoor
seasonal facilities, Spruce Pool would need to charge $14.23 per entry, Scott Carpenter
$15.30 per entry, and the Boulder Reservoir $24.75 per entry. The cost per entry at the
Boulder Reservoir seems high, however, is a signifier of the relatively low entry at the
facility, and is largely already offset by the rentals, events and other activities. Scott
Carpenter relies heavily on entry fees to support operations, while Spruce Pool recovers
some expenses through programming, and the Reservoir through multiple avenues
including rentals and events. Scott Carpenter Pool currently only recovers an average of
$6.75 per entry, Spruce Pool $5.45, and the Reservoir $11.34. The Reservoir’s entrance
fee recovery is higher due to the high share of drop-in and non-resident users at the
facility. Figure 4, below, shows the diversity of revenue at each seasonal facility.
Facilities with more diverse revenue generation are less reliant on entrance fees to meet
overall cost recovery goals. In addition to the options outlined in this memo, staff will
continue to pursue opportunities to better serve the community and provide services that
may help diversify revenue generation.
Figure 4: Revenue Generation at Seasonal Facilities
Public feedback: The 2025 feedback form indicated that 52% of respondents supported
charging separate fees at outdoor facilities to reduce future increases to indoor
recreation center fees while only 17% did not support separating fees.
Scott Carpenter Pool
Scott Carpenter Pool currently operates for an extended season, opening as early as
May 1, and as late as September 30, pending weather. Attendance in the months of May
and September is generally minimal, at between 3,000-4,500 visits each month. June
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AGENDA ITEM VIII-Bi_ PAGE 12__
and July operations at the facility serve roughly 20,000 each month, and the month of
August serves roughly 15,000-18,000.
Scott Carpenter is the most expensive facility to operate per hour. With a budget of
nearly $1,000,000 for the 5 months of operations, it cost more than $600 per hour in
2024. In 2024, Scott Carpenter Pool brought in $520,000 in revenue, or reached 53%
cost recovery. Scott Carpenter was the worst performing location in relation to cost
recovery in 2024.
Options to consider for Scott Carpenter Pool:
No Change – Increase
fees aligned with indoor
facilities
Align fees to market rates
by facility type; offer
discounted entry to rec
pass holders
Align fees to market rates by
facility type; No discounted
entry for rec pass holders
Market analysis: The most comparable facilities to Scott Carpenter in the region are
found in Lafayette, Golden, and Englewood. BPR’s pass structure for outdoor facilities is
far more complex than any comparable agency. No other comparable agency offers
access to a similar facility through their general membership passes to recreation
centers. Most commonly, comparable facilities have drop-in rates and season passes,
with only one other organization offering punch passes. All locations offer age-based
discounts, and either resident or member discounts on season passes.
Boulder currently varies from the direct market comparisons in the following ways:
Only location that accepts third-party
Only location including access with recreation center memberships
Only location offering monthly payment options
Only location not charging for 2-year-olds
Only location that considers 18-year-olds youth
Only location with nearly ‘unlimited’ household members
Highest season pass fees
Lowest punch pass fees, and youth and senior drop-in fees
Longest operational season
Staff notes: Based on the highly variable business models by facility type, continuing a
one fee model for all facilities proves costly to all and does not allow unique facilities to
define and refine business models appropriate for the service type. Taking the existing
market information and the community feedback into account, staff recommend
detaching indoor recreation fees from outdoor facility fees. This will allow each unique
facility to pursue an operational fee structure that better supports the service and
community.
Spruce Pool
The Spruce Pool is an ageing facility and provides a basic level of service for outdoor
swimming. It currently operates at 55% cost recovery and required $96,700 in direct
subsidy to operate in 2024.
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Options to consider:
No Change – fee increase
aligned with centers
Include access to Spruce
Pool with new Recreation
Center Pass
Include Spruce Pool access
with purchase for Scott
Carpenter Pool
Market analysis: Other local public agencies with basic outdoor pools are split with some
selling access separately from recreation center memberships and others including the
basic outdoor pools in memberships.
Staff notes: Spruce Pool is a basic summer outdoor amenity and is showing its age. It is
not recommended to include an additional pass type for this facility, which may be
reconsidered if the location is renovated. Enhancing Spruce Pool is identified as an
Action Level initiative in the 2022 BPR Plan and would require additional funding. While
highly subsidized as a percentage of operations, Spruce is relatively inexpensive to
operate for the facility type. Continuing to allow access to Spruce Pool with a basic
recreation center pass would ensure access to outdoor swimming for general
passholders. Including Spruce Pool access instead with an outdoor pool pass is also an
option.
Boulder Reservoir
The Boulder Reservoir currently collects entry fees between April through October. All
current recreation center membership passes, and the outdoor facility Summer Fun pass
are accepted at the location. The flank/shoulder season, prior to Memorial Day weekend
and after Labor Day weekend, are priced at a discounted daily entry of $5 per person
and $10 per car in 2025.
Daily entries account for most of the usage at the facility at 79%. 42% of all daily entries
across the system take place at the Boulder Reservoir. In 2024, entrance fees
accounted for 43% of the facility’s total revenue. The facility also generates substantial
revenue from permits, events and rentals.
The following options explore a per-car pricing model, associated memberships, and
possible holiday premium pricing.
Boulder Reservoir Membership Options to Consider:
No Change – fee increase
aligned with centers
Align fees to market by
facility type; offer
discounted entry to rec
pass holders on passes
Align fees to market by
facility type; no discounted
entry to rec pass holders
Boulder Reservoir Daily Entrance Model:
No Change Shift to a per-car model
with a flat entry fee
Shift to a per-car model
with pricing for:
1 occupant
2-5 occupants
Fee for each person over 5
*The per-car model also proposes a bike/pedestrian entrance fee to encourage non-
driving visitation.
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Market analysis: Most comparable facilities collect a flat per-car fee with the option to
purchase a pass. With per-car pricing models, there are not traditionally age-based
subsidies provided on daily entry.
Public feedback: Staff have received feedback that gate operations are reducing
visitation and delays are discouraging customers.
Staff notes: Per-person entry fees for 79% of visits come with significant operational
difficulties. The line leading to the two gatehouses can back up onto 51st Street while
staff figure out the age of each person in a car, deduct any memberships, and charge
the appropriate amount before allowing the visitors access. Comparable regional, state,
and federal facilities charge a flat per-car fee. Those fees are traditionally lower than
what BPR requires to achieve cost recovery in the existing fee structure, as most state
and federal reservoirs are highly subsidized and funded differently than local
government. A per-car model could support greater volume and visitation while
sustaining entrance fee revenue. A per-car fee in the summer months would also align
with the current flank/shoulder season operational model. However, there would need to
be an increase in the fee due to additional summer operating expenses associated with
a higher level of service such as the swim beach and lake patrol.
To honor community feedback related to age-based discounting, facility passes would
continue to be sold based on residency and age, while a car fee would assume a ‘group’
based on historical entry data and be priced as such.
Seasonal Facilities Options to Consider:
Seasonal
Facilities
Option 1 Option 2 Option 3
Scott
Carpenter
No Change –
Increase fees
aligned with indoor
facilities
Align fees to market
rates by facility type;
offer discounted entry
to rec pass holders
Align fees to market rates
by facility type; No
discounted entry for rec
pass holders
Spruce Pool No Change – fee
increase aligned
with centers
Include access to
Spruce Pool with new
Recreation Center
Pass
Include Spruce Pool
access with purchase for
Scott Carpenter Pool
Boulder
Reservoir
Memberships
No Change – fee
increase aligned
with centers
Align fees to market
by facility type; offer
discounted entry to
rec pass holders on
passes
Align fees to market by
facility type; no discounted
entry to rec pass holders
Boulder
Reservoir
Daily Entry
No Change Shift to a per-car
model with a flat
entry fee
Shift to a per-car model
with pricing for:
1 occupant
2-5 occupants
Fee for each person over 5
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Courts
In 2024, BPR completed a city-wide Court System Plan to better understand usage
trends, system gaps, and opportunities for operational consistency. BPR’s CIP
addresses the need for additional courts and this item provides an overview of the
operational recommendations. The study highlighted significant variation in court access,
reservation practices, and fees across the system. Community feedback and internal
analysis both pointed to the need for more predictable experiences and consistent fee
structures, especially as demand continues to grow.
Options to consider:
No change – fee
increase
Separate court access at
recreation centers from
standard membership, fee
increase
Introduce a citywide court
pass and take reservations for
all courts, fee increase
Market analysis: Through market research and findings from the Court System Plan,
BPR identified that current court fees are, on average, 50% lower than comparable
communities.
Public feedback: Boulder’s courts are well used, with both tennis and pickleball players
advocating for additional access that is more consistent and simpler.
Staff notes: In the current court reservation model, annual pass holders are encouraged
to reserve only at courts near recreation centers, where access is included in the
membership. This sometimes leads to select individuals monopolizing those courts or
even booking courts with no incentive to release the booking when they can no longer
make their reservation. Meanwhile, satellite courts are reserved less than 10% of the
time and popular for walk-up use.
Staff recommend that access to all courts is streamlined to ensure simplicity and
affordability. Staff do not recommend including court access in passes in 2026. Including
courts in an All-In model would widen the subsidy gap and staff cannot verify court use
in ways required for reimbursements.
Subsidized Entry Fees
Subsidized entry fees are currently provided based on age and/or income. Individuals 3-
18 years of age are eligible for a subsidized Youth entry fee. Individuals 60 years of age
and older are eligible for a subsidized Senior entry fee. Those under the age of 3 are
free. Residents of any age are eligible for a free membership if household income is
below 60% of Area Median Income.
Additionally, seniors, regardless of residency, may be eligible for an annual membership
through a third-party provider (generally insurance companies). City of Boulder is
reimbursed a portion of the entry value for third-party membership entries through the
provider.
66
AGENDA ITEM VIII-Bi_ PAGE 16__
It is estimated that 55% of all entries systemwide are discounted or subsidized for a total
of $1.66 million subsidy provided to entries annually, with usage growing 30% in total
over the last 4 years.
Public feedback: 57% of 2019 survey respondents indicated that entry fees should be
subsidized based on age, 34% based on ability to pay, 8% had no opinion. The 2022
BPR Plan’s statistically valid survey found that respondents believed programming is
either essential or very important for these top five groups, people with disabilities (92%),
people with low incomes (89%), older adults (88%), teenagers (87%), and children
(86%). The 2022 BPR Plan’s fiscally constrained alternative indicated that facility access
fees would result in continued increases to base fees to keep up with cost escalation,
maintaining discounts for youth and seniors.
Financial Aid Considerations:
No Change: 100%
free access at all
locations
In Between Sliding Scale for All
Market analysis: Financial Aid programs, funding, and qualifiers vary greatly across
different organizations. Financial Aid programs are funded through a variety of sources
including general fund dollars, grants, and donations. Income qualifiers are commonly
set as 50% AMI. Many organizations cap financial aid discounts between $200-300 for
the year per person and offer a flat 50% discount up to the cap on any programs or
passes. Some organizations offer tiers of access, 100% discounts, 75% discounts, and
50% discounts based on income qualifiers for programming. Even those organizations
still only offer up to a 50% discount on memberships. Financial aid discounting is
typically allowed on any membership pass type. Small outdoor pools, similar to Spruce,
are sometimes included in recreation center memberships. Larger outdoor pools and
amenities, like Scott Carpenter and the Reservoir are not traditionally included in
recreation center memberships. There was not a market comparison found that offered
free access to outdoor pool facilities.
Staff notes: The 2022 BPR Plan stated that maintaining financial aid level of service is
reliant upon grants and philanthropy. Without additional funding, it is not feasible to
continue allowing 100% free access to all facilities and locations through the financial aid
program.
To allow time to pursue additional funding without impacting level of service for a priority
population, it is recommended full access for financial aid members continue through
2026. Without additional funding, changes will be required in 2027. The 2022 BPR Plan
identified a sliding scale financial aid model to be evaluated as part of the Financial
Sustainability theme, goal 3, initiative 4; Developing a sliding scale model will also be a
priority in 2026.
Senior Subsidy: Third Party
No Change –
continue to
negotiate for higher
Retain full access
in 2026 to pursue
additional funding
Recreation Center
and Spruce Pool
access. Eligible for
membership and
Recreation Center
access. Eligible for
age-based
67
AGENDA ITEM VIII-Bi_ PAGE 17__
reimbursement
rates
age-based
discounts
elsewhere
discounting
elsewhere
Senior Subsidy: Aged Based Discount
No Change
Reduce senior subsidy
rate at outdoor facilities
only
Reduce senior subsidy by
5% at all locations.
Market analysis: All other local agencies offer a discounted Senior entry fee, averaging
between 20%-50% discount from adult entry fees for Recreation Centers. Agencies with
facilities similar to Scott Carpenter offer Senior entry fees between 8%-25% discount
from adult entry fees. Boulder fees are approximately a 25% discount from the adult fee.
The City and County of Denver provides fully subsidized access to resident ‘seniors’
through a funded ‘MY Denver Prime’ program.
Staff notes: Since made available to all recreation facilities, third-party memberships
including, Silver Sneakers, Renew Active, and Silver & Fit usage for older adults has
been rising, while paid older adult usage has been declining. Overall growth aligns with
demographic trends as Boulder’s 60+ population is growing quickly. In 2024, over 20%
of all facility entries were made through access from third-party membership. Entry fees
have increased nearly 40% since many third-party contracts were initially negotiated.
Reimbursement rates have risen by only roughly 8%.
Reimbursement rates with third-party membership providers are not increasing at the
same rate as the cost of service. The city negotiation position can be challenging as
walking away from an agreement is not supportive of community access without a plan
for replacement.
To allow time to pursue additional funding, it is recommended full access for third party
members remain for 2026, with necessary changes happening in 2027 should
reimbursement rates or additional subsidy not be realized.
Should a reduction of senior subsidy on entries be pursued, it is recommended to first
consider reducing the subsidy provided at highly specialized facilities, to help ensure
continued access to year-round health and wellness at recreation centers.
Youth Subsidy
No Change
Align Youth
definition with
market (2-17)
Align Youth
definition with
market and
introduce a Tot fee
(6 months+) at
outdoor pools
Align Youth
definition with
market and reduce
subsidy
Market analysis: All other local agencies offer a Youth entry fee, averaging between
14%-60% discount from the adult entry fee at indoor recreation facilities. At large scale
outdoor aquatic facilities, like Scott Carpenter, the discount range for youth varies from
8%-25%. Boulder fees are approximately 35% discount from the adult fee. The City and
68
AGENDA ITEM VIII-Bi_ PAGE 18__
County of Denver provides fully subsidized access to resident Youth (5-18 years)
through a funded ‘MY Denver’ program.
Defined age ranges for youth varies across other local agencies, most agencies limit
youth rates to those 17 and under. Youth fees begin being charged as early as 1-year
old and as late as 5-years old. Local agencies with larger scale outdoor amenities
typically charge the youth fee starting at age 2-years. Some agencies also charge a Tot
fee for those under the youth age for facilities like Scott Carpenter.
Staff notes: Boulder is currently in the middle of the market for subsidy provided for
youth at indoor Recreation Centers and can comfortably remain within the market with a
20% adjustment in either direction. Each 5% adjustment to the youth entry discount
would amount to an estimated $15,000 - $20,000 difference in revenue.
Boulder varies from the market competition in how it defines the youth age range. 85%
of the 61 peer agencies surveyed do not consider 18-year-olds youth. There is a more
diverse age range across communities when the youth fee begins being charged at
Recreation Centers.
Large scale outdoor pools are most likely to begin charging at 2 years old and are split in
charging Tot fees for those under youth age. Boulder’s 35% discount for youth at
facilities like Scott Carpenter is well outside of the market range, which discounts 8-25%
for entry at this facility type.
Subsidized
Entry
Option 1 Option 2 Option 3 Option 4
Financial Aid No Change:
100% free
access at all
locations
In Between Sliding Scale for
All
Senior:
Third- Party
No Change –
continue to
negotiate for
higher
reimbursement
rates
Retain full
access in 2026
to pursue
additional
funding
Recreation
Center and
Spruce Pool
access. Eligible
for membership
and age-based
discounts
elsewhere
Recreation
Center access.
Eligible for
age-based
discounting
elsewhere
Senior
Subsidy
No Change Reduce senior
subsidy rate at
outdoor facilities
only
Reduce senior
subsidy by 5% at
all locations.
Youth
Subsidy
No Change
Align Youth
definition with
market (2-17)
Align Youth
definition with
market and
introduce a Tot
fee (6 months+)
at outdoor pools
Align Youth
definition with
market and
reduce subsidy
Drop-in Entry Fees at Recreation Centers
Facility entry fees and packages are all currently based upon the Adult Drop-in fee (e.g.
youth fee is 40% off of the Adult fee; Adult annual pass provides discount based upon 6
visits per month at Adult Drop-in Fee). This baseline fee has typically been adjusted
69
AGENDA ITEM VIII-Bi_ PAGE 19__
every 2 years, increasing between 3-9%. This fee was last increased in January 2025 by
removing the resident discount on drop-in entry across all drop-in fees for residents, as
residency is not verified.
Public feedback: Historically, the department has noted very little price sensitivity to a 5-
9% increases on a 2-year schedule. 2025 feedback data suggested 42% of the
community preferred raising drop-in fees before raising membership fees, while 34%
shared they were unsure and 25% said no.
Options to consider:
5% - 9% increase 20%+ increase $20 flat daily entrance for
adults
Market analysis: At recreation centers and gyms, a growing segment of the market in
Boulder does not allow daily drop-in entry beyond a one-time free entry trial or offers
daily entry only at a premium price point, with monthly fees being charged at much more
accessible rates. Most public facilities offer a drop-in rate.
Specialty facilities, like the Boulder Reservoir, that rely more heavily on drop-in visits, the
per-car fee is most prevalent. Outdoor Pools like Scott Carpenter, also typically would
continue to promote drop-in usage.
Staff notes: Drop-in entries continue to allow access to facilities by unknown users or
those who cannot afford or commit to a pass. There is not a great way to regularly
collect information from drop-in participants. Higher drop-in fees may increase the
likelihood of 10-visit punch pass sales, which do not expire and allow for the members’
general information to be known, which aligns with best practice in recreation centers.
Staff recommend discouraging drop-in use at Recreation Centers and promoting lower
cost pass options.
Staff additionally recommend no longer using the adult drop-in rate as a tool for cost
recovery calculations and instead suggest the adult non-resident rate for annual passes
now represent the overarching cost recovery structure with discounting for residents,
youth, seniors, and financial aid from the new standard.
Household Passes
Household passes were introduced with the 2020 membership structure. They currently
allow up to 8 adults and unlimited children while they are priced at just 160% of the adult
annual fee. Most other public agencies cap household passes to just 2 adults/seniors
and 2 youth. Additional household members may be added to a household account for a
reduced fee.
No Change
Limit household passes to 4
total adults/seniors and up to
6 youth with the ability to add
members for a fee
Limit household passes to
2 adults/seniors and 2
youth with the ability to add
members for a fee
Market analysis: Most other local public agencies limit household passes to 2 adults and
2 youth and charge a fee to add household members. The fee charged for additional
family members on a household pass varies significantly. The lowest rate charged is
70
AGENDA ITEM VIII-Bi_ PAGE 20__
$49, the highest $165 as a set fee, others charge for additional family members at half
the annual fee.
Public feedback: There are currently 1,147 active Household Passes serving 4,613
individuals. 70% of Household Passes have 4 members or less. 89% contain 5 members
or less. 95% contain 6 members or less. Figure 5 below shares the count of household
passes with total individuals in the household.
Figure 5: Count of Household Passes by Members
Staff notes: The current household pass structure allows up to 8 adults and unlimited
children. In some cases, 8 adults may be on an existing pass with no family connection,
but rather a shared address as roommates, or through seasonal stays as a group or
team. Continuing to have such a high limit for household inclusion removes the ability to
have a comparable market for the pass type.
Multi-Visit Pass Discounts
Purchase volume discounts are provided for individuals that purchase packages of entry
in the form of 10-visit punch cards (10 for a 10% discount).
10% increase
Increase multi-visit pass
fee by 10% and align with
updated ‘all-in pass’. Does
not fully meet CR goal.
Align multi-visit pass fee
with updated ‘all-in pass’
option and increase fee to
$150 while also increasing
access (court rentals,
2027)
Market analysis: The trend in local agencies has been to simplify entry options by only
offering one discount level for multi-visit packages. Boulder’s 10-punch pass fee is at the
higher end of the market for Recreation Centers, however, is at the lower end of the
market for multi-visit entries at outdoor pools like Scott Carpenter.
71
AGENDA ITEM VIII-Bi_ PAGE 21__
Public feedback: Survey feedback indicates that these discounts are an important
reason that patrons purchase multi-visit pass packages. In 2019, 67% of community
members shared they preferred punch passes which allow access to all facilities.
Staff notes: Honoring community feedback that multi-visit entry passes should be all
inclusive, staff recommend that 10-visit passes continue to be sold at a rate which can
cover access to any facilities, regardless of differing business models. Staff also
recommend these continue to not expire to support access for residents who use
facilities infrequently. Allowing punch passes to remain the most flexible option for entry
to any location and for any amenity service aligns with a convenience model for the pass
type while providing a small discount from drop-in fees.
Market
Alignment
Option 1 Option 2 Option 3
Rec Center
Drop-in
Entries
5% - 9% increase
20%+ increase $20 flat daily entrance for
adults (67% increase)
Household
Passes
No Change Limit household passes
to 4 total adults/seniors
and up to 6 youth with
the ability to add
members for a fee
Limit household passes to
2 adults/seniors and 2
youth with the ability to
add members for a fee
Multi-visit
passes
10% increase Increase multi-visit pass
fee by 10% and align
with updated ‘premiere
pass’. Does not fully
meet CR goal.
Align multi-visit pass fee
with updated ‘premiere
pass’ option and increase
fee to $150 while also
increasing access (court
rentals, 2027).
NEXT STEPS:
The board’s input at the July meeting will inform options and recommendations shared at
the August meeting. The PRAB will have an additional opportunity at the August meeting
to ask questions and provide input related to the options included. Based on the
collected data, market information, the PRAB’s feedback, and financial modelling aligned
with the department’s fee policy, staff will return in September with the final proposed
changes.
Attachments:
Attachment A – March 2019 Recreation Facility Access Survey
Attachment B – May 2025 Recreation Facility Feedback Form
72
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Attachment B: May 2025 Recreation Facility Feedback Form
152
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Attachment B: May 2025 Recreation Facility Feedback Form
153
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Attachment B: May 2025 Recreation Facility Feedback Form
154
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Attachment B: May 2025 Recreation Facility Feedback Form
155
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
Denise Dawson, Senior Manager, Urban Parks
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Scott Schuttenberg, Deputy Director
Erynn Simone, Senior Manager, Regional Facilities
SUBJECT: Matters from the Department
DATE: July 28, 2025
A.Safe and Managed Public Spaces overview (verbal presentation)
156
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: July 28, 2025
A.PRAB Meeting Dates: September, November and December
The Parks and Recreation Advisory Board (PRAB) is scheduled to meet on the 4th
Monday of each month. In September, November and December, these dates conflict
with school breaks and holidays.
September 22: Start of Rosh Hashanah
November 24: Beginning of Boulder Valley School District (BVSD) Thanksgiving
break
December 22: End of Chanukah
Discussion Question:
1.Does the board wish to reschedule or proceed with any of the above dates due to
potential attendance conflicts?
B.PRAB Matters (Verbal)
157