10.27.25 PRAB PacketAGENDA
All agenda times are approximate
I.APPROVAL OF AGENDA (2 mins)
II.FUTURE BOARD ITEMS AND TOURS (2 mins), Page 2
III.PUBLIC PARTICIPATION (15-30 mins)
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 mins), Page 3
A.Approval of Minutes from September 29, 2025, Page 4
B.Parks and Recreation Operations Updates, Page 8
C.Parks and Recreation Planning, Design and Construction Updates,
Page 13
V.ACTION ITEMS
A.None
VI.MATTERS FOR DISCUSSION/INFORMATION, Page 16
A.Introduce 2026 Fee Schedule and Communications Plan for Fee
Changes (30 min)
VII.MATTERS FROM THE DEPARTMENT
A.Civic Area Concept Plan (30 mins), Page 50
B.Recreation Center Needs Assessment (45 mins), Page 82
VIII.MATTERS FROM THE BOARD, Page 178
A.Boards and Commissions Winter Pre-Retreat Letter to City Council
B.PRAB Matters (verbal)
IX.NEXT BOARD MEETING:
A.November 17, 2025
X.ADJOURN
Parks & Recreation Advisory Board
Fully Hybrid Meeting
6:00 p.m., October 27, 2025
Boulder Parks & Recreation
Advisory Board Members
2025-2026
Andrew Bernstein
Yvonne Castillo
Caroline Gecker
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
November December January 2026
Fully hybrid for members, staff and
community.
December Meeting Cancelled Fully hybrid for members, staff and
community.
Regular Mtg (c) 1) Adjustment to Base 2
2) Eurasian Water Milfoil Update
3) Tom Watson Project Timeline
Regular Mtg (a)
Regular Mtg (d/i)
Regular Mtg (md) 1) Launching Nature Everywhere for the
City of Boulder
2) North Boulder Park Schematic
Design
3) Barker Park Schematic Design
4) Final Touch on the 2026 Fee
Schedule
1) 2026 Action Plan and Board
Liaison Opportunities
Regular Mtg (mb) 1) Review Draft of Boards and
Commissions Winter Pre-Retreat
Letter to City Council
Other Mtgs or
Topics
November 13: City Council Study Session
– Civic Area Concept
Dept Events &
Items of Interest
AGENDA SETTING
The PRAB Chair, PRAB Vice Chair and BPR staff set the agenda for the next month on Thursday directly following the regular PRAB
meeting. PRAB members can submit agenda requests to the Chair and Vice Chair by Wednesday following the PRAB regular meeting
for consideration. If time-sensitive matters arise, PRAB Chair and Vice Chair may amend the agenda as needed.
LEGEND
Action Item (a): A public hearing item to be voted on by the Board (public comment period provided).
Procedural Item: (p): An item requiring procedural attention.
Consent Item (c): An item provided in written form for consent, not discussion by the Board; any consent item may be called up by any
Board member for discussion following the consent agenda.
Discussion/Information Item(d/i): An item likely to be a future action item (or council item) and/or that benefits from an in-depth
discussion.
Matters from the Department (md): Items that will be reviewed and discussed during the meeting but not requiring as much in-depth
analysis.
Matters from the Board (mb): Items initiated by the Board that will be reviewed and discussed during the meeting but not requiring as
much in-depth analysis.
City Council Item (cc)
Other Boards and Commissions (obc)
Community Engagement and/or Events (e)
Holiday/Closure (h/c)
Italics indicate a tentative date or plan.
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TO: Parks and Recreation Advisory Board
FROM: Alison Rhodes, Director of Parks and Recreation
Bryan Beary, Senior Manager, Community Building and Partnerships
Mark Davison, Senior Manager, Planning
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: October 27, 2025
A. Approval of September 29, 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: September 29, 2025
Contact Information Preparing Summary: Clarisa Collins; 720-564-2147
Board Members Present: Bernie Bernstein, Yvonne Castillo, Robert Kaplan, Jennifer Robins,
Michael Schreiner, Kyra Siegel, Caroline Gecker
Board Members Absent: None
Staff Present: Bryan Beary, Clarisa Collins, Denise Dawson, Mark Davison, Stacie Hoffmann,
Jackson Hite, Tucker Horsch, Megann Lohman, Kim Moore, Charlotte O’Donnell, Chris Passarelli,
Christopher Ranglos, Ali Rhodes, Scott Schuttenberg, Erynn Simone
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.
A motion to approve the agenda was made by Kaplan and seconded by Castillo. The motion passed
7-0.
Agenda Item 2: Future Board Items and Tours
Rhodes, Director of Parks and Recreation, reviewed upcoming items including City Council budget
readings on October 9 (first reading) and October 23 (second reading). An East Boulder Community
Center open house is scheduled for October 8 regarding the East Boulder pickleball courts project.
PRAB had no follow-up questions or comments.
Agenda Item 3: Public Participation
•Lynn Segal expressed concern about the time spent reading decorum rules at each meeting,
the proposed recreation center rates to balance the budget, urged developers to fund services
upfront instead of through fee increases and said City Council should address unfunded
liabilities rather than through service rate increases.
Agenda Item 4: Consent Agenda
A. Approval of Minutes from August 25, 2025
•Shreiner noted minor typos for the board secretary to correct. A motion to approve the
consent agenda with minor corrections to minutes from August 25, 2025 was made by
Kaplan and seconded by Siegel. The motion passed 7-0.
B, C. Parks and Recreation Operations, Planning, Design and Construction Updates
Board members had the following questions and comments:
Partnership Matrix
•Requested clarification on how partnerships are defined and what constitutes mutual
benefit.
•Asked if local restaurants and small businesses were engaged in the partnership matrix
process.
Tom Watson Park
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• Inquired about the 2-3 month delay to the project, whether the drainage review is valuable ,
and if the drainage review requirement could have been identified earlier.
South Boulder Pool Windows
• Asked if the window damage was chlorine related, and how much it will add to the project
costs.
• Noted that project materials still reference October 2-3 opening dates; staff will follow up to
correct.
Bill Bower Park
• Inquired if Bill Bower Park received funding.
Agenda Item 5: Action Items
A. Recommendation on 2026 City Manager’s Recommended Budget
Hite presented this item.
Board members had the following questions and comments:
• Requested details on the $1 million CCRS 2026 budget and total CCRS budget for BPR
projects– it’s purpose, total funding, the funding process, whether it's currently in a bank
account and how it's distributed.
• Inquired how CCRS funds would support the South Boulder Recreation Center if the ballot
measure passes.
• Asked why the Permanent Parks and Recreation Fund decreased from 2025 to 2026.
• Inquired about the nearly $1 million increase in transfers and cost allocations and other
questions to understand cost allocation.
• Asked various clarifying questions about salaries, funding sources, and service levels.
• Requested clarifying questions about the membership fees.
• Confirmed that PRAB approval is not required for membership structure changes.
Public Hearing: Chair Robins opened public hearing on the 2026 budget recommendation.
No public comment received.
• Motion 1: Schreiner moved to recommend the 2026 City Manager's recommended budget
of $40,764,360 for Parks and Recreation. Kaplan seconded the motion. The motion
passed 7-0 via roll call vote.
• Motion 2: Bernstein moved to approve 2026 recommended expenditures of $4,222,134
from Permanent Parks & Recreation Fund to City Council for appropriation. Schreiner
seconded the motion. The motion passed 7-0 via roll call vote.
• Motion 3: Schreiner moved to recommend the 2026-2031 Parks and Recreation
Department Capital Improvement Program of $43,910,000 to Planning Board and City
Council for approval and adoption. Kaplan seconded the motion. The motion passed 7-0
via roll call vote.
Agenda Item 6: Matters for Discussion/Information
A. Boulder Valley Comprehensive Plan (BVCP) Board Consultation
Ranglos and Horsch presented this item.
Board members had the following questions and comments:
• Asked how city annexations (Area 2 properties) are decided and if there is a summary of all
community engagement feedback.
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• Raised concerns that a neighborhood-scale approach and flexible land use designations
could obscure or jeopardize park and public land protections.
• Asked whether the proposed framework would increase neighborhood density, inform
future park locations and what “flexibility” means in practice.
• Inquired about how community hubs might affect local businesses
• Noted that community engagement may overrepresent those seeking change and
underrepresent those satisfied with current conditions.
• Emphasized that parks must be able to adapt to climate change without restrictive or overly
narrow designations.
• Requested that land use designations remain broad enough to allow flexibility while still
protecting park land from conversion.
• Highlighted that BPR is below the level of service for ball fields, and that repurposing park
land could set a concerning precedent.
• Asked how widespread the issue is beyond the Iris fields example, how much undeveloped
or underutilized park land exists, and whether a map or tracking system is available.
Agenda Item 7: Matters from the Department
A. Community Access Framework
Beary and Passarelli presented this item.
Board members had the following questions and comments:
• Inquired about how this framework will integrate with SmartRec, mobile accessibility,
support for seniors and less tech-savvy users, and data tracking to understand usage
patterns.
• Suggested using the rollout to re-educate the community on booking processes, timelines,
and available spaces.
• Asked whether tennis and pickleball court reservations will be included.
• Confirmed courts will be self-service through SmartRec for individual reservations.
B. Commission for Accreditation of Park and Recreation Agencies (CAPRA)
Rhodes and Passarelli presented this item.
• Board members congratulated staff on the significant achievement and had no questions.
Agenda Item 8: Matters from the Board
A. Review Board Liaisons
• Deferred to the October meeting.
B. Review CCRS Communications
• Bernstein and Schreiner presented a draft letter supporting the November CCRS ballot
measure; PRAB members reviewed it.
• Bernstein emphasized the importance of CCRS as a revenue source for Parks and
Recreation.
• Siegel suggested making the project list more engaging and tangible for community
members less familiar with BPR spaces.
• Castillo recommended adding the South Boulder Recreation Center to the letter; other
board members expressed concerns with including it.
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• All PRAB members agreed to have their names on the letter.
• A motion to submit the letter with minor edits was made by Castillo and seconded by
Gecker. Motion passed 7-0.
C. Explore Park Tour Rescheduling
• Confirmed CIP Tour for 10/24/25, 9–11am.
D. PRAB Matters (verbal)
• Robins: Visited South Boulder and discussed Harlow Platts, noted the PLAY Boulder Golf
Tournament was a success and met fundraising goals, and received calls opposing
covering the ditch at the Civic Area.
• Schreiner: Continuing to volunteer at the park and found it interesting to observe the
different levels of usage depending on the day and time.
Agenda Item 9: Next Board Meeting
Next Board meeting: Monday, October 27, 2025, hybrid
Agenda Item 10: Adjourn
The meeting was adjourned at 9:01 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
Outdoor Pool Highlights
Scott Carpenter Pool had 59,321 visits during the 2025 operational season which ran
from May 5 through September 28. As the excitement of the new facility fades, total
visitation numbers continue to decline year-over-year, from a high of just over 96,000
visits in 2021 [96,227], the first full operating season. A range of 55,000 to 75,000 visits
may be a reasonable expectation for the future and is highly dependent on weather.
For a direct comparison, the 2024 operating season at the facility ran from May 6
through September 15 with just over 64,000 visits [64,219]. During the months of May-
August, the facility served roughly 1,000 more visits each month in 2024. In September
of 2024 the facility had 200 more visits than in 2025, even with 13 less operational days.
The graphs below show Figure 1: Total Monthly Visits, and Figure 2: Visits Per
Operating Hour at Scott Carpenter Pool. The season trend lines peak in June and July
when kids are out of school for the full months using the leisure amenities. Peaks in
months other than June and July are generally due to the excitement of opening a new
facility and great weather, coupled sometimes with reduced daily operating hours.
Figure 1: Total Monthly Visits for Scott Carpenter Pool
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Figure 2: Visits Per Operating Hour for Scott Carpenter Pool
Spruce Pool had a total of 12,596 visits in 2025. When at full planned operational hours
for the facility, roughly 7am to 7pm each day, the facility experiences 8 to 14 visits per
hour, with visitation peaking traditionally in June and July. Spruce Pool did not operate in
2021 or 2022, and years prior to 2021 are not included as Scott Carpenter Pool was not
open and Spruce Pool operated with COVID-19 restrictions on a registration only basis.
Figure 3: Total Monthly Visits for Spruce Pool below shows visits by month for years
2023 through 2025. Trend lines remain fairly consistent peaking in either June or July.
The decline in visits in June 2023 is due to the facility’s delayed opening on June 19 for
repairs.
Figure 3: Total Monthly Visits for Spruce Pool
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Figure 4: Visits Per Operating Hour for Spruce Pool increased significantly across 2023
and in September of 2024 as operating hours were reduced to 11am to 6pm. The growth
of visits per operating hour in August of 2025 can be attributed to the early closure of the
facility – visitation drops significantly when school resumes, and thus the average is
much higher without those low visitation weeks.
Figure 4: Visits Per Operating Hour for Spruce Pool
The department completes robust summer facility reviews on even numbered years with
the next review scheduled for 2026. All past years’ data will be considered along with
updated 2026 data and community input to inform future operations of summer facilities.
Wreaths Across America
December 13th is recognized as National Wreaths Across America Day. In 2025 Boulder
Parks and Recreation will be inviting volunteers to place wreaths on veterans’
headstones at Columbia Cemetery as part a national program that seeks to “remember
the fallen, honor those who serve, and teach the next generation the value of freedom”.
In partnership with the Arapahoe Chapter of the Daughters of the American Revolution,
this event adds Columbia Cemetery. This historic cemetery is located at Ninth and
Pleasant Streets and serves as a burial site for approximately 300 veterans.
Over 4,900 locations are involved in the nationwide event in participating locations in all
50 states, Puerto Rico, and on foreign soil – engaging over four million volunteers in
placing wreaths. To learn more, visit https://wreathsacrossamerica.org/CO0338P
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Flatirons Golf Season Wrap Up
The 2025 season at Flatirons Golf Course has been guided by a renewed focus on
community connection, hospitality, and operational excellence, blending the
personalized service often found in private golf with the accessibility and inclusivity of a
municipal facility. The leadership team brings a range of experience from both municipal
and private club operations.
Throughout the summer months, the course delivered steady financial growth despite
variable weather conditions. From May through September, Flatirons averaged around
6,700 rounds per month, with total revenue up more than five percent over 2024.
September was particularly strong, with revenue up twelve percent year-over-year,
driven by effective management and strong participation across leagues and events.
New and expanded programming, including the Two-Person Scramble, the Fall Classic
and the 100th Annual Boulder Amateur have all contributed to growing community
engagement and repeat play.
The team focused on course maintenance deserves recognition for a highly successful
turf season. Course conditions were exceptional throughout the summer, drawing
consistent positive feedback from players and event organizers alike. Their hard work,
coordination, and pride in presentation have been evident in every detail. Looking
ahead, the team plans to focus on improving several tee box areas and developing a
comprehensive tree plan, both of which will be key priorities for fall 2025 and spring
2026.
Ironwood Bar & Grill completed its inaugural summer at Flatirons with encouraging
results and positive community response. The partnership has shown strong potential,
and discussions are already underway to further enhance the food and beverage
experience heading into 2026.
As the season transitions into fall, the team remains optimistic for continued play through
October and November. Flatirons enters the final stretch of 2025 with strong financial
momentum, a dedicated staff, and a shared commitment to providing an exceptional golf
experience for residents and visitors alike.
SmartRec by Amilia Update
The City of Boulder Parks and Recreation Department (BPR) and Housing and Human
Service (HHS) Departments are preparing to launch a new Recreation Management
Software, SmartRec by Amilia, in November 2025. This new platform will replace the
city’s current system, ActiveNet, and is designed to offer a more user-friendly, accessible
and integrated experience for both community members and staff.
The transition to SmartRec reflects the department’s ongoing commitment to improving
digital accessibility, enhancing the customer experience and increasing operational
efficiency. Through SmartRec, community members can self-manage memberships,
class registrations and reservations, including racquet courts, pool lanes and event
spaces all in one convenient place. Smartrec's mobile-friendly design and easy-to-use
tools make navigation, payments and account management simpler.
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The new platform directly supports the citywide priorities of equity, inclusion and
technology access, and further aligns with several goals outlined in the 2022 BPR Plan,
including:
• Community Health & Wellness – Goal 1.2: Enhance the user experience for the
registration system, flexible services and marketing for programs and services.
• Financial Sustainability – Goals 2.3 and 3.3: Pursue investments in technology and
innovation that provide efficiencies; Streamline the financial aid application process
• Organizational Readiness – Goal 1.3: Ensure staff have the knowledge, resources
and tools to perform their roles effectively.
To support a smooth transition to the new software, the department has developed a
comprehensive communications plan to keep community members, current users and
staff well-informed throughout the rollout. The plan includes a citywide press release to
introduce the new system and highlight its benefits, as well as advance notifications to
City Council and the Parks and Recreation Advisory Board.
Approximately 12,000 current pass holders will receive direct email invitations with
personalized instructions for setting up their new accounts, helping to streamline the
user experience and minimize confusion. Broader outreach will occur through the
department’s digital communication channels, including social media, email newsletters
and updated website content that will provide guidance and FAQs.
In addition, onsite communications at recreation centers will feature clear signage, front
desk materials and flyers to ensure all visitors are aware of the upcoming change and
have access to support as needed.
Together, these coordinated efforts will maximize awareness, reduce disruption and
deliver a community first launch experience that reflects the department’s commitment to
accessibility, equity, transparency and service excellence.
To ensure a smooth transition, staff have developed a thoughtful implementation plan:
• May to October: Cross functional team of five departments and six BPR service
areas to focus on system implementation, testing, configuration and training.
• Week of November 3: Current recreation members will receive email invitations with
account setup instructions. Membership data for approximately 12,000 users will
migrate automatically to SmartRec, minimizing disruption.
• Early November: Updated FAQs and instructional materials will be available on the
BPR website.
• Friday, November 14: SmartRec officially goes live for all community members.
Staff will continue preparations leading up to launch, including outreach, internal training
and system testing. Following implementation, the department will provide the Board
with updates on community feedback, user experience and early performance
outcomes.
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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.
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 Oct
Park & Facility Renovation Plans
Boulder Junction Park: Opening a New Park Design Q1 2026
Civic Area Renovation Design Oct
East Boulder Community Center Renovation Design TBD
North Boulder Park Renovation Design Nov
Pearl Street Renovation Start 2026 Q1 2026
Primos Park: Opening a New Park Design Q1 2026
Tom Watson: Pickleball Courts Permitting Dec
Barker Park Refresh Design Nov
Park Asset Management
Bill Bower Park: Interpretive Area Construction Nov
Boulder Reservoir: ADA Dock Replacement Construction Q4
East Boulder Community Park: Racket Courts Design Q1 2026
Planning, Design and Construction (PD&C)
Chautauqua Park – Court Opening Celebration
Donors, community members and staff celebrated the opening of the new Pickleball and
Tennis Court at Chautauqua Park on October 7. Staff and major donors, Mo and
Jennifer Siegel unveiled a plaque recognizing the Siegel Family for their donation, which
facilitated the complete replacement of this amenity.
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Governor Roy Romer attended, the three-term former governor of Colorado from 1987 to
1999, who joined the generous donor, Mo Siegel, for an inaugural game of pickleball.
East Boulder Community Park – Racket Courts
Staff facilitated an open house on October 8, featuring the revised draft concept plans
for 8 new outdoor tennis courts and the conversion of 3 existing courts to 6 dedicated
pickleball courts.
East Boulder Community Park currently has 5 courts. The set of 3 courts on the west
side will be converted to 6 dedicated pickleball courts. The other set of 2 existing courts
on the east side will remain dedicated tennis courts. Eight new tennis courts will be
added to the south side of the property.
Approximately 50 community members attended the open house and provided their
feedback. The boards will be available for viewing on the project web page and in the
lobby of the East Boulder Community Center through October 24. Community members,
community organizations and staff feedback will be analyzed for the final concept plan to
be completed in November. Construction is anticipated to begin in late summer 2026.
Once the concept plan is completed, staff will work with PLAY Boulder Foundation on a
fundraising campaign. While city funding for the project is limited and will focus on core
infrastructure, the community will have the opportunity to support additional amenities
such as benches or a practice wall.
An application for the annexation of the city-owned property south of East Boulder
Community Park, formerly known as Hogan Pancost, is underway. The annexation
Jennifer Siegel unveiling the donor
plaque.
Mo Siegel and Roy Romer's inaugural pickleball serve
with honorary gold paddles.
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application does not include a development proposal. It is for annexation only. Once the
application is reviewed and approved, there will be a Planning Board hearing followed by
two City Council meetings for the annexation. The first City Council meeting is a first
reading on the consent agenda, and the second is a public hearing. The meetings are
open to the public. Dates will be available on the project web page when they are
confirmed. Annexation is anticipated to be completed by February 2026, enabling the
city to capture this special opportunity to expand East Boulder Community Park.
Bill Bower Park – Interpretive Area
The donors confirmed full funding for the project’s design and construction and the
donor-funded interpretive area at Bill Bower Park is now underway. Concrete getting
poured at Bill Bower Park is shown below. Project completion is anticipated in
November.
Construction site showing the concrete getting poured at Bill Bower Park.
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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: October 27, 2025
AGENDA TITLE: Proposed 2026 Boulder Parks & Recreation Fee Schedule
PRESENTERS:
Alison Rhodes, Director of Parks and Recreation
Scott Schuttenberg, Deputy Director
Jackson Hite, Senior Manager, Business Services
Megann Lohman, Senior Manager, Recreation
Stacie Hoffmann, Senior Budget Analyst
EXECUTIVE SUMMARY:
This memo provides an overview of the proposed 2026 Fee Schedule for the Parks and
Recreation Advisory Board’s (PRAB) discussion. The Fee Schedule reflects adjustments
to most departmental fees to align with current policy guidance, market conditions, and
the approved 2026 budget. This discussion item does not include a review of facility
access or court fees, as they were discussed with the 2026 budget submission and
complete as of September 2025.
In accordance with Boulder Revised Code Section 8-3-8, Boulder Parks and Recreation
will collaborate with the City Manager’s Office to issue a 15-day public notice before
finalizing the updates. The intent is for the new fees to take effect on January 1, 2026, in
alignment with the start of the City’s fiscal year and implementation of the 2026 budget.
BACKGROUND:
Since April 2025, the PRAB has been engaged in ongoing discussions regarding the
2026 Boulder Parks and Recreation (BPR) budget. Links to all prior packets are
available for the following PRAB meetings: April 14, 2025 study session, April 28, 2025
meeting, May 19, 2025 meeting, June 23, 2025, July 28, 2025 meeting, August 25, 2025
meeting, and September 29, 2025 meeting. At the September 29, 2025 meeting, PRAB
recommended approval of the proposed budget, which balances projected expenses
with corresponding revenue adjustments through fee changes. City Council completed
the first public hearing on the 2026 budget on October 9, 2025 with the second and final
hearing scheduled for October 23, 2025.
PRAB previously reviewed and discussed the new membership framework and court
fees during its July, August, and September meetings. This memo focuses on the
remaining proposed fee updates that will take effect on January 1, 2026, and provides
context for how these changes align with departmental policies and the City’s Long-Term
Financial Strategy (LTFS).
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AGENDA ITEM VI-C_ PAGE 2__
BPR is not listing every individual change within this memo, due to there being 15 pages
of listed fees in Attachment B - Proposed 2026 BPR Fee Schedule. Instead, this memo
highlights key themes, guiding policies, and areas where feedback has already been
received. If PRAB has specific questions about individual fees, staff will be prepared to
address them during the meeting or provide additional context in the November packet if
needed.
The 2022 BPR Plan emphasizes financial sustainability through six policies, three goals,
and multiple initiatives that guide decision-making in a fiscally constrained environment.
With limited funding, the department must balance the delivery of core services and
community priorities while maintaining equitable access. To achieve this, BPR continues
to subsidize access for low-income individuals, people with disabilities, youth, and older
adults, and maintains financial aid programs for qualifying Boulder residents as funding
allows.
Operating as a social enterprise, BPR must balance revenues and expenses annually to
sustain service levels. This balance is achieved through fee adjustments that consider
projected revenues and expenditures, actual financial performance, visitation and
participation trends, and market comparisons. These processes are grounded in the
2023 PRAB-approved Fee Policy (Attachment A – BPR Fee Policy). The 2023 Fee
Policy establishes a consistent framework for setting and adjusting fees in alignment
with operational costs and community benefit. It defines ten program types with
associated benefit levels, cost recovery targets, and community benefit classifications,
ensuring a balance between financial sustainability and accessibility. The policy supports
the financial sustainability goals outlined in the 2022 Plan, including regularly assessing
total cost of service, monitoring cost recovery performance, and identifying services that
can generate funds to support other programs. Based on these principles and methods
in the Fee Policy, staff are proposing adjusted fees for 2026 in the updated fee schedule.
While most fee increases do not exceed a 10% increase, a few were adjusted beyond
that threshold to reflect market conditions or to account for areas where fees had not
been updated in several years. Certain fees are set to increase by over 10% where
BPR’s rates remain significantly below market for individual benefit access or where
updates improve efficiency. Examples include transitioning from per-person charges to
attendance-based tiers for certain facility rentals and rounding fees to even dollar
amounts to simplify cash handling. These adjustments reflect BPR’s continued focus on
maintaining financial sustainability, operational efficiency, and equitable community
access.
BPR operates on a volume-based model, meaning that higher participation helps
distribute costs more efficiently. By analyzing historical usage data through the end of
the summer 2025 season, the department confirmed that recreation participation has
generally recovered from pandemic-era declines and has stabilized. Overall, 2025
visitation trends closely mirror those observed in 2024, with minor variations attributed to
seasonal weather impacts. This stabilization supports 2026 fee adjustments while
accounting for inflationary cost pressures. Examples of expenses with significant cost
increases include labor costs, chemicals, and field paint. Regular, incremental updates
also help avoid sudden, larger adjustments in future years. Generally, BPR has aligned
fee increases every 2 years to minimize the burden over time.
As a form of indirect subsidy, the General Fund contributes approximately $2.9 million
annually to support internal services for the Recreation Activity Fund, covering functions
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AGENDA ITEM VI-C_ PAGE 3__
such as human resources, finance, legal support and information technology. The cost
allocation for the .25 Cent Sales Tax Fund and Permanent Park and Recreation Fund
was discussed at length at the September meeting. These centralized services allow the
department to focus on delivering its core mission and community services, while
leveraging the expertise of staff across the broader city organization to support
specialized functions outside of parks and recreation operations.
Fees are not codified in municipal ordinance and therefore do not require PRAB or City
Council approval; however, they are subject to a public notification and comment
process through the City Manager Rule before implementation. The projected revenues
from fee increases were also included in the 2026 budget, which PRAB did recommend
for council approval and that City Council approved at first reading on October 3, 2026.
The second reading is scheduled for October 23, 2026.
ANALYSIS:
Golf Fees:
The proposed 2026 fee changes for Flatirons Municipal Golf Course include moderate
increases across most categories. Daily green fees for 9 holes will increase by $1- $2 for
adults, seniors, and youth for weekday and weekend rounds. Weekday adult 18-hole
rounds increase from $48 to $56, while weekend 18-hole rounds increase from $53 to
$63. Senior and youth fees follow similar trends, with slightly smaller increases. These
increases are recommended based on a comprehensive market analysis.
Adjustments are also recommended for annual passes. These adjustments are needed
to better align with market and align with the BPR Fee Policy. Significant adjustments
include adult passes increasing from $1,650 to $2,000 and senior passes from $1,320 to
$1,600. The Value Plan Card also rises, with the adult card increasing from $699 to
$800 and per-round surcharges going up $1–$2. Tournament fees increase
substantially, with weekday tournaments rising from $78 to $106 per player and
weekend tournaments from $83 to $140 per player. Other fees, such as range balls,
push carts, and rentals, also have small increases, though riding cart fees remain mostly
stable. Performance club rentals are being discontinued. Overall, the changes reflect
adjustments to better align with market rates and support the rising costs of course
operations.
Rental Rate Adjustments:
Proposed 2026 space rental fees include modest increases across outdoor, indoor, and
aquatic facilities to better align with maintenance and operational costs while maintaining
community access. Most fee increases will be no more than 10%, unless the cost of
service or the market comparisons strongly support a larger increase. Outdoor space
rentals show a $10–$15 per day increase for park shelters and parking lots, while
alcohol permits remain unchanged and Chautauqua Lawn continues to be available at
no cost for life events with a permit and deposit.
Indoor facility rentals reflect small hourly increases ranging from 4-10%. Highly specialty
facilities such as the NBRC Gymnastics Room and the Valmont Farmhouse are typically
only rented to contracted partner organizations, and the new prices reflect updated
market analysis.
Aquatic rental fees have been adjusted to more closely align with the comparable market
for pool lanes, patios, and leisure pools. The increases reflect the growing staffing and
18
AGENDA ITEM VI-C_ PAGE 4__
operational costs across the industry, with most hourly rates rising between 7-15%. Pool
deck space pricing was changed to match the small room indoor space price point,
which represents a close to 20% increase for the little used fee. Overall, the proposed
fee adjustments balance affordability for residents with responsible cost recovery for
high-demand and labor-intensive spaces.
Reservoir:
Proposed 2026 rental fees for the Boulder Reservoir include modest increases primarily
for facility closures and certain lake access uses, while most site and rental fees remain
unchanged. Full facility closures increase by $1,000 during peak season and $500 in the
off-season, and restroom rentals are introduced as a new $200 per day option. Lake
access fees rise only for no-wake area closures during peak season, increasing from
$75 to $100 per hour. Picnic fees shift from a per-person model to tiered packages that
now include a set number of attendees (100 for Silver, 200 for Gold, 300 for Platinum),
resulting in no change for most typical group sizes compared to 2025, though larger
groups will see higher per-participant impact fees ($10 per person over the allotted
amount). Overall, the fee structure simplifies event planning, maintains affordability for
most uses, and aligns fees with service levels and operational costs.
Staffing Costs:
Additional staffing fees apply when events, rentals, or reservations require staff beyond
standard coverage. A premium is charged for staffing needs outside regular operating
hours due to scheduling impacts and added management oversight.
The proposed 2026 staffing fees include modest increases from 2025 to reflect rising
labor costs and ensure cost recovery. These adjustments ensure staffing fees continue
to reflect actual personnel costs associated with supporting facility operations, special
events, and rentals.
Courts:
In September, PRAB approved the fee increase for outdoor court rentals. Court rental
fees across the system will be set at $10 per hour per court, consistent with market rates
in comparable communities. When courts are not reserved, they will remain free for first-
come, first-play use, ensuring continued community access at no cost. Additionally,
PRAB was informed that the new SmartRec reservation system does not allow for
reservations to be made based on membership type, including Silver Sneakers and
Renew Active participants. This change results in courts no longer being included in
community center memberships. Additionally, third-party fitness programs do not
reimburse for court reservations, only for general facility access, meaning that all court
reservations will require direct payment moving forward. Staff anticipates feedback from
community about changes to the court fees, which have previously been included in
memberships at Recreation and Community Centers.
The proposed adjustments to court fees align directly with recommendations from the
Court System Plan, which emphasizes implementing pricing strategies that balance
supply and demand across facilities. These updates are designed to encourage users to
explore a wider range of courts throughout the city, rather than concentrating on use
solely at those adjacent to recreation centers. To further promote equitable access, BPR
is also scheduling designated free drop-in times for both pickleball and tennis. The
19
AGENDA ITEM VI-C_ PAGE 5__
updated court reservation structure and fees were reviewed and approved by the Parks
and Recreation Advisory Board (PRAB) and are scheduled to take effect later this fall.
Staff are aware of the impact these changes may have on current facility members and
are working on strategies to support customer service and access. In addition to
promoting more free drop-in times, staff also developed coupon books to provide
members throughout the transition. Coupons may include free facility visits, court
reservations, or discounts on programming. Staff have created a resource to help
community members understand these changes: Courts FAQ
Marketing and Communications:
BPR remains committed to transparent, proactive and effective communication
regarding the 2026 fee updates. The department’s goal is to ensure that all community
members, particularly those directly impacted, understand what is changing, why
adjustments are being made and how to access information and support.
Staff has already initiated targeted outreach to user groups most affected by fee
changes, including members, households and frequent renters such as lap lane and field
users, to ensure timely and accurate information. Updated fees are clearly posted on the
city’s website, within the SmartRec registration platform and in both printed and digital
recreation guides. Physical copies of price lists will also be available in all recreation
centers.
Broader communications will continue through department newsletters, social media
channels, and ongoing updates to PRAB and City Council. These efforts will be
complemented by 2026 marketing initiatives, such as seasonal membership promotions,
community access campaign, ongoing program spotlights, event marketing and
community storytelling, which will help raise awareness, encourage participation and
promote adoption of the new pricing structures.
Financial Aid Access:
BPR recognizes that equitable access to recreation opportunities is a fundamental part
of its mission. The department’s Financial Aid Program remains the primary tool for
supporting residents who might otherwise face barriers to participation. This program
provides a free recreation membership pass that includes unlimited access to all three
recreation centers, both outdoor pools and the Boulder Reservoir. In addition,
participants receive a $500 annual scholarship that covers up to 50% off most registered
program costs. Through this program, BPR continues to uphold its commitment to
inclusion and affordability for all members of the Boulder community. The Financial Aid
program is expected to continue in 2026 with support from the Health Equity Fund. Due
to increased utilization and no identified new funding sources, the department will
conduct a comprehensive review of the Financial Aid Program for 2027.
NEXT STEPS:
Following PRAB’s review and feedback, staff will finalize the 2026 Fee Schedule through
the City Manager Rule process. Once approved, the updated fees will be publicly posted
and take effect on January 1, 2026, aligning with the start of the city’s fiscal year and
implementation of the 2026 budget.
20
AGENDA ITEM VI-C_ PAGE 6__
Because BPR fees are not codified in municipal ordinance, they do not require PRAB or
City Council approval. Instead, they are subject to a 15-day public notice period under
the City Manager Rule before implementation. During this period, fee information will be
made publicly available, and staff will continue targeted outreach to ensure that affected
users are informed of upcoming changes well in advance.
BPR, like many departments, continues to operate within a fiscally constrained
environment shaped by flattening revenues, rising costs, and broader economic
uncertainty. In response, City Council has prioritized the development of a Long-Term
Financial Strategy (LTFS), led by the City Manager’s Office and the Finance
Department, to guide the organization through this challenging period and strengthen
our long-term fiscal resilience. As part of the 2026 budget process, nearly every
department—including Parks and Recreation—has implemented new or increased fees
to help offset the escalating cost of delivering services, preserve existing staffing and
service levels, and maintain overall financial stability.
Other components of the citywide LTFS workplan in 2025 and 2026 include an
evaluation of service levels, exploration of alternative funding mechanisms, refinement of
financial policies, robust community engagement, and a potential ballot strategy to
support long-term fiscal health. The continuation of the Community, Culture, Resilience,
and Safety (CCRS) Tax Fund is already on the November 2025 ballot, and additional
community discussions related to the Fund Our Future initiative will launch in the first
quarter of 2026.
Without additional funding sources and in the coming years, current projections indicate
BPR will need to evaluate which services, facilities, or programs to modify, reduce, or
eliminate to maintain a balanced budget. In alignment with the LTFS, the department will
proactively explore options to increase revenues without increasing expenditures while
continuing to prioritize community access, operational sustainability, and the delivery of
high-quality recreation experiences for all Boulder residents. In addition, through the
community engagement anticipated in the first quarter of 2026, the city will be seeking
input from the community on what services are considered to be core and essential and
what acceptable performance looks like in those areas. The intent of this engagement is
to understand which city programs and services have the most impact on day-to-day
lives to enable better forecasting costs and preparing for the future.
Fund Our Future: An Overview | City of Boulder
Attachments:
•Attachment A – BPR Fee Policy
•Attachment B – Proposed 2026 BPR Fee Schedule
•Attachment C – 2025 Market Study
21
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 A: BPR Fee Policy
22
Attachment B: 2026 BPR Proposed Fee Schedule
1
Attachment B: 2026 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.
Administrative Fees:
Category Policy Summary
Facility Daily Entry &
Punch Passes
• Daily passes are non-transferable
• No refunds for passes under $25
• Refund = pro-rated amount minus $25 fee
• Punch cards expire 2 years from purchase
Memberships
• No refunds for monthly, seasonal, or annual memberships once
paid.
Refund Exceptions
(Pro-rated refund
may apply)
• Verified medical condition
• Permanent move more than 15 miles from Boulder
Membership Pause
• Annual memberships may be paused 1–3 months per year for a
$25 fee per pause
Program Transfers
• Transfers allowed before 2nd class if space available
• $5 fee (waived if same-day registration)
• Price differences between programs applies
Program Refunds
Single-Day
• Withdrawals allowed, but no refunds
• Refund allowed if course costs over $25 → Refund = amount
paid minus $25 processing fee
Program Refunds –
Multi-Day
• Pro-rated refund (minus $25) may be requested before 2nd class
• No refunds after 2nd meeting
23
Attachment B: 2026 BPR Proposed Fee Schedule
2
Attachment B: 2026 Parks and Recreation Department Fee Schedule
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 2025 Hourly Rate
per Employee
Proposed 2026 Hourly
Rate per Employee
Seasonal & Temporary (Non-Standard)
Staff
$24.50 $27.00
Standard Operations Staff $40.00 $43.00
Standard Management Staff $61.00 $65.00
Overtime/Outside of Operating Hours 2x multiplier 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.
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.
24
Attachment B: 2026 BPR Proposed Fee Schedule
3
Attachment B: 2026 Parks and Recreation Department Fee Schedule
a. Special Event Fees
Special Events 2025 Per Day Proposed 2026 Per Day
50 – 250 people $300.00 $350.00
251 – 1,000 people $500.00 $550.00
1,001 – 5,000 people $1,250.00 $1,375.00
5,001 – 50,000 people $2,000.00 $2,200.00
50,000+ people $2,500.00 $2,750.00
Glen Huntington Bandshell 2025 Per Day Proposed 2026 Per Day
50 + people $900.00 $1,000.00
Special Event Locations: Boulder Creek Path, Central Park, East Boulder Community
Park, North Boulder Park, Harlow Platts Park
b. Reservoir Events
2025 Per Day
April 1 – Oct 31
Proposed
2026 Per
Day April 1
– Oct 31
2025 Per Day
Nov 1 – March 31
Proposed
2026 Per Day
Nov 1 –
March 31
Full facility closure $15,000.00 $16,000.00 $7,500.00 $8,000.00
Reservoir Basic site $400.00 $400.00 $200.00 $200.00
Reservoir Premier
site
$600.00 $600.00 $300.00 $300.00
½ Parking Lot
(double for full)
$250.00 $250.00 $125.00 $125.00
Restrooms N/A $200.00 $200.00 $200.00
Reservoir Lake
Access
2025 Per Hour
April 1 – Oct 31
Proposed
2026 Per
Hour April
1 – Oct 31
2025 Per Hour
Nov 1 – March 31
Proposed Per
2026 Hour
Nov 1 –
March 31
Reservoir Lake
closure inside no
wake area
$75.00 $100.00 $50.00 $50.00
Reservoir Lake
wake area ½
$500.00 $500.00 $250.00 $250.00
Reservoir Lake
wake area Full
N/A N/A $500.00 $500.00
25
Attachment B: 2026 BPR Proposed Fee Schedule
4
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Picnic Fees 2025 Basic
Site per
Event
Proposed 2026
Basic Site per
Event
2025
Premier Site
per Event
Proposed 2026
Premier Site per
Event
Silver*
Up to 100 people
$400.00 $775.00 $440.00 $875.00
Gold*
Up to 200 people
$625.00 $1,375.00 $685.00 $1475.00
Platinum
*Up to 300 people
$800.00 $2,175.00 $880.00 $2,275.00
Platinum add-on’s $250 for each
group of 50 people
(or portion thereof)
over 300
attendees
A-la-carte fees for
extra tables, grills,
canopies, etc.
$250 for each group
of 50 people (or
portion thereof) over
300 attendees
A-la-carte fees for
extra tables, grills,
canopies, etc.
Per participant
impact fees over
allotted number of
guests
$5.00
per
participant
$10.00
per participant
$5.00
per
participant
$10.00
per participant
Notes on Picnic Fees:
*In 2025, base fee plus a cost per participant at $5 per person
In 2026, Picnic Fees include up to 100 people for Silver; 200 people for Gold; and $300 for
Platinum. This results in no cost change from 2025 rates for 75 people with Silver; 150 people
with Gold; 275 people with Platinum. Picnic fees include canopy setup, take down, tables,
grill, and waste containers.
Per car participant
fee for picnics only
$10.00 $10.00
Room Rentals: 2025 Per Hour Proposed 2026 Per Hour
Main building dining
room
$200.00 $200.00
Outdoor patio $50.00 $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.
26
Attachment B: 2026 BPR Proposed Fee Schedule
5
Attachment B: 2026 Parks and Recreation Department Fee Schedule
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 structured under a per
facility membership model with an All-Access Pass option. 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:
i. Resident Fee: Rate reflects a discount for those who live within the city
limits of Boulder. City of Boulder resident is defined as your primary legal
residence for purposes of property tax calculation and voter registration.
ii. Household: Any adults, seniors or youth residing at the same address.
The package may not include more than 4 household members. Anyone
18 years old and over must provide proof of same-address residency.
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 Library,
School District and University 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). Court access is no longer included with 3rd party
memberships due to lack of reimbursement.
vi. Promotional Discounts: promotional discounts will vary throughout the
year as temporary, limited-time rates designed to encourage participation,
attract new users or promote specific programs or seasons. Promotional
discounts are typically applied during marketing campaigns or special
events and do not alter the base fee structure.
27
Attachment B: 2026 BPR Proposed Fee Schedule
6
Attachment B: 2026 Parks and Recreation Department Fee Schedule
b. Single Drop-in Visit:
i. Centers: Includes one-time entry to East Boulder Community Center,
North Boulder Recreation Center and South Boulder Recreation Center.
This fee does not include court reservations.
ii. Outdoor Pools: Includes entry to both Scott Carpenter Pool and Spruce
Pool for the day.
Ages
2025 Daily Entry
Fee
Proposed 2026
Recreation Centers
Daily Entry Fee
Proposed 2026
Outdoor Pools Daily
Entry Fee
Adult (18-59) $12.00 $15.00 $15.00
Older Adult (60+) $9.00 $11.00 $12.00
Youth (2-17) $7.00 $9.00 $11.00
Group Daily (4 entries;
max 2 adults)
$32.00 $32.00 $35.00
c. Boulder Explorer 10-Pack: Includes 10 entries to the recreation centers,
outdoor pools and Boulder Reservoir. Does not include court reservations.
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025
Resident
Proposed 2026
Resident
Adult (18-59) $114.00 $139.00 $96.00 $129.00
Older Adult (60+) $85.00 $99.00 $72.00 $89.00
Youth (2-17) $66.00 $79.00 $56.00 $69.00
d. Monthly Pass: Boulder Rec Center Membership
i. Includes unlimited entry to East Boulder Community Center, North
Boulder Recreation Center and South Boulder Recreation Center.
Additional household members can be added for $10 per person per
month. This membership does not include court reservations.
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025 Resident Proposed
2026 Resident
Adult (18-59) $87.00 $87.00 $72.00 $72.00
Older Adult (60+) $65.00 $65.00 $54.00 $54.00
Youth (2-17) $52.00 $52.00 $43.00 $43.00
Household $139.00 $139.00 $115.00 $115.00
28
Attachment B: 2026 BPR Proposed Fee Schedule
7
Attachment B: 2026 Parks and Recreation Department Fee Schedule
e. Monthly Pass: RecPlus Membership
i. Includes entry to the recreation centers, outdoor pools and Boulder
Reservoir. Does not include court reservations. Additional household
members can be added for $10 per person per month.
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025 Resident Proposed
2026 Resident
Adult (18-59) $87.00 $129.00 $72.00 $103.00
Older Adult (60+) $65.00 $99.00 $54.00 $79.00
Youth (2-17) $52.00 $77.00 $43.00 $62.00
Household $139.00 $205.00 $115.00 $164.00
f. Annual Pass: Boulder Rec Center Membership
i. Includes unlimited entry to East Boulder Community Center, North
Boulder Recreation Center and South Boulder Recreation Center.
Additional household members can be added for $100 per person on an
annual payment plan. This membership does not include court
reservations.
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025 Resident Proposed
2026 Resident
Adult (18-59) $907.00 $945.00 $756.00 $756.00
Older Adult (60+) $680.00 $709.00 $567.00 $567.00
Youth (2-17) $548.00 $567.00 $453.00 $453.00
Household $1,451.00 $1,499.00 $1,209.00 $1,209.00
g. Annual Pass: RecPlus Membership
i. Includes entry to the recreation centers, outdoor pools and Boulder
Reservoir. Does not include court reservations. Additional household
members can be added for $100 per person on an annual payment plan.
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025 Resident Proposed
2026 Resident
Adult (18-59) $907.00 $1,399.00 $756.00 $1,119.00
Older Adult (60+) $680.00 $1,089.00 $567.00 $871.00
Youth (2-17) $548.00 $839.00 $453.00 $671.00
Household $1,451.00 $2,239.00 $1,209.00 $1,791.00
h. Outdoor Pools Seasonal Access:
i. Includes unlimited entry to Scott Carpenter Pool and Spruce Pool for the
season.
29
Attachment B: 2026 BPR Proposed Fee Schedule
8
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Ages 2025 Non-
Resident Rate
Proposed 2026
Non-Resident
Rate
2025 Resident Proposed
2026 Resident
Adult (18-59) $261.00 $289.00 $216.00 $232.00
Older Adult (60+) $195.00 $229.00 $162.00 $184.00
Youth (2-17) $153.00 $219.00 $126.00 $175.00
Household $417.00 $469.00 $342.00 $375.00
i. Boulder Reservoir Fees:
i. Daily Entry Fees - High Season (Friday before Memorial Day through
Labor Day):
Ages 2025 Daily Entry Fee Proposed 2026 Reservoir
Daily Entry Fee
Adult (18-59) $12.00 $12.00
Older Adult (60+) $9.00 $12.00
Youth (2-17) $7.00 $12.00
Two People/Car - $20.00
Household (4) / Car (5) $32.00 $30.00
+ additional carload over 5 people - $5.00
Per/person
Bike/Walk Fee - $5.00
Per/person
ii. Flank Season & Twilight Entry Fees:
Season 2025 Individual Proposed
2026
Individual
2025 Carload Proposed
2026
Carload
Flank Season*
$5.00 $5.00 $10.00 $10.00
Twilight Entry** $5.00 $5.00 $10.00 $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
30
Attachment B: 2026 BPR Proposed Fee Schedule
9
Attachment B: 2026 Parks and Recreation Department Fee Schedule
iii. Boulder Reservoir:
1. Includes unlimited entry to Boulder Reservoir.
Ages 2025 Non-
Resident Rate
Proposed
2026
Non-
Resident
Rate
2025 Resident Proposed
2026
Resident
Adult (18-59) $435.00 $439.00 $362.00 $352.00
Senior (60+) $325.00 $349.00 $273.00 $279.00
Youth (2-17) $261.00 $329.00 $217.00 $263.00
Household $695.00 $699.00 $580.00 $559.00
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.
Examples of resale items include: locks, swim diapers, goggles, charcoal, etc.
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 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 2025 9 Hole
Proposed 2026
9 Hole
2025
18 Hole
Proposed 2026
18 Hole
Adult (18 – 59) $30.00 $31.00 $48.00 $56.00
Senior (60+) $24.00 $26.00 $40.00 $45.00
Youth (17 and under) $20.00 $22.00 $30.00 $35.00
b. Per Round (Friday to Sunday) & Holidays
31
Attachment B: 2026 BPR Proposed Fee Schedule
10
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Ages 2025 9 Hole Proposed 2026
9 Hole 2025 18 Hole Proposed 2026
18 Hole
Adult (18 – 59) $33.00 $34.00 $53.00 $63.00
Senior (60+) $29.00 $31.00 $47.00 $53.00
Youth (17 and under) $24.00 $26.00 $34.00 $40.00
c. Annual Pass:
Ages 2025 Per Year Proposed 2026 Per
Year
Adult (18 – 59) $1,650.00 $2,000.00
Senior (60+) $1,320.00 $1,600.00
Junior (11 to 17) $425.00 $475.00
Children (10 and under free w/ paying adult)
d. Value Plan Card:
Ages 2025 Per
Pass
Proposed
2026 Per
Pass
2025 9
Hole w/
Value
Plan
Proposed
2026 9 Hole
w/ Value Plan
2025 18
Hole w/
Value
Plan
Proposed
2026 18
Hole w/
Value Plan
Adult (18 –
59)
$699.00
$800.00
$9.00
per
round
$10.00
per round $12.00
per round
$14.00
per round
Senior (60+) $599.00 $700.00
e. Tournament Fees
Time 2025 Per Player Proposed 2026
Per Player
Weekday Tournament* $78.00 $106.00
Weekend Tournament* $83.00 $140.00
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 2025 Per Bucket
Proposed 2026
Per Bucket
Small – ~40 balls $8.00 $9.00
Medium – ~75 balls $11.00 $12.00
Large – ~100 balls $14.00 $15.00
32
Attachment B: 2026 BPR Proposed Fee Schedule
11
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Carts (per person)
2025 9 Hole
Proposed 2026
9 Hole 2025 18 Hole
Proposed 2026
18 Hole
Riding Cart with GPS $15.00 $15.00 $20.00 $22.00
Push Carts $5.00 $7.00 $7.00 $9.00
Rental Clubs
2025 9 Hole
Proposed 2026
9 Hole
2025 18
Hole
Proposed 2026
18 Hole
Standard Clubs $10.00 $20.00 $20.00 $30.00
Performance Clubs $35.00 Termed $50.00 Termed
IX. Rentals
Space, facility, equipment, park reservations for a use by an individual, group or
organization.
a. Reservoir-Specific User Groups, Events and Picnics
Youth Group per Hour Adult Group per Hour
2026 User Group Rate $215 $310
2025 Rates $185.00 284.00
Add Ons 2025 Per Day Proposed 2026 Per Day
Fire Extinguisher $10.00 $12.00
Ice tub $20.00 $20.00
Charcoal Grill $40.00 $40.00
Picnic Tables $20.00 $20.00
20’ x 20’ canopy $350.00 $350.00
20’ x 30’ canopy $400.00 $450.00
Equipment Use 2025 Per Hour Proposed 2026 Per Hour
Loader / Tractor $85.00 $90.00
Personal Water Craft $30.00 $40.00
Motor Boat $50.00 $60.00
b. Boating
33
Attachment B: 2026 BPR Proposed Fee Schedule
12
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Decontaminations 2025 Per Craft Proposed 2026 Per
Craft
Small craft $20 $20.00
Large craft $50-$250 (depends on severity) $75.00-$350
(depends on severity)
Annual Boat Storage:
Mooring
2025 Per Boat Fee Proposed 2026
Per Boat Fee
Rack $380.00 $380.00
Gravel $830.00 $900.00
Paved $945.00 $1,000.00
Wet $1,110.00 $1,200.00
Season – 7 days per
week:
2025 Per Boat Fee Proposed 2026
Per Boat Fee
Powered 50-499 HP
(excluding class 5 boats)
$735.00 $750.00
Powered 1-49 HP and Sail
boats
$315.00 $350.00
Class 5 boats $735.00 $950.00
Weekday – Mon – Fri
(excludes holidays)
2025 Per Boat Fee Proposed 2026
Per Boat Fee
Powered 50-499 HP $400.00 $400.00
Small Watercraft 2025 Non-
Resident Rate
2025
Resident/Worker
Proposed 2026 Per
Craft
Weekday (Mon – Fri &
excludes holidays)
$45.00 $40.00 $45.00
7 days per week $70.00 $60.00 $70.00
c. Outdoor Sport Fields & Tournaments
34
Attachment B: 2026 BPR Proposed Fee Schedule
13
Attachment B: 2026 Parks and Recreation Department Fee Schedule
Rental Space 2025 Youth
Group per Hour
Proposed
2026 Youth
Group per
Hour
2025 Adult
Group per Hour
Proposed
2026 Adult
Group per
Hour
Inline Hockey Rink $16.00 $18.00 $19.00 $21.00
Horseshoe Pits $27.00 $30.00 $32.00 $35.00
½ Multi-purpose /
Satellite /Recreation Field
$18.00 $20.00 $25.00 $28.00
Multi-purpose / Satellite /
Recreation Field
$28.00 $31.00 $35.00 $39.00
Baseball & Softball
Diamond / Soccer Fields
$35.00 $39.00 $44.00 $48.00
Premier Field $67.00 $74.00 $88.00 $97.00
Add Ons
Lights $45.00 $50.00
per hour
$45.00 $50.00
per hour
Painting & Striping $38-110 $90 per field
at Premier;
$110 per field
at Satellite
$38-110 $90 per field
at Premier;
$110 per
field at
Satellite
Garbage At Cost At Cost
+ 10%
At Cost At Cost
+ 10%
Portalet Rentals At Cost At Cost
+ 10%
At Cost At Cost
+ 10%
Added Prep Costs See staff rates See staff
rates
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, Tantra 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
35
Attachment B: 2026 BPR Proposed Fee Schedule
14
Attachment B: 2026 Parks and Recreation Department Fee Schedule
2025 Resident
per Day
Proposed
2026
Resident per
Day
2025 Non-
Resident per
Day
Proposed
2026
Non-
Resident per
Day
Park Shelters $110.00 $120.00 $135.00 $150.00
Alcohol Permit $25.00 $25.00 $25.00 $25.00
Parking Lots $100.00 $110.00 $100.00 $110.00
Chautauqua Lawn Life events only: Free permit & deposit required
Valmont Park 2025 Resident
per day
Proposed
2026
Resident per
Day
2025 Non-
Resident per
Day
Proposed
2026 Non-
Resident per
Day
Shelter - 3 hours $150.00 $150.00 $150.00 $150.00
Park Shelters: Foothills Community Park, Harlow Platts Park, Martin Park, North Boulder Park
Parking Lots: full closure of a parking lot is per day
e. Outdoor Court Rentals:
Court Type 2025 Fee Per Hour Proposed 2026 Fee Per Hour
Sand Volleyball Court $30.00 $33.00
Pickleball Court $6.00 $10.00
Handball Court $8.00 $10.00
Tennis Court $6.00 $10.00
Tennis Court with Lights $10.00
Platform Tennis Court $5.00 $10.00
Basketball Court $33.00 $36.00
f. Indoor Space Rentals
2025 Resident
per Hour
Proposed 2026
Resident per
Hour
2025 Non-
Resident per
Hour
Proposed
2026
Non-Resident
per Hour
Small Room Rental $40.00 $44.00 $50.00 $55.00
Large Room $65.00 $71.00 $80.00 $88.00
Specialty Recreation
Facility
$80.00 $84.00 $100.00 $105.00
Basketball ½ Gym $50.00 $55.00 $63.00 $68.00
Basketball Full Gym $110.00 $120.00 $135.00 $145.00
36
Attachment B: 2026 BPR Proposed Fee Schedule
15
Attachment B: 2026 Parks and Recreation Department Fee Schedule
EBCC Ballroom $250.00 $275.00 $250.00 $300.00
EBCC Kitchen Surcharge Surcharge
Valmont Farmhouse $125.00 $150.00 $125.00 $150.00
NBRC Gymnastics
Room
$2,575.00 /
day
$2,575.00 / day $2,575.00 / day $2,575.00 / day
Small rooms: SBRC Lobby and Stretching Room; Indoor Racquetball Court, Community
Lounge (youth)
Large rooms:
All Centers: meeting or classroom space
EBCC: 1/3 of ballroom
NBRC: 2/3 of multipurpose room
SBRC: Ninja Studio, Community Lounge (adult)
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 2025 Youth
per Hour
Proposed
2026 Youth
per Hour
2025 Adult per
Hour
Proposed 2026
Adult per Hour
Pool Patio $35.00 $44.00 $42.00 $55.00
Indoor Lap Lane – 25yd $14.00 $16.00 $16.00 $18.00
Outdoor Lap Lane –
25yd
$16.00 $18.00 $20.00 $22.00
Scott Carpenter Lap
Lane – 50m
$27.50 $30.00 $33.00 $36.00
Leisure Pool Space $64.00 $70.00 $80.00 $88.00
Cabana Rental 2025
Resident
Proposed
2026
Resident
2025 Non-
Resident
Proposed 2026
Non-Resident
Rental + admission fee
per person
4 hour rental
$65.00 $79.00 $75.00 $90.00
Birthday Parties
(Outdoor Pools)
2025 Fee 2026
Proposed
Fee
2025 2026 Proposed
Fee
Designated space for 2
hours + swimming
$200 base
price
up to 20 ppl;
$5/addt’l
person up to
40
$250 1-20ppl;
$320 21-30
ppl;
$370 31-40
ppl
$250 base
price
up to 20 ppl;
$5/addt’l
person up to
40
$300 1-20 ppl;
$370 21-30 ppl;
$420 31-40 ppl
37
Attachment B: 2026 BPR Proposed Fee Schedule
16
Attachment B: 2026 Parks and Recreation Department Fee Schedule
X. Commercial Use
User groups and other entities rent space from the department and provide
programming outside the scope of BPR services. Commercial Users are required to
submit an Annual Customer Application.
Administrative fee for Annual Customer Application: $50.00, to be waived in 2026.
Commercial use fees (see b. below) may apply in place of the standard rental fee
listed elsewhere in this schedule at staff discretion.
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
Renters that are operating a program in public-access park space for commercial
gain, including collection of admission fees, participation fees, or donations for
participation are considered Commercial Users.
Commercial Users are invoiced for 5% of gross receipts collected for the program
occurring in City of Boulder park space. Payment of invoiced fees shall be due
quarterly to seasonally (based on permit type) and is required for permits to be
issued or remain valid for the following quarter or season. Gross receipt totals may
be prorated by the estimated proportion of use occurring in City of Boulder park
spaces.
Soliciting or general fundraising is prohibited in park spaces.
38
BPR Market Study
Comparison for
Rentals/Fees
1
Attachment C: 2025 Market Study
39
2
Access Fees
Drop -Ins &
Passes
Internal
Spaces at
Recreation
Facilities
Athletic
Fields, Courts
& Park
Shelters
Boulder
Reservoir
Permits,
Picnics &
Storage
Flatirons Golf
Course
Rounds of
Golf & Passes BPR 2025 Market Study: Rentals/Fees Attachment C: 2025 Market Study
40
3
Market Study
•Several municipalities increased fees for 2025 on daily entry
•2025 BPR access includes all 3 Recreation Facilities, Outdoor Pools, and the Boulder
Reservoir
•Municipal facilities rates are higher for outdoor pools vs. recreation centers
•BPR above municipal market rates but have different funding mechanism
•BPR is lower than for profit/non-profit organizations. Age ranges updated for 2026.
Resident Non-Resident
Adult/General Youth Senior Household Adult/General Youth Senior Household
BPR Example Age 18-59 Age 2-17 Age 60+Daily 4- Pack Age 18-59 Age 2-17 Age 60+Daily 4- Pack
BPR Current Rate $12 $7 $9 $32 $12 $7 $9 $32
2026 BPR Proposed Rate – Recreation Centers $15 $9 $11 $32 $15 $9 $11 $32
CO Athletic Club 40 40 40 N/A N/A N/A N/A N/A
RallySport
YMCA of Northern Colorado:
Mapleton/Arapahoe 15 10 15 N/A 15 10 15 N/A
Louisville, CO 8.25 6.25 6.25 33.50-5 days 13 10 10 58.75 5 days
Westminster, CO 6 5 5 N/A 10 9 9 N/A
South Suburban PRD, CO 6.75 5.5 5.5 N/A 9.25 7.25 7.25 N/A
Foothills PRD, CO 5.75 4.25 5 15 7.75 5.75 6.75 25
Broomfield, CO 5 3.5 4 N/A 7.75 6.25 6.25 N/A
Erie, CO 6 4 4 15 7 5 5 20
Fort Collins, CO 7 6 6 N/A 7 6 6 N/A BPR 2025 Market Study: Rentals/Fees Permanently Closed
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
2026 rates reflect change to BPR membership structure and are for recreation centers only.
Attachment C: 2025 Market Study
41
4
Market Study
•Several municipalities increased fees for 2025 on passes
•2025 BPR access includes all 3 recreation facilities, Scott Carpenter & Spruce Pools, and the
Boulder Reservoir. Access to other public & private entities varies.
•BPR above municipal market rates but has different funding mechanism
•Municipalities based on resident rate*
•BPR is lower than for profit/non-profit organizations
BPR 2025 Market Study: Rentals/Fees Monthly Annual
BPR Example: Boulder Rec Center Membership
Resident Rate
Unlimited Visits- Adult
Resident Rate
Unlimited Visits - Adult
BPR Current Rate $72 $756
2026 BPR Proposed Rate $72 $756
CO Athletic Club 105 1260
RallySport Closed Closed
YMCA of Northern Colorado:
Mapleton/Arapahoe 78 858
Louisville, CO 48 500
Erie, CO 40 384
South Suburban PRD, CO 40 440
Fort Collins, CO 34 306
Broomfield, CO 33 396
Foothills PRD, CO 3 month-109 199
Westminster, CO 35 399
Crunch 9.99 - 29.99 119.88 - 359.88
Planet Fitness 15 180
$0
$20
$40
$60
$80
$100
$120
Monthly Pass Price (Adult)
Private BPR Public N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
2026 rates reflect change to BPR membership structure and are for recreation centers only.
Attachment C: 2025 Market Study
42
5
Description
Small
Space/Medium Large Space
Extra Large
Space
Studio/Multi-
purpose Space
Racquetball
Courts Gymnasium
Half Gymnasium
Rental
BPR Example
Multi-purpose Classroom
Stretching Room 1/3 EBCC Ballroom EBCC Ballroom
Dance or Aerobics
Studio/Community
Lounge Racquetball Courts Basketball Gym 1/2 Gymnasium
Square Feet Up to 2,000 2,000-5,000 4,500+1,000+800 5,000-8,500 2,500-4,250
Rental Capacity PPL 1-100 100-150 150+Varies N/A Varies Varies
Function
Small conference
classroom/multi-purpose
room
Large conference/
party space
Large conference/
party space Multi-purpose space Racquetball Courts Gymnasium 1/2 Gym Rental
BPR Current Resident
Rate $40 $65 $250 $80 No Charge $110 $50
2026 BPR Proposed
Resident Rate $44 $71 $275 $84 TBD $120 $55
Public Average
Resident Rate 40 117 246 56 No Charge 110 54
Boulder JCC 45-165 45-165
$2,700 -$6,200 7HRs
(Levin Hall 4,500sqft)45-165 N/A N/A N/A
BVSD Rate: Adult
(Elem/MS/HS)30/30/30 See multi-purpose 45/69 40/42/78 N/A 53/66/86 N/A
CU Boulder 36-60 70 Variable 60-70 N/A 60 Per Court N/A BPR 2025 Market Study: Rentals/Fees Market Study
•Resident, adult or a flat rate utilized for comparison. Rental rates are hourly.
•Description categorization based upon square footage, capacity, or function
•BPR rates for medium & studio space are at market
•Boulder JCC, BVSD, and CU Boulder
•Provide the best market comparison for proximity and room types/purpose
•BVSD charges a staggered large group surcharge on top of base rate for 50+ people
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
Attachment C: 2025 Market Study
43
6
Market Study
•Resident/adult rates utilized for comparison. Field rental rates are hourly.
•Comparatives have different tennis & pickleball rates. Pickleball not noted, will be added.
•BPR field rental rates are in-line or lower than surrounding municipalities
•Some municipalities charge a flat set-up fee on top of hourly rental
•BPR rates are lower than BVSD and CU Boulder for field rentals
•Provide the best market comparison for proximity, rental types & condition
•BVSD does charge a higher youth/adult commercial rate (e.g., fields $110, turf $179)
•Shelter Day Rate-BPR is in-line surrounding communities. OSMP R $50/NR $100/hr.BPR 2025 Market Study: Rentals/Fees Description
Tennis Court
Recreation
Small
Field
Multi-Purpose/
Satellite/
Recreation
Field Premier Field
Baseball
Diamond/
Soccer Field
Basketball
Court
Park
Shelter per
Day
Field
Rental
Add-On
Field Rental
Add-On
Field
Rental
Add-On
BPR Example Tennis Court
½ EBCC
Multi
Purpose
North Boulder
Park
Pleasant View
Field/
Scott Carpenter
Gerald Stazio
East Mapleton
Pleasant View
EBCC
Basketball
Court Outside
Harlow Platts
Park
Field "Touch
Up"
Lining/
Painting
Field
Porto/Trash/
Fencing Lights
BPR Current
Rate
TBD Per Court
System Plan $25 $35 $88 $44
TBD Per Court
System Plan $110 $38-110 At Cost $45
2026 BPR
Proposed Rate $10 per HR $28 $39 $97 $48 $36 $120 $90-110 At Cost +10%$50
Public Average
Rate 9 per HR 25 38 73 26 44 137 50 150-200 40
BVSD Rate:
Adult
(Elem/MS/HS)9 per HR N/A 70 158 70 53/66/86 N/A N/A N/A N/A
CU Boulder 20 per HR N/A 50-60 100-125 75 20 N/A N/A N/A
Yes - No
Posted Fee
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
Attachment C: 2025 Market Study
44
7
Body of Water State or Municipal Fee Season Annual Pass option Powerboats Allowed Non-Vehicle Entry Fee Vehicle Fee Add'l Boat Fee Per person fee Wake Information Additional Information
Boulder Reservoir Municipal
April 1 - October 31 High
Season Memorial Day to
Labor Day
Yes- BPR annual, Reservoir
only annual, many other
discounted or subsidized
options Yes
Ride and Stride reward for
non-motorized users and
carpool users
$5 for 1 person $10 for car.
Only in flank season or
twilight hours
Flank Season
$5/person $10/carload
Peak Season
Adult $12/Youth $7/SR $9
Ride and Stride Reward
Adult $9/Youth $5/SR $7
Designated wakeless
area, days and times
that are fully wakeless,
days and times that are
"low wake" restricted.
Aurora Reservoir Municipal Year-round R $75/ NR $85 No gas powered No
$10/day weekdays, $15/day
weekends/holidays, $10/day
off-season
$20 for trailered boats,
no fee for SWC N/A Wakeless boating only
Bear Creek Lake Park Municipal Year-round $80 Permanent/$50 Senior <10HP No
Weekday $10,
Weekend/Holiday $15 No N/A
Designated no wake
zones but no other
days/times specified
Durango/Nighthorse Municipal mid April-early Nov
$80 Household, $60 Senior,
$25 Walk/Bike Yes $5 $10 No N/A
Mon/Wed/Fri & Before
10am No Wake $25/day busses
Standley Lake Municipal Year-round $65 No N/A $7 $10 N/A
No trailered watercraft
allowed
Boating season is only
May 1-Sept 30 though
fees remain in place year
round.
Union Reservoir Municipal Year-round $85 R/$200 NR Yes but wakeless $2 $10 Weekdays/$15 Weekends
$5 smallcraft/$10
trailered N/A All wakeless
Walk in only Nov 1-Feb
28, but fees still apply.
Carter Lake County Year-round
$100/Vehicle R,
$130/Vehicle NR,
$200/Car+Boat R,
$260/Car +Boat NR Yes not listed $10/vehicle $10/trailered watercraft N/A
Designated no wake
zones but no other
days/times specified
Managed by Larimer
County, no fee listed for
SWC daily entrance.
Similar fees to Horsetooth
Reservoir. ANS decon fees
not listed
Horsetooth Reservoir County Year-round
$100/Vehicle R,
$130/Vehicle NR,
$200/Car+Boat R,
$260/Car +Boat NR Yes not listed $10/vehicle $10/trailered watercraft N/A
Designated no wake
zones but no other
days/times specified
Managed by Larimer
County, no fee listed for
SWC daily entrance.
Similar fees to Carter
Lake. ANS decon fees not
listed
Barr Lake State Year-round
$80 permanent, $70 Senior
$120 transferable <10HP not listed $10-$12 No $4 Wakeless boating only
Only low powered fishing
vessels, sailboats, and
SWC allowed
Boyd Lake State Year-round
$80 permanent,
$120 transferable,
$70 Senior Yes not listed $10-$12 No N/A
Designated areas of the
lake for wakeless and for
skiing (e.g. south end for
skiing), No specific
wakeless days/times
Chatfield Reservoir State Year-round
$80 permanent,
$120 transferable,
$70 Senior
Yes, only on main
reservoir not listed $10-$12 No N/A
Divided into zones for
each type of activity. No
other days/times
specified.
SWC allowed on any
water inside of park,
powerboats only allowed
on main reservoir. Full
service Marina
Cherry Creek Reservoir State Year-round
$83 permanent,
$123 transferable,
$73 Senior Yes not listed $10-$12 State Registration Fee N/A
Designated no wake
zones but no other
days/times specified
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
Attachment C: 2025 Market Study
45
8
Location
Large Powered Watercraft
Season Permit
Small (Un)Powered
Watercraft
Season Permit
Small Watercraft
Season Permit ANS Fee
BPR Example
Powered Watercraft 50-499 HP
Excluding Class 5 Boats
Sailboat
Powered 1-49 HP
Kayak
Canoe
Stand Up Paddleboard Decontamination
Boulder Reservoir Current Rate
7 days $735
Weekday $400
7 days $315
Weekday N/A
7 days $60 R/$70 NR,
Weekday $40/$45 NR
Fees range between $20-$200
based on watercraft size
2026 Boulder Reservoir Proposed Rate
(one rate R/NR)
7 days $750
Weekday $400
7 days $350
Weekday N/A
7 days $70
Weekday $45
Fees range between $20-$350
based on watercraft
size/severity
Aurora Reservoir
Pass for trailered watercraft only
w/electric motor, no gas motors $20 No Fee No Listed Fee
Union Reservoir Not Allowed
$70 R/$132 NR Trailered
($10 Day)
$35 R/$70 NR SWC
($5 Day)- No Listed Fee
Standley Lake N/A
N/A No Trailered
Watercraft
Annual $125, Senior Pass
$100, ($10 Day)
w/ season pass or daily
entrance fee
Horsetooth Reservoir/Carter Lake
Annual Fee
$25 in-state/$50 out of state
Chatfield Reservoir
Annual Fee
$25 in-state/$50 out of state
Cherry Creek Reservoir
Annual Fee
$25 in-state/$50 out of state BPR 2025 Market Study: Rentals/Fees Market Study:
•Boulder Reservoir is unique in being one of the few municipalities to allow
powerboats over 10HP
•BPR has Lake Patrol services at all times the facility is open
•Comprehensive ANS program with boat inspectors available for entrance/exit
decontaminations when facility is open
•Colorado Parks & Wildlife state funding & fees are not comparable
Combination Vehicle and Boat R/$200 – NR $260.00
State Annual Boat Registration: $60.25 -$100.25
N/A indicate no offering, comparable or published data. 2025 rates based on current published data. Vehicle permit discounts at state parks based on income, age, disabilities and veterans.
Vehicle Registration R/$80.00 – $120.00 (discounting available)
State Annual Boat Registration: $60.25 -$100.25
Vehicle Registration R/$80.00 – $120.00 (discounting available)
State Annual Boat Registration: $60.25 -$100.25
Attachment C: 2025 Market Study
46
9
Description
Shelter Rentals/Picnic
Per Day
BPR Example – Premier Site
Rental package fees vary based on
attendance and amenities & included tables,
grill, canopy(s) & waste containers
Boulder Reservoir
(plus admission fees)
$440-Silver up to 100 ppl
$685-Gold from 100-200 ppl
$880-Platinum from 150-300 ppl
2026 Boulder Reservoir
(includes admission fees)
$875-Silver up to 100 ppl
$1475-Gold up to 200 ppl
$2,275-Platinum up to 300 ppl
Aurora Reservoir
$100-Small
$135- Medium
$245- Large
Barr Lake, Brighton $150 (100 ppl max)
Boyd Lake, Loveland
$90-weekdays
$180-weekends (200 ppl max)
Waneka Lake, Lafayette
$95-Small
$126- Medium
$258- Large
Union Reservoir, Longmont $115- weekday only
Market Study: Picnics/Shelters
•Fees are based on high season rental rates
•Comparisons provide only a covered shelter near body of water
•BPR above market rates but provide different set-up
•2025 BPR Picnic Admission Fees are separate and based on
total: $5 per person/$10 Per carload
Market Study: Boat Storage
•Boulder Reservoir is annual fee & falls in line with market rates outside Boulder
•Annual fee is below Boulder facilities
•Boulder Reservoir requires season permit to access storage
Location Covered Uncovered Wet Mooring
Boulder Reservoir Current N/A
$380-Rack
$830-Dry Gravel
$945-Dry Paved $1110 Season
2026 Boulder Reservoir
Proposed N/A
$380-Rack
$900-Dry Gravel
$1000-Dry Paved $1200 Season
Recreational Storage
Solutions-Erie N/A
$75/mo.: back in
$100.50 mo.: pull-thru N/A
Union Reservoir N/A R $635/NR 1256 season N/A
Carter/Horsetooth N/A N/A
$1161-1562 Carter Season
$1800-$5500 Horsetooth
Boulder RV & Boat Self Storage N/A
$100/mo.: back-in
$115/mo.: pull thru N/A
Arapahoe Self Storage-Boulder $180/mo.$160/mo.N/A
StorQuest Self Storage-Boulder $284/mo.N/A N/A
Boyd Lake N/A
$75/mo.; $400/season
(w/ season pass only)$230-265/mo.
Boyd Lake Boat RV & Storage $230/mo.
$90/mo.: back-in
$110/mo.: drive-thru N/A
Louisville Boat & RV Storage N/A $43-70/mo.N/A
Chatfield Marina N/A
$900-1440/season
based on size $4,100/ per season (slips)
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
Attachment C: 2025 Market Study
47
10
Course Location
9 Hole Weekday
Rate
9 Hole Weekend
Rate
18 Hole Weekday
Rate
18 Hole Weekend
Rate Annual Pass Value Plan Notes/Cart Fees
Flatirons Golf Course Current Rate Boulder $30 $33 $48 $53
$1650 Adult
$1320 Senior
$425 Youth
$699 Adult
$599 Senior
$20 per cart rider for 18
$15 per cart rider for 9
Nominal surcharge per round for
value plan passes
2026 Flatirons Golf Course
Proposed Rate $31 $34 $56 $63
$2000 Adult
$1600 Senior
$475 Youth
$800 Adult
$700 Senior
$22 per cart rider for 18
$15 per cart rider for 9
No change to surcharge for value
plan passes.
Indian Peaks Golf Course Lafayette 35 40 56-66 68-86 Family Plan aft 5pm 9/$14 18/$22 per cart rider
Coal Creek Golf Course Louisville 3033 56 63 $2367 –Regal M-F
$2866- Regal Plus-Unlimited
N/A 2 free guest rounds with pass
9/$13 18/$22 per cart rider
South Suburban GC Centennial 29 31 57 59
Adult $1050 M-F
Senior/Junior $875
Couples $1,375
10 Punch $280/$560
20 Punch $540/1,100
30 Punch $780/1620
Punch card has 9/18 holes fees noted
Has Resident and Non-Resident Fees
9/$12 18/$22 per cart rider
Ute Creek Golf Course Longmont 283050 57 $1905
$2615 w/cart
10 Punch $450
20 Punch $800
Must take cart on weekends
9/$15 18/$20 per cart rider
Twin Peaks Golf Course Longmont 242540 42$1430
$2140 w/cart
10 Punch $360
20 Punch $640 9/$15 18/$20 per cart rider
Walnut Creek Golf Preserve Westminster 31 40 55 72$3,300 M-F Unlimited
$3,800 Unlimited 50-Cap
N/A Walnut and Legacy pass
9/$13 18/$22 per cart rider
Legacy Ridge GC Westminster 24 3534 48 $1,800 M-F Unlimited with cart
$2,350 Unlimited with cart N/A
Walnut and Legacy pass
9/$10 18/$15 per cart rider
Broadlands Golf Course Broomfield 35406075 By request N/A 9/$10 18/$20 per cart rider
Westwoods GC Arvada 30 36 55 60 $2,500 M-Th $3,500 M-Th cart 15 Punch $701.25 M-T 9/$14 18/$23 per cart rider
Thorncreek GC Thornton 29 30 41 58$2,350 M-F $3,675 Unlimited $660 Annual cart rent Demand Based Pricing- varies
Collindale /Southridge GC Ft Collins 25 315161$675 plus surcharge $6/$12
$2,500 Super Pass
N/A 9/$12 18/$19 per cart rider
Surcharge single rider $4/ $7
Foothills GC Denver 26305161 N/A N/A 9/$12 18/$24 per cart rider
Fossil Trace Golden Twilight 90 Twilight 120 140 175N/A 0-7 days $115/$125 Rates include cart
Riverdale Dunes Brighton 30 30 49 59 N/A 5/10 punch $100/$190 9/$11 18/$19 per cart rider
Market Average 31 35 57 68
Market Study
•Rounds of Golf- Based on Adult Rates-
•BPR rates for 9 holes are comparable to market average
•BPR rates for 18 holes are below market average
•BPR passes are below market rates. Several courses offering punch pass options for 18 holes & demand-based pricing.
N/A indicate no offering, comparable or published data. 2025 rates based on current published data.
Attachment C: 2025 Market Study
48
Thank you.
11
Attachment C: 2025 Market Study
49
City of Boulder
PRAB Agenda Item
Meeting Date: October 27, 2025
Civic Area Phase 2 Concept Plan and
Implementation
Staff Contact
•Mark Davison, Senior Planning Manager, Parks and Recreation
davisonm@bouldercolorado.gov
•Shihomi Kuriyagawa, Senior Landscape Architect, Parks and Recreation
kuriyagawas@bouldercolorado.gov
•Ali Rhodes, Director, Parks and Recreation
rhodesa@bouldercolorado.gov
Executive Summary
The intent of this memo is to update PRAB on the Civic Area Phase 2 project. The
update includes 1) an overview of the concept plan; 2) elements advancing into design
and construction for Phase 2 implementation; 3) the balance of policy, technical
analysis and Engagement Window 3 that has informed the concept plan. The project
team will take questions and feedback on these topics from PRAB and City Council.
Final design and permitting will occur in 2026 with construction to begin in 2027. Staff
will keep PRAB, council members and the community updated on project progress and
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milestone celebrations.
Questions for PRAB
1) Does PRAB have feedback on the concept plan for Civic Area?
2) Does PRAB have feedback on the elements advancing into construction in Phase 2
for the Civic Area?
Alignment with City Plans, Board and City Council History
Sustainability, Equity and Resilience (SER) Framework and Citywide
Strategic Plan Alignment
SER Framework Goal Area
• Safe: 1, 5
• Healthy and Socially Thriving: 1, 2, 3
• Accessible and Connected: 3
• Environmentally Sustainable: 3
• Responsibly Governed: 1, 2, 3,
• Economically Vital: 6
Citywide Strategic Plan 2024-2026
• Healthy and Socially Thriving: 4d
• Livable: 6b
• Accessible and Connected: 8a, 8b
Staff Notes
Investment in the largest parcel of public land in downtown Boulder directly advances
the Sustainability, Equity and Resilience (SER) Framework by:
• Enhancing parks and public spaces that are free, open to all and foster physical
activity, mental well-being, community building and universal accessibility to
ensure all ages and backgrounds are welcomed in the space. This meets the
Healthy and Socially Thriving Community as well as Accessibility and Connected
values from the SER framework.
• Creating a climate-resilient park through habitat restoration, water quality
strategies, nature-based play to contribute to the Environmental Sustainability
value by aligning with goals for ecological health and long-term resilience.
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• Building downtown spaces that serve the community through resilient park
amenities that stand the test of time, are easily maintained and fiscally
responsible. This contributes to the Responsibly Governed value in the SER
framework.
• Improving the quality of Boulder’s largest downtown park contributes to the city’s
exceptional quality of life and Economic Vitality, which 87% of corporate
executives name as an important factor when considering new facility
placements, expansion or relocation plans. In addition, investments in downtown
parks have been shown to have an economic return of $7 for every $1 invested.
Alignment with Additional City Plans
The Civic Area concept plan was crafted to align its values and goals with several city
efforts by creating an inclusive, resilient and vibrant urban center. All phases of the Civic
Area design are integrated with these city plans and strategic frameworks:
• Downtown Urban Design Guidelines, 2002
• Civic Area Plan, 2015
• Community Cultural Plan, 2015
• City of Boulder Engagement Strategic Framework, 2018
• Transportation Master Plan, 2019
• Racial Equity Plan, 2021
• Boulder Valley Comprehensive Plan, 2021
• City of Boulder Facilities Plan, 2021
• Parks and Recreation Department Plan, 2022
• Historic Places Plan, 2023
As well as these relevant studies:
• Andrews Arboretum Promenade Study, 2018
• Cable Transit Study, 2020
• Downtown Boulder Vision Plan (Downtown Boulder Partnership), 2022
• Boulder Social Streets on 13th pop-ups evaluation, 2023
• Central Park Cultural Landscape Assessment, 2023
• Boulder Downtown Station Expansion Plan, 2023
• Boulder Civic Area East Bookend Existing Conditions (draft)
Board and Council History
The project team worked closely with PRAB throughout the project including initial kick-
off, historic updates and planning analysis:
• PRAB - Civic Area Kickoff – 1/23/23 (page 25)
• PRAB - Historic District – 6/26/23 (page 29)
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• PRAB - July Update – 7/24/23 (page 45)
• PRAB - Site Tour Event – 8/28/23 (page 17)
• PRAB - Planning Analysis Update – 7/22/24 (page 86)
In 2023, the project team launched the scoping task for the Civic Area Phase 2 project,
including updating City Council on the overall project process, scope and goals at the
December 14, 2023 study session. At that meeting, City Council confirmed the
continued relevance of the Guiding Principles in the 2015 Civic Area Plan. In 2024, the
project moved through the planning analysis phase which included research of the
existing conditions, gathering technical data, and engaging the community in imagining
the future of the Civic Area during Engagement Window 1. The first window asked
community members to dream big and share all ideas that could be in this space. A
summary of the findings can be found here in the August 23, 2024 council IP.
At the April 17, 2025 council meeting, the project team reviewed findings from the
Planning Analysis phase as well as the input gathered from Engagement Window 2.
The project team also reviewed a separate process within the Civic Area for the East
Bookend with council. Council supported the process to seek potential Public-Private
Partnerships for the development of the East Bookend.
In addition to PRAB and Council, the Landmarks Board and the Transportation Advisory
Board (TAB) have been involved throughout the project at various key stages of the
project. Previous Board Engagement for this project includes:
• Landmarks – 4/12/23
• Landmarks – 7/7/23
• PRAB and Landmarks – 12/18/23
• Landmarks – 9/3/2025
• Transportation – 10/13/2025 (presentation only, no written memo)
Overall, the project team uses feedback from three key inputs throughout the design
process to build the final concept plan including: public engagement (including feedback
from city boards), key policy guidance from several citywide plans and regulations and
data from existing conditions analysis and technical studies.
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Analysis
The Civic Area Phase 2 concept plan advances the 2015 Civic Area Plan and builds on
Phase 1 work completed in 2018. It aims to create a more inclusive, resilient and vibrant
public space that supports year-round activation and community well-being. The
concept plan is based on input from the community over the past two years and
captures voices from across the city including historically excluded groups,
multigenerational populations and those with racially diverse backgrounds. The design
team analyzed all feedback for key priorities heard across the community, ensured the
priorities heard from historically excluded groups were elevated and evaluated these
design elements for feasibility of implementation based on site parameters and budget
constraints. Staff completed a final overlay of analysis on design elements to ensure
they met policy guidance (City of Boulder’s plans and goals for downtown and the Civic
Area) and regulatory needs (safety and code requirements).
The proposed improvements will create connected green spaces for community events,
gatherings and flexible use with Boulder Creek at the heart. A network of paths will
support walking, biking and access to nearby areas like downtown, CU’s campus and
the Pearl Street Mall. Gardens will filter stormwater before it reaches the creek, while
native plants, pollinator pathways and climate-friendly landscapes will offer an
immersive nature experience. The plan includes an array of new amenities for the
community such as shade structures, playgrounds, picnic areas and public restrooms to
make the space welcoming for everyone. Infrastructure upgrades like lighting, seating
and accessible paths aim to make the park safer and more inviting year-round. To
create an iconic and distinctive sense of place, the plan also considers opportunities for
art, a connected path that elevates the stories of this community and of history past and
providing elements of signage and wayfinding.
Following site analysis, key design drivers were identified: culture to nature spectrum,
creek personalities categories, welcoming new gateways, iconic viewsheds and
celebrating the funky aspects of Boulder’s culture. Figure 1 below shows the final
Concept Plan that emerged from synthesizing the inputs from the three windows of
engagement, guiding policy and the planning analysis.
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Figure 1: The Civic Area Phase 2 concept plan shows desired features across four key zones of
the park.
The concept plan is divided into four zones to allow for more in-depth conversations
with the community:
Zone 1: West End
The west-most area of the park from 9th Street to the library focuses on nature
immersion and enhanced circulation that connects out to the adjacent park and
continues a more rustic and naturalized theme. This is proposed to include native
plantings, nature exploration for youth with an iconic feature and improved creek access
through raised paths and a new pedestrian bridge.
Zone 2: Boulder Beach
The area east of the library up to Broadway, nicknamed “Boulder Beach,” is envisioned
to be the Civic Area’s new nature recreational hub through conversion of current asphalt
to flexible green space and enhanced creek access. The concept plan shows an entry
plaza at Canyon Boulevard and 11th Street, food and beverage offerings and large patio
steps to the water on the north side of the creek. On the south side, an accessible kids’
creek feature can allow young community members and people using mobility aids to
55
experience the creek waters along with a new tube eddy and rental kiosk. A proposed
food truck plaza, swing forest and nature hub with public restrooms would ensure the
park serves a diversity of community members through a food and beverage kiosk,
youth programming and educational opportunities as well as a ranger station. An
outdoor shade shelter could provide opportunities for picnicking and casual dining in the
park.
Zone 3: East End
The East End between Broadway and 14th Street will become a vibrant park and urban
space, featuring a pedestrian-first festival street for an expanded Farmers Market, an
enhanced Bandshell, flexible green and future food and cultural spaces that connect city
life with the park. An enhanced creek viewing deck and connected green above this
short section of ditch would allow space for improved mobility and access to the creek.
A beer garden, “the Porch” seating and plaza, tea house garden, wayfinding signage
and shaded areas and canopy will increase social opportunities and improve community
member experience in the area. The nature play and splash pad combination can
provide youth recreation, further bringing activation to the space.
Nature Exploration Pilot: Wild Woods Pop-Up Area
At the beginning of summer 2025, a temporary nature exploration area (Picture
1) installed south of the Bandshell in Central Park brought positive social
behaviors and multi-generational community to the area. Along with other city-
wide efforts to improve safety, this resulted in a significant decline in police
reports in the area for summer 2025. Given the overwhelmingly positive
community reception of this exploration area, staff will maintain this area, as
feasible, until construction of larger park improvements begins.
Picture 1: Kids enjoying the temporary nature exploration area in Civic Area in Summer
2025.
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Bandshell Enhancements
Based on feedback from the community in Window 2 engagement, the concept
plan proposes to maintain and expand the role of the Glen Huntington Bandshell
(the Bandshell) in its current location within the park through improved
accessibility, lighting, audio/visual and seating.
To recognize the historic landmark status and unique characteristics of the
Bandshell, staff propose using a framework specific to historic outdoor theaters in
tandem with Boulder’s regulatory process. The framework outlined in the
“Preserving Landscape Experience in Historic Outdoor Theaters”, a project
funded by National Center for Preservation Technology and Training, a unit of
the National Park Service, will allow the project team to better assess potential
changes to the Bandshell. The September 3, 2025 memo to Landmark’s Board
demonstrates how the guidebook’s nine step framework might be used as a tool
for proposing enhancements to the Bandshell.
Connecting Central Park
Connecting the lawn and creating a land bridge over one area of the irrigation
ditch in the Civic Area would improve continuity, accessibility and usability within
the Central Park space. This modification would enhance circulation, support a
wider range of public uses and expand the Farmers Market functionality. A
majority of community members voted to connect the green lawn in Central Park
while keeping the ditch open by the Tea House.
Zone 4: Arboretum
Zone 4, encompassing the Arboretum and path leading from Civic Area to the Hill and
CU, will become a welcoming, dynamic and space for all modes of transportation and
feature gardens, a boardwalk, viewing tower and youth-oriented gathering spaces.
Distinctive lighting will contribute to placemaking and a well-lit, safe environment.
Overall Features
Across all zones, community members have shared enthusiasm for the creation of an
art, history and cultural story walk. This walk could include celebration and integration of
the many historic elements throughout the space from stories of indigenous
communities to the five designated landmarks within the Civic Area: the Atrium
Building, the Dushanbe Teahouse, the Storage and Transfer Building (currently Boulder
Museum of Contemporary Art), the Penfield Tate II Municipal Building and the Glen
Huntington Bandshell. In the future, this proposed pedestrian loop could connect from
Pearl Street through the Civic Area to The Hill and up to Chautauqua, tying multiple
neighborhoods across the city together into a dynamic storytelling trail. Staff continue to
build on the research started as part of the Civic Area Historic District proposal of 2023-
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2024 and will begin to reach out to community and organizations to inform the content
of this walk as displayed in the conceptual overview in Figure 2.
Figure 2: A conceptual historic and cultural storytelling pedestrian loop through Civic Area.
Recommendations Advancing in Phase 2
After evaluating community feedback, including an equity focus, incorporating existing
policy guidance and building off the technical analysis that was completed for the
project, this evaluation pointed to focusing on Zone 3: East End for the next investment
in the Civic Area. Along with gateways, signage and storytelling woven throughout the
Civic Area, these improvements will support unifying Boulder’s heart and the park at the
core in Phase 2.
The next step for the design team involved running the concept plan through a
construction costing exercise. This exercise estimates the cost of construction for all
design features in the Civic Area and allows the team to evaluate what can be built in
Phase 2 based on currently available funding. For the project, City Council has
approved $18 million in funding for Civic Area Phase 2 effort from the voter approved
Community, Culture, Resilience and Safety (CCRS) Tax and the Lottery Fund (see the
Fiscal and Workplan Impact section for more detail).
58
Following this cost analysis, the project team recommends improvements to be
concentrated in Zone 3: The East End, with wayfinding and storytelling elements added
throughout the park to allow for greatest impact and create a unifying feel for the Civic
Area (the boundary for Phase 2 implementation can be seen below in Figure 3, in the
pink outline and areas below). The project team also recommends consideration of
potential pop-ups and interim improvements to be explored outside of the current
project funding from the CCRS Tax at the Boulder Beach and Arboretum areas. Minor,
low-cost improvements can enhance community experience in these areas and the park
while larger improvements are not feasible at this time due to existing buildings and
funding. Additionally, staff will continue to study the area near the future park entrance
at Arapahoe and Broadway to inform potential future phases.
Figure 3: The pink highlighted boundaries will move forward into construction for Civic Area
Phase 2. In orange, these areas will consider potential pop-ups and interim improvements to be
explored outside of the current project funding from the CCRS Tax. In blue, this area will
continue to be studied in design.
The programming enhancements prioritized for Phase 2 Implementation are outlined
below with a summary of how the programming elements were determined to be
appropriate for the next phase of construction:
59
Features Key Inputs
All Proposed
Features for Phase 2
• Engagement: All features are high priorities for Boulder’s historically
excluded groups and align with the project’s Racial Equity Instrument
process.
• Policy: All proposed features contribute to active and/or passive
programming which creates a more vibrant and safe downtown
space CA7 Life and Property Safety as well as CA7 The Civic
Heart of Boulder. See the Alignment with City Plans and City
Council History section in this memo and previous April 17, 2025
council meeting, for a summary of how the Civic Area team
addresses all policy overlays.
• Analysis: All proposed features within the Phase 2 Boundary align
with timing considerations for construction and funding. Due to rising
costs of materials and construction escalation, actual implementation
may be modified for final construction in 2027. All features will meet
code requirements.
Farmers Market and
Festival Street at
13th Street
• Engagement: Community feedback emphasized expanding and
enhancing the Farmers Market and pedestrian experience in this
area as one of the most important priorities.
• Policy: 2015 Civic Area 7 Guiding Principles (CA7) Enhanced
Access and Connection envisions a pedestrian festival street with
flexible space for events and activities while balancing the 2019
Transportation Master Plan connections.
• Analysis: Technical studies confirmed this area as ideal for
improved access and upgraded event infrastructure.
Nature play with
splash pad
• Engagement: Youth and families prioritized this element in the top 5
activities they would like to see in the Civic Area. This program has
been confirmed with enthusiastic support of the Wild Woods pop-up
installation over the summer of 2025.
• Policy:
o CA7 Place for Community Activity and Arts through
inclusive, child-friendly public spaces.
o CA7 Outdoor Culture and Nature through creating nature
inspired spaces with opportunity to explore and discover.
o CA7 Sustainable and Viable Future through sourcing local
natural materials for climate-resilient design.
• Analysis: This approach meets technical criteria for safe, accessible,
and engaging play in this key downtown location and provides
needed park features for families.
Flexible seating,
dining and picnic
areas
• Engagement: Community members requested more casual, social
spaces for eating that are accessible to all. Organizations such as
the Farmers Market also requested these features to support events
and programmed activities.
• Policy: CA7 Civic Heart of Boulder and Place for Community
Activity and Arts by providing adaptable, multi-use public areas to
support community gathering and creating a welcoming space.
• Analysis: These features are low-maintenance, high-use elements
that activate the park throughout the day, across seasons and
provides multi-generational spaces.
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Portions of the
Storywalk with
interpretative and
wayfinding signage
• Engagement: This reflects importance the community placed on
educational and cultural aspects of Civic Area, which members of
historically underrecognized communities specifically emphasized.
• Policy:
o CA7 Celebration of History and Assets through prioritizing
equitable cultural storytelling, honor and recognizing past
histories of the space.
o CA7 Enhanced Access and Connection through providing
clear signage to connect the community destinations in and
beyond the Civic Area.
• Analysis: Wayfinding meets the need to improve navigation and
helps unify the Civic Area. Interpretive signage is also a way to
create distinct identity and enhance visitors’ understanding of the
site’s history and ecology.
Artful Elements
• Engagement: Community feedback emphasized a desire for identity,
beauty, and meaningful design elements within the park.
• Policy: CA7 Place for Community Activity and Arts through
enriching the park experience with creative expression.
• Analysis: Integrated art can be an effective low-cost and high-impact
investment to engage the community, create a sense of identity and
build a sense of ownership of the space with community members.
Enhancements to
the Bandshell
• Engagement: Input highlighted community love for the Bandshell
and desire for a wider range of programming and more flexible uses.
• Policy:
o CA7 Celebration of History and Assets through upgrades
to the historic Bandshell honoring its historic character while
enhancing functionality.
o CA7 Enhanced Access and Connection and Place for
Community Activity and Arts improving accessibility,
safety, and performance capacity in alignment with city
policies.
• Analysis: Technical assessments identified enhancements
necessary to improve functionality and celebrate the Bandshell’s
important role within the park.
Public Restrooms • Engagement: Permanent, accessible public restrooms are a top
community request.
• Policy: Public restrooms directly support city health, equity, and
community experience goals.
• Analysis: Location and specifications will be determined based on
continuing evaluation of floodplain requirements, feasibility, and
partnership potentials.
Other key programming elements the community expressed excitement in seeing
include the ‘Boulder Beach’ and a hangout area next to the creek with more access to
the water, flexible gathering spaces and open green space. The community was also
very interested in the Nature Hub as a space for youth programming, gathering spaces
and public restrooms with the potential for food and beverage services.
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The project team will continue to study areas (highlighted in Figure 3’s orange
boundaries) for potential pop-up improvements and interim enhancements for gathering
along the creek and connecting to the CU campus through the Arboretum path to
support space activation and safe connections in these areas. The Nature Hub, pop-ups
and interim improvements will continue to be studied through schematic design as
alternative funding is sought.
The construction of longer-term park features in Zone 2 will align with the
deconstruction of Park Central and New Britain as well as the East Bookend
Development, as funding allows. The interim space activation, following on the success
of the pop-up Wild Woods Play Area, will support creating a unified, welcoming and
activated Civic Area.
Anticipated Fiscal and Workplan Impacts
Currently, in the 2024-2027 Capital Improvement Program, there is $18 million in
funding from the Community Culture, Safety and Resilience (CCRS) Tax ($17.1M) and
Lottery Fund ($900K) for the design and construction of Civic Area Phase 2. As
mentioned during 2026 Budget discussions, city staff anticipate bringing forward a debt
issuance supported by CCRS Tax revenues in 2026 to support the next phase of the
Civic Area Phase 2 project in 2026. The $18 million is recommended to fund Phase 2
improvements in the Civic Area and reflected here in the published fund financial. Since
the next phase of the project (beginning in 2026) will be supported with debt from CCRS
revenues, the appropriation is not reflected in 2026 in the budget per standard practice
of bringing forward the appropriation through a special ATB (Adjustment to Base) at
time of issuance.
Full Project Budget ($18.0M):
• 2024 Budget:
o CCRS Fund: $500K
• 2025 Budget: ($2M)
o Lottery Fund: $900K
o CCRS Fund: $1.1M
• 2026-2028 Remaining Budget in CCRS: ($15.5M)
o 2026 Budget: $3.5M
o 2027 Projected: $10.0M
o 2028 Projected: $2.0M
The team also continues to study the Total Cost of Ownership which includes the
maintenance and operations of the proposed capital improvements. The team is
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developing a Park Management Plan for the Civic Area as a final deliverable and will
incorporate strategic guidance on how the park can be responsibility managed and
reduce operating burden.
Overall, the concept plan represents a long-term vision for the Civic Area with clearly
identified design for public amenities, programming and festivities that will be
implemented in Phase 2. This project is on the workplan for design and permitting in
2026 with Phase 2 construction scheduled to begin in 2027. BPR will lead
implementation of Phase 2 with support from the core team members; all involved
departments (Transportation and Mobility, Utilities, Planning and Development Services,
Facilities and Fleet and City Manager’s Office) have identified this project in their
workplan (from the years 2024-2027). Areas outside of what was prioritized for Phase 2
will become part of a future Phase 3 effort, for which funding and a cross-departmental
workplan have yet to be identified.
Equity Analysis
The project is following the city’s Engagement Strategic Framework and Racial Equity
Instrument (REI) to ensure historically excluded community members are meaningfully
represented in Phase 2 recommendations. The project team partnered with two
Downtown Community Connectors, the city’s Community Connectors in Residence,
Growing Up Boulder and youth, and families with children experiencing disabilities to
engage diverse communities. At each design, engagement, and analysis stage, input
from these groups has guided the goal of creating a welcoming, inclusive downtown
park. View the full REI process and community groups reached.
Climate, Resilience and Sustainability Considerations
The project supports the city’s Climate, Resilience and Sustainability goals by
prioritizing flood improvements, climate-conscious landscaping and long-lasting design.
The team is coordinating with key city departments to ensure construction aligns with
climate targets, minimizes long-term impacts, and reflects responsible use of resources.
Community Engagement
Engagement Window 3, conducted from March through August of 2025, was guided by
the project’s REI process and overseen by two Downtown Community Connectors. The
goal was to ask the community which Civic Area Phase 2 concept plan features should
be prioritized within the Phase 2 budget, with the goal to elevate the voices of youth and
historically excluded groups. The features shown in the concept plan came from
63
community ideas and feedback gathered and confirmed during Engagement Windows 1
and 2.
Window 3 Results Summary
Over a series of 20 engagement events, 5 pop-ups and an online questionnaire,
Window 3 engaged community members from across the city and created an
opportunity for residents to rank and discuss their top priorities of the 38 park features
shown within the concept plan. During Window 3, they were asked to vote for their
favorite feature in each section of the concept plan (West End, Boulder Beach, East
End and Arboretum Path) to help the project team prioritize which features to move
forward into Phase 2 construction. Figure 4 shows the Top 10 features overlayed on the
concept plan: Farmers Market and Festival Street, Boulder Beach, Nature Hub with
public restrooms, Beer Garden and Market Hall and Nature Play with Splash Pad as
well as accessible shallow kids’ creek, swing forest, accessible elevated boardwalk and
experiential lighting. Voting results showed alignment between historically excluded
groups and the broader community.
Figure 4: Civic Area concept plan with the top 10 features voted on by the community during Window 3
highlighted.
Bandshell Programming
Community members were also asked what types of events they would most like to
64
attend at the Bandshell. Both the broader community and historically excluded groups
voted concerts and movie nights as their top preference out of the following options:
• Concerts
• Movie Nights
• Theater, Symphony & Musicals
• Cultural Events
• Picnic Space
• Dance, Yoga, Exercise
• Art Installations & Lighting
A New, Connected Green Park
Additionally, community members were asked if they would prefer to keep the existing
ditch or use a land bridge to create a new connected green park. 67% of all community
members and 70% of members from historically excluded groups voted to create a new
connected green park. Figure 5 shows the two options presented to the community.
Figure 5: Visual preference survey showing two options for the irrigation ditch in Central Park. One
diagram shows the ditch covered to create a new connected green park, and the other diagram
shows the ditch as it is currently.
Attachment B fully summarizes engagement data gathered during Window 3,
including youth, people experiencing disabilities, and other historically excluded
groups.
65
Next Steps
• Final design and permitting will occur in 2026 with construction of identified
elements to begin in 2027.
• The project team continues work to align resources to effectively manage and
operate the park. This includes collaboration with work led by other city teams,
including a potential future Downtown Development Authority (DDA) and
examining a potential role for the Boulder Urban Renewal Authority.
• In the next several months, the project team will engage community members in
a conversation about identity of the space including the colors, materials and
name of the space. Depending on feedback, renaming the park to something
other than Civic Area could be proposed in 2026 in alignment with city policy.
• Staff will keep PRAB, council members and the community updated on project
progress and milestone celebrations.
• After ribbon cutting to open Phase 2 Improvements and as funding allows, the
team will implement a Park Management plan that will cover guidance for rules
and park policy, launch new space activation programming with key partners and
implement a new operations and maintenance plan.
Digital Accessibility
The City of Boulder is committed to digital accessibility. Some content may not be fully
accessible due to technical limitations or issues. For alternate formats or
accommodations, please visit Accessibility | City of Boulder or contact
accessibility@bouldercolorado.gov.
Attachments
Attachment A – Civic Area Concept Plan
Attachment B – Engagement Window 3 Summary
66
Attachment A: Civic Area Concept Plan
67
1RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
BOULDER CIVIC AREA
OCTOBER 15, 2025
Window 3
Engagement
Feedback
The City of Boulder is committed to digital accessibility. Some content may not
be fully accessible due to technical limitations or issues. For alternate formats or
accommodations, please contact 303-413-7200 x5 or
accessibility@bouldercolorado.gov.
Attachment B: Engagement Window 3 Summary
68
Attachment B: Engagement Window 3 Summary
69
3RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Window 3 Engagement by the Numbers
Public Open
House for
Concept Plan
Feedback &
Kids Concert in
Central Park
Boulder
High School
Engagement
Sessions
w/ Growing
Up Boulder
(GUB)
Walking
Field Trips
with Boulder
Day Nursery
Design
Charrette
with CU
Environmental
Design
Students
Boulder
High School
Zonta Club
Engagement
Sessions w/
GUB
Construction of
Wild Woods
Temporary Nature
Play Area for Space
Activation – Built
w/ CU Design
Students’ Ideas
Pop-Ups
(2 Library
+ 3 Rec.
Center)
133
1
6 5
Online
Questionn-
aire
Community
Connectors
in Residence
Milestone
Meeting
Roll & Stroll
w/ Disability
Community
Walking
Field
Trips with
Whittier
Elementary
Community
Organization
Meetings
2
2
MARCH - JULY: YOUTH ENGAGEMENT JULY - AUGUST: PUBLIC ENGAGEMENT
Attachment B: Engagement Window 3 Summary
70
4RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Overview
THE ATRIUM:
YEAR ROUND
MARKET
HALL LIBRARY
LIBRARY
EXISTING
PLAYGROUND
EXISTING
PHASE I PARK
SISTER
CITIES
PLAZA
PARKING
PARKING
BROADWAY14TH STREET9TH STREETCANYON BLVD
ARAPAHOE AVE
B
O
U
L
D
E
R
C
R
E
E
K
P
A
T
H
TEAHOUSE
S&T BLDG
N
Beer Garden & Market Hall
Teahouse Garden
New, Connected Green Park
Shaded Areas & Canopy
Enhanced
Bandshell
Nature Play
+ Splash Pad
Creek Viewing
Deck
Farmers Market
& Festival
Street“The Porch”
Wayfinding
Signage
Nature
Hub
w/Restrooms,
Info Kiosk, Youth
Programming, Food &
Beverage
Boulder Beach
Food Truck Plaza Swing Forest
Tubing
Eddy +
Rental
ReturnZONE 2
Boulder
Beach
ZONE 3
East End
Accessible
Shallow
Kids Creek
The South
Shore
Art Tunnel
Nature Discovery
Contemplative
Garden
Park Patio & Creek Steps
Café
Mobility HubEntry Plaza
Artful Elements
North Creek Overlook
ZONE 1
West End
Riparian Garden
Overlook
Outdoor Classroom
Youth Hub w/ Skate Feature
Boardwalk
Fishing Access
****
NEW EAST BOOKEND
DEVELOPMENT WITH PARKING
NEW EAST BOOKEND
DEVELOPMENT
MARKET DISTRICT New Pedestrian Bridge
La Fase 2 del proyecto de renovación del Área cívica es parte del Plan de parques del 2015. Esta fase da continuidad al diseño para transformar este importante espacio público con el fin
de crear una zona urbana vibrante, con diversos eventos culturales, conexiones con la naturaleza y que sea una zona que celebre todas las culturas e historia del área y en beneficio de la
comunidad de Boulder.
This concept plan shows the most popular elements based on community feedback over the past year and a half. Your input
today will help us further refine which options are advanced in Phase 2.
Overview
We Need Your Input!
¿Dentro de cada zona, cual es su elemento
favorito?Escriba su elemento favorito de cada zona en un
formulario en papel.
Vota por su elemento general favorito.
Escriba su element general favorito en su
formulario en papel.
The Civic Area Phase 2 Project will build on the 2015 Park Plan and continue the design effort to transform this important public
space to encompass vibrant urban living, diverse cultural events, a connection to nature, and a place that celebrates all cultures
and stories of the area while serving the community of Boulder.
Overview
We Need Your Input!
Área cívica de Boulder
Boulder
Civic Area
Within each zone, what is
your favorite element?1
Vote on your favorite
element overall.2
This concept plan shows the most popular elements based on community feedback over the
past year and a half. Your input today will help us further refine which options are advanced in
Phase 2.
Write your favorite feature
for each zone on the slips
provided.
Write your favorite
feature overall on the slips
provided.
Youth Hub Youth Hub
Art / Signage / StorytellingArt / Signage / Storytelling
**centro juvenilcentro juvenil
arte / señalización / contar historiasarte / señalización / contar historias
Jardín cervecero y mercado de agricultoresJardín cervecero y mercado de agricultores
Zona 3: Extremo esteZona 3: Extremo este
Jardín para tomar el téJardín para tomar el té
Nueva zona verde en el parqueNueva zona verde en el parque
áreas bajo la sombra y carpaáreas bajo la sombra y carpa
PENFIELD TATE II
MUNICIPAL
BUILDING
Mirador del jardín de la riberaMirador del jardín de la ribera
Salón de clase al aire libreSalón de clase al aire libre
Centro juvenil con un área de patinajeCentro juvenil con un área de patinaje
Mini jardínMini jardín
Sendero elevadoSendero elevado
Iluminación experiencialIluminación experiencial
Torre mirador Torre mirador
Jardines para la educación ambientalJardines para la educación ambiental
El sendero ArboretumEl sendero Arboretum
Jardines para la recolecciónJardines para la recolección
Jardín y entrada Alpine Jardín y entrada Alpine
Escaleras de entrenamientoEscaleras de entrenamiento
Flotadores Eddy Flotadores Eddy
+ devoluciónde + devoluciónde
alquileresalquileres
Centro natural con Centro natural con
baños, quiosco baños, quiosco
informativo, informativo,
programación juvenil, programación juvenil,
alimentos y bebidasalimentos y bebidas
Playa BoulderPlaya Boulder
Plaza para camiones Plaza para camiones
de comidade comida Bosque de columpiosBosque de columpios
Zona 2: Playa BoulderZona 2: Playa Boulder
La costa del surLa costa del sur
Orilla baja del arroyo Orilla baja del arroyo
accesible para niñosaccesible para niños
Túnel artísticoTúnel artístico
Descubriendo la Descubriendo la
naturaleza naturaleza
Jardín contemplativoJardín contemplativo
NEW
CONFERENCE CENTER
PARKING STRUCTURE
ZONE 4
The Arboretum
Path
Foraging Gardens
Elevated Boardwalk
Experiential Lighting
Mini Cafe
FUTURE FOOD
AND BEVERAGE
DEVELOPMENT
Viewing Tower
Climate Education Gardens
**
Alpine Garden & Fitness Stairs
Sendero elevadoSendero elevado
Acceso de pescaAcceso de pesca
Nuevo puente Nuevo puente
peatonalpeatonal
Zona 1: Extremo oesteZona 1: Extremo oeste
Mirador del arroyo del norteMirador del arroyo del norte
Patio y escalones del arroyoPatio y escalones del arroyo
CafeteriaCafeteria
Acceso mejorado y Acceso mejorado y
mirador panorámicomirador panorámico
Anfiteatro “Bandshell” Anfiteatro “Bandshell”
renovadorenovado
Juegos en la Juegos en la
naturaleza y el aguanaturaleza y el agua
La terrazaLa terraza
Paneles informativosPaneles informativos
Mercado de agricultores Mercado de agricultores
y granjeros & Calle para y granjeros & Calle para
festivalesfestivalesCentro de movilidadCentro de movilidadEntrada a la plazaEntrada a la plaza
ArteArte
During Engagement Window #3, building off of the
programming recommended from the community in the
previous window of engagement, the project team shared
the final concept plan for the Civic Area. Community
members were asked to vote on their favorite feature
within each zone and their favorite element overall.
Attachment B: Engagement Window 3 Summary
71
5RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Favorite Features This chart highlights the top 10 favorite
features that community members
selected from across the entire project.
*= Prioritized by Historically Excluded Groups
VOTE COUNTFEATURE
Boulder
Beach*Nature
Hub with
Restrooms*
Beer Garden
& Market
Hall*
Swing
Forest*Boardwalk
(West End)*Farmers
Market &
Festival
Street*
Accessible
Elevated
Boardwalk*
Nature Play
with Splash
Pad*
Accessible
Shallow Kids
Creek*
Experiential
Lighting
(Arboretum)*
Attachment B: Engagement Window 3 Summary
72
6RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
NEW
CONFERENCE
CENTER
PARKING
STRUCTURE
THE
ATRIUM
S&T BLDG
LIBRARY TATE
BLDG
NEW
EAST BOOKEND
DEVELOPMENT
LIBRARY BROADWAY14th STREET9th STREETCANYON BLVD
ARAPAHOE AVE
B
O
U
L
D
E
R
C
R
E
E
K
P
A
T
H
22RIOS Boulder Civic Area Phase 2 Reimagining Concept Design Package 07.23.2025
N
0’100’200’400’
Favorite Features
Farmers Market
& Festival Street
Beer Garden
& Market Hall
Nature Play
with Splash Pad
Accessible Elevated
Boardwalk
Experiential
LightingTop 10
Boardwalk
Swing Forest
Accessible Shallow Kids Creek
Boulder Beach
Nature Hub with Restrooms
Top 5
Attachment B: Engagement Window 3 Summary
73
Picnic Space
Movie Nights
Theater, Symphony,
Musicals
Concerts
Cultural Events
Dance, Yoga, or
Exercise Class
Art Installations &
Lighting
An enhanced Bandshell with new AV
capabilities and improved seating could
allow this historic venue to host more
events. Community members were
asked to vote on which activity they
would most like to see at the Bandshell.
7RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Bandshell Programming
VOTE COUNTACTIVITY
*= Prioritized by Historically Excluded
Groups
Concerts*Picnic
Space
Theater,
Symphony,
Musicals
Movie
Nights*Art
Installations
& Lighting
Dance,
Yoga, or
Exercise
Class
Cultural
Events
Attachment B: Engagement Window 3 Summary
74
8RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
The Ditch
Nature PlayNature Play
Splash PadSplash PadExtended Extended
Creek Access Creek Access
+ Overlook+ Overlook
Extended Extended
Creek Access Creek Access
+ Overlook+ Overlook
Expanded Expanded
Green SpaceGreen Space
MaintainMaintain
Existing DitchExisting Ditch
Extended Farmers Extended Farmers
Market PlazaMarket Plaza
Extended Farmers Extended Farmers
Market PlazaMarket Plaza
Community members were asked to vote between maintaining the existing ditch or building a land
bridge to create a new, connected green park. A cohesive green space above the Ditch would provide
a connected green space and unify Central Park into a single, flexible area for both daily use and large
events, while also enabling new interactive water and nature play opportunities outside of the irrigation
waterway.
• Entire Community: 67% Voted for a New, Connected Green Park
• Historically Excluded Groups: 70% Voted for a New, Connected Green Park
Existing DitchNew, Connected Green Park
OR
VOTE COUNT* = Prioritized by Historically Excluded Groups
New
Connected
Green Park*
Keep
Existing
Ditch
Attachment B: Engagement Window 3 Summary
75
9RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Historically Excluded Groups
The project team met with Downtown Community Connectors, Community Connectors in Residence, and
people in the disability community to gather additional comments about the concept plan. These discussions
focused on Civic Area as a space that will:
• Tell the stories of the land and people who have previously lived in the area, and have these stories be a major
focal point of the design and park experience
• Build community and be welcoming for all
• Serve the local community as well as visitors
• Balance protecting nature while creating recreational opportunities in this downtown urban space
• Serve all community members through universal accessible design
Attachment B: Engagement Window 3 Summary
76
10RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Roll & Stroll Accessibility Takeaways
Design Suggestions
• Lie-back stations in nature for
looking up
• View points for people sitting in
mobility devices
• Bandshell accessible seating -
not forced front and center
• Pull-outs from main paths to get
into nature
• Spaciousness (in paths, play,
seating, parking) - helps with
maneuvering
• Accessible fishing dock
• Crusher fines nature paths (avoid
mulch for mobility devices)
• Min. 10’ height in parking garages
• Adult size changing tables
Sensory Experiences
• Touching the water
• Hearing the birds
• Feeling the trees/textures
• Getting close to things to see
and touch
• Dappled Light
• Movement stimulation (like
bumpy paths and swings)
• High contrast colors, specifically
on black backgrounds
• Pure sounds
• Sensory Trail
Nature Play
• Raised sand box
• Some stump seats should be
large and have backs
• Railings into climbing pit and
climbing structure
• Low climbing surfaces for
crawling
• More overhang on maker tables
• Non-steep slides with long
ending at the bottom
• Adult size changing tables
• Uneven surfaces cause balance
challenges
• Low barriers at thresholds (one
foot balancing is difficult)
Programming
• Early access (30 minutes to
an hour) at Farmers Market for
disability community
• Accessible equipment for rent at
the Nature Hub
• Volunteer escorts at Bandshell
events for directing foot traffic
Attachment B: Engagement Window 3 Summary
77
The project team worked with CU Environmental
Design students to create a temporary nature
discovery area in Central Park. Three students
who submitted design proposals during Window
2 of engagement were selected to co-create the
Central Park installation with the project team. The
end result – the Wild Woods Nature Discovery Area
–combined ideas from all three of the student
proposals.
• Open from May of 2025 through the Summer
•50% reduction in police reported incidents
•Partneships to run, program, and use the space
included:
–City of Boulder Park and Operations Staff
–Boulder Museum of Contemporary Art
–Police Department and Rangers for Safety
–Farmers Market
–City-wide events
11RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Wild Woods Nature Discovery Area
Attachment B: Engagement Window 3 Summary
78
For Engagement Window 3, the project team
worked with Growing Up Boulder on sixteen (16)
youth-oriented events and activities.
The project team engaged with:
•66 Children 0-5 yrs
•54 Parents/caregivers
•36 School-age Youth
•30 Tweens
•130 Teens
•17 Teachers
About half of these events focused on gaining
feedback on youth ideas for Civic Area and specific
park features for Civic Area. The other half focused
on activating the park with kids and families.
12RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Youth Engagement
Attachment B: Engagement Window 3 Summary
79
Children at Boulder Day Nursery visited the Wild Woods Nature Discovery
Area three times with GUB. The school then conducted many of their own
field trips to the space.
• 55% of parents now visit Wild Woods one or more times per week and
prefer this type of play experience over traditional playgrounds
• Teachers also reported they had never used the area near the bandshell
until they were exposed to it through programs with Growing Up Boulder
• 30% of teachers use it weekly, and 65% of teachers use it monthly
Children ages five to ten gave direct feedback about how they want to use
the park space. Based on a visual preference survey, results show they are
most excited about:
• Splash pad
• Adventure play
• Outdoor movie nights
• Creek play
• Nature-based art activities
• Ice cream stand
13RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Youth Engagement
Kids Age 0-10
Attachment B: Engagement Window 3 Summary
80
From the 130 teens engaged between February and March of 2025,
results consistently emphasize five interconnected priorities that
should guide development of the area:
• Community Connection & Inclusivity: Creating spaces that foster
meaningful social interaction across diverse groups
• Relaxation & Comfort: Balancing active recreation with
comfortable environments for downtime and reflection; variety of
seating options
• Affordability & Accessibility: Ensuring economic accessibility for all
teens through low-cost food and recreation options and activities
• Safety & Extended Hours: Enhancing usability beyond daylight
hours through strategic lighting and design
• Novel Activities & Experiences: Providing unique recreational
opportunities currently unavailable in Boulder
Specific features developed through Boulder High Student proposals
include a teen-run cafe, outdoor seating area, ice skate/rollerblade
venue, greenhouse, open green space, and movie night area.
14RIOS Boulder Civic Area Phase 2 Reimagining Window 3 Engagement Feedback 10/15/2025
Youth Engagement
Teens + CU Students
Attachment B: Engagement Window 3 Summary
81
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: October 27, 2025
A. Indoor Recreation Needs Assessment – East Boulder Community Center
EXECUTIVE SUMMARY:
The purpose of this item is to inform PRAB about the Indoor Recreation Needs Assessment and
next steps for the East Boulder Community Center renovation. The City of Boulder contracted
for the completion of an Indoor Recreation Needs Assessment report with Perkins & Will to
ensure plans for a renovation of the East Boulder Community Center were done thoughtfully
and included the context of an ageing recreation center system with three existing facilities
managed by the City and high community usage.
This assessment integrates community feedback, recreation trends, demographic data, and
programming input to determine how each recreation center contributes to Boulder's overall
system. Each facility has distinct strengths, limitations, and opportunities that require thoughtful
consideration to ensure resources are prioritized equitably and strategically across all recreation
facilities.
The Indoor Recreation Needs Assessment included a facility condition assessment of the three
existing recreation centers, community engagement, a national trends analysis, peer
benchmarking, a program assessment, and an aquatics program analysis. The assessment
concludes with a series of strategic recommendations that align with the City of Boulder’s
broader goals around community health, sustainability, and equity.
More information on the project and past touchpoints with PRAB can be found on the project
webpage.
BACKGROUND:
In 2021, Boulder voters approved an extension to the .3% Community, Culture, Resilience, and
Safety (CCRS) Sales and Use Tax. Capital improvement projects funded through the tax may
include maintenance and modernization of the transportation system, renovation and retrofitting
of certain facilities to increase resilience and reduce carbon emissions, maintenance and
replacement of capital infrastructure. The 2021 ballot initiative identified multiple Parks and
Recreation Department projects, including the renovation of the East Boulder Community
Center.
82
The 2021 Facilities Master Plan identified that while the three recreation centers account for
approximately 7% of the city’s total municipal square footage, they consume nearly 30% of its
building energy. The energy performance of the recreation centers is significant in addressing
the city’s climate goals. Additionally, all city facilities were graded against 19 key performance
indicators, including, forecasted capital needs, operating costs per square footage, energy use
and carbon emissions, floodplain proximity, disaster preparedness, accessibility, and
functionality and experience. Through this assessment it was determined that the South Boulder
Recreation Center (SBRC) was past an inflection point, where significant investment at that time
may extend the life of a building. The North Boulder Recreation Center (NBRC) and the East
Boulder Community Center (EBCC) were identified as both nearing this inflection point, making
timely investments in renovation worthwhile. Figure 1 below demonstrates the increasing cost in
the life cycle of buildings and the inflection point where maintaining infrastructure escalates
significantly.
Figure 1: Inflection Point for City Buildings
Figure 1: Inflection Point for City Buildings
With the above chart in mind, the three recreation centers are all nearing or past the inflection
point in their life cycle:
Age of Buildings:
•South Boulder Recreation Center
o Constructed in 1973
o Past the inflection point and nearing end of life
•East Boulder Community Center
o Constructed in 1992
o At inflection point
•North Boulder Recreation Center 83
o Constructed in 1974, renovation & addition in 2001
o Approaching inflection point
The 2022 Boulder Parks and Recreation (BPR) Plan outlined a tiered approach to future facility
planning based on available resources. Under a fiscally constrained scenario — reflecting
current funding levels — the plan recommends maintaining the NBRC and EBCC in good
condition, sustaining existing pool service levels, and retiring the SBRC once it reaches the end
of its useful life. In an action-level scenario, where additional funding becomes available, each
facility would receive enhancements. At the vision level — representing the community’s
aspirations without regard to funding or feasibility — the plan envisions modernizing the NBRC
and EBCC, as well as designing and constructing a new SBRC and a new aquatic training
facility. Figure 2 shows the 2022 BPR Plan alternatives related to facilities.
Figure 2: 2022 BPR Plan Alternatives for Facilities
Figure 2: 2022 BPR Plan Alternatives for Facilities
The City of Boulder remains in a fiscally constrained environment and is pursuing creative and
holistic solutions through its Long-Term Financial Strategy to meet the highest community
needs.
In addition to the report compiling past department plans to inform community needs and
desires a robust engagement was completed as part of the needs assessment as shown in
Figure 3: Recreation Centers Future Engagement Schedule. Engagement was designed to start
broadly, determining community values, and gained specificity through the process to inform the
final needs assessment report. Feedback from each window was shared with PRAB throughout
the process. Most recently the project team shared a summary of Window 3 feedback in the
February 2025 PRAB packet (starts on pg 11).
Figure 3: Recreation Centers Future Engagement Schedule
84
Figure 3: Recreation Centers Future Engagement Schedule
ANALYSIS:
The Needs Assessment report systematically analyzes gaps between the current state of indoor
recreational facilities and programs in comparison to the city's evolving needs and long-term
goals. Additionally, Boulder’s indoor recreation services were benchmarked against selected
peer cities to identify best practices and areas for improvement, such as expanded
programming, facility upgrades, or new services that improve accessibility and inclusivity.
Ultimately, this assessment will guide future investments in infrastructure, programming, and
partnerships to enhance the city’s recreational offerings and overall quality of life.
Overall Outcomes
Utilizing information gathered from consultant assessments, the Benchmark Survey, Public
Input, and National Trends reports, the Needs Assessment provided recommendations for
square footage by activity for Boulder community centers from now through ten years in the
future. This amenity and activity focus helps to better understand needs and levels of service for
indoor recreation in Boulder. Based on this research, existing policy and community
engagement, core and additional amenities were identified.
The core amenities that one or more facilities across the system should include are:
•Aquatics
•Gymnasium
•Group Exercise Space
85
•Mind & Body Space
•Cardio and Weights/Functional Training
•Multipurpose Room
•Child Watch Room
•Wet classroom/ birthday party space
BPR’s current square footage for these amenities currently meets or exceeds the recommended
square footage proposed in the Needs Assessment. The recommended ranges for square feet
across the system can be found on page 38 of the Needs Assessment.
Other additional amenities that could be considered on an individual center basis include:
•Age Well spaces
•Gymnastics Room
•Dance Room
•Additional Mind & Body Studio
•Youth/Teen Space
•Walk/Jog Track
•Fieldhouse
•Outdoor Fitness Area
•E-Sports Room
•Ninja Room
•Nature Room
•Arts & Craft Studio
•Teaching Kitchen
•Catering Kitchen
•Spin Room
•Pre-School Room
Details about what each of these spaces could include and recommended square footage is
included on page 39 of the Needs Assessment.
2Existing Limitations
Each facility has limitations that were identified through the Recreation Programming and
Facility Assessment. For each center, this included a range of issues from undersized spaces
and deferred maintenance to security and transportation. More details are included on pages
41-42 of the Needs Assessment.
Outstanding Needs
The above recommendations do not include the following amenities desired by some
community members, as they are not feasible in a constrained financial landscape.
Aquatics – Overall: Boulder’s aquatics system is adequate based upon Boulder’s current
population and compared with benchmarking surveys of comparable cities. Boulder’s swimming
community is robust and desires more lap lanes, especially at peak times. Further, other
amenities are not being recommended due to financial constraints and/or due to conflicting
impacts on public recreation core services. This includes amenities that support competitive
swimming, such as locker rooms, spectator viewing, competition diving, and more.
Aquatics - Recreation: Boulder is within range of peer communities for warm water aquatic
activities, and the Boulder community also shared desire for additional warm water space for 86
older adults and youth. Additional recreational swimming may be addressed through the
proposed renovations at the EBCC if additional funding is received.
Across core facility amenities, additional amenities and outstanding needs, the amenities that
have not met recommendations for square footage, are therefore a service gap. These service
gaps include Nature Room, Arts & Crafts Studio, small Catering Kitchen, Spin Room, and Pre-
school room. These areas were not prioritized in the engagement sessions that have been
conducted for the needs assessment.
NEXT STEPS:
This report forms a foundation for renovation of EBCC as funded through the 2021 CCRS tax,
short-term maintenance at SBRC and NBRC, as well as incorporating priority needs into the
city’s Long Term Financial Strategy. It also notes that unmet needs and opportunities to
enhance service levels may be pursued if additional funding becomes available.
At the same time, engagement identified some community members are expressing desire for
the city to do more, with a wish for more amenities such as lap lanes, indoor courts, and
services not currently covered. Unfortunately, the high and escalating cost of recreation centers
to renovate and maintain is beyond the means of the City currently in terms of the funding
available. These realities require having conversations with the community about whether and
how service levels for indoor recreation center activities may need to shift if additional funding is
not secured. As part of the Fund Our Future project, the city is committed to conducting
engagement over the next year to inform the Long Term Financial Strategy.
In addition, staff are realigning the project scope for the EBCC to ensure the project can work
within with the City’s energy goals, maintains service levels, and stays within budget. The team
is planning construction in phases to align with the system-wide indoor recreation strategy and
the City’s Long-Term Financial Strategy. Additional funding may be required to fully meet these
goals.
ATTACHMENTS:
Attachment A: 2025 Indoor Recreation Needs Assessment
87
Boulder Indoor Recreation Centers Assessment
i
East Boulder Community Recreation
Renovation & Deep Energy Retrofit
Phase 1: Indoor Recreation Needs Assessment Report
Prepared for the City of Boulder
Parks and Recreation Department
Prepared by Perkins&Will
475 Lincoln Street, Suite 100
Denver, Colorado 80203
October 15, 2025
Attachment A: 2025 Indoor Recreation Needs Assessment
88
ii
Table of Contents
Boulder Staff Land Acknowledgement ................................................................................................. 3
Acknowledgements .................................................................................................................................. 5
City of Boulder Team ............................................................................................................................ 5
Consultant Team ................................................................................................................................... 5
Executive Summary ................................................................................................................................... 6
Overview ................................................................................................................................................... 10
Indoor Recreation Center Information............................................................................................ 10
East Boulder ...................................................................................................................................... 11
South Boulder................................................................................................................................... 12
North Boulder................................................................................................................................... 12
Project Purpose .................................................................................................................................... 12
Background .............................................................................................................................................. 13
Guiding Principles ............................................................................................................................... 13
Parks & Recreation .......................................................................................................................... 14
Facilities Department ..................................................................................................................... 15
Climate Initiative & Climate Action.............................................................................................. 15
Community Engagement ................................................................................................................ 17
Financial Landscape ........................................................................................................................ 17
Indoor Recreation Assessment .............................................................................................................. 0
Process .................................................................................................................................................... 0
Previous Assessment & Reports ..................................................................................................... 0
National Trends .................................................................................................................................. 1
Assessment of Current Facilities ......................................................................................................... 2
Area Allocations ................................................................................................................................ 2
East Boulder Community Center .................................................................................................... 3
South Boulder Recreation Center .................................................................................................. 4
North Boulder Recreation Center .................................................................................................. 5
Assessment of Current Programs ....................................................................................................... 6
East Boulder Community Center .................................................................................................... 6
South Boulder Recreation Center .................................................................................................. 7
Attachment A: 2025 Indoor Recreation Needs Assessment
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iii
North Boulder Recreation Center .................................................................................................. 7
Drop-In Activities ............................................................................................................................... 8
BPR Current Levels of Service .............................................................................................................. 9
Primary Activities ............................................................................................................................... 9
Engagement Assessment ....................................................................................................................... 12
Goals for Engagement ....................................................................................................................... 12
Engagement Plan ................................................................................................................................ 12
Engagement 1.1 Findings .................................................................................................................... 13
Engagement Window 2 ..................................................................................................................... 14
Engagement Actions/Events ......................................................................................................... 18
Key Takeaways from Engagement Window 2 ......................................................................... 20
Engagement Window 3 ..................................................................................................................... 21
Game Night ...................................................................................................................................... 21
Engagement Analysis ......................................................................................................................... 23
East Boulder Community Center ................................................................................................. 24
Other Boulder Recreation Centers .............................................................................................. 24
Values and Design Principles ............................................................................................................ 25
Program Assessment .............................................................................................................................. 28
General.................................................................................................................................................. 28
National Comparison .........................................................................................................................29
Indoor Recreation Facilities ...........................................................................................................29
National Recreation Trends ..........................................................................................................29
Benchmark of Selected Communities ............................................................................................ 30
Goal .................................................................................................................................................. 30
Survey Participants ........................................................................................................................ 30
Survey City Demographics ........................................................................................................... 30
Benchmark Survey Results ............................................................................................................. 31
Existing Pool Data Analysis ............................................................................................................... 33
15-Minute Service Area .................................................................................................................. 33
Standards & Comparison .............................................................................................................. 33
Conclusions ...................................................................................................................................... 34
Community and Boulder Valley School District (BVSD) Aquatic Recreation ...........................35
Attachment A: 2025 Indoor Recreation Needs Assessment
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iv
Competitive, cold-water swimming ............................................................................................35
Program Recommendations for Indoor Recreation in Boulder ...................................................... 38
Core Amenities/Opportunities ......................................................................................................... 38
Optional Amenities/Opportunities ................................................................................................. 39
Existing Limitations.............................................................................................................................. 41
East Boulder Community Center .................................................................................................. 41
South Boulder Recreation Center ............................................................................................... 42
North Boulder Recreation Center ............................................................................................... 42
Implementation Plans ....................................................................................................................... 44
Appendices .............................................................................................................................................. 45
Appendix 1: Aquatic Center Energy Use ........................................................................................ 45
Appendix 2: Benchmarking Site Energy Use ................................................................................. 46
Appendix 3: Existing Plans ................................................................................................................ 50
East Boulder Community Center ................................................................................................. 50
South Boulder Recreation Center ................................................................................................ 51
North Boulder Recreation Center ................................................................................................ 52
Appendix 4: Benchmarking Survey Questions ..............................................................................53
Preliminary Data Gathered ...........................................................................................................53
Specific Data Gathered .................................................................................................................53
Appendix 5: Benchmarking Survey Analysis ................................................................................. 56
Benchmark Survey Results ............................................................................................................ 56
References ............................................................................................................................................... 66
Contributors ............................................................................................................................................ 68
Architecture ......................................................................................................................................... 68
Recreation Facilities Planning and Operational Consultant ..................................................... 68
Aquatics ............................................................................................................................................... 68
Attachment A: 2025 Indoor Recreation Needs Assessment
91
Boulder Staff Land Acknowledgement
Boulder Staff Land Acknowledgement Page | 2
Table of Figures
Figure 1: Map of Boulder - Aerial View ................................................................................................. 11
Figure 2: Aerial Site Map of East Boulder Community Center ........................................................ 11
Figure 3: Aerial Site Map of South Boulder Recreation Center ...................................................... 12
Figure 4: Aerial Site Map of North Boulder Recreation Center ...................................................... 12
Figure 5: Guiding principles for managing city facilities ................................................................. 15
Figure 6: Materials & Resources for Embodied Carbon Reduction ............................................... 16
Figure 7: Major inputs for needs assessment ...................................................................................... 17
Figure 8: Diagram of EBCC existing programs and space allocation ............................................. 3
Figure 9: Tree diagram of EBCC existing programs ........................................................................... 3
Figure 10: Diagram of SBRC existing programs and space allocation ........................................... 4
Figure 11: Tree diagram of SBRC existing programs (departments) ................................................ 4
Figure 12: Diagram of NBRC existing programs and space allocation ........................................... 5
Figure 13: Tree diagram of EBCC existing programs (departments) ............................................... 5
Figure 14: Community Engagement Windows................................................................................... 13
Figure 15: Engagement Window 2 Results .......................................................................................... 14
Figure 16: Community Values ................................................................................................................ 15
Figure 17: Community Values by Ranked Order ................................................................................ 16
Figure 18: Youth Priorities for Rec Centers .......................................................................................... 18
Figure 19: What's Up Boulder Event, 2024 .......................................................................................... 18
Figure 20: Informational Poster ............................................................................................................ 19
Figure 21: Favorite Indoor Activities Post-It note activity................................................................ 20
Figure 22: Key Takeaways from Engagement Window 2 .............................................................. 20
Figure 23: Game Night Results ............................................................................................................. 21
Figure 24: Top priorities for all facilities .............................................................................................. 23
Figure 25: Purpose of Values and Design Principles ......................................................................... 25
Figure 26: Generated Ideas from Values and Design Principles ...................................................26
Figure 27: Design Principles Themes ....................................................................................................26
Figure 28: Potential Ideas to Actualize Design Principles (part 1) .................................................. 27
Figure 29: Table of potential ideas to actualize design principles (part 2) ................................. 27
Figure 30: Location of NBRC (blue), EBCC (orange), SBRC (red), and their corresponding 15-
minute drive times ................................................................................................................................... 33
Figure 31: Aquatic Centers Energy Use ............................................................................................... 45
Figure 32: Existing Energy Use Intensity (EUI) for EBCC, SBRC, and NBRC ................................... 47
Figure 33: Energy Design Options ....................................................................................................... 49
Attachment A: 2025 Indoor Recreation Needs Assessment
92
Boulder Staff Land Acknowledgement
Boulder Staff Land Acknowledgement Page | 3
Boulder Staff Land Acknowledgement
The City of Boulder acknowledges the City is on the ancestral homelands and unceded
territory of Indigenous Peoples who have traversed, lived in and stewarded lands in the
Boulder Valley since time immemorial. Those Indigenous Nations include the: Di De’i
(Apache), Hinono’eiteen (Arapaho), Tsétsėhéstȧhese (Cheyenne), Nʉmʉnʉʉ (Comanche),
Caiugu (Kiowa), Čariks i Čariks (Pawnee), Sosonih (Shoshone), Oc'eti S'akowin (Sioux) and
Núuchiu (Ute).**
We honor and respect the people of these Nations and their ancestors. We also recognize
that Indigenous knowledge, oral histories, and languages handed down through
generations have shaped profound cultural and spiritual connections with Boulder-area
lands and ecosystems — connections that are sustained and celebrated to this day.
The City of Boulder recognizes that those now living and working on these ancestral lands
have a responsibility to acknowledge and address the past. The City refutes past
justifications for the colonization of Indigenous lands and acknowledges a legacy of
oppression that has caused intergenerational trauma to Indigenous Peoples and families
that includes:
For more than 10,000 years, generations of Indigenous Peoples have lived and thrived on
ancestral homelands that Euro-Americans colonized as Boulder.
Indigenous Peoples in Boulder have, as in all parts of the Americas, endured centuries of
cruelty, exploitation and genocide.
The westward expansion of Euro-American population and culture in the 19th century
caused extensive hunger and diseases that devastated Indigenous Peoples’ way of life.
In October 1858, Hinono’ei neecee ("Arapaho Chief") Nowoo3 (“Niwot," "Lefthand") and
other Hinono’eino’ (“Arapaho”) Peoples told a party of gold-seekers camped in what is now
known as Boulder that they could not remain on Indigenous land as defined by the 1851
Treaty of Fort Laramie.
After gold was found west of Boulder in January 1859, many of those same gold-seekers
helped found the Boulder Town Company on Feb. 10, 1859, in violation of the 1851 Treaty of
Fort Laramie.
By the summer of 1859, thousands of gold seekers were in the Boulder area, and many
squatted on Indigenous lands, continuing the dramatic expansion of Euro-American
occupation of Indigenous lands that soon exiled Indigenous peoples from the Boulder area.
In August 1864, more than 100 Boulder County residents mobilized into Company D of the
Third Colorado Cavalry at Fort Chambers along Boulder Creek east of what is now known as
Boulder.
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Boulder Staff Land Acknowledgement
Boulder Staff Land Acknowledgement Page | 4
Company D – which included 46 Boulder men and prominent Boulder County residents –
later participated in the barbaric massacre of peaceful Tsétsėhéstȧhese ("Cheyenne") and
Hinono’eino’ (“Arapaho”) Peoples at Sand Creek on Nov. 29, 1864. Among those killed in the
massacre were women, children, elders and chiefs, including Nowoo3 and Chief White
Antelope. Despite having participated in horrific atrocities, members of Company D received
a heroes' welcome upon their return home.
The City has benefited and continues to benefit directly from the colonization of Indigenous
lands and from removal policies that violated human rights, broke government treaties and
forced Indigenous Peoples from their homelands.
We must not only acknowledge our past but work to build a more just future. We are
committed to taking action beyond these words. We pledge to use this land
acknowledgment to help inspire education and reflection and initiate meaningful action to
help support Indigenous Nations, communities and organizations.
We intend to use this acknowledgment when the City of Boulder develops work plans that
guide day-to-day work, begins new projects, starts long-term community plans, and recruits
and hires staff.
Let this formal acknowledgment – which honors and builds on the City’s Indigenous Peoples
Day Resolution (1190) – stand as a critical step in our work to unify Boulder communities,
combat prejudice and eliminate discrimination against Indigenous Peoples.
**Names are based on discussions with Tribal Nation Representatives from June 2021
through May 2023.
Attachment A: 2025 Indoor Recreation Needs Assessment
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Acknowledgements
Acknowledgements Page | 5
Acknowledgements
City of Boulder Team
Parks & Recreation Advisory Board
Andrew “Bernie” Bernstein Jennifer Robins
Yvonne Castillo Michael Schreiner
Robert Kaplan Kyra Siegel
City of Boulder Core Team
Kristin Sealey, Facilities Architectural Sr. Project Manager
Leana Evenson, Construction Project Analyst
Deryn Wagner, Sr. Landscape Architect
Megann Lohman, Senior Recreation Manager
Charlotte O’Donnell, City Planner
Tina Dalton, Sr. City Planner
Eden Bailey, Older Adult Services Manager
Whitney Walker, East Boulder Community Center Supervisor
Lori Goldman, Parks and Recreation Supervisor
Hilary Osmack, Aquatic Supervisor
Maddy Green, South Boulder Recreation Center Supervisor
Matt Gazdik, North Boulder Recreation Center Supervisor
City of Boulder Executive Team
Joanna Crean, Facilities and Fleet Director
Alison Rhodes, Parks & Recreation Director
Michele Crane, Facilities and Fleet Deputy Director
Elizabeth Crowe, Housing and Human Services Deputy Director
Scott Schuttenberg, Parks & Recreation Deputy Director
Mark Davison, Parks & Recreation Planning Senior Manager
City Manager’s Office
Nuria Rivera-Vandermyde, City Manager
Chris Meschuk, Deputy City Manager
Mark Woulf, Assistant City Manager
Consultant Team
Perkins&Will, Architects
Ballard*King, Recreation Programming
Counsilman-Hunsaker, Aquatics Programming
A special thanks to all the community members who shared their thoughts and suggestions
related to the Boulder Parks and Recreation Indoor Recreation Centers.
Attachment A: 2025 Indoor Recreation Needs Assessment
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Executive Summary
Executive Summary Page | 6
Executive Summary
The City of Boulder is undertaking a comprehensive review and planning process for its
three indoor recreation centers — South Boulder Recreation Center, North Boulder
Recreation Center, and East Boulder Community Center — to assess current conditions,
community needs, and the future role these facilities play in fostering a healthy, connected,
and equitable city. This process reflects the City’s commitment to a vision of community
recreation that centers wellness, inclusivity, and accessibility for all residents.
This assessment integrates community feedback, recreation trends, demographic data, and
programming input to determine how each center contributes to Boulder's overall system.
Each facility has distinct strengths, limitations, and opportunities that require thoughtful
consideration to ensure resources are prioritized equitably and strategically.
The following assessments were completed:
• Facility Conditions Assessment to determine current facility condition, repair needs,
and estimate lifecycle replacement costs.
• Community Engagement to understand the community’s vision, values, and priorities
for the future of recreation centers.
• National Trends Analysis to better understand the future of recreation and aquatics.
• Benchmarking of peer cities to identify best practices and determine how Boulder
compares.
• Program Assessment to evaluate how well the recreation system meets community
needs in terms of activities, amenities, and spaces.
• Aquatics Program Analysis to evaluate service coverage, pool functionality, and
community demand.
Facility Conditions-Specific Assessments
East Boulder Community Center (EBCC)
• Limitations: Gym space, fitness areas, and climbing wall are undersized or
underutilized. High demand for warm water and lap swimming. Shared spaces limit
flexibility for programs and events such as birthday parties.
• Challenges: Deferred maintenance, building flow issues, and outdated locker rooms.
The building must evolve to meet current safety, accessibility, and programmatic
needs. Transportation access is also a challenge, especially for older adults and those
without cars.
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Executive Summary
Executive Summary Page | 7
South Boulder Recreation Center (SBRC)
• Limitations: Undersized gym and group exercise spaces, limited aquatic flexibility,
and insufficient multipurpose rooms.
• Challenges: In order to meet current accessibility requirements, provide modern,
inclusive amenities, and meet programmatic needs, the building requires significant
remodel and expansion. The split-level configuration of the building, location directly
downslope of the lake and high-water table have been identified as significant and
very costly challenges to overcome through a renovation and expansion approach,
which is not recommended.
North Boulder Recreation Center (NBRC)
• Limitations: Inadequate gym space, group fitness rooms, and fitness equipment
area. Limited capacity for gymnastics, lap swimming, and multipurpose
programming.
• Challenges: Site constraints limit expansion. Deferred maintenance, security
upgrades, and expanded parking are needed. The building must evolve to meet
current accessibility and programmatic needs. Improved technology is also critical.
This facility serves a diverse population and sits adjacent to public housing, making
equity-focused updates a priority.
Community Engagement and Vision - A robust engagement process was undertaken to
understand current usage, desired amenities, and barriers to access. Equity and inclusion
were central themes, with an emphasis on providing safe, culturally responsive, and
welcoming spaces that meet the evolving needs of Boulder’s diverse community. This
includes fostering environments where people of all gender identities feel safe and
respected, people of all ages are considered, and where safety encompasses both physical
security and emotional well-being. Additionally, land acknowledgement and honoring
Indigenous communities is an important aspect of inclusivity and shared community space.
Trends and Programmatic Priorities - The assessment draws from national and local trends
reports, previous planning documents, and climate action strategies, in addition to robust
community input. Notable trends influencing planning include increased interest in youth
and family programming, greater demand for wellness and older adult programs, and
heightened expectations for volunteer opportunities. Desired programming identified
through the Parks and Recreation Department Plan, and community engagement includes
warm water pool use for older adults, childcare, arts programs such as a pottery lab, tennis
and pickleball, and everyday recreational opportunities accessible within walking distance.
Prioritization of services for low-income residents, people with disabilities, older adults, and
youth emerged as critical for equitable service delivery.
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Executive Summary
Executive Summary Page | 8
Key Policy Questions to be Asked and Answered
What is the City’s role in supporting indoor recreation in relation to private industry?
Private recreation tends to prioritize affordability, while public recreation focuses on
equity and accessibility to support community benefits such as:
Youth and older adult programming
Adaptive recreation for people with disabilities
Drop-in activities and social wellness programming
Aquatic spaces with lifeguards (state law required for public facilities)
Places and activities for community social events.
Partnerships with other agencies, e.g., Health and Human Services, that
provide services for not only physical health, but mental and emotional health
as well.
Public indoor recreation spaces double as essential civic infrastructure — especially in
times of crisis (see: FEMA, or shelter). They can serve as:
Emergency shelters (cooling/warming centers)
Evacuation sites (e.g., natural- or human-caused events)
Mental and physical health support hubs
Places of social connection in times of isolation (see: AgeWell)
Safe and accessible gathering spaces for teens
How do community-focus spaces complement rather than compete?
Offer community-building rather than individualized experiences
Offer MORE than just gym activities – art, dop-in play, social
connectedness, inter-generational connectivity, etc.
What is the City’s role in supporting indoor recreation given the cost and availability of land
and development?
o Community recreation centers provide spaces and amenities for residents that
may not have access to physical and mental health amenities due to
Affordability
Lack of transportation
Lack of safe spaces due to gender, sexual orientation, religious values, etc.
Social isolation factors
o Healthy residents become contributing citizens more easily, which can support a
vibrant, diverse, and equitable community overall. This contributes not only to
the resiliency of individuals, but to the community’s overall resiliency.
o Indoor recreation centers that serve as emergency shelters and evacuation sites
also contribute not only to community resiliency but may also mean the sheer
survivability of individuals.
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Executive Summary
Executive Summary Page | 9
o The availability and cost of land is a challenge in Boulder. And, the cost of
developing facilities is expensive.
o One centralized location does not serve all. Spacing of centers throughout the
community is important and must be done thoughtfully in balance with the high
cost of owning and operating facilities
In a City that values health and wellbeing more than other communities, how do we ensure
that it is accessible for everyone?
o Boulder’s commitment to community engagement provides opportunities for
many diverse voices and perspectives to be voiced and heard ensuring
Equity
Inclusion
Diversity
Social justice
o Different types of community outreach and engagement
In-person events
Open office hours
Community events
Online surveys, notifications, access to reports, meetings, and calendar of
events
Social media
Focus groups
o Follow-up engagement to confirm what was heard and to present how it has
been addressed and/or included.
o Keep asking questions to ensure accessibility.
Other Important Considerations –
• Partnerships and shared solutions, such as a future mutually beneficial collaboration
with BVSD, may help the Boulder community reach its’ goals.
• Community-building areas that feel safe and welcoming to community members are
a priority for all.
• Land acknowledgment and honoring Indigenous communities will help connect all
recreation center projects to the land they are situated on and the people they are
connected to.
Conclusion and Recommendations This assessment will lead to a series of strategic
recommendations that align with the City of Boulder’s broader goals around community
health, sustainability, and equity. All improvements should support the City's vision of
accessible, inclusive, and resilient recreation services that meet the needs of Boulder today
and into the future.
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Overview
Overview Page | 10
Recommendations for Future
Boulder residents love parks and recreation and expect a high-level of service. The City of
Boulder does not currently have the resources or funding to meet the identified community
desires. If additional funding is not possible to secure, creative solutions may need to be
considered to maintain the current level of service in a constrained resources environment.
Overview
Indoor Recreation Center Information
The City of Boulder’s Parks and Recreation Department operates three unique recreation
centers— East Boulder Community Center, South Boulder Recreation Center, and North
Boulder Recreation Center—each serving as a vital hub for community wellness and
connection. Built between the 1970s and 1990s with varying renovations in the decades
since, these buildings are at different stages of life and need attention to continue to offer a
diverse range of programs and amenities tailored to the evolving needs of Boulder
residents. Through fitness classes, aquatics, multi-use community spaces, and more, these
facilities provide welcoming environments where people of all ages can come together,
foster a sense of belonging, and engage in recreation.
“As buildings, like our three recreation centers, get older, they become more expensive to
maintain. They eventually reach a point where maintaining the infrastructure escalates
significantly. At this “inflection point” a decision should be made to determine whether
continued investment is worthwhile, if a significant renovation should happen, or if the
building should be repurposed entirely.” (Retrieved 7/17/24 from Future of Recreation
Centers | City of Boulder (bouldercolorado.gov))
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Overview
Overview Page | 11
Figure 1: Map of Boulder - Aerial View
East Boulder
5660 Sioux Dr, Boulder, CO 80303
Year Built: 1991
Gross Square Footage: 55,100
Major Improvements: 2011 Solar PV &
Thermal Solar Tubes
Current state: Approaching inflection
point
Figure 2: Aerial Site Map of East Boulder Community Center
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Overview
Overview Page | 12
South Boulder
1360 Gillaspie Dr, Boulder, CO 80305
Year Built: 1972
Gross Square Footage: 27,300
Major Improvements: 1998 entry addition
Current State: At inflection point
Figure 3: Aerial Site Map of South Boulder Recreation Center
North Boulder
3170 Broadway, Boulder, CO 80304
Year Built: 1974; 2001 renovations and
additions, 2017 Pool Renovation
Gross Square Footage: 62,200
Major Improvements: 2012 Solar PV
Current State: Approaching inflection
point
Figure 4: Aerial Site Map of North Boulder Recreation Center
Project Purpose
This Needs Assessment Report for Boulder Parks and Recreation reviews and evaluates the
system-wide indoor recreation activities for the three main recreation centers in terms of
existing conditions and potential future demand to inform decision-making for the near-
term funding available for improvements to East Boulder Community Center. In addition,
this information will be used as a baseline to inform project scope for system-wide
enhancements to help inform costs so that funding can be sought for future building
projects. This phase will include continued communication and engagement with the
community, informed by 2023 engagement and findings that covered a visioning exercise to
understand community needs.
The report systematically analyzes gaps between the current state of indoor recreational
facilities and programs in comparison to the City's evolving needs and long-term goals.
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Background
Background Page | 13
Additionally, Boulder’s indoor recreation services were benchmarked against selected peer
cities to identify best practices and areas for improvement, such as expanded programming,
facility upgrades, or new services that improve accessibility and inclusivity.
Ultimately, this assessment will guide future investments in infrastructure, programming,
and partnerships to enhance the City’s recreational offerings and overall quality of life.
Background
The Parks and Recreation Department promotes the health and well-being of the entire
Boulder community by collaboratively providing high-quality parks, facilities, and programs.
This mission will be accomplished through sustainable practices, partnerships, continuous
improvement, and a focus on the common good, service excellence, and with health at the
core of all we do. (retrieved 7/17/24 from Parks & Recreation | City of Boulder
(bouldercolorado.gov))
Guiding Principles
Guiding principles are important in any project, especially when there are many
stakeholders with different points of view, needs, expectations, and constraints that will
inform the design and construction of a project such as this one.
Each of the City of Boulder’s departments below contributed a wealth of knowledge and
guidance that informed the past, present, and future of indoor recreation for its community
members.
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Background
Background Page | 14
Parks & Recreation
Six key themes or guiding principles were identified through community input, which
contributed to the 2024 Parks and Recreation Department plan framework. These same
themes guided the 2022 Department Plan. And they remain relevant to work within this
indoor Recreation Needs Assessment.
The six key themes are Community
Community Health &
Wellness
Keep Boulder emotionally and physically
healthy through its parks, facilities, and
programs
Financial Stability Balance the many demands with existing
resources. Recognize the need to focus on
core services and community priorities.
Taking Care of What We
Have
Prioritize investments in existing parks
and facilities.
Building Community &
Relationships
Build a connected community through
outreach programs and initiatives.
Create social and cultural equity for
healthy relationships across Boulder,
Youth Engagement &
Activity
Engage youth with parks, facilities, and
programs that provide direct experience
with nature, experiential learning, and
opportunities to close the educational
achievement gap.
Organizational readiness Respond to changes over time by using
new technologies and data-driven and
collaborative decision-making tools.
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Background
Background Page | 15
Facilities Department
Boulder’s Facilities & Fleet Department are guided by the three pillars of Environmental
Sustainability, Social Responsibility, and Financial Stewardship, shown in Figure 5 below.
These pillars combine to ensure that the facilities within their purview are resilient,
sustainable, accessible and equitable, experiential, economical, and functional. (2021
Boulder Facilities Department Plan, City of Boulder, p.12)
Figure 5: Guiding Principles for Managing City Facilities
Climate Initiative & Climate Action
In response to the accelerating climate crisis, the City of Boulder declared a climate
emergency in July 2019 and established bold targets to guide action—aiming to reduce
emissions 70% by 2030 (from a 2018 baseline), become a net-zero city by 2035, and achieve
carbon-positivity by 2040. Catastrophic local events like the 2013 flood and 2021 Marshall
Fire underscore the urgency of this work. Boulder takes a holistic approach by integrating
sustainability and resilience across land use, transportation, water management, open
space, and wildfire protection. Local climate action not only addresses global threats but
also improves public health, air quality, food access, energy security, and livability—
positioning the community as a key player in broader regional and national climate
solutions.
Energy Usage & Emission Reduction
Given that the City of Boulder’s three recreation centers account for approximately 7% of
the City’s total municipal building square footage but consume nearly 30% of its building
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energy, their energy performance is significant to the City’s climate and financial
stewardship goals. Their impact is simply too large to overlook, making targeted action at
these facilities essential for systemic change. Migrating to more sustainable, clean energy
sources in addition to reducing energy consumption will help to align with these targets. See
Appendix 1 for more information.
Embodied Carbon
In addition to reducing emissions related to energy operation and carbon, the City of
Boulder has prioritized embodied carbon reductions through the Designing for
Deconstruction ordinance. While embodied carbon reduction targets did not make it into
the most recent update to the Energy Code, they will remain a priority for the Future of
Recreation centers projects. By prioritizing reuse and specifying low GWP (global warming
potential) products the team can reduce GWP associated with the built environment
significantly. Projects whose floor area include at least 30% existing structures are more
effective in achieving reductions than new builds and on average represent 39% savings in
embodied carbon savings. Selecting products whose GWP impacts fall below industry
baselines and have verification of GWP impacts via EPD (Environmental Product
Declarations) can reduce impacts by 15-40%. Perkins&Will has conducted a study of 97
buildings to set baseline targets for all our building types, including recreation centers.
Figure 6: Materials & Resources for Embodied Carbon Reduction
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Community Engagement
Community engagement, as another guiding principle, included a robust plan to reach out
to a broad and inclusive cross-section of community members to understand and confirm
community values, priority indoor recreation activities, desired amenities, and barriers to
access. To ensure decisions considered both who is impacted and who benefits, the City’s
Racial Equity Instrument was also applied to both the design of the engagement process
and the evaluation of emerging recommendations. The Engagement plan, informed by the
2023 engagement and findings and guided by the Community Engagement Core Principles
and Values shown in Figure 7 below, incorporated many types of engagement – in-person,
online surveys, open-hours conversations, focus group meetings, and a game night – which
continued Boulder’s process of building a culture of meaningful engagement that is
inclusive, consistent, and transparent for the community.
Figure 7: Major inputs for needs assessment
Community Engagement Core Principles & Values
• The problem is clearly defined.
• Public engagement is thoughtfully planned.
• All voices are encouraged and included.
• Public contribution and civic participation are fostered.
• The process is trustworthy and transparent.
Financial Landscape
Prioritizing the City’s financial future is consistent with policy recommendations from the last
two decades, including recommendations from the Blue Ribbon Commission Reports of
2008 and 2010 and the Budgeting for Community Resilience Report of 2019. Building upon
these prior policy recommendations, and named a top council priority in 2024, the City’s
Long-Term Financial Strategy focuses on organization-wide, long-term fiscal health by
balancing the City’s revenues with levels of service provided to support core City operations
and community priorities. We know our community has high expectations – and we want to
meet these, balancing both in delivering core City services and community priorities.
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Unfortunately, our list of needs has outpaced our available funding. This trend has been
consistent in recent years with the City’s major revenue sources of sales and use tax and
property tax flattening due to slowing economic growth, economic uncertainty, and state
legislative impacts to revenue growth. Our issues extend beyond this. Here’s a snapshot of
some of the current conditions across the City:
• While Boulder taxpayers have been generous, they typically approve taxes for
specific purposes. As a result, 68% of the City’s revenues are dedicated, reducing
flexibility to address rising costs and meet community needs of the moment.
• There is a significant number of underfunded City services in areas our community
counts on, like parks and recreation, transportation maintenance, public safety,
facilities operations, and more.
• Costs are rising right now in many areas, with elevated economic uncertainty, which
means it is more expensive for the City to maintain our current service levels now and
into the future.
At the same time, we’re hearing a desire from some community members for the City to do
more. These realities require having honest conversations with the community about
whether and how levels or qualities of service may need to shift if additional funding is not
secured. It also demands more creative and holistic solutions to how the City allocates
funding and invests in infrastructure and services to best meet community needs.
The City’s Long-Term Financial Strategy aims to support these important issues through key
areas of focus, including:
• The creation of a Long-Term Financial Plan with guiding principles, current state
assessment, revised financial policies, and prioritized future strategic steps to guide
the City’s financial strategy forward,
• Analyzing, proposing, and implementing alternative revenue streams and enhanced
revenue measures – aiming to shift away from the City’s overreliance on sales and
use tax, increase funding flexibility, and revenue sufficiency. This includes exploring
tax measure strategies that align to the LTFS guiding principles, including the current
2025 tax ballot measure for the 0.3% permanent extension of the Community Culture
Resilience & Safety Tax and associated increase to debt capacity, and
• Fund Our Future community engagement discussions on levels of service and
community priorities, planned for early 2026.
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Indoor Recreation Assessment
Process
Boulder’s indoor recreation facilities and activities were assessed from many perspectives.
Information was gathered from previously published assessments and reports, national
trends reports, benchmark surveys of similar municipalities, climate initiatives and action
plans, community engagement activities, facilities assessment, and programs, assessment.
The following sections will delve into the trends, desired programming, and priorities that
evolved from each of these perspectives.
Previous Assessment & Reports
For a list of previous assessments and reports, see the Reference section.
The 2022 Parks and Recreation Master Plan identified the following programming trends,
desired community programming, and program prioritization.
Trends:
• Youth and family programs are popular.
• Increasing demand for older adult programming
• Increasing demand for wellness programs
• Increasing volunteerism
Desired Community Programming:
• Outdoor programming
• Childcare
• Pottery lab and arts programs
• Everyday activities within walking distance of where people live
• Warm water pool activities for older adults
• Tennis and pickleball
Prioritized Programs:
• Low-income residents
• People with disabilities
• Older adults
• Youth
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National Trends
National Recreation and Park Association (NRPA) – NRPA’s 2024 Agency Performance
Review report offers specific information on indoor recreations facilities that are provided by
parks and recreations agencies nationally.
Types of Recreation Facilities
NRPA defines the following recreation facility types:
Recreation Centers
1. Small: Clubhouse/Community Buildings – (under 5,000 sq. ft.), neighborhood-
focused.
2. Mid-Sized: Community Centers – (5,000–20,000+ sq. ft.), serving larger areas with
multiple amenities.
3. Large: Comprehensive Recreation Centers – (40,000–80,000+ sq. ft.), offering both
active (pools, gyms) and passive (meeting rooms) spaces, often developed with
partners.
Senior Centers – Ranging from 10,000–50,000 sq. ft., evolving to include more active spaces
and integration with community centers.
Aquatic Centers – Ranging from small neighborhood pools to large regional water parks.
Increasingly, splash pads are replacing neighborhood pools.
Fieldhouses – Indoor sports facilities gaining popularity for hard court and turf-based sports.
Tennis/Pickleball Centers – Growing in some regions, typically with 8-24 lighted courts and
supporting facilities.
Indoor Amenities & Median Population Served
Reviewing the NRPA data for cities with a population of 100,000 – 250,000, the table below
shows the percentages of agencies that provide these Indoor Amenities as well as the
median number of residents the facility serves.
According to the census data, Boulder’s population in 2020 was 108,250, which includes
approximately 30% college students. Dividing the total population by the three centers,
each center serves approximately 36,083 residents.
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Table 1: Indoor Amenities & Median Population Served
Indoor Amenities Percentage
of Agencies
Median Number of Residents
per Facility
(100,000-250,000 pop)
Recreation Centers 62% 57,750
Community Centers 59% 55,135
Indoor Aquatic Centers 30% 110,629
Senior Centers 40% 125,817
Indoor Ice Rinks 12% 108,508
Teen Centers 12% 124,264
Responsibilities
The table below illustrates the percentage of agencies that are responsible for services
similar to the services Boulder’s Parks and Recreation provides.
Table 2: Percent of Agencies Responsible for Services similar to Boulder
Responsibilities Percentage of Agencies
Provide Recreation Programs and Services 93%
Operate and Maintain Indoor Facilities 93%
Conduct Community-wide Special Events 83%
Operate, Maintain Contract Indoor Swim Facilities 31%
Assessment of Current Facilities
Of Boulder’s recreation/community centers, SBRC (27,200 SF) falls into NRPA’s Mid-Sized:
Community Centers – (5,000–20,000+ sq. ft.), serving a larger area than a neighborhood
with multiple amenities. EBCC (55,100 SF) and NBRC (62,200 SF) are defined as
Comprehensive Recreation Centers – (40,000 – 80,000+ sq. ft.), offering both active (pools,
gyms) and passive (meeting rooms) spaces.
Area Allocations
The following diagram shows the color-coded allocation of Area by Department for each
three centers’ floor plans on the right. The left side of the diagram tallies the square feet per
each Area by Program for each center into a total square foot bar graph at the top and a
percent of total diagram at the bottom.
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East Boulder Community Center
Existing EBCC floor plans and tree diagram of areas by program clearly show the largest
area within this center is AgeWell, followed by aquatics area, and cardio and weights.
Figure 8: Diagram of EBCC existing programs and space allocation
Figure 9: Tree diagram of EBCC existing programs
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South Boulder Recreation Center
The existing SBRC floor plans and tree diagram of areas by program illustrate in both the
size ranking of SBRC: gymnasium, aquatics, cardio and weight spaces.
Figure 10: Diagram of SBRC existing programs and space allocation
Figure 11: Tree diagram of SBRC existing programs (departments)
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North Boulder Recreation Center
Existing NBRC floor plans and tree diagram of areas by program show that the largest is the
gymnastics room, followed by aquatics, and the gymnasium.
Figure 12: Diagram of NBRC existing programs and space allocation
Figure 13: Tree diagram of EBCC existing programs (departments)
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Assessment of Current Programs
Each of Boulder’s recreation centers offers programs in fitness, aquatics, and sports, with
some centers having unique areas of focus.
East Boulder Community Center
In Aquatics, participants can engage in youth and adult learn-to-swim classes, private
swimming lessons, adult swim clinics, and water safety instructor courses.
The Fitness/Wellness offerings include drop-in fitness classes (not counted in registration
numbers), chair yoga, core and more for older adults, dance fitness, outdoor bootcamp,
Silver Sneakers, total body workouts, TRX, Zumba, various yoga programs, weight training
for youth and older adults, speed agility & quickness training for youth, functional fitness
and assessments for older adults, ski conditioning, and women’s weight training.
The EXPAND program features basketball, pickleball, bingo, game night, Friday night fun,
drama, drumming, Chat & Chow, cheer, dodgeball, fitness, swimming, holiday parties,
Special Olympics, dance, and art.
In Sports, participants can join adult dodgeball, pickleball for youth, adults, and seniors,
adult and older adult tennis, youth tennis and tennis camps, adult and older adult
volleyball, badminton, and adult basketball. Drop-in opportunities for badminton,
basketball, pickleball, and volleyball are also available but are not included in registration
numbers.
Youth programs include Camp.
The Dance category offers adult ballet, Cuban dance, line dancing, and hip-hop, as well as
youth ballet & contemporary, ballet & tap, and hip-hop.
For Older Adults, the center provides cards and bridge, fitness classes, walking groups,
dance, meditation, art, music, Active Minds educational sessions, writing workshops, Tai Chi,
table tennis, tours, special events, foot care, hearing support, fall prevention, and tech
support.
Program Focus Areas:
• Older Adults – A dedicated wing, known as AgeWell, is designed to serve older
adults, making it a central focus of the center. The AgeWell wing is operated by the
Housing and Human Services Department.
• EXPAND – A key program offering adaptive recreation.
• Kidz Kamp – A major summer youth camp based at the center.
• Fitness – This center had the highest drop-in fitness attendance among all three
centers (26,213 visitors from June 2023 to June 2024).
• Aquatics – Strong emphasis on lessons, drop-in lap swimming, and swim team
rentals.
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South Boulder Recreation Center
In Fitness/Wellness, drop-in classes include Fit & Strong, Total Body Fitness, and Weight Room
Orientation for ages 12-18. Regular fitness programs include Prenatal/Postpartum classes,
Group Strength Training, Pilates Reformer, and Women’s Weight Training.
The EXPAND category features Dogs & Dodgeball, Movement, Pickleball, Flag Football,
Soccer, Unified Flag Football for youth, and Special Olympics Flag Football and Volleyball.
In Sports, drop-in activities consist of Pickleball, Badminton, Volleyball for older adults,
Women’s Volleyball, Women’s Catchball, Basketball for all ages, and Ninja for all ages.
Regular sports programs include Adult Dodgeball, Adult Pickleball, Pickleball Leagues, and
Pickleball Tournaments.
Dance offerings include Adult Ballet.
Program Focus Areas:
• Fitness: 9,668 drop-in participants (June 2023 - June 2024).
• Sports: Strong focus on pickleball and teen drop-in sports.
• Youth & Teens: High engagement due to nearby schools.
• Aquatics: High demand for lap swimming and team rentals.
North Boulder Recreation Center
In Aquatics, there are "Learn to Swim" programs for preschoolers, youth, and adults, as well
as private and semi-private swimming lessons, swim clinics for adults, and a water safety
instructor course.
For Fitness/Wellness, drop-in classes include Barre, Body/Cardio/Core Sculpt, HIIT, Pilates,
Step Cardio Conditioning, and Yoga. Regular programs in this category feature Functional
Fitness, Weight Room Orientation for youth, Nutrition, TRX Yoga, Nutrition for Bone Health,
Small Group Training, Pilates Mat/Chair, Strength Training, Women's Weight Training, and
Zumba for youth.
The EXPAND category includes activities like Extreme Sports, Relax and Recover, Science,
Crafts, Ninjas, Laugh Lab, Special Events, Special Olympics-Gymnastics, and Art.
In Sports, the center offers Gymnastics for youth, Gymnastics Camp for preschoolers and
youth, a Gymnastics Team for youth, Tumble Time for youth, and Gymnastics for adults.
Other sports programs include Basketball for seniors, Volleyball for adults and seniors,
Indoor Kickball for adults, Pickleball for adults (including leagues and tournaments), Tennis
for adults and youth, a Tennis Team for youth, and Catchball.
For Youth, there are Goats and Gardens Camp and School Day Off Camps.
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Special Events include various community events, and in Cultural Arts, there is Ballet for
adults.
Program Focus Areas:
• Goats and Gardens: Youth camp program.
• Fitness: 23,893 participants in drop-in fitness classes (June 2023 - June 2024).
• Gymnastics: Dedicated space for gymnastics programming.
• Drop-in Sports: Popular activities like basketball, volleyball, and pickleball for all
ages.
• Aquatics: Strong focus on lessons, lap swimming, and rentals for local swim teams.
Drop-In Activities
Each of the community centers has significant use for drop-in activities including fitness
classes for passholders, drop-in gym uses for sports, and drop-in aquatics.
Center Membership Statistics
Although not directly related to recreation programming, since annual and monthly passes
have as a benefit free access to fitness programs, it does impact the number of people that
are eligible for this type of programming.
Table 3: Rec Center Membership Statistics
Type Number (as of 6/30/2024)
Annual Unlimited Passes 1,114
Annual Unlimited Passes (Third Party) * 7,383
Annual Unlimited (Military/Public Service) 62
Annual Unlimited Passes (Well Being) 158
Monthly Unlimited Passes 1,077
Monthly Unlimited (Military/Public Service) 59
Punch Card Passes 7,570
Summer Unlimited Passes 933
* Third Party passes include, Silver & Fit, SilverSneakers, Renew Active, One Pass, Aaptiv Advantage, and Financial
Assistance.
These memberships significantly impact participation in free fitness programs and other
offerings at community centers.
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BPR Current Levels of Service
Primary Activities
National benchmarking is provided annually by the National Recreation and Parks
Association (NRPA). In table 3 below, pulled directly from the 2024 NRPA Agency
Performance Review, shares both the prevalence and median numbers of residents served
per facility or amenity by total jurisdiction population.
Table 4: National comparisons of facilities provided by parks and recreation agencies across
the US
INDOOR PARK AND RECREATION FACILITIES
(BY PREVALENCE AND POPULATION PER FACILITY)
Types of
Facilities
Percent of
Agencies
Median Number of Residents per Facility
Population of Jurisdiction
All
Agencies
Less than
20,000
20,000 -
49,999
50,000 -
99,999
100,000-
250,000
More Than
250,000
Competitive
swimming
pools
22% 66,880 8,224 31,000 64,150 110,270 260,000
Pools designated
exclusively for
leisure (i.e.,
noncompetitive)
19% 71,046 12,203 32,812 63,688 111,385 281,151
Pickleball 19% 17,033 4,929 10,463 17,240 29,470 79,795
Multiuse courts –
basketball,
volleyball, etc.
16% 23,755 5,907 14,577 23,755 72,604 64,451
Basketball
courts, stand-
alone
12% 26,937 5,907 19,173 26,612 77,099 66,002
Multiuse courts –
tennis, pickleball
12% 17,044 5,800 14,950 15,182 38,757 89,639
Therapeutic
pools
11% 94,456 10,814 33,306 63,001 121,465 521,114
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Walking loops/
Running tracks
10% 59,630 9,875 32,619 63,336 111,508 301,916
Racquetball/
Handball/
Squash courts
9% 39,744 7,036 16,825 38,326 58,942 118,342
Tennis courts 5% 19,286 ISD 6,600 10,605 27,995 60,913
With respect to specific amenities or equipment provided, Boulder is either on par with or
above other peer agencies. In Table 4, areas where Boulder recreation centers exceed peers
have been highlighted in green, while red indicates an area where we are falling behind.
Boulder residents have long sought higher levels of recreation services than other
communities – and in the following cases, the City, by comparison, is at least keeping pace:
• Cold water: Boulder has significantly more cold water for lap swimming per capita
than all other peers.
• Cardio and strength-training: Boulder recreation centers provide residents with more
cardio, fitness, and strength-training equipment than other peers. However, the
square footage for those areas in Boulder recreation centers is significantly
undersized, making these areas crowded.
One notable gap in recreation services for Boulder is the lack of an indoor walking or
running track. All peer agencies surveyed provide indoor tracks, while Boulder recreation
centers do not.
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Table 5: Results from benchmarking activities and amenities
Activity Peer City Range BPR Current Level
of Service
Residents per indoor lap lane (cold water) 13,083 – 42,594 4,920
Residents per indoor leisure swimming
location (warm water) 29,848 – 85,188 54,125
Residents per piece of indoor cardio
equipment 2,130 – 3,829 1,804
Residents per piece of indoor strength
training equipment 2,840 – 11,865 1,592
Residents per indoor spin bike 4,595 – 8,519 1,177
Residents per indoor walking / running
track 52,333 – 114,875 0
Residents per indoor yoga/ body-mind
locations 19,625 – 56,792 36,083
Residents per full-size indoor basketball
court 31,400 – 57,436 36,083
Residents per indoor functional fitness room 19,625 – 56,792 36,083
Residents per gymnasium* 7,476 – 23,729 18,042
*Most agencies use gymnasiums for multi-purpose courts for sports from basketball and volleyball to
pickleball. Only one peer agency (Tempe) reached in this questionnaire provides dedicated, indoor
pickleball courts. Only one peer agency (South Suburban) reached in this questionnaire provides
indoor courts on pickleball-tennis surfacing.
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Engagement Assessment
Goals for Engagement
Boulder recreation centers are vital community health and wellness hubs – places for all
community members to gather and connect, exercise and play, rest and recover. Imagining
the future of these community assets requires input from community members across the
City, neighbors, schools, children, teens, older adults, people with disabilities, people with
lower incomes, and other voices that historically have been marginalized.
Public engagement is vital to this process.
Using planning analysis and guiding policy in tandem with community input informs
recommendations that will emerge for each center – reflecting community needs and wishes
as depicted in the figure below.
Community engagement’s role in developing recommendations.
Engagement Plan
Community engagement methods were designed to align with and implement the City’s
Engagement Strategic Framework and Racial Equity Plan.
Four engagements windows were designed to inspire and capture the community’s vision
and values for recreation centers long into the future. This approach provided clarity to
community members about how and when they could best share their voices, as well as time
for staff and consultants to analyze feedback and incorporate it into the next steps. For
example, broad-based feedback from the first window in Spring 2023 helped staff
understand and articulate a draft set of values to describe why community members love
City recreation centers. In September 2024, Engagement Window 2 built off this foundation
and invite community members to affirm these community values, which guided design and
planning for future recreation center improvements. This iterative process built on itself and
built community consensus on a focused set of recommendations to consider and fund in
the future.
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Figure 14: Community Engagement Windows
Engagement 1.1 Findings
Engagement Window 1 was conducted by Boulder Parks and Recreation staff between
March – May 2023. Staff provided a foundation of information about the recreation centers
and consulted with the community on their broader priorities for the indoor recreation
system as a whole. A summary of this engagement was presented to the Parks and
Recreation Advisory Board (PRAB).
Following the presentation to PRAB, staff opened the first round of public engagement. This
began in April with a questionnaire posted online, three in-person listening sessions, and
associated social media, emails, and poster communications.
The questionnaire was available online from April 6 through June 2, 2023, in both English
and Spanish. This consisted of short, open-ended questions to gauge the public’s likes and
dislikes about current facilities and hopes and concerns for the future. Over 1,270 people
completed an online survey during the eight-week period.
Listening sessions at each recreation center during April provided an in-person opportunity
for community members to answer the same questions and chat informally with staff about
the project. Staff talked to several dozen community members at each center for a total of
approximately seventy-five people.
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Engagement Window 2
Figure 15: Engagement Window 2 Results
Engagement Window 2 was an opportunity for community members to:
• Express the type of improvements to recreation center amenities and service they
would like to see in the future, and
• Elevate the types of recreation activities that are most important for City recreation
centers to provide in the future.
Opportunities to engage with the project team and participation levels during this second
window are outlined in the table below.
Table 6: Engagement Window 2 activities and participation levels
Date(s) Activity Participation
September 7, 2024 What’s Up Boulder:
Community-wide event at
EBCC
Approx. 500 attendees
September 7-30, 2024 Interactive posters at all 3
recreation centers
386 comments
September 7-30, 2024 Online questionnaire 3,208 responses
September 26, 2024 Meeting with organizational
representatives
17 attendees
September 30, 2024 Pop-up meeting with
neighbors of South Boulder
Recreation center (SBRC
Approx. 35 attendees
Total Numbers of Community Touchpoints 4,146
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In addition, City staff have partnered with Growing Up Boulder over many years to
understand and elevate young people’s hopes and dreams for indoor recreation in Boulder.
Themes from decades of youth engagement have been incorporated into the findings
below.
Who we heard from
The online questionnaire included voluntary demographic questions to help staff
understand who responded, who did not, and to what extent priority populations
participated. The following highlights demonstrate that a broad cross-section of community
members responded to the questionnaire:
• 71% of respondents visit City of Boulder recreation centers at least once a week
• 394 respondents were 65 or older
• 32 respondents were under 18-years-old
• 117 self-identified as experiencing disability
• 174 reported being a caregiver for an older adult or someone experiencing disability
• 108 self-identified as within the LGBTQ+ community
• 204 respondents self-identified as non-white
• 9 responses were submitted in Spanish
• 21% reported annual income of less than $100,000, which is roughly the area median
income
What we heard
Community Values
Across the board, community members affirmed the values that had been shared in
previous engagements. Questionnaire respondents were also asked to identify which values
were most important for the future of recreation centers. Results are shown below.
Figure 16: Community Values
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Figure 17: Community Values by Ranked Order
Desired Improvements to Recreation Center Amenities and Services
When asked which three improvements community members would like to see at recreation
centers, respondents prioritized:
1. More opportunities for in-demand activities (e.g., gymnastics, lap swimming) – 57.2%
(1,071 responses)
2. Indoor options to support year-round opportunities for outdoor sports and other
activities (e.g., walking, running, soccer, racket sports) – 51.2% (960 responses)
3. Activities and facilities that better reflect my interests – 35.0% (655 responses)
More than a third of the respondents also expressed desires to integrate recreation center
facilities with nature and outdoor spaces (e.g., natural light, operable windows/doors,
indoor/outdoor programming). Roughly 20% emphasized the need to reduce energy and
water use.
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Priority Indoor Recreation Activities
Combined with results from the online questionnaire, comments shared at What’s Up
Boulder and on the interactive posters at each center demonstrate strong consensus
regarding which recreation activities are most important for City recreation centers to
provide. The table below summarizes feedback from all methods about the top three most
important categories, as well as the relative importance of specific activities within each.
Table 7: Top Three Priority Recreation Categories and Activity Details
Category Most important
Activity
Second-most Important
Activity
Third-most Important
Activity
Fitness Strength training &
stretching
Using cardio equipment Fitness classes
Aquatics Lap swimming Leisure swimming Competitive swimming
Mindfulness
& Wellness
Mindfulness classes
(yoga, tai chi, etc.,)
Physical therapy support
services
Massage and other
bodywork
In addition, community members shared the following ideas about activities that City
recreations centers could provide in the future:
• Indoor walking and running emerged as a predominant theme among write-in
responses
• Interest in indoor tennis and pickleball was also strong
• Some community members also hope recreation centers of the future will
accommodate competitive swimming and diving, rock climbing, indoor playgrounds,
covered outdoor exercise equipment, and indoor batting cages
• Creative ideas like adding a coffee shop to a recreation center were also shared.
Accommodating Activities Across the System of City Recreation Centers
The questionnaire included an opportunity for the City to understand which activities should
be available at each facility (distributed) and which might be centralized at one location.
Staff recognize that there were technical issues when displaying the question about
distributed or centralized services on the online questionnaire. While staff worked to fix the
issue, it unfortunately persisted for some respondents, which made it difficult for those using
the Safari browser to select “Distributed” instead of “Centralized”. Given the technical
difficulties with this question, the percentage of respondents who preferred distributed
services may be higher than indicated. Despite this difficulty, responses indicated that
overall, community members preferred distributed services, except in the case of specialized
services and sports. Staff gathered more input on which services community members want
to see in each location as part of Engagement Window 3.
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Findings: Youth Engagement Over Time
In partnership with Growing Up Boulder, youth have provided feedback on parks and
recreation in the City over the past decade. Key themes from this work that are relevant to
the recreation center planning include interest in nature, aquatics, art, safety, opportunities
for play and the importance of food. Youth also asked for non-traditional offerings to
support health like social events, places to hang out with others, and places that
accommodate different sensory needs. Independence and affordability were also important
to youth. They want to be able to access places and hang out of their own without help from
adults. In more recent plans, equity and environmental sustainability emerged as important
values to youth. Summary findings from meeting with the youth are shown below.
Figure 18: Youth Priorities for Rec Centers
Engagement Actions/Events
What’s Up Boulder
At ‘What’s Up Boulder’, a “Community Event on
Projects and Services Happening Now and in the
Future” (What's Up Boulder? Events, 2025) held on
September 7th, 2024, at East Boulder Community
Park, Perkins&Will and City of Boulder met with
community members at a booth hosted by the both
the design and City team members and heard their
thoughts on the future of recreation in Boulder. This
event is held yearly for City staff to communicate
with Boulderites about past, current and future
projects, and host a fun community gathering. The
Informational Posters and Post-It Boards expanded
upon in the following sections were posted at this
event to increase the possibilities for community
member feedback. Figure 19: What's Up Boulder Event, 2024
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Informational Posters
Boards were created to demonstrate the state of Indoor Recreation in Boulder today, the
future of recreation, and which Indoor Recreation Activities are popular in recreation centers
throughout the country. Those boards were posted at all three Boulder recreation centers
(North, South, East) for a period, as well as ‘What’s Up Boulder’ in order to inform community
members and collect valuable feedback. These boards represented Boulder community
values, showed the anticipated schedule for recreation projects, and showed examples of
indoor recreation activities to spark thought and conversations. Additionally, all boards had
QR codes that brought interested viewers to the Questionnaire, which is covered in a
following section.
Figure 20: Informational Poster
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Post-It Notes
To better understand community members' favorite indoor recreation
activities, we conducted an interactive Post-It exercise using display
boards at the 'What’s Up Boulder' event and all three Recreation
Centers. Participants wrote down their preferred activities on sticky
notes, allowing for spontaneous and visually engaging idea sharing.
The boards were displayed from September 7th-30th, giving ample
time for community input. Once collected, the notes were analyzed to
identify recurring themes and popular interests. This process provided
valuable insights into residents’ preferences, helping align future
programming with community needs.
Online Questionnaire
To gain valuable insights into community interests, priorities, and unmet needs regarding
recreation and community spaces, a bilingual questionnaire was distributed both virtually
and in paper format. The survey, available in English and Spanish, aimed to gauge interest
in indoor recreation activities, identify key community priorities for the next decade, and
highlight areas where current offerings fall short. Ensuring accessibility and inclusivity, the
questionnaire provided a platform for a diverse range of residents to share their
perspectives. The collection period ran from September 7th to September 30th 2024,
allowing ample time for community participation and input.
Key Takeaways from Engagement Window 2
Results varied, but key takeaways highlighted interest in indoor fitness, aquatics, and
mindfulness and wellness activities, plus an expressed desire to integrate nature into
recreation centers.
Figure 22: Key Takeaways from Engagement Window 2
Figure 21: Favorite Indoor
Activities Post-It note
activity
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Engagement Window 3
Engagement during Window 3 invited the community members to affirm or refine priority
activities before dreaming up ideas for how these activities can be accommodated at
current or future recreation center facilities
Game Night
To elevate voices from historically marginalized communities, Boulder Parks and Recreations
staff met with individuals from priority groups such as youth, older adults, people
experiencing disabilities, and low-income residents. Their ideas were then brought to a
larger group event on January 15, 2025, called “Game Night.” This innovative, fun event was
designed to facilitate meaningful dialogue and relationship-building across a diverse cross
section of older adults, people experiencing disabilities, and community representatives
from Reimagine SBRC, Boulder Community Aquatics Coalition, the Boulder Valley School
District, youth-serving organizations and other recreation interests. Ideas and priorities that
emerged that night were captured graphically and displayed in all three centers for the
weeks following to gain additional feedback from a broader audience.
The following graphic depicts the priorities for each community/recreation center that were
derived from Game Night.
Figure 23: Game Night Results
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The full schedule of opportunities during this window is outlined below.
Table 8: Engagement Window 3 activities and participation levels
Date(s) Activities Participation
November – December
2024
Focused Engagements – including youth,
older adults, people with disabilities, and
community connectors
100 participants
January 15, 2025 Game Night 50 attendees
January 21 – February
3, 2025
Community Wide Feedback at Centers and
Online
300 responses
Total Number of Community Touchpoints ~ 450
Separately, community members also conducted their own outreach and provided results to
the City project team. For example, Reimagine SBRC gathered nearly 700 responses to an
online survey they designed to understand their constituents’ priorities. In addition, BOCO
Pickleball Club gathered 50 responses to an online survey. These results have been reviewed
and incorporated into the findings below.
How Input Was Used
Community input helped the project team understand the demand for indoor recreation
activities and the amenities that support them. This demand was then compared with
existing levels of service across all three centers to understand where desires and
opportunities exist for improving services and amenities to meet that demand. This analysis
also includes benchmarking with five other recreation agencies local and around the
country.
Specifically, feedback gathered during Engagement Window 2 about priorities for indoor
recreation activities informed community conversations during Engagement Window 3.
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Engagement Analysis
Overarching Themes for All Recreation Centers
Input from all methods confirmed findings from past windows and advanced understanding
about the community’s top priorities for all three recreation centers, illustrated below.
Figure 24: Top priorities for all facilities
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East Boulder Community Center
In addition to the overarching themes above, the following priorities emerged for EBCC.
Together, these will guide the development of design concepts for the upcoming renovation.
Table 9: Community Prioritization of Potential Improvements to EBCC
Potential Improvements Community Prioritization
Enhance accessible, warm water wellness
opportunities
Top priority
Explore indoor track Very high
Connect with nature Very high
Improve East AgeWell Very high
Enhance community gathering and learning spaces Very high
Improve or expand fitness classrooms High
Other Boulder Recreation Centers
A preliminary vision for the future of indoor recreation is emerging based on systemwide
priorities described above. These early ideas convey a strong community desire to maintain
the following core amenities in future facility renovations if they were to be funded:
• Lap pool
• Strength and cardio areas
• Fitness classrooms
• Gymnasium
In addition, the priorities in the table below emerged for consideration in any updated
facilities.
Table 10: Community Prioritization of Potential Facility Improvements
Potential Improvements Community Prioritization
Consider indoor field sports Top Priority
Expand fitness classes Very high
Improve community gathering High
Connect with nature High
Along with technical analysis and an evaluation of levels of service across other
communities, these desires will inform preliminary graphics to convey potential space
allocations will also be estimated to inform the City’s Long-term Financial Strategy project
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Values and Design Principles
In parallel with community engagement, Perkins & Will facilitated a values-based design
charrette with the executive committee, comprising members of the Parks and Recreation
and Facilities and Fleet departments. The session focused on identifying core departmental
values and exploring how they could inform the design of upcoming recreation center
projects. This collaborative process fostered the development of shared design concepts
and culminated in a set of Design Principles. These principles will guide the next phase of
design for the East Boulder Community Center, ensuring alignment with the departments’
missions and maintaining fidelity to the original intent throughout the design evolution.
Figure 25: Purpose of Values and Design Principles
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Figure 26: Generated Ideas from Values and Design Principles
Design Principles
Figure 27: Design Principles Themes
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Design Principles
Figure 28: Potential Ideas to Actualize Design Principles (part 1)
Design Principles
Figure 29: Table of potential ideas to actualize design principles (part 2)
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Program Assessment
General
Over the past ten to twenty years, parks and recreation agencies have had to adapt to
increasing demands, a more diverse and inclusive population, cost-effectiveness pressures,
and the need for measurable outcomes. To address these challenges, agencies have
adopted “best practices”, including:
Clear Vision & Goals – Agencies establish and regularly update a vision statement
with specific, annually reviewed goals.
Strategic Planning – Department plans and long-term planning efforts guide
development and operations.
Diversity, Equity, & Inclusion – Comprehensive policies ensure access for all
populations.
Focused Service Delivery – Agencies determine core service areas and outsource
other functions as needed.
Data-Driven Decision Making – Strong record-keeping and computerization support
trend analysis and performance measurement.
Operational Excellence – Comprehensive policies and procedures are regularly
updated, and all aspects of operations are tracked and evaluated.
Boulder Parks and Recreation has adopted many of these strategies to efficiently meet
community needs while ensuring sustainability and accountability.
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National Comparison
Indoor Recreation Facilities
The National Recreation and Park Association’s (NRPA) 2024 Agency Performance Review
document has specific information on indoor recreation facilities that are provided by park
and recreation agencies nationally. The table below compares four types of
community/recreation centers that Boulder currently operates plus the teen center to the
percent of agencies that also operate these types of facilities and the corresponding
number of residents served by each type of indoor facility.
Table 11: Types of Indoor Recreation Facilities and Amenities
(by Prevalence and Population per Facility)
Recreation Facility and
Amenities
% Agencies Median Number of
Residents per Facility
(100,000-250,000 pop)
Median Number of
Community Members
per Facility
(Boulder 108,250)
Recreation Center
(including gyms)
62% 57,750 36,083
Community Center 59% 55,135 36,093
Indoor Swimming Pools
(Aquatics Centers)
30% 110,629 36,083
Senior Centers 40% 125,817 54,125
Teen Centers* 12% 124,264 0
*Teen Center data was included due to the interest from Boulder’s youth.
The number of Boulder community members served by each type of indoor recreation
facility is far below the national average.
National Recreation Trends
Based on studies completed by Recreation Participation Trends (2014-2023), NRPA’s
Recreation Program by Agencies (2024), and “Recreation Management Magazine” Trend
Analysis, the current top indoor activities are:
• Fitness enhancement
• Walking
• Exercise with equipment
• Pickleball
• Health & wellness
• Mind-body balance
• Teen programs
• Active older adults
• Special needs programs
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Benchmark of Selected Communities
Goal
The goal of benchmarking several cities against Boulder, CO, is to evaluate how well
Boulder’s recreation centers are meeting the needs of its community compared to other
municipalities. By analyzing key factors such as facility size, equipment availability,
programming diversity, service offerings, accessibility, and other relevant considerations, we
can assess whether Boulder is keeping pace with industry standards and constituent
expectations. Comparing these elements across cities helps identify strengths, gaps, and
opportunities for improvement, ensuring that Boulder’s recreation centers remain
competitive, inclusive, and responsive to evolving community needs. This data-driven
approach provides a foundation for informed decision-making as the City considers future
enhancements and renovations.
Survey Participants
The City of Boulder Parks & Recreation group selected Fort Collins, CO; Westminster, CO;
South Suburban district located in Littleton, CO; Ann Arbor, MI; and Tempe, AZ; as
benchmark cities to evaluate how Boulder’s recreation centers compare in terms of
amenities, programming, facility size, and overall community impact. Benchmarking allows
organizations to assess their performance by looking at similar entities, identifying best
practices, and finding opportunities for improvement. By examining how these cities
manage their recreation centers, including equipment quantities, square footage, emerging
trends, and programming, Boulder can gain valuable insights into where it excels and where
there may be gaps in services or facilities. This comparison helps Boulder refine its approach
to recreation, ensuring it meets the evolving needs of the community.
Survey City Demographics
Of the six cities below, Boulder, Fort Collins, Tempe, and Ann Arbor are the home of major
Universities: University of Colorado, Colorado State University, Arizona State University, and
University of Michigan, respectively. Westminster is the home of Front Range Community
College, Belleview College and Seminary, and DeVry University. South Suburban District is
the home of South Suburban College and Arapaho Community College.
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Table 12: Benchmark City’s Demographics
City Population
Median Age
(2023)
Median Income
(Individual - 2023)
Boulder, CO 108,250 28.8 $148,400
Fort Collins, CO 170,376 30.6 $118,800
Westminster, CO 114,875 37.5 $130,400
South Suburban
District, CO
Serves approx.
157,000 residents in
6 communities
40.2
(Littleton)
$130,400
(Littleton)
Tempe, AZ 189,834 29.9 $101,300
Ann Arbor, MI 119,391 27.7 $119,500
Benchmark Survey Results
While the size and nature of recreation centers vary across and within different cities,
comparisons with peer agencies – along with national benchmarking – provide a useful
baseline for understanding how well served the Boulder community is by City recreation
centers and supporting amenities. For example, of five other parks and recreation agencies
directly surveyed, Boulder has the fewest recreation centers relative to population size and is
on the low end of the square footage per 1,000 residents. Table 13 shows that Boulder
would need to add the equivalent of at least one new recreation center – or 50,000 to
100,000 square feet – to keep pace with peer agencies in Colorado like Fort Collins and
Westminster.
However, it is important to note that with 71 square miles of surrounding open space,
Boulder’s growth management boundary is both strong and unique. As a result, Boulder’s
population has grown at a slower rate than other Colorado communities, and the cost and
availability of land constrains the City’s ability to expand the total square footage of City
recreation centers.
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Table 13: Results from benchmarking square footage per 1,000 residents
City
Population
Number of
Indoor
Recreation
Centers
Residents
per Center
Total
Square
Footage
Square
Footage
per 1,000
Residents
Tempe, AZ 189,834 6 31,639 170,400 898
Ann Arbor, MI 119,391 4 29,848 132,500 1,110
Boulder, CO 108,250 3 36,083 144,600 1,336
Fort Collins,
CO 170,376 8 21,297 347,160 2,037
Westminster,
CO 114,875 6 19,146 239,239 2,083
South
Suburban
District, CO
Serves
approx.
157,000
residents in 6
communities
8 19,625 677,000 4,312
Population Served
Based on the survey results, Boulder noted the fewest indoor recreation centers, with each
center serving a greater population than the other benchmark locations.
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Existing Pool Data Analysis
*The following analysis was provided by Counsilman-Hunsaker, aquatics planning and
design firm.
15-Minute Service Area
NRPA recommends that community members have access to a pool within a 15-minute
drive-time service area. Based on the analysis performed, three indoor pools were identified
within the City system:
Figure 30 shows the 15-minute
drive area for each of the
three indoor rec centers
• North Boulder Recreation
Center (blue boundary)
• East Boulder Community
Center (orange boundary)
• South Boulder Recreation
Center (red boundary)
Figure 30: Location of NBRC (blue), EBCC (orange), SBRC (red), and their corresponding 15-minute drive times
Standards & Comparison
According to the NRPA report, the recommended amount of water per 1,000 residents is 110
square feet and should be a mix of traditional lane usage as well as recreational water
activities. A balanced system should also include both indoor and outdoor water.
The following table analyzes Boulder’s water offering to its community members, taking into
account indoor, training, and recreational water, calculating all its square footage and
comparing it to NRPA’s baseline recommendation. The findings show that in all water
typologies, Boulder is at an excess.
* Indoor is all square footage of indoor water. Training is square footage of lap lanes, and recreation
is all indoor water as lap lanes double as recreational space.
Indoor Water SF 18,033.00 18,033.00 171.49 SF / 1,000 1,000 110.0 SF / 1,000 11,567 Meets Standard - Square Feet (6,466)
Training Water SF 12,760.00 12,760.00 121.34 SF / 1,000 1,000 110.0 SF / 1,000 11,567 Meets Standard - Square Feet (1,193)
Recreational Water SF 18,033.00 18,033.00 171.49 SF / 1,000 1,000 110.0 SF / 1,000 11,567 Meets Standard - Square Feet (6,466)
AQUATIC FACILITIES CURRENT Standards GAP (EXCESS)
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Conclusions
The following conclusions can be taken from the data above.
• When analyzing the current aquatic facilities in relationship to a 15-minute drive-time
service area, the majority of the Boulder city limits are within those boundaries.
• The City of Boulder has a strong mix of the primary aquatics categories for types of
pools (indoor, outdoor, training, and recreation) with three indoor facilities and two
outdoor facilities.
• Comparing the total square footage of water in the current Boulder aquatics system
to standards for the primary aquatic categories results in the following:
o Indoor – Excess capacity of 6,466
o Training – Excess capacity of 1,193
o Recreation – Excess capacity of 6,466
o Indoor water specific to recreation is the least represented category in terms
of overall size based on Boulder’s population, though the lap pools can
support recreational activities.
• Although this Standards and Comparison data shows that Boulder has excess
capacity for all three types of pools, the benchmarking survey results and community
engagement findings illustrate that the current aquatics amenities are all over-
utilized and additional lap lanes are one of the highest priorities for Boulder’s
community. The data shows excess availability of lap lanes in Boulder, but
community members desire additional lap lanes.
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Community and Boulder Valley School District
(BVSD) Aquatic Recreation
Boulder Parks and Recreation met with the Boulder Valley School District to explore possible
options for meeting the school district’s need for school-sponsored competitive swimming
program within the Parks & Rec indoor recreation centers. While the discussions provided
much to think about, both organizations decided that the renovation of the East Boulder
Community Center was not the right project and agreed to table this discussion for other
possible future projects.
If a competitive pool is going to be built through an equity partnership with the Boulder
Valley School District (BVSD), this would likely be a 50 meter by 25-yard pool (20-22 lanes in
the yard configuration/8 in the 50 meter). There would be two 1-meter diving boards and
spectator seating for 750. There would also be a small teaching pool (2,800 SF) and the
required support spaces for the center (offices, meet room, dryland training, concessions,
and locker rooms). 45,000 to 55,000 SF.
Competitive, cold-water swimming
To better understand the use of City lap lanes for competitive swimming versus leisure
swimming, this needs assessment process included surveying BVSD high school swim
coaches and reviewing use statistics at each recreation center. This analysis will inform
ongoing conversations with BVSD, swim clubs, and the general public regarding practice
locations, times, lane availability, and additional aquatic facility needs.
BVSD currently relies heavily on the City of Boulder’s Parks and Recreation facilities, using
the North Boulder and South Boulder Recreation Center for swim team practices and meets.
Although the City maintains a strong aquatic network with an indoor water surplus relative
to Boulder’s population, BVSD swim teams face challenges related to overcrowded lanes,
limited practice time availability, and difficulty securing suitable facilities for large meets.
Survey feedback from individual high schools further illustrates that current facility sharing
arrangements restrict optimal athlete training and spectator seating. Table 6 below
summarizes responses from five high schools within the Boulder Valley School District (BVSD):
Monarch, Boulder, Broomfield, Centaurus, and Fairview. While the City of Boulder recreation
centers only serve two of these schools (Boulder and Fairview), this matrix offers a
comparative look at each school’s current aquatic programming, participation levels, facility
usage, operational challenges, and projected needs.
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Table 14: Results from Surveying BVSD Swim Coaches
In addition to swimming lane needs, several BVSD teams highlighted a lack of adequate
diving facilities. Existing City facilities lack 1-meter or 3-meter diving boards and the
necessary water depth for safe diving practice. As a result, teams are forced to split
practices between multiple locations, creating logistical challenges and limiting training
opportunities for student divers. One example being Boulder High School using the North
Boulder Recreation Center for swim team practice and the Broomfield Community Center for
their divers.
City recreation centers are not well suited for competitive swimming – whether for BVSD or
other organized competitive swims. For example, both pools and the supportive spaces
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around pools (e.g., decks, spectator seating, locker rooms) are not designed to host meets. In
addition, competitive swimming is not strongly aligned with BPR’s mission to serve the
general public, regardless of age, disabilities and skill-level. In fact, only 22% of public parks
and recreation agencies across the country provide competitive pools. In addition,
recreational activities such as family swim times, swimming lessons, and swimming for
health and wellness are often underserved when competitive swim practices and meets are
held during prime-time hours. Table 15 below demonstrates the effect organized swims have
on open, leisure lap swimming across all 3 locations.
Table 15: Effects of competitive swimming on lane availability
Total
Lane
Hours
Adult
Group
Usage
Youth
Group
Usage
Total Use by
Organized
Swims
Usable
Remainin
g %
Peak hours
6-8am 220 18% 16% 34% 56%
4-7pm 330 7% 55% 62% 28%
Total 550 11% 40% 51% 39%
Off-peak hours
After 7pm 185 2% 24% 26% 72%
Total 185 2% 24% 26% 72%
The story becomes even clearer when focusing on NBRC and SBRC, because EBCC does not
support competitive practices or meets. In North and South Boulder alone, organized swims
(intermediate through competitive) take up 65 to 85% of lap lanes during prime-time hours
between October and April. This use leaves little time and space to support open,
recreational swimming.
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Program Recommendations for Indoor Recreation
in Boulder
Utilizing information gathered from the Programs and Facilities Assessment, the Benchmark
Survey, Public Input, and National Trends reports, the following are recommendations for
Boulder Community Centers from now through ten years in the future.
The tables below for core and optional amenities list the amenity, a short definition of what
the amenity includes, and the recommended range for square feet across the system.
Core Amenities/Opportunities
Table 16: Core Amenities that Facilities across the system should include:
Core Amenity Definition Recommended
Range SF across the
system
Aquatics – Overall Overall aquatic center, (includes water surface
area shown below plus support areas)
45,000 – 60,000 SF
Aquatics – Lap Pool
(water surface area
only)
25-yard lap/competitive pool.
24 lap lanes system-wide
13,200 SF
Aquatics –
Recreation
(water surface area
only)
Warm water/recreation pools that could include
a slide, zero depth entry, lazy river, and
interactive play features.
9,000 – 15,000 SF
Gymnasium
6 basketball courts that can be used for multiple
sports such as: 2 volleyball courts and up to 6
pickleball courts overlaying the two full-sized
basketball courts. Spectator seating
requirements will need to be determined.
36,000 – 45,000 SF
Group Exercise 3 large group exercise room
4,500 – 6,000 SF
Mind & Body Space 3 smaller mind & body space
3,000 – 4,500 SF
Cardio and
Weights/Functional
Training
3 large areas that can support functional
training as well as more traditional weight and
cardio equipment.
15,000 – 30,000 SF
Multipurpose Room 3 larger divisible spaces with multiple rooms to
support a broad range of activities. At
6,000 – 9,000 SF
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minimum, this should include 2 spaces of 1,000
SF each or 3 spaces of 1,000 SF each.
Child Watch Room 1-3 rooms with a unisex restroom and a small
outdoor playground. This is designed to be
licensed.
3,000 SF
Birthday Party/
Wet Classroom
1-3 divisible rooms that can be used for birthday
parties associated with the pool and also serves
as a wet classroom for lifeguard classes, etc.
2,400 SF
Optional Amenities/Opportunities
Other optional amenities that could be considered on an individual center basis include:
Table 17: Optional Amenities
Optional Amenity Definition Range for 1 Center
Age Well A space that serves older adults, this may include
utilization of other spaces such as the
multipurpose room and fitness area. This space
should include an office area, lounge space and
social service rooms/offices.
2,000 – 5,000 SF
Gymnastics Room A room that supports youth gymnastics.
Includes a spectator viewing area.
10,000 – 15,000 SF
Dance Room A room with specialized dance flooring. 1,000 – 1,500 SF
Teaching Kitchen A kitchen with a large table for classes. 400 – 600 SF
Mind & Body
Studio
A third studio 1,000 – 1,500 SF
Youth/Teen
Space
An area that can serve a variety of teen needs. 1,000 – 2,000 SF
Walk/Jog Track An elevated walk/jog track that goes around the
perimeter of the gym and possibly fitness spaces.
Square footage varies based on size and layout.
Fieldhouse A turfed area for traditional outdoor sports, size of
field will determine the square footage.
20,000 – 45,000 SF
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Outdoor Fitness
Area
A fenced in area with some portion covered.
Contains outdoor functional fitness amenities. The
area is easily accessible from an indoor fitness
area.
E-Sports Room A room that is set up for e-sports competition.
1,000 – 1,500 SF
Ninja Room
A room that can be used for youth Ninja training
and activities.
1,000 – 1,500 SF
Nature Room A room with a small mud room attached that
opens to the outdoors with a garage door.
Provides access to other outdoor elements such as
garden areas and natural areas.
1,000 SF
Arts & Craft
Studio
A room that is able to handle wet crafts. 1,000 – 4,000 SF
Catering Kitchen A kitchen with a large table for classes built in
conjunction with a multi-purpose room
300 – 400 SF
Spin Room A room for at least 20 spin bikes.
1,000 – 1,500 SF
Pre-School Room A room with a unisex restroom attached. Also has
a small outdoor play area. Is set up to be licensed.
1,000 SF
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Existing Limitations
The following facility limitations for each of the three centers were identified through the
Recreation Programming and Facility Assessment.
East Boulder Community Center
Facility Limitations:
• Gym Space – Insufficient space for traditional gym sports, racquet sports, and
summer camps.
• Group Exercise & Fitness Areas – Small and limited.
• Climbing wall – underutilized; Does not meet the community’s expectation for a
climbing space.
• Warm Water Aquatics – No dedicated warm water area for older adults; expanding
into the outdoor deck is suggested.
• Lap Swimming – High demand for more lanes and competitive swim training.
• Birthday Party Rooms – Currently held in shared spaced only.
• Community Rooms – Need improved finishes and a potential redesign.
• Commercial Kitchen - Commercial kitchen has been historically under-utilized. It no
longer conforms to current building codes.
• Childcare – Needs renovation for licensing and relocation for visibility from the front
desk.
• Turf-Based Sports – No indoor turf area, though it's a lower priority.
• Deferred Maintenance – Existing issues impact usability and operations.
• Safety & Security – A single-point entry, cameras, and alarmed access points are
needed.
• Building Flow – Poor front desk visibility and long corridors make supervision difficult.
• Locker Rooms – Need gender-neutral options and individual showers with private
changing stalls.
• Technology – Requires improved cell service, hearing loops, video boards, and
check-in screens.
• Parking – Issues arise near the Older Adults section and during peak field usage;
more handicap spaces are needed.
• Storage & Office Space – Renovations should include increased storage and office
areas.
• Cooling/Warming Center – Requires designated storage and other functions for
emergency shelter use.
• Equity & Accessibility – Should remain central to future facility and program
development. This facility is located within walking distance of public housing.
Transportation is a key issue for accessing this center.
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South Boulder Recreation Center
Facility Limitations:
• Gym & Group Exercise Space: Undersized for sports and fitness programs.
• Fitness: More space needed for equipment demand.
• Aquatics: Shared water body limits program flexibility.
• Multi-purpose Space: Insufficient for program needs.
• Building condition and site constraints: As described in the 2022 Parks and
Recreation Department plan and the 2021 Facilities Plan, this building is not a
candidate for renovation.
North Boulder Recreation Center
Facility Limitations:
• Gym Space: Undersized for traditional sports and cross-court use.
• Group Exercise Space: Insufficient room for fitness classes; consider repurposing the
racquetball court.
• Fitness: Even with expansion, a larger space is needed for equipment.
• Gymnastics: More space needed, with added storage and spectator viewing.
• Multi-purpose Space: High demand due to diverse activities.
• Lap Swimming: Need for more lanes and training space.
• Birthday Party Rooms: Currently lacking, would help with program space.
• Childcare: Renovation needed for licensing and outdoor shade.
• Deferred Maintenance: Impacting operations and usage.
• Parking: Limited parking space constrains program expansion.
• Site Size: Small site limits building expansion.
• Safety & Security: Improve access control, camera systems, and alarms.
• Locker Rooms: Need gender-neutral restrooms and individual shower stalls.
• Aquatics: Outdoor deck space is underutilized and additional lap lanes desired.
• Technology: Improve Wi-Fi, video boards, and check-in systems.
• Storage/Office Space: Increase storage and office space, eliminate spiral staircase
offices.
• Iris Studio: Replace with more parking.
• Equity & Accessibility: Priority for future facilities and programs. This center is
adjacent to public housing.
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Outstanding Needs
The above recommendations do not include the following amenities desired by some
community members, but not feasible in a constrained financial landscape.
Aquatics – Overall; Even though Boulder’s Aquatics has been identified as more than
adequate through the recommended area for the Boulder’s current population and through
the benchmarking surveys of comparable cities, we understand that Boulder’s swimming
community is robust and may desire more lap lanes and other amenities that are not being
recommended via the above tables. This may be especially true as Boulder grows in
population.
Aquatics - Recreation: Boulder is within range of peer communities for warm water aquatic
activities, and the Boulder community also shared desires for additional warm water space
for older adults and youth.
The majority of the amenity service needs within this category have met the
recommendations via the proposed renovations and new build of the current centers.
The amenities that have not been met in this way and are therefore a gap in terms of
recommended square footage areas are the Nature Room, Arts & Crafts Studio, small
Catering Kitchen, Spin Room, and Pre-school room. These areas were not prioritized in the
engagement sessions that have been conducted for this needs assessment.
Engagement feedback did identify that the current climbing wall at EBCC did not meet the
expectations of the community, especially when compared with Boulder’s private climbing
gyms.
Even though other benchmark cities provide ice rinks as an amenity, this amenity has also
not been prioritized by the community.
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Implementation Plans
This report forms a foundation for renovation of EBCC as funded through the 2021 CCRS tax,
short-term maintenance at SBRC and NBRC, as well as incorporation of priority needs into
the City’s Long Term Financial Strategy. It also suggests that outstanding needs and
additional opportunities to improve levels of service may be explored if additional funding
were secured.
At the same time, some community members are expressing desire for the City to do
more. These realities require having honest conversations with the community about
whether and how levels or qualities of service may need to shift if additional funding is not
secured.
As part of the separate Fund Our Future project, the City is committed to conducting
engagement over the next year, with input opportunities beginning in the fall of 2025.
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Appendices
Appendix 1: Aquatic Center Energy Use
Figure 31: Aquatic Centers Energy Use
Source: January 11th, 2024 Facilities Update
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Appendix 2: Benchmarking Site Energy Use
Benchmarking is a means of comparing similar buildings, which helps inform performance
targets and peer facilities in the area.
Energy use data was obtained from the City of Boulder Parks and Recreations three
recreation centers, the City of Denver Building Performance database, the City of Seattle
Building Performance database, Oregon Department of Energy Building Performance
Standards Energy Use Intensity Targets, and Colorado’s Building Performance Standards
(BPS).
Values are expressed in Energy Use Index (EUI), which is energy use normalized by area and
Site Energy. Site Energy is the energy that is directly consumed on site, and contrasts with
‘Source Energy,’ which includes upstream energy such as transmission losses.
Both East Boulder Community Center and North Boulder Recreation Center consume
approximately 240 kBtu/sf/year of ‘Site Energy’. The exact values for 2022-2023 are 240.0
and 239.5, respectively. Meanwhile. Existing facilities built before modern codes can vary
greatly in terms of ventilation supplied and comfort conditions, so lower energy is not
always indicative of high performance, particularly if a facility lacks in key aspects related to
health. Lack of utilization of space can also lead to low EUI values but would not score well
on a metric such as Energy Use per Benefit Provided.
There is a lack of benchmark data for recreation centers, making it challenging to set
appropriate energy performance targets. The Commercial Buildings Energy Consumption
Survey (CBECS), the industry standard for benchmark energy data, includes a category titled
“Other – Recreation,” but its relevance is limited. For example, the median energy use for this
category in Boulder’s 80301 zip code is 43 kBtu/sf/yr — a figure likely too low for facilities
that include energy-intensive features like natatoriums, which are present in all three of
Boulder’s recreation centers. Given these limitations, Boulder can look to Denver’s Building
Performance Ordinance as a more applicable reference. Denver’s sector-specific,
percentage-based EUI reduction targets offer a data-driven, regionally relevant framework
that considers varied building types and starting points. Adapting these targets would allow
Boulder to set realistic and equitable energy goals for its recreation centers, accelerate
progress toward net zero, and support regional consistency in building performance
standards.
The University of Colorado at Boulder renovated and expanded their Recreation Center
roughly a decade ago, and tracked performance is 77 kBtu/sf/yr, as indicated in the
February 2022 Energy Master Plan. It is important to note that this facility includes an Ice
Rink and an outdoor pool in addition the indoor competition pool, driving energy usage up.
Further, while the recover heat from the ice rink to heat their pools, supplemental heating is
provided by a gas boiler and not a heat pump, leaving room for improvement with respect
to using this project to set a target.
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*Note: energy use data obtained from the City of Boulder included solar PV production and
net metering for electricity use. To obtain energy use before renewables, these data points
were added together as coordinated with the City of Boulder.
Figure 32: Existing Energy Use Intensity (EUI) for EBCC, SBRC, and NBRC
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Location Name EUI description
Acutal EUI
(kBTU/sqft yr)
Target EUI
(kBTU/sqft yr) % Reduction
Boulder CU boulder
Actual
Performance 71.0
Boulder East Boulder
Actual
Performance 240.0
Boulder North Boulder
Actual
Performance 240.0
Boulder South Boulder
Actual
Performance 124.0
Colorado
Colorado EUI
target
Building
Performance
Standard 114.5 81.5
Denver Carla Madison
(Building
Performance
Map) 178.1 82.4 46.27%
Denver
Martin Luther
King Recreation
Center
(Building
Performance
Map) 174.0 110.3 63.39%
Denver
Central Park
Recreation Center
(Building
Performance
Map) 162.0 79 48.77%
Seattle
Meadowbrook
Pool Seattle
(Building
Performance
Map) 177.2
Seattle
Medgar Evers
Pool
(Building
Performance
Map) 386.1
Seattle
Green Lake
Community
center
(Building
Performance
Map) 246.5
Seattle
Oregon EUI
target
Building
Performance
Standard 88
192.1 88.2 52.8%
* Baselines are gathered from Cities, states and municipalities with Building performance standards which require
actual energy use as well as building performance targets.
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Figure 33: Energy Design Options
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Appendix 3: Existing Plans
East Boulder Community Center
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South Boulder Recreation Center
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North Boulder Recreation Center
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Appendix 4: Benchmarking Survey Questions
An online form was used to collect responses from the benchmark communities.
Preliminary Data Gathered
• Organization Name
• Name of Respondent
• Title
• Contact Information
Specific Data Gathered
Questions about the recreation center, its services and amenities
• How many indoor Recreation Facilities do you operate?
• How are these areas of your facility utilized? Over-utilized, Well-utilized, Under-
utilized, Not Provided?
o Strength training
o Cardio equipment
o Functional fitness
o Competitive swimming
o Lap swimming
o Leisure aquatics
o Yoga/Mind-Body
o Group classes
o Spin classes
o Dance
o Indoor community gathering
o Multi-use gymnasium activities (basketball, volleyball, small racquet
sports)
o Indoor racquet sports
o Food or beverage services (besides vending machines)
o Indoor walking/running
o Indoor climbing
o Indoor tennis
o Indoor turf sports
o Ice rink
• What other dedicated activity spaces does your facility have?
• What other shared-space activities are provided?
• Number of locations offering strength training
• Total square feet dedicated to strength training, if known
• Total number of strength pieces of training
• Number of locations offering cardio
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• Total square feet dedicated to cardio
• Total number of cardio machines
• Number of locations offering functional fitness
• Total square feet dedicated to functional fitness
• Number of competitive pools
• Number of competitive lanes
• Total number of competitive 50M lanes
• Total number of spectator seats
• Do you provide diving?
• Same as competitive swimming
• Total number of additional lap pools
• Total number of additional lap lanes
• Total number of additional lap 50M lanes
• Do you provide diving?
• Number of recreational pools
• Total square feet dedicated to recreational pools
• Provided amenities
o Slides
o Interactive play features
o 0-depth beach entry
o Lazy river
o Swim lanes/lesson areas
• Please describe the recreational pool amenities provided
• Number of locations offering yoga/mind-body
• Total number of square feet provided for yoga/mind-body
• Number of classes provide weekly
• Please describe the type and number of each class
• Number of locations with spin classes
• Total number of square feet dedicated to spin classes
• Total number of bikes
• Number of locations offering dedicated dance space
• Total number of square feet provided for dance
• Number of locations offering indoor community gathering
• Total number of square feet dedicated to spin indoor community gathering
• Please describe the indoor community gathering spaces
• Number of locations offering a gymnasium
• Total square feet dedicated to gymnasium
• Total number of full-size basketball courts
• Please describe the gymnasium and uses
• Number of locations offering indoor tennis
• Total number of dedicated indoor tennis courts
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• Number of locations offering dedicated indoor pickleball courts
• Total number of dedicated indoor pickleball courts
• Total number of pickleball courts provided in multi-use spaces
• Number of locations offering indoor racquetball/handball courts
• Total number of indoor racquetball/handball courts
• Number of locations offering food and beverage (exclude vending only locations)
• Please Describe the food and beverage offerings
• Number of locations offering indoor track space
• Number of laps per mile (average)
• Other information about walking/running
• Number of locations offering indoor climbing
• Total square feet dedicated to indoor climbing
• Number of locations offering indoor turf sport
• Total square feet dedicated to indoor climbing turf sport
• Please describe the indoor turf spaces and use
• Number of locations offering indoor ice rinks
• Total square feet dedicated to indoor ice rinks and support
• Total number of indoor ice rinks
• Popular services or programs on or around the ice rinks
• What emerging trends in indoor recreation have you noticed over time?
• Have you added or updated rec center amenities or services to accommodate
these trends?
• What improvements did you make?
• Do you partner with nearby organizations, school districts, or universities to
provide services?
• Which services do you partner together?
o Competitive swimming
o Lap swimming
o Dance
o Community gathering
o Food or beverage service
o Other entries
• How do you partner with nearby schools or organizations to provide shared
services?
• Are there indoor recreation amenities or services that school districts provide so
you do not need to?
• Are there any lessons learned you’d like to pass along?
• How do you integrate nature and the outdoors into your indoor recreation
centers?
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Appendix 5: Benchmarking Survey Analysis
Benchmark Survey Results
Population Served
Based on the survey results, Boulder noted the fewest indoor recreation centers, with each
center serving a greater population than the other benchmark locations.
City Population
Number of Indoor
Recreation Centers
Population served
per Center
Boulder, CO 108,250 3 36,083
Fort Collins, CO 170,376 8 21,297
Westminster, CO 114,875 6 19,146
South Suburban
District, CO
Serves approx.
157,000 residents in
6 communities
8 19,625
Tempe, AZ 189,834 6 31,639
Ann Arbor, MI 119,391 4 29,848
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Utilization
The benchmarking survey listed seventeen amenities and asked if they were over-utilized,
well utilized, under-utilized, or not provided. If the chart line drops below the Not Provided
line, it means the question for that amenity was not provided.
The following tables illustrate the number of facilities that each location provides for specific
amenities, the population served by each facility, the quantity of equipment, spaces, or
lanes, and the number of residents per equipment/machine, space, or lanes.
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Cardio Equipment
Boulder’s ratio of residents to cardio equipment/machine is slightly lower than Fort Collins
and quite a bit lower than Westminster.
CARDIO
EQUIPMENT
Number of
Locations
Population Residents
served per
location
Qty of
Machines
Residents
per Machine
Boulder, CO 3 108,250 36,083 60 1,804
Fort Collins, CO 3 170,376 56,792 80 2,130
Westminster, CO 5 114,875 22,975 30 3,829
South Suburban 7 157,000 22,429 No
response
No response
Tempe, AZ 4 189,834 47,459 No
response
No response
Ann Arbor, MI No
response
119,391 No response No
response
No response
Strength Training Equipment
Boulder has a much lower resident per strength training equipment/machine ratio than Fort
Collins and Tempe facilities.
STRENGTH
TRAINING
EQUIPMENT
Number of
Locations
Population Residents
served per
location
Qty of
Machines
Residents
per Machine
Boulder, CO 3 108,250 36,083 68 1,592
Fort Collins, CO 3 170,376 56,792 60 2,840
Westminster, CO 5 114,875 22,975 No
response
No response
South Suburban 6 157,000 26,167 No
response
No response
Tempe, AZ 4 189,834 47,459 16 11,865
Ann Arbor, MI No
response
119,391 No response No
response
No response
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Spin Bike Equipment
Boulder has a much lower resident per bike ratio than Fort Collins and Westminster facilities.
SPIN BIKES Number of
Locations
Population Residents
served per
location
Qty of
Bikes
Residents
per Bike
Boulder, CO 2 108,250 54,125 46 1,177
Fort Collins, CO 1 170,376 170,376 20 8,519
Westminster, CO 1 114,875 114,875 25 4,595
South Suburban 3 157,000 52,333 No
response
No response
Tempe, AZ No
response
189,834 No response No
response
No response
Ann Arbor, MI No
response
119,391 No
response
Gymnasiums
With regards to gymnasiums, Boulder is mid-range of the benchmark cities with Fort Collins
and South Suburban serving fewer residents per gymnasium and Westminster and Temper
serving more residents per gymnasium.
GYMNASIUMS Number of
Locations
Population Residents
served per
location
Qty of full
-size BB
courts
Residents
per full-size
BB court
Boulder, CO 3 108,250 36,083 3 36,038
Fort Collins, CO 3 170,376 56,792 5 34,075
Westminster, CO 2 114,875 57,436 2 57,436
South Suburban 5 157,000 31,400 5 31,400
Tempe, AZ 4 189,834 47,459 4 47,459
Ann Arbor, MI No
response
119,391 No response No
response
No response
Aquatics – Competitive Lanes
Boulder is mid-range with regards to competitive lanes. Fort Collins serves fewer residents
per competitive lane and Westminster serves more residents per competitive lane.
AQUATICS
Competitive
lanes
Number of
Competitive
Pools
Population Residents
served
per
location
Qty of
Competitive
Lanes
Residents
per Lane
Boulder, CO 2 108,250 54,125 14 7,732
Fort Collins, CO 2 170,376 85,188 32 5,324
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(10 50-meter)
Westminster, CO 1 114,875 114,875 8 14,359
South Suburban 0 157,000 0 0 0
Tempe, AZ 1 189,834 189,834 17
(7 50-meter)
11,167
Ann Arbor, MI 4 119,391 29,848 No response No
response
Aquatics – Lap Lanes
Boulder is also mid-range with regards to lap lanes. South Suburban and Tempe serves
fewer residents per lap lane and Westminster and Fort Collins serves more residents per lap
lane.
AQUATICS
Lap lanes
Number of
Lap Pools
Population Residents
served per
location
Qty of
Lap Lanes
Residents
per Lane
Boulder, CO 1 108,250 108,250 8 13,531
Fort Collins, CO 1 170,376 170,376 4 42,594
Westminster, CO 1 114,875 114,875 4 28,719
South Suburban 3 157,000 52,333 12 13,083
Tempe, AZ 2 189,834 94,917 13 14,603
Ann Arbor, MI 0 119,391 0 0 0
Aquatics – Recreation
Concerning recreation aquatics, the benchmark survey question asked how many locations
provided recreation pools and what amenities were available. This table shows the number
of residents served per location with Boulder falling in mid-range.
AQUATICS
Recreation
Number of
Recreation
Pools
Population Residents
served per
location
Boulder, CO 2 108,250 54,125
Fort Collins, CO 2 170,376 85,188
Westminster, CO 3 114,875 38,292
South Suburban 3 157,000 52,333
Tempe, AZ 4 189,834 47,459
Ann Arbor, MI 4 119,391 29,848
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This illustration lists the recreation pool features
each of the benchmark cities provides. All the
locations include slides, interactive play, and
zero-depth entry. All the Colorado locations –
Boulder, Fort Collins, Westminster, and South
Suburban – provide a lazy river. The other
amenities that communities have that Boulder
and Westminster do not provide within their
recreation pools are swim lanes and lesson
areas.
Other Amenities
For all other indoor amenities, we asked for the number of locations that offered these
amenities. Some of the responses to these questions listed the total number of amenities as
opposed to the number of locations.
Yoga/Mind-Body
Again, Boulder falls in mid-range with South Suburban and Westminster serving less
residents per location and Tempe and Fort Collins serving more residents per location
Yoga/
Mind-Body
Number of
locations
Population Residents
served per
location
Boulder, CO 3 108,250 36,083
Fort Collins, CO 3 170,376 56,792
Westminster, CO 4 114,875 28,719
South Suburban 8 157,000 19,625
Tempe, AZ 5 189,834 37,967
Ann Arbor, MI 0 119,391 0
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Functional Fitness
Again, Boulder falls in mid-range with South Suburban and Westminster serving less
residents per location and Tempe and Fort Collins serving more residents per location
Functional
Fitness
Number of
locations
Population Residents
served per
location
Boulder, CO 3 108,250 36,083
Fort Collins, CO 3 170,376 56,792
Westminster, CO 4 114,875 28,719
South Suburban 8 157,000 19,625
Tempe, AZ 5 189,834 37,967
Ann Arbor, MI 0 119,391 0
Dedicated Dance Class
Compared to its peers, Boulder lacks dedicated dance class space. NRBC and EBCC have
dance classrooms that have special dance flooring, but these rooms are not solely
dedicated to dance classes. These spaces are also used for other types of classes.
Dedicated
Dance Class
Number of
locations
Population Residents
served per
location
Boulder, CO 0 108,250 0
Fort Collins, CO 2 170,376 85,188
Westminster, CO 2 114,875 57.438
South Suburban 4 157,000 39,250
Tempe, AZ 3 189,834 63,278
Ann Arbor, MI 0 119,391 0
Pickleball Courts
Indoor pickleball courts are also lacking in Boulder’s recreation centers.
Functional
Fitness
Number of
courts
Population Residents
served per
court
Boulder, CO 9 108,250 12,027
Fort Collins, CO 9 170,376 18,931
Westminster, CO 7 114,875 16,411
South Suburban 21 157,000 7,476
Tempe, AZ 8 189,834 23,729
Ann Arbor, MI 0 119,391 0
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Racquet Ball/Handball Courts
Of the six cities surveyed, only three provided indoor racquet ball/handball courts, with
Boulder serving close to twice as many residents as Westminster and South Suburban.
Racquet Ball/
Handball Courts
Number of
locations
Population Residents
served per
court
Boulder, CO 1 108,250 108,250
Fort Collins, CO 0 170,376 0
Westminster, CO 2 114,875 57,438
South Suburban 3 157,000 52,333
Tempe, AZ 0 189,834 0
Ann Arbor, MI 0 119,391 0
Tennis Courts
Of the six cities surveyed, South Suburban is the only city that provides indoor tennis courts.
Tennis Courts Number of
locations
Population Residents
served per
court
Boulder, CO 0 108,250 0
Fort Collins, CO 0 170,376 0
Westminster, CO 0 114,875 0
South Suburban 2 157,000 78,500
Tempe, AZ 0 189,834 0
Ann Arbor, MI 0 119,391 0
Track Space
Boulder, Tempe, and Ann Arbor do not provide track space for walking or running. Fort
Collins, Westminster, and South Suburban provide tracks at differing lengths.
Track Space Number of
locations
Population Residents
served per
location
Number
laps per
mile (avg)
Length
of track
(avg)
Boulder, CO 0 108,250 0 0 0
Fort Collins, CO 2 170,376 85,188 13 123 yds
Westminster, CO 1 114,875 114,875 4 440 yds
South Suburban 3 157,000 52,333 12 146 yds
Tempe, AZ 0 189,834 0 0 0
Ann Arbor, MI 0 119,391 0 0 0
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Indoor Turf Space
Only Westminster and South Suburban provide indoor turf space.
Indoor Turf
Space
Number of
locations
Population Residents served
per location
Boulder, CO 0 108,250 0
Fort Collins, CO 0 170,376 0
Westminster, CO 1 114,875 114,875
South Suburban 2 157,000 78,500
Tempe, AZ 0 189,834 0
Ann Arbor, MI 0 119,391 0
Ice Sheets
Of the six cities surveyed, South Suburban is the only city that provides indoor tennis courts.
Ice Sheets Number of
locations
Population Residents served
per sheet
Boulder, CO 0 108,250 0
Fort Collins, CO 2 170,376 85,188
Westminster, CO 0 114,875 0
South Suburban 5 157,000 78,500
Tempe, AZ 0 189,834 0
Ann Arbor, MI 1 119,391 119,391
Food and Beverage (excluding vending only locations)
Boulder does not provide food and beverage within any of the indoor recreation centers.
Fort Collins has a Contractor who works out of our concession area for our season City Park
Pool. South Suburban has full restaurants and bars in its three locations. Tempe provides
chicken tenders, wings, pizza, nachos, hot dogs, brisket, fries, onion rings, and soda. Ann
Arbor’s golf courses offer hot dogs and pre-made sandwiches for sale. One of their courses
also has a liquor license and serves beer, wine, and spirits.
Food and
Beverage
Number of
locations
Population Residents served
per location
Boulder, CO 0 108,250 0
Fort Collins, CO 1 170,376 170,376
Westminster, CO 0 114,875 0
South Suburban 3 157,000 52,333
Tempe, AZ 1 189,834 189,834
Ann Arbor, MI 2 119,391 0
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There are two remaining activities that were surveyed, Indoor Climbing and Community
Gathering. Westminster has only one indoor climbing location that serves 114,875 residents.
Boulder’s also has one small climbing wall located at the East Boulder Community Center.
The question concerning Community Gathering asked how many locations provide this type
of space. Some respondents answered with the number of locations and other respondents
answered with the number of spaces. This variation in responses, location versus quantity,
makes it difficult to compare.
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References
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References
Boulder Facilities and Fleet. (2021). Boulder Facilities Master Plan. Boulder, CO.
Boulder Parks and Recreation. (2012). Boulder Parks and Recreation Master Plan Update:
Indoor Recreation Facility Assessment, Boulder, CO.
Boulder Parks and Recreation. (2015). Boulder Aquatics Feasibility Study. Boulder, CO.
Boulder Parks and Recreation. (2022). Boulder Parks and Recreation Master Plan Update,
Boulder, CO.
Boulder Parks and Recreation Advisory Board (PRAB). (06.26.23) Matters from the
Department, PRAB Packet.
Boulder Parks and Recreation Advisory Board (PRAB). (11.18.24) Matters from the
Department, PRAB Packet.
Boulder Parks and Recreation Advisory Board (PRAB). (02.24.25) Matters from the
Department, PRAB Packet.
City of Boulder. (2017). Boulder’s Climate Commitment. Boulder, CO.
City of Boulder. (2017). Engagement Strategic Framework: Proposal to Boulder City Council.
Boulder, CO.
City of Boulder. (2021). Racial Equity Plan. Boulder, CO.
City of Boulder. (unk). Resilience Strategy. Boulder, CO.
Farnsworth Group. (2016). Facilities Strategic Plan. Boulder, CO.
American Community Survey Data. (2024, 07 31). Retrieved from United States Census
Bureau: https://www.census.gov/programs-surveys/acs/data.html
Boulder Britannica. (2025, 01 30). Retrieved from Britannica:
https://www.britannica.com/place/Boulder-Colorado
Boulder, CO. (2023). Retrieved from Census Reporter:
https://censusreporter.org/profiles/16000US0807850-boulder-co/
Boulder, CO 2025 and 2036 projected population. (2025, 02 27). Retrieved from Aterio:
https://www.aterio.io/insights/us-population-forecast/co/boulder
Boulder, CO Census Place. (2023). Retrieved from Data USA (Deloitte):
https://datausa.io/profile/geo/boulder-co/
NASA. (n.d.). Geology of Boulder, Colorado. Retrieved from Nasa Earth Observatory:
https://earthobservatory.nasa.gov/images/8307/geology-of-boulder-colorado
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References
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National Oceanic and Atmospheric Administration. (2025, 03 16). Climate Data Online.
Retrieved from NOAA National Centers for Environmental Information:
https://www.ncdc.noaa.gov/cdo-
web/datasets/GHCND/stations/GHCND%3AUSC00050848/detail
QuickFacts, Boulder City, Colorado. (n.d.). Retrieved from United States Census Bureau:
https://www.census.gov/quickfacts/fact/table/bouldercitycolorado/PST045223
USAFACTS.Org. (2022, 07 20). Our Changing Population: Boulder County, Colorado.
Retrieved from USAFacts: https://usafacts.org/data/topics/people-
society/population-and-demographics/our-changing-
population/state/colorado/county/boulder-county/
Welcome to City-Data. (2025, 03 20). Retrieved from City-Data.com: https://www.city-
data.com/
What's Up Boulder? Events. (2025). Retrieved from City of Boulder:
https://bouldercolorado.gov/events/whatsupboulder
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Contributors
Page | 68
Contributors
Architecture
Perkins & Will
475 Lincoln Street, Suite 100
Denver, Colorado 80203
303.431.6100
Principal-in-Charge: Mira Theisen
Project Manager: Aleks Webster, PhD
Recreation Facilities Planning and Operational Consultant
Ballard*King & Associates, LTD
2743 E Ravenhill Cir,
Highlands Ranch, CO 80126
303.470.8661
Partner in Charge: Ken S. Ballard C.P.R.P
Senior Associate: Jenise Jensen
Aquatics
Counsilman-Hunsaker
2525 South Wadsworth Blvd, Suite 200
Lakewood, Colorado 80227
303.988.4514
Studio Director: Connor Riley, PE
Project Manager: Cole Henry
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177
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: October 27, 2025
A. PRAB Letter to City Council – 2026 Priority Setting
a. Initial discussion to identify key priorities
b. Assign a committee of two members to draft the letter for review at November
meeting.
B.PRAB Matters (Verbal)
178
Parks and Recreation Advisory Board Memorandum
To: Mayor and Members of City Council
From: Staff contact name, title, department
Ali Rhodes, Director of Parks and Recreation
Subject: Parks and Recreation Advisory Board, Letter to City Council
Date: Month Day, Year
Please delete this instruction box before sending.
The purpose of this item is to invite all boards and commissions to formally
communicate to City Council. We request letters, once complete, be sent to City
Clerk’s email, cityclerksoffice@bouldercolorado.gov, by Friday December 19th 2025.
For winter 2025, city council is seeking priority recommendations from boards and
commissions to inform discussions at their 2026 Council Retreat, which will include
setting one-year council priority projects. Priorities this year will be limited in number
and expected to be able to be completed in 12 months or less, due to the change in
council election cycles leading to a November 2026 election. Proposed priorities
should align with the citywide strategic plan and/or existing department plans
for each board/commission.
Please do not exceed two (2) pages total.
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