5A - Recreation Program and Facilities Plan
CITY OF BOULDER
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: February 22, 2010
AGENDA TITLE: Public Hearing and discussion on the Recreation Program and
Facilities Plan
PRESENTER/S: Kirk Kincannon, CPRP, Director
Alice Guthrie, Recreation Superintendent
Abbie Poniatowski, Business and Finance Manager
Teri Olander, Recreation Administrator
EXECUTIVE SUMMARY:
The purpose of this meeting is for the Parks and Recreation Advisory Board (PRAB) to
review and discuss the DRAFT Recreation Program and Facilities Plan (RPFP).
The Recreation Program and Facilities Plan is intended to provide the City with a clear
vision, purpose and philosophy related to providing sustainable recreation services in
Boulder that will meet the community's needs. The plan will establish guiding principles
for providing recreation, define program objectives for recreation services, create an
established pricing policy and methodology for determining fees and develop an
implementation strategy for the overall plan.
Another PRAB Public Hearing and consideration for adoption of the RPFP is scheduled
for March 15, 2010.
BACKGROUND
The 2006 Parks and Recreation Master Plan called for the development of a
comprehensive Recreation Program and Facilities Plan (RPFP) to help guide future Parks
and Recreation Department decisions, as related to the provision of recreation services.
The key tasks associated with the development of the plan include the following work:
• Perform an analysis with staff and stakeholders identifying recreation program
strengths, weaknesses, opportunities and threats (SWOT)
9 Perform a Parks and Recreation industry trends analysis
• Complete a program, service and facility viability assessment
• Complete an inventory of programs, services and facilities in Boulder's service
area
• Perform a recreation needs assessment for the City of Boulder
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• Determine recommendations for a pricing policy and associated methodology
The public input regarding community recreation values and priorities was collected in
2009 and this information will help determine the allocation of recreation resources
during the next five years and into the future. The community recreation value input is
integral to the development of the Recreation Program and Facilities Plan. Coupled with
this value are recreation opportunities provided by the City and the need for the
Department's Recreation Division to become economically sustainable.
To date, feedback has been gathered through a community survey, public open houses,
public feedback through the Department website, and recreation focus groups. The Parks
and Recreation Advisory Board received six updates on the plan as it was being
developed, at monthly Parks and Recreation Advisory Board (PRAB) business meetings
and study sessions. The study session topics covered a wide range of information
including: the plan background research, the internal SWOT analysis, a Program, Service
and Facility Viability Assessment, community survey and the public open house results, a
program "inventory and needs assessment", guiding principles, core programs, program
classification and financial sustainability, feedback from the public workshop, a
framework for recreation offerings, a draft program delivery model and draft plan
components, a review of program and user information, updated information on pricing,
cost recovery and draft policies, recreation program service pricing and methodology, and
PRAB comments on content of the Draft RPFP.
A study session was held in July 2009 to update City Council on the Recreation Program
and Facilities Plan. The key components of the study session discussed the guiding
principles that were developed for the plan, the core program model, pricing methods
cost recovery, program classification and developing a long term financially sustainable
approach to provide recreation services, and fund management.
STAFF RECOMMENDATION:
Staff recommends the PRAB conduct the public hearing and provide feedback to the
Department for the DRAFT Recreation Program and Facilities Plan.
ANALYSIS:
The City of Boulder Parks and Recreation Department, with involvement from the Parks
and Recreation Advisory Board (PRAB), City Council, and the community, has
developed this Recreation Program and Facilities Plan (RPFP) to guide future decisions
related to program offerings, facility management, facility renovation and development,
and the allocation of available financial resources.
The RPFP lays the ground work for achieving a balanced and sustainable approach to
providing programs and facilities and will provide overall guidance and direction to the
Parks and Recreation Department in carrying out the delivery of recreation services.
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Question for the Board:
1. Are there any questions on the RPFP?
NEXT STEPS:
March 15,2010: PRAB Public Hearing and consideration for adoption.
August, 2010: City Council Study Session to review RPFP
ATTACHMENTS:
Attachment A: DRAFT Recreation Program and Facilities Plan
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Attachment A
City of Boulder
Parks and Recreation
of 13004
a
c` "A
Parks & Recreation
Recreation Program
and Facilities Plan
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AGENDA IMA V` A PAGF I
Table of Contents
Chapter 1- Context for the Plan 3
Chapter 2 - Recreation in the Community 13
Chapter 3 - Recreation Programs 20
Chapter 4 - Recreation Facilities 32
Chapter 5 - Funding Challenges and Pricing 45
Chapter 6 - Achieving Financial Sustainability 60
Appendices
A 2009 Recreation Plan Survey Results
B Inventory of other Recreation Providers in the Community
C City of Boulder Recreation Programs
D City of Boulder Recreation Facilities
E Policies (included in this draft)
F Specific Recreation Facility Recommendations
G Program Service and Viability Report
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Chapter 1: Context for the Plan
The City of Boulder Parks and Recreation Department, with involvement from the Parks
and Recreation Advisory Board (PRAB) and the community, has developed this
Recreation Program and Facilities Plan (RPFP) to guide future decisions related to
program offerings, facility management, facility renovation and development, and the
allocation of available financial resources. The completion of the RPFP is considered an
industry "best practices" achievement, and is also a recommendation of the 2006 Parks
and Recreation Master Plan and the 2008 City Manager's Work Group on Recreation
Financing. (See sidebar page xx)
As a result of developing the RPFP, the Department has put strategies into place for
ensuring available resources are allocated to meet identified community needs and
priorities. The RPFP also lays the ground work for achieving a balanced and sustainable
approach to providing programs and facilities.
The RPFP provides current operational baseline and demographic data, identifies guiding
principles, presents critical issues and trends in the community, establishes strategies for
improving financing, outlines new and revised policies, and makes specific
recommendations for implementing the plan.
Population, Demographics and Social Issues
Population increases and demographic trends in the City and Boulder County will affect
future planning for recreation programs, services, and facilities. Some population and
demographic trends are not available for both the city of Boulder and Boulder County,
but information that is available is included in this plan. These estimates are based on
data from the City of Boulder and growth projections from the Denver Regional Council
of Governments. Sources include the Community Foundation's Boulder County Trends
2009; The Status of Children in Boulder County 2008; City of Boulder: A Demographic
Profile (Department of Housing and Human Services, 2004); City of Boulder Census
2000 (prepared by the Boulder Planning Department), Boulder County, the Denver
Regional Council of Governments; the U.S. Census Bureau; and the U.S. Department of
Housing and Urban Development.
City of Boulder
Projected increases in population from 103,650 in 2009 to 130,000 by 2030, will increase
demands on facility and program use by up to 30%. This growth is predicted within
current City Limits (Area I) and in future Area 11(Gunbarrel) sections.
Within the City, the median age, minus the university student population, is expected to
peak at age 51 by the year 2030. An increase in active lifestyle choices and an increase in
the longevity of adults coupled with better overall economic prosperity (than prior
generations) will require an increase in active adult programs over the next twenty years.
Households with children declined from 46 percent of all Boulder households in 1990 to
42 percent in 2000. Nearly one-quarter of families with children under age 18 are single-
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parent families. Most single parents (83 percent) are in the labor force. For children with
two parents at home, 60 percent have both parents in the labor force.
Increases in residents with English as a second language are projected to continue as
nearly 16 percent of Boulder residents speak languages other than English at home.
Countywide, the non-English speaking population increased from approximately 10.5
percent in 2000 to approximately 13.4 percent in 2008.
Boulder County
The increased demand from Boulder County's population growth from 2009 to 2030 will
likely have an impact on the City's recreational resources. This is due to the amount of
nonresident use that makes up approximately 30 percent of the facility and program
attendance of the Department.
In 2008, 12 percent of Boulder County residents were over age 60. By 2020, an estimated
21 percent of the County's population will be over 60. While older adults are
significantly wealthier than earlier generations of similar age, the trend for the general
population is a widening economic gap. Boulder County ranks 12th nationally in per
capita personal income, and in 2008, nearly one third (32 percent) of all Boulder County
households had incomes of more than $100,000. On the other end of the spectrum in
2008, 37 percent of households lived on less than $50,000 per year, while the median
income was $66,463 in the County. Contributing to this widening economic gap are high
living costs, such as the median home price in the City of Boulder ($538,000 in 2008),
increased energy costs, an economic downturn, and limited wage increases
In 2007, 21 percent of individuals, 12 percent of children, 6 percent of seniors (age 65-
plus), and 5 percent of families lived below the federal poverty level in Boulder County.
At the time of this report, the county unemployment rate was 5.5 percent (September
2009) but could continue to rise with the current recession. In 2000, approximately 14
percent of the City of Boulder's population had incomes below poverty level, but within
the Latino community, 27 percent of families had incomes below poverty level.
In 2008, 62,569 children under age 18 made up 21 percent of Boulder County's
population. Between 2000 and 2007, the number of Boulder County children under age
18 in poverty increased from 8.2 percent to 12.6 percent, an increase of 53.7 percent. In
2007, over 40 percent of Latino children in Boulder County lived in poverty. The 2007
Youth Risk Behavior Survey, conducted by Boulder County Health Department and the
Boulder Valley and St. Vrain school districts found that 43 percent of local high school
students drank alcohol, and 28 percent were binge drinkers. Thirty percent used tobacco,
24 percent had tried marijuana, and 16 percent had considered suicide in the previous
year.
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Demographic Trends Will Affect Recreation Planning
Coupled with demographic changes, the expanding availability of various forms of
communication technology and the social media phenomenon will require the
Department to stay on the cutting edge of public information dissemination. Ensuring
proper community outreach, notification of information, tracking program trends,
surveying community interests and creating public awareness of programs will be
essential to the Department's future success.
Current demographic trends point to the need for flexibility in dealing with future
changes in recreation programs, facilities, and services. The Department will need to
plan for changes that will accommodate increasing populations of children from single-
parent families, families where both parents work, and an increase in active healthier
older residents. These changes and an increase in the non-English speaking resident
population will require the Department to readily and easily adapt and create new
programs that address these potential demands. Additionally, the Department will be
faced with creating financial support mechanisms, such as a Recreation scholarship
program (see page xx), that will help provide services to lower income individuals and
families and help close the widening opportunity gap related to fee based services.
Given the increase in public desire to reduce governmental spending and the demand to
continually enhance programs, the Department will focus on expanding current
collaborative efforts and increasing operational efficiencies. As tax supported funding is
reduced and demands for service increase, partnerships and additional opportunities to
provide services will be found through cooperative efforts with organizations, and
individuals. This increase in partnerships will allow the Department to facilitate and
provide programs that meet future recreational needs of the community.
The use of social media mechanisms and the increased ability of the Department to
capitalize on new trends by using developments in technology, and improving marketing
efforts to the public, will help ensure future success for programs and activities. In
addition, understanding future shifts in trends and also increasing the adaptability of the
Department to meet those changing program and facility requirements will help to ensure
future sustainability.
Future Physical Resources Status and Changes
The City has a large parcel of land (191 acres) designated within the Boulder Valley
Comprehensive Plan (B VCP) Area III-Planning Reserve that is identified for park and
recreation facility development based on future needs. Prior to development, the parcel
will require annexation into the City and must undergo an initial planning process. The
initial stage of planning for this area is required to happen concurrently with a major
BVCP update, which occurs every five years. The next major update beings in 2010 and
if this area is to begin the process of increasing future recreational and park availability in
the City of Boulder system, then the Department must include this parcel in the 2010
Comprehensive Plan Update.
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Recreation Division Funding
Funding for recreation is comprised of funding from the following five sources: the
Recreation Activity Fund (RAF), the City's General Fund, the .15 Cent Sales Tax Fund,
the .25 Cent Sales Tax Fund, and the Permanent Parks and Recreation Fund. The Lottery
Fund, a sixth source of funding for the Department, does not provide funds for recreation.
At the time of this Plan the 2008 Recreation Division budget was the most recent year for
which a complete expense and funding analysis was available. Funding sources and uses
are as follows:
2008 Recreation Division Funding Sources
Total Funding: $11.9 million
Perm Parks and Rec,
$920.000, 6% General Fund, $1,828,000 ,
159=
.25 Cent, $1,049,250 .9'*,6
.15 Cent, $287,000,2%
RAF, $7,892,000, 66%
• Recreation Activity Fund (RAF): $7.9 million from user fees, grants, and
donations
• General Fund: $1.8 million transfer to the RAF from sales tax
• .15 Cent Sales Tax Fund: $287,000 from a dedicated sales tax that expires
December 31, 2012
• .25 Cent Sales Tax Fund (capital funding): $1 million from a dedicated Parks
and Recreation Sales Tax that expires December 31, 2015
• Permanent Parks and Recreation Fund (capital funding): $920,000 from a
dedicated .9 mill property tax and development excise tax
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In 2008, the Recreation Division's funding was used as follows:
2008 Recreation Division Funding Uses
Total budget: $12 million
Perm Parks and Rec,
$920,000,8%
.25 Cent, $1,049,250 , 9;6
.15 Cent, $267,000, 2%
RAF, $9,882,000, B1%
Recreation Activity Fund (RAF): $9.8 million was budgeted for program and
facility operations and recreation administration.
• .15 Cent Sales Tax Fund: $287,000 was budgeted for operations and
maintenance of Pleasant View and Gerald Stazio athletic complexes.
• .25 Cent Sales Tax Fund: $1 million was budgeted for recreation-specific facility
and infrastructure needs, including major maintenance and cleaning during
recreation center shutdowns.
• Permanent Parks and Recreation Fund: $920,000 was budgeted for capital
improvements.
Financial and Funding Challenges
The RPFP includes strategies that will help the Department make decisions and develop a
diverse and sustainable portfolio of recreation programs and service offerings. Employing
the funding strategy outlined in the plan will help the Department fill gaps and make
changes in programs, services, and facilities that add to achieving a sustainable
Department.
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Because the 2009 economic climate has caused a reduction in the City's sales and use tax
revenues, the Department has seen a decline in tax supported funding that supports and
subsidizes recreation services. Since 2004, the long-term sustainability of the Recreation
Activity Fund has been a concern. This is due primarily to the Department's increasing
operating expenses and the restricted ability the Department currently has to raise fees.
There is a need for the Department to remain competitive in its fee structure to cover
increasing expenses. This can be accomplished using a mix of fee adjustments and
efficiency changes to operations.
In response to the Blue Ribbon Commission II recommendations, the Department is
working to define consistent service costs and set fees that to cover costs. As the
Department moves forward, there will be a need to determine recreation services that
should be provided by the City and those that should be provided by others in the
community. To be successful, the Department will have to provide services with
available resources and allocate those resources to high-priority recreation services.
Political Atmosphere
Community leaders support the Department's efforts to improve and enhance operations
and services to the public and the Boulder community demonstrates broad support for
recreation. This support includes City provided recreation services as well as those
services provided by special-interest, non-profit and for profit recreation organizations.
Boulder is an active, engaged community that is comprised of individuals and groups
who are willing to partner with the Department in order to provide and enhance
recreation offerings.
Community Values Related to Recreation Services
The Boulder community is very active and places an exceptionally high value on fitness,
wellness, recreational activities, and the outdoors. The community, PRAB, and City
Council agreed that recreation in a strong healthy community does the following:
• enriches family and social relationships
• provides resources for people of all ages to reach their full potential
• champions diversity and inclusion
• recognizes the importance of play in a balanced life
• contributes to a sustainable economy
• contributes to personal fulfillment, health, and wellness.
The community also expressed values about recreation through the Department's 2009
Recreation Plan Survey and the 2005 City of Boulder Parks and Recreation Survey,
which was conducted for the 2006 Parks and Recreation Master Plan.
The 2009 Recreation Plan Survey
In March 2009, as part of the public participation process for the RPFP, the National
Resource Center conducted a community survey for the Department of a randomly-
selected sample of 3,000 households in Boulder Valley. The 2009 Recreation Plan
Survey assessed opinions about the City's recreation programs and facilities and how
recreation resources should be allocated in the future. It sought responses on key
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priorities (see page xx), use of facilities, participation in programs and activities, fees,
funding, communications, and demographic information. The complete survey results can
be found in Appendix A.
Boulder residents who participated in the survey said they view the Department's
recreation programs and facilities as a resource for the entire community. Special
emphasis was placed on recreation offerings for youth, and respondents indicated the
Department should also serve those residents who might not otherwise be able to
participate in recreation activities. Residents also placed a high priority on active
physical recreation and introductory-level programming. These findings were again
validated through focus groups and follow-up contact through the Department's website
survey.
Guiding Principlgs
With community input, the Department developed guiding principles for the plan that
will be used as a basis for decision making for recreation programs, services, and
facilities in the future. The principles are a synthesis of responses from the 2009
Recreation Plan Survey, various open houses, and website feedback; the Department's
mission and community values identified in the Master Plan; and recommendations from
the City Manager's Work Group on Recreation Financing. The Parks and Recreation
Advisory Board and City Council have endorsed these guiding principles for the
Department [in alphabetical order]:
• Champion diversity
• Contribute to personal health and wellness
• Ensure that youth are a priority
• Maintain and protect our facilities and programs
• Prioritize available subsidy to introductory level classes and programs
• Pursue a sustainable financial model for recreation programs and facilities
Recommendations
1 Continue to implement Master Plan
recommendations related to recreation programs
and facilities that align with the Recreation
Program and Facilities Plan.
2 Review the Recreation Program and Facilities Plan
annually and fully update every five years.
3 Explore planning process for Area III land,
including identifying challenges and opportunities.
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AGENDA i i EM # V_1~ PAGE ( Z
Box: Department Mission
The mission of the City of Boulder Parks and Recreation Department is to provide safe,
clean, and beautiful parks and facilities and high-quality leisure activities for the
community. These services shall enhance residents' health and well-being and promote
economic vitality for long-term community sustainability. We will accomplish this
through creative leadership, environmentally sustainable practices, and the responsible
use of available resources.
Sidebar: The 2006 Parks and Recreation Master Plan
The Master Plan is a 10-year strategic guide for the Department through 2016. The
Master Plan's major components include:
• The Department's mission, vision, goals and strategies.
• An analysis of the parks and recreation system's conditions and needs.
• A list of major challenges in funding and parks and recreation facilities
management issues.
• Investment priorities for the Department.
• Recommendations for programs and facilities at three funding levels--fiscally
constrained, action, and vision.
• Strategies for increasing the Department's financial sustainability.
The Master Plan vision calls for providing greater program and facility access to under-
served populations and providing recreation facilities and programs that promote fitness,
healthy lifestyles, and economic vitality for the City. The plan was adopted by City
Council in 2006 and will be updated in 2010-2011. The plan and annual reports can be
found online at www.bouldercolorado. ov, Parks and Recreation A to Z, Master Plan.
Sidebar: City Manager's Work Group on Recreation Financing
Following the adoption of the 2006 Parks and Recreation Master Plan, the City Manager
appointed a group of community members to make recommendations regarding pricing
policy and methodology to provide a framework for the long-term sustainability of the
City's recreation programs. The work group's report, published in April 2008, found that
the majority of the Department's current practices are sound, but called for increased
transparency to identify and communicate the true costs of providing recreation programs.
The group provided suggestions for improving transparency and the sustainability of
programs. The work group's report can be found online at
%%WW.hoUIdk rcoIoraclo..gkw/index.hlip.
Box: Public Process
To assess community opinions about recreation programs and facilities, the Department
conducted the 2009 Recreation Plan Survey (see page xx and Appendix), held two public
meetings, and sought feedback through recreation focus groups and public forms posted
on the City's website and available at City recreation facilities. The Department also held
study sessions with PRAB and City Council. The Department's recreation focus group
meetings have included the Boulder Valley School District, the University of Colorado,
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the Boulder Convention and Visitors Bureau, the Youth Opportunity Advisory Board, the
Immigration Advisory Committee, Boulder Housing Partners, neighboring municipalities
and private athletic clubs and sports organizations.
Sidebar: The 2009 Recreation Plan Survey Key Priorities
Survey respondents identified the following major recreation priorities:
• Maintain and improve the physical health and mental well-being of the general
population (78 percent).
• Provide positive activities for children and teens, ages 19 and younger (70
percent).
• Provide recreation opportunities for senior adults, ages 60 and older (58 percent).
• Provide recreation opportunities for adults, ages 20 to 59 (57 percent).
• Provide recreation opportunities to people who might not otherwise be able to
participate in recreational activities, such as people with disabilities or low
incomes (55 percent).
• Provide opportunities to make social connections, to strengthen the "social fabric"
of the community (34 percent).
• Enhance the economic vitality of the community by offering special events that
draw visitors from inside and outside the community (24 percent).
Sidebar: Blue Ribbon Commission I and Blue Ribbon Commission II
Blue Ribbon Commission - Phase I
The Blue Ribbon Commission (BRC) I was appointed by City Council to study the
revenue policy issues confronting the city. The emphasis of BRC 1 was to establish a
long-term, balanced and stable revenue stream for the city of Boulder that accomplishes
public priorities while allowing flexibility to meet the varied and dynamic needs of the
municipal corporation in the next twenty years.
Blue Ribbon Commission - Phase II
The emphasis of BRC II will be to refine the revenue stabilization recommendations of
BRC Phase I and to continue the implementation of the principles and policies proposed
by the first BRC. The group will also be completing a review of city expenditures to
ensure that public funds are being used effectively and efficiently.
Sidebar: Recreation Division
The Recreation Division is the largest division of the department, with more than 75
standard and 750 seasonal staff members. Daily operations include the management of
the East, North, and South Boulder recreation centers, Scott Carpenter and Spruce Pools,
East Mapleton and Stazio ballfield complexes, Pleasant View Fields, the Pottery Lab,
Flatirons Golf Course, and the Boulder Reservoir.
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Recreation programs offered annually including visual and performing arts, team and
individual sports leagues, tournaments and clinics, fitness classes, swim lessons and
water activities, and other special programs and events.
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Chapter 2: Recreation in the Community
Chapter 2 provides an overview of recreation in Boulder--what is happening, the trends,
service providers, customer profile, gaps and overlaps in service, and how the City
provides services.
Recreation In Boulder
Recreation is a key part of the "Boulder lifestyle" as the community places a high value
on access to recreational activities that encourage fitness and wellness. According to the
Master Plan, it's important to the department to provide high-quality programs and
services that are accessible to the community. Because the Department is seen as
offering a variety of high quality recreation offerings (see Chapters 3 and 4), other local
regional municipalities often set their recreation standards based on Boulder's programs,
facilities, and management practices. As a result of the quality and variety of programs,
services, and facilities, participants are drawn from neighboring communities. In fact,
approximately 30 percent of recreation patrons live outside of the City.
Historically, the Department has added recreation programs and services in response to
an ever-expanding community wish list and, as a result, the Department has tried "to be
everything to everyone". Budget constraints and the need for financial standards related
to Best Practice models, now dictate that the Department carefully evaluate all of the
recreation programs, services, and facilities it manages in a new financial light. The
Department must now move to the development of a strategic financially sustainable plan
of action. Such a plan will reshape and guide the future allocation of resources.
The City is not the only provider of recreation programs and services to the community.
Boulder residents have opportunities to access a variety of sports, fitness and recreation
programs and services similar to those offered by the City. These programs are offered
through a variety of private, public and non-profit organizations. The Department
researched recreation programs offered by the Boulder Valley School District, the
YMCA, and local sports organizations, hospitals, private entities and municipalities to
gain perspective on where overlaps and opportunities for change occur (see page xx).
Because the Department needs to be aware of other providers, the Department should
explore developing a regularly updated clearinghouse of information on community
recreation programs and services that are offered by various organizations and clubs. The
clearinghouse would provide a valuable community service and help residents locate
recreation programs and services that might not be offered by the City, but that are
available in the area.
Local Recreation Trends
As part of the information gathering process for the Recreation Program and Facilities
Plan (RPFP), the Department conducted an analysis of recreation programming trends
and issues that reflects the experience of nine Colorado Front Range Parks and
Recreation Departments or Districts, six Parks and Recreation Departments in other states,
and three local organizations offering recreation programs.
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The analysis demonstrated a consistent theme of shrinking department, city and
individual household budgets. Recreation programs are now under constant evaluation in
every jurisdiction contacted, and budget worksheets or lists of evaluation criteria are
being used to help determine future programs. Other findings from the trends research
and community focus group meetings show the following:
• Continued popularity of fitness and wellness programs, youth and adult sports
programs, youth summer camps, pre-school recreation programs, and senior
fitness programs.
• Programs that achieve financial sustainability include youth sports, adult sports,
adult fitness, outdoor recreation, leisure, and equipment rental programs.
• An increase in contracting programs and establishing partnerships for services and
space.
• The increasing importance of municipal government and school district
partnerships for the provision of services (municipalities typically offer outdoor
and sports/fitness programs while the school districts typically offer leisure
classes through continuing education programs).
The Department's Customer Base
The demographic profile of the Department's recreation program and facilities users
reflects a cross section of Boulder's population. The Department currently meets some or
all of the fitness and recreation needs of approximately 25,000 households in and around
the City.
As determined by a 2009 analysis that was conducted by Marketing Solutions Group, Inc.
the users of the Department are reflected as follows:
• 72% own their home;
• 50% range in age from 35-55;
• 41 % are married;
• 22% have children;
• 66% earn between $50,000 - $150,000 per year;
• 18% earn less than $50,000 per year;
• 40% have lived in Boulder 10 or more years.
The Department's mission includes providing fitness and recreation opportunities and
access for the whole community. The data in the customer demographic profile indicates
that based on income levels alone, the Department serves a wide range of users in the
community, while providing the greatest recreation access for the lower to upper middle
income individuals and families in the community.
Recreation Programs
The Department provides the majority of its programs and services at City-owned
recreation facilities. The Department also works with community organizations and
agencies to provide recreation programs that are all valuable to the community. These
relationships fall into the following categories:
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• Provider: a private or non-profit organization that provides a contracted revenue-
sharing program for the Department at a City park or facility. In this situation, the
Department markets the program through its recreation guide.
• Facility Partner: a private or non-profit organization that shares in building and
operational costs through fundraising and volunteer efforts for one or more City
recreation facilities. Examples include the Boulder Mountain Bike Alliance,
which raised funds and partnered on grants to help build the Valmont Bike Park
and may be providing learn-to-bike programs and some ongoing maintenance
services (see page xx).
• Program Partner: a private or non-profit organization that rents space on an
ongoing basis for specific activities at recreation facilities. These rental
arrangements are typically managed through contracts or Memorandums of
Understanding (MOUs) between the program partner and the Department.
Examples include Boulder Aquatic Masters (BAM), a local organization of adult
swimmers that regularly rents lanes at recreation center pools for the use of its
members.
• Renters: an individual, group or organization (profit or non-profit) that rents
space on a limited or one-time basis for specific activities at recreation facilities.
Service Gaps and Overlaps
As part of the RPFP process, the Department conducted an analysis of recreation
programs and services available to Boulder residents that are provided by the City, other
leading recreation providers in the community, and neighboring municipalities (see
Appendix xx). The purpose of this inventory was to determine gaps and overlaps in
services from organizations that offer similar opportunities, and identifies opportunities
that might exist to partner with these organizations.
This Boulder-area recreation inventory identified programs and services such as aquatics,
dance, golf, gymnastics, pottery, leisure activities, sports, swimming, summer day camps,
leisure activities, wellness, and programs for people with disabilities and/or low incomes.
The inventory also included recreation facilities, such as gymnasiums, soccer fields, and
pools provided by the City, the YMCA, the University of Colorado, the Boulder Valley
School District, Boulder Community Hospital, local churches/places of worship, private
sports organizations, and private health clubs. Neighboring municipalities included in the
inventory were Louisville, Lafayette, Longmont, Erie, and Broomfield.
In addition to the inventory, a focus group of community organizations and clubs that
provide recreation services met with the Department to discuss trends and program and/or
facility needs in their sectors. The Department's recreation focus group included the
Boulder Valley School District, the Town of Superior, the University of Colorado (CU
Club Sports), the Boulder Chamber, the Youth Opportunity Advisory Board, the
Immigration Advisory Committee, Boulder Housing Partners, and private athletic clubs
(Lakeshore Athletic Club) and sports organizations (Boulder County Force Soccer Club,
Boulder Nova Soccer, Boulder Aquatic Masters Swimming Club, 5430 Sports, and
Boulder Indoor Soccer/Cycling).
Draft 2.1610
AGENDA FDA, 4 V-A , PAGE
Combining these two sources of information with research on existing programs, the
Department has identified the following gaps and overlaps in services and facilities:
Program and Facility Gaps
• Most neighboring municipalities do not provide nor are not equipped to provide
inclusion and specialized therapeutic recreation services similar to the
Department's EXPAND program, and consequently non-residents come to
Boulder to participate in the Department's programs.
• In Boulder, there has been an increase in youth interested in soccer and baseball
compared to past years and as a result, field space is now at a premium.
• Lacrosse is a growing sport that has both indoor and outdoor space needs.
• In Boulder, demand for winter tennis facilities is not being met due to limited
indoor courts in the community.
• Indoor gymnasium space is at a premium, especially in the after-school hours
when BVSD facilities are not available.
• Pool lap lanes are at a premium, especially in the after-school hours when high
school and private swim teams use the lap lanes in the three recreation centers.
Program and Facility Overlaps
• There is considerable overlap in services in the following program areas: yoga,
Pilates, fitness, personal training programs, and indoor swimming.
• Other municipalities offer similar types overall for recreation programs, but
generally offer fewer choices and levels.
• Many of the programs offered by the Department are offered by private entities,
though the offerings are typically more specialized classes at a higher fee.
• Some programs offered by the Department are also offered through Housing and
Human Services.
The recreation services inventory and the facility-use analysis (see Chapter 4) will help
the Department determine those programs and facilities that meet the Department's
mission and sustainability goal and can best be partnered, retained or expanded to meet
community needs. The inventory also provides the foundation for a specific RPFP
recommendation: to work with other organizations and create a clearinghouse of
information on recreation programs, services, and facilities (see page xx).
Recommendations:
1 Collaborate with other agencies and organizations
to share resources.
2 Develop a clearinghouse of information about
community recreation opportunities.
3 Set up a regional roundtable with public recreation
providers to explore resource sharing for services
the City of Boulder currently provides to people
Draft 2.16.10 G}
AGENIM ITEM # vy PAGE I
with disabilities (EXPAND - inclusion and
specialized programs).
Sidebar: A Brief History of Boulder Recreation
Boulder's cultural history is closely linked to its residents' love for recreation, as Suzanne
Hudson reveals in A History of Boulder's Parks and Recreation. By 1868, 10 years after
gold miners arrived at the mouth of Boulder Canyon, Boulder had its first park with a
baseball diamond. A year later, recreation-minded residents bought 40 acres south of
Valmont Road between 28th and 30`" Streets, and erected a grandstand for horse races
and a country fair. A roller-skating craze beginning in 1878 led to a roller rink at 14th and
Spruce. "High-wheelers" in the 1880s and "safety bicycles" in the 1890s were favored by
Boulder's early cyclists.
Beginning in 1903, Boulder acquired land for urban parks to complement
recreation opportunities in its mountain parks. By 1920, recreation programs
administered by the Department of Public Welfare included a summer playground
program with more than 4,300 children. The tri-towered Hygienic "natatorium," or
indoor swimming pool, privately built in 1923 on the Spruce Pool site, featured slides,
rings, and a trapeze for the "athletically inclined."
During the Great Depression, a men's night softball league proved a popular
source of entertainment; in 1931, there were 26 teams with 10 employees to umpire and
do field maintenance, funded by the federal Works Progress Administration (WPA).
Another WPA project was a nine-hole precursor to the Flatirons Golf Course. The
recreation program's success led to the formation of the Community Recreation
Association, sponsored by the city council, the school board, and the YMCA. The Pay
Dirt Pow Wow, started in 1934 on what is now the East Mapleton Ballfields, featured a
parade, a bike race to Longmont and back, and the Hard Rock Drilling Championship of
the World.
Recreation programs were curtailed during World War II, though the City in 1945
purchased the Hygienic pool, renaming it Municipal Pool and holding swimming classes
for 10,000 participants. Public swimming was curtailed the following summer due to a
polio outbreak. Attempting to make the pool building more useful year-round, the City
began leasing it as a roller rink, with wooden planks laid across the pool that were
removed in summer. Softball continued to be a main source of entertainment; leading to
the formation in 1948 of the Boulder Softball Association (BSA).
Postwar expansions began with the City's first full-time recreation director,
Willard N. Leuthauser, who was hired in 1951 with an annual salary of $3,600 from a
$5,000 recreation program appropriation. Residents in 1952 voted for $2 million in bonds
to construct the Boulder Reservoir. In 1957, the Recreation Department began sponsoring
a day camp for children with developmental disabilities. The city in 1960 founded the
Parks and Recreation Department and formed the Parks and Recreation Advisory Board.
Voter support for recreation continued in 1971 with approval of $1.6 million for
construction of the North and South Boulder recreation centers. A 1981 bond issue
pumped $2.4 million into improvements at the Boulder Reservoir and paid for
completing the original Gerald Stazio Ballfield Complex. Voters in 1981 also approved
the Colorado State Lottery, which gave 14 cents of every dollar spent on lottery tickets to
local parks and recreation districts. In 1983, Boulder used lottery funds to build the
Draft 2.1610
r fi a ~ TEN V PAGE
5,000-square-foot gymnastics center addition at the North center. The Department in
1986 took over operation of the Flatirons Country Club and has maintained the golf
course ever since.
In 1993, voters approved the .15 Cent Sales Tax that pays for maintenance at
Pleasant View Fields and Gerald Stazio Ballfields and will expire in 2012. The 1995
approval by Boulder voters of the dedicated .25 Cent Sales Tax for parks and recreation
allowed the Department to proceed with a major land acquisition effort, including the
land for Valmont City Park and Foothills Community Park, both of which feature
multipurpose sports fields and other recreation facilities (see page xx). Since 1996, the
Department has developed, upgraded, and refurbished numerous recreation facilities (see
Chapter 4).
Sidebar: Boulder Recreation Clearinghouse
Boulder residents have opportunities to access sports, fitness and recreation programs and
services similar to those offered by the City. These programs are offered through a
variety of private, public and non-profit organizations. The Department researched
recreation programs offered by the Boulder Valley School District, the YMCA, and local
sports leagues, hospitals, and municipalities to gain perspective on where overlaps and
opportunities occur (see page xx). The Department will explore developing a
clearinghouse of information about the recreation programs and services offered by
various organizations and clubs in the region. The clearinghouse would offer a valuable
community service by helping residents locate recreation programs and services that
might not be offered by the City but are available in the area.
Sidebar: Some Recreation Programs Offered by Outside Organizations
at City Facilities [alphabetical order]
Boulder Valley Girls Softball
Boulder County Force Soccer Club
Boulder NOVA Soccer Club
Boulder Rugby Club
Boulder Tennis Association
Boulder Aquatic Masters Swimming
Boulder Aquateens Synchronized Swimming
Boulder Swimming (year-round club swimming)
Boulder Community Rowing
Boulder Horseshoe Club
Boulder Valley School District Sports
Grass Roots Ultimate Frisbee
Harlequins Quad Rugby
North Boulder Little League Baseball
South Boulder Little League Baseball
University of Colorado Club Sports
YMCA Youth Soccer, Baseball, and Skate Park
Draft 2.16.10
Sidebar: Additional Public and Private Recreation Programs
Some additional public and private recreation programs in the Boulder area include those
offered by the following:
• Local Municipal Governments: Louisville, Longmont, Erie, Superior, Broomfield,
Westminster
• Local Organizations: YMCA of Boulder County, Boulder Valley School District
Lifelong Learning, University of Colorado (CU) Division of Continuing Education
Personal Enrichment Program, Imagine, Association for Community Living
• Private Sector: fitness clubs (24-Hour Fitness, Flatirons Athletic Club, Rallysport,
Lakeshore Athletic Club, Colorado Athletic Club, specialized facilities (yoga, Pilates,
dance, gymnastics, climbing), and sports organizations (Boulder Valley Lacrosse,
Boulder Youth Football, Flatirons Volleyball Club, Gold Crown Basketball).
Sidebar: Performance Sports
Boulder is a mecca for sports, fitness and endurance athletes. These athletes are the
nucleus of the fitness-based social networks that make up Boulder's unique social fabric.
The city has become home (or at least temporary training ground) for many elite athletes,
including Olympic medalists and World Champions who use Department facilities and
programs to train. The city also is a popular venue for national and international sporting
events like the Bolder Boulder. The Department has hosted events such as world class
cycling competitions, International Irish Football Championships, national rugby, softball,
volleyball, and ultimate frisbee tournaments, college recruiting tournaments in soccer and
softball and the National Cross Country Championships and AVP Pro Beach Volleyball
tournaments. The City's programs and facilities help attract hundreds of top athletes and
athletic businesses/organizations. Together, these individuals and businesses build
Boulder's positive image and contribute millions of dollars of revenue to the city
annually. Recognizing and continuing to serve the needs of the fitness and endurance
athletic community is valuable to ensuring Boulder's economic stability and future.
Sidebar: Parks and Recreation Facility and Amenity Partnerships
The Department has a process in place for partnering with the community to provide
recreation facilities and amenities and is committed to working with the community to
leverage resources and find creative ways to provide high quality recreation services. The
Department welcomes proposals from organized groups interested in partnering to
provide new or enhanced recreation facilities and/or programs to the community.
A successful partnership assumes that both parties have something to offer and that there
is a community benefit as a result. Understanding and responding to the selection criteria
developed by the department (with the assistance of a recreation-oriented community
working group) will be critical to the success of any proposal.
This Parks and Recreation Facility and Amenity Partnership Process is intended to be
flexible, consistent, fair and accessible to all groups. Each proposal will be assessed at
each step in the process to determine the viability of the proposal. Partnerships will help
the department leverage resources and invest wisely in community recreation facilities
and amenities and it will promote the goals and protect the values identified in the Parks
and Recreation mission statement.
Draft 2.1610
AGENDA 1-rP_M #__U Zz,
Chapter 3: Recreation Programs
The Recreation Program and Facilities Plan (RPFP) establishes a framework for the
Department's recreation offerings for making decisions on program offerings now and in
the future. This chapter includes information on core programs, program classifications
and delivery, program lifecycle and evaluation, program partnerships, and other
recreation program options.
Framework for Recreation Offerings
The Boulder lifestyle emphasizes being active and fit, and the community offers
abundant opportunities to participate in a variety of recreation activities, including those
offered by the Department. Boulder leads most Colorado Front Range municipalities in
offering a wide variety of programs. The Department offers numerous types of programs,
with over 3,800 different course offerings annually. The gymnastics program is among
the most popular recreation programs offered by the Department, with more than 1,200
participants and is the largest municipal program in the state. The aquatics program
provides swim lessons to more than 3,000 participants each year, and more than 8,400
adults play softball annually on 649 adult softball teams.
Over time, the Department's recreation offerings have evolved into being all things to all
people. The Department is now focused on becoming more efficient and economically
sustainable and as a result is reevaluating its programs and services. This evaluation will
help determine which programs are core to the Department mission and which are
desirable but should be offered at competitive rates. In addition, some programs may be
better suited if provided by other organizations within the community. Partnerships with
other organizations will help the Department leverage resources (see page xx) and the
types of recreation programs currently provided will change, as will the quantity and
variety of offerings. Programs will be reduced to those that utilize resources.(funding
and staff) most efficiently and meet community priority demands.
Core and Desirable Programs
Core programs are the Department's highest priority and are determined on the basis of
the Department's mission, community need, and community priority interest. The 2009
Recreation Plan Survey indicated the community's top priorities included supporting
programs that improve health and well-being, providing positive activities for children
and youth, and offering recreation opportunities for people with disabilities or with low
incomes who otherwise might not be able to participate.
Draft 2.1610
2
AGEl~6A ITEM V_P PAGE 2
Recreation Programs and Facilities Plan - Recreation in the Community
Community Programs
offered at other Facilities
City Programs
City Core Programs r,
community krrdrvrduai
Programs Users at City
offered at City i Facilgres
Facilities
The Department provides core programs that fulfill social responsibilities, meaning they
benefit the public good, and financial responsibilities, meaning they help the Department
become economically sustainable. The Department offers numerous programs and
facilities, (business core), that help fund the core programs.
Social Core or "Public Good" Programs
Social core or "public good" programs generally include traditional youth programs,
programs that target community members with disabilities or low incomes, and activities
that enhance the health, safety, and livability of the community. Public-good programs
may require some level of subsidy to encourage the highest level of participation. They
include:
• Life/safety and community health programs that engage youth and the
community in healthful activities and help establish positive lifelong habits, such
as learn-to-swim classes, introductory sports programs, and basic fitness, health,
and wellness classes.
• Programs for people who are disadvantaged that provide access to recreation
programs, such as the Youth Services Initiative (YSI) for children and youth from
families who live in low income housing (see sidebar page xx) and EXPAND for
people of all ages with disabilities (see sidebar page xx).
Draft 2.1610
GENDA ITFAfi 41 U A , PAGr-
Business Core or "Business Sustainability" Programs
Business core or "business sustainability" programs meet the needs of the market, and are
offered at market rate. They include:
• Programs that produce revenues for the Department and are able to help
lower tax supported funding. These include golf programs, adult sports leagues,
camps and various class offerings.
Desirable Programs
The Department offers a multitude of "desirable" programs that meet community
interests and desires. These programs must meet the following criteria to be offered by
the City of Boulder (see Chapter 5):
Required:
1. The program generates sufficient revenues to offset its costs (identified direct
and indirect costs, such as instructor fees, class materials, and administrative
costs).
2. Physical program space is available at a City of Boulder facility.
3. The program is in demand; classes often fill up and may have a waiting list.
4. The program serves a large population or identified community need.
Desired:
1. The program might provide a partnership opportunity to leverage city resources.
2. The program maximizes facility use; it might use a space that would otherwise
be empty.
3. The program contributes to serving a diverse cross-section of the community.
The Department will be focusing on providing core mission programs and programs that
will reduce the City subsidy as well as desirable programs with a competitive fee
structure: Identifying those programs that are "core" to the Department's mission allows
the Department to focus on key recreation programs and determine how they will be
funded in a sustainable way. Core and desirable programs will be reviewed during regular
plan updates and a phased approach will be used to move the desirable programs into the
business core category.
A large majority (84 percent) of 2009 Recreation Plan Survey respondents thought the
Department should operate using a human services model, in which parks and recreation
is valued for contributing to the physical, emotional, and social welfare of the whole
community. The 2006 Parks and Recreation Master Plan notes that parks and recreation
departments worldwide, as part of their mission related to human services, are working to
help young children and youth who are disadvantaged make healthy life choices. It also
noted that in recent years society has acknowledged leisure as a right of all citizens and
access to recreation as a necessary element for a community to achieve a high quality of
life. The Department is committed to reaching out to residents to provide access to
programs and services regardless of age, income, ability, or culture.
The human services model provides recreation services that are funded primarily through
tax dollars. Given the current economic shift, use of this model is not sustainable either
Draft 2.16.10
AGENDA ITEM PAGE ZS
in the current or the anticipated future economic climate. The business model, in contrast,
is designed to attract and serve users who can afford to pay for services. This plan
recommends a mix of both models and defines which programs and services could
receive taxpayer subsidy, as available, and which programs should be self funded (see
Chapter 5).
The Program "Portfolio"
The entire set of Department offerings (the "Portfolio") should be viewed holistically,
with central management oversight that ensures a balanced set of programs and services
is being offered to meet the needs and interests of the community and the Department's
mission and financial sustainability goals. Traditionally, the community need and support
has been for fitness, aquatics, sports and gymnastics programs. New program proposals
and current program evaluations will be reviewed on an ongoing basis. Specific program
evaluation criteria are being developed and will include the requirement to be consistent
with the Department's mission, program type (core or desirable), business and economic
factors, and community interest and satisfaction. The portfolio will include Department
programs that are Department run or contracted, or programs offered ,by partners and
rentals (see page xx for definitions of the types of programs and services).
The Program Delivery Model (see page xx) shows a series of questions and steps to help
determine whether a program or service should be provided by the Department, and if not,
whether the Department could facilitate the program or service through a partnership,
rental, or clearinghouse opportunity.
As part of the RPFP process, the Department inventoried recreation programs to identify
service gaps by age group. The Summary of Department Age Group Offerings (see page
xx) shows that the Department offers a wide variety of recreation services for various age
groups, including seniors. The chart also includes programs offered by the Senior
Services Division and identifies an overlap in services and programs for seniors.
Draft 2.1610
AGENDA HTEM # V-A- PAGE Z~
W.1 WIR,
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Ihere +drmanol a"emalrw"ih needl
YES NO
lei
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1 t: NO
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NO
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RENT PARTNER
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Draft 2.1610
~~END~ ITEM # U- k . PAGE ~7 _
Summary of Departmental Age Group Offerings Senior Services
Preschool Youth. Teen Adult Senior Senior
Services
0-3 yrs 4-6 7.10 11.12 13-16 16-18 18+ 50+
rs rs yrs rs rs
Arc X X X X X X X
Athletics X X X X X. X X X X
Dance X X X X X X X X
EXPAND X X X X X X X X*
Fitness X X X X X X X X X
Golf X X X X X X X X
Gymnastic X X X X X X X
S2a
Pilates X X X X*
Pottery X X X X X X X*
Reservoir X X X X X X X*
Programs
Swimming X X X X X X X X
Swiss Ball X X X X*
Tennis X X X X: X X X X*_
Weight X X X X X
Training
Yoga X X X X X X X X
YSI X X X X
*There aren't specific programs for Seniors in these areas, but Seniors can participate in
any adult programs.
Program Management
The Department is committed to a strategic process for determining which programs and
services it can offer, recognizing that it cannot offer every program and service the
community might desire. The process includes an assessment of all the programs and
services now provided by the Department, and an analysis of potential new programs.
The Program Delivery Model flow chart (see page xx), combined with the descriptions of
core and desirable programs (see page xx), explain how the Department will assess
current programs and/or offer new ones.
Recreation programs will have identified goals and objectives in order to provide a
consistently high-quality program. The Program Delivery Model will also be used to
determine which programs the Department should continue to offer. These programs will
be offered using best practices in management, ensuring they meet leisure education
standards, and have evaluation goals that specifically assess customer satisfaction and
other targets. A community needs assessment or gap analysis will be updated on a
regular basis to help guide staff with the evaluation of program offerings.
Draft 2.1610
AGENDA ITEM 9 V A., PAGE
As part of the program review process, recreation administrators will monitor program
offerings and consider the lifecycle of each program and modify class offerings
accordingly. Class minimums will be set appropriately based on expenses and approved
cost-recovery goals. To encourage efficient operation, staff will continue to promote
online registration and will identify barriers that deter customers from using the system.
When the Department is financially sustainable, it could develop an "opportunity fund"
during the budget process for use in developing new programs. This would allow for new
program ideas related to trends to be tested to increase services and produce offsetting
revenue.
New program proposals will be reviewed by staff using the Program Delivery Model and
the associated criteria for new programs. The criteria addresses whether the proposed
program targets people who are disadvantaged, supports health/wellness or life/safety,
has a demonstrated high participant demand, and/or will generate revenue. A proposed
program budget will be required to ensure identified cost-recovery goals will be met.
Program Evaluation and Life Cycle
Programs, like any product, require periodic evaluation and assessment to maintain
quality and relevance to the market. Dynamic instructors, quality equipment and facility
space, excellent teaching materials, techniques and marketing all play vital roles in
delivering program excellence. The department will be developing and implementing a
systematic and consistent approach to program evaluation as a key component of this
plan.
Program evaluation will include participant feedback, course enrollment and revenue
trends, and product life-cycle criteria. The goal of program evaluation is to ensure
delivery of quality programs and optimal utilization of available facilities and resources.
Programs that do not meet baseline evaluation criteria will be modified or discontinued.
Recreation programs typically follow a life cycle pattern from start-up, through high
interest and participation and into decline. The Department is defining program life cycle
stages - planning and development, market introduction, growth, maturity, extension (or
saturation) and decline - to provide useful program evaluation criteria. Ensuring the
overall sustainability of recreation programs requires an understanding and assessment
each program's life cycle. Some programs may last only a few sessions or years, while
others may last decades. Awareness of program life cycle is critical for effective program
evaluation.
Draft 2.1610
AG N!:jA S FIO 4 , PAGE-
Program Life Cycle
INTRODUCTION GROWTH MATURAT[ON EXTENSION END
OF OF OF OF OF
PROGRAM PROGRAM PROGRAM PROGRAM I PROGRAM
NUMBER
OF
PARTICIPANTS
SOS •-r Ic :arc P,C;•0.- r!c-,r,c5 Ora D&I"cry,;! ,dc R-ussoh
:nd ! ynr n N,vnon K-4t 200A F r3?
PSI
Recommendations
Scholarships/Reduced Rate
1 Create a formal scholarship program (in addition
to the reduced rate program) that includes
guidelines, criteria, and procedures. Increase
outreach for all reduced rate options.
2 Develop a stronger partnership with the PLAY
Boulder foundation and other community groups
and agencies to raise money for the scholarship
program.
3 Implement a direct donation option for the
scholarship program, such as a "check the box"
idea of a $5 donation at registration.
New Program Development
4 Establish an "opportunity fund" for creating new
programs. (see also Chapter 5)
5 Use the Program Delivery Model to determine
which programs to include in the Department
portfolio.
Draft 2.1610
6 Develop incentives for patrons to try new
programs.
Program Classification
7 Communicate the Department's program model to
provide an understanding of pricing and subsidy
levels.
8 Continue to offer desirable programs that meet
sustainability criteria (see funding chart in Chapter
5).
Program Management
9 Establish class participation minimums to ensure
fees offset defined costs that must be recovered.
10 Achieve 90% online registration by the end of
2012 for efficient operations.
11 Centralize all programming oversight and
evaluation.
12 Create standards to ensure high-quality programs.
13 Standardize the ratio of program staff to program
hours. (see also Chapter 5)
Program Evaluation
14 Develop a standardized process for evaluating
programs, and adjust course offerings as
appropriate.
Contracted Programs/Partnerships
15 Offer all future contracted programs at a City of
Boulder facility.
Sidebar: City of Boulder Recreation Program Offerings
The Department's wide variety of program offerings includes the following (see
Appendix xx for details on programs):
Performing and Visual Arts Programs
• pottery classes
• drama camps
• youth and adult dance classes
• dance camps
• leisure enrichment classes (drama, cooking, photography, music, art)
Gymnastics Program
• recreation program
• competitive program
Health and Wellness Programs
• weight training
• fitness classes
• yoga, Pilates, and Swiss Ball classes and workshops
Golf Program
Draft 2.16.10 f
AGENDA ITEM # v~~ , PACE ~ I_.
• instruction for youth and adults
Boulder Reservoir Programs
• sailing
• windsurfing
• sailboarding
• water sports
• camps
Aquatics Program
• swim lessons and other programs
EXPAND and YSI Programs
Sports Programs
• adult softball teams
• adult soccer teams
• adult basketball teams
• adult and youth tennis lessons
• dodgeball leagues
• adult kickball teams
• adult volleyball teams
• youth sports camps
• youth football teams
• youth Sports Samplers and Mini-Sports programs
• youth basketball teams
• youth volleyball teams
Senior Programs
• dance
• fitness
• golf
• sports
• swimming
• weight training
• yoga
Sidebar: What is EXPAND?
EXPAND (EXciting Programs Adventure and New Dimensions) received the National
Recreation and Park Association's National Program of the Year award in 2004.
EXPAND is a therapeutic recreation program that helps people with disabilities learn
new recreation and leisure skills to enhance their wellbeing and quality of life.
The Americans with Disabilities Act requires that municipalities make accommodations
to allow people with disabilities to participate fully in community life. The EXPAND
program has exceeded the intention of the law, building a national reputation with many
"firsts" in recreation programs and services for people with disabilities. In 2008, some
600 people participated in EXPAND, nearly 90% of whom participated in multiple
programs. Approximately 40% of EXPAND participants reside outside the City of
Boulder.
Draft 2.1610 ~E ~J2
EXPAND staff are certified Therapeutic Recreation Specialists who assist people with
disabilities in all aspects of recreation. They assist in two kinds of programs: inclusion
and specialized programs. Inclusion is when an individual with a disability registers for a
regular recreation program and wishes some assistance, or a recreation program staff
identifies a person needing assistance. The goal of inclusion is to provide a person
assistance, as little or as great as needed, to assure successful participation in the general
recreation program. When an individual requests this service or staff identifies a need,
staff initiates a process to help determine what level of assistance may be necessary.
Accommodations are determined by staff and parents to allow the participant to
participate in the least restrictive setting. They vary from participant to participant and
depend upon the person's skills, abilities, and needs.
Specialized therapeutic programs offer a wide range of activities for all ages and
disabilities, including aquatics, fitness, gymnastics, golf, outdoor adventures, community
outings, and summer day camps. Some special programs include Special Olympics
training, warm-water therapy, and unified sports programs that pair people with and
people without disabilities on the same teams.
Sidebar: What is the Youth Services Initiative (YSI)?
The Department launched the Youth Services Initiative (YSI) in 2003 as a social service
to support children from low-income families with recreation activities, homework help,
and volunteer opportunities. YSI's mission is to provide opportunities, skills, knowledge,
and resources to help participants make positive and informed life choices. The program
is offered every day after school at community centers, recreation centers, and housing
sites, and during the summer months through a day camp program.
The Department collaborates with Boulder Housing Partners (BHP) to serve more than
150 children ages six to 18 living in BHP housing. A teen program called Getting Fit is
offered two days a week for youth ages 12 and older. The YSI program also partners with
the Family Resource Schools (the City of Boulder Housing and Human Services
Department program), the I Have a Dream Foundation of Boulder County, and the
Watershed School, one of the program sites. YSI has worked with the Boulder Police
Department on gang prevention activities that involve children and their families.
YSI was highly supported by respondents to the 2009 Recreation Plan Survey, even
though a majority of respondents were in households without children.
Sidebar: Successful Partnerships
The Department will explore partnership opportunities to leverage available resources for
recreation programs desired by the community.
The YMCA of Boulder Valley collaborates with the Department at the Boulder Skatepark in
programming, special events, and rentals. All events at the Skatepark are planned in advance
and coordinated with the Department. The YMCA promotes "learn-to-skate" opportunities
for youth and pays the Department a percentage of revenues from programs and events. The
Draft 2.1610
partnering in an ongoing maintenance program for the Bike Park and developing learn-to-bike
and other programs.
Partnerships also can be formed to support maintenance of facilities. The Department's
website, www.parks-rec.org, offers the Department's Readiness Checklist,
Environmental Checklist, and Application and Review Process.
Sponsorship of facilities or parts of facilities is another way to leverage City funds.
Sponsorships would be for a specific amount of time and money. The Department also
has accepted sponsorships for the Bike Park at Valmont City Park.
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AGGNDA ffl,M 9 _ ~ _ , PAGE, "b~
The Department in 2009 received a $200,000 grant from Great Outdoors Colorado
(GOCO) that will be applied towards Phase I construction of the park's natural-surface
Bike Park on the north side of Valmont Road. The Parks and Recreation Department
applied for the grant in February 2009, in partnership with the Boulder Mountainbike
Alliance (BMA). A groundbreaking for the Bike Park was held in October 2009, and
included cyclocross races and a bike festival.
Sidebar: LEED-Certified North Boulder Recreation Center
As part of the City's focus on sustainable architecture in design and construction, the
Department used the U.S. Green Building Council (USGBC) Leadership in Energy and
Environmental Design (LEED) criteria for municipal buildings in renovating and
expanding the NBRC in 2002-2003. The 61,000 square-foot center was certified as
LEED-Silver for incorporating environmentally sustainable design elements and
construction practices. A solar water-heating system provides about half of the energy
needs for the pools. Heat-reflecting roof panels and low-e insulating windows help keep
the building cool in summer. Energy-efficient use of recycled materials included
reprocessing parking-lot asphalt. The recreation centers is landscaped with drought-
tolerant shrubs and maintained without pesticides.
The solar thermal water-heating system is designed to provide heat to the lap and leisure
swimming pools and to the domestic hot water system for showers and sinks. Annually,
this system provides roughly 50% of the thermal requirements of the pools and avoids the
consumption of roughly 17,000 gallons per year of fuel oil equivalent, or 425,000 gallons
over the lifetime of the system. The solar system consists of 142 4'x10' flat-plate
collectors mounted on the roof of the lap pool and the gymnasium. A glycol anti-freeze
solution is circulated through the collectors to absorb the solar energy. Heat is
transferred to the swimming pools directly using a heat exchanger for each pool. To
supply the domestic hot water, solar heat is absorbed in a 1,200 gallon hot water storage
tank.
Sidebar: Facility Partnerships and Sponsorships
The Department will explore partnership opportunities to leverage available resources for
new recreation facilities desired by the community. A facility development partnership
would require that the partner have a source of funds or donations. The resources that the
City brings to the partnership are the land, knowledge of city processes, and experience in
recreation programming. The facility partnership process (see page xx) has been piloted
successfully:
The Boulder Mountainbike Alliance (BMA) is partnering with the Department to help fund
facilities at the "destination" Bike Park under construction at Valmont City Park. BMA, a
collaborative stewardship organization that designs, builds, and maintains trails for land
management agencies in Boulder County, partnered with the Department resulting in an award
of a $200,000 grant from Great Outdoors Colorado (GOCO) to help construct the bike park. As
of January 2009, BMA had raised over $200,000 in additional funding and is committed to
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/ ~l f
Ceremonial Event - a public event designed to celebrate, honor, or commemorate
achievements or individuals related to the mission and goals of the Department.
Ceremonial events are generally free and open to the public, requiring
support/subsidy for all associated event costs.
Special Events organized by non-city groups - an activity or event held at a
Department facility organized by non-profit or for-profit organizations. The
organization rents the facility and is responsible for arranging and paying for
logistical support (i.e. police, risk management). The organization may contract
with the department for various support services.
Athletic Tournament - an athletic event managed by the Department or another
recreation provider at one or more athletic complexes. Tournaments typically
attract a blend of teams from Colorado and other states.
Sidebar: New Facilities Development Criteria
The Department's process for determining whether a new recreation facility can be built
includes meeting the following criteria:
1) Little or no funding is required from the Department for capital improvements.
2) There is an operations and maintenance agreement.
3) Major infrastructure is in place allowing for facility development (such as a new road
in Valmont City Park that will open the park to recreation facility development).
d) The facility is compatible with a park site master plan.
Sidebar: Valmont City Park Plan
In 1998, the City adopted a concept plan for development of the 132-acre Valmont City
Park. At the time, the need for private partnerships was identified if the park was to be
developed in the near future, though no partnership agreements were developed. In the
intervening years, the Department constructed a multipurpose field and parking lot, a raw
water irrigation system, a temporary dog park and the Wonderland Creek Path.
In 2007, a new concept plan for the park was developed based on extensive community
input. The 2007 concept plan includes three phases of development:
Phase 1: Development of the north side of the park, including a permanent dog
park, a purpose-built off-road cycling facility, the restoration of the Platt
farmhouse, utility upgrades, infrastructure improvements and an 18-hole disc golf
course on the southern side of the park (south of Valmont Road).
Phase 2: Development of the remaining outdoor facilities on the south side of the
park, including artificial-turf multi-purpose fields, an adventure playground,
amphitheater, park infrastructure, and parking.
Phase 3: Development of the indoor facilities (likely with public/private
partnerships) and commercial area in the south side of the park.
Development of infrastructure, including a road and utilities, must precede development
on the southern section of the site. Costs for those improvements are estimated at $5-
10,000,000 depending on type and number of facilities.
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AGENiDA i T ERA # ~ _h PAGE q S
Events and Tournaments
17 Conduct rental, tournament and event analysis to
understand current rates in the region
18 Maximize event opportunities at current facilities.
Work regionally to gain referrals for "Boulder-
sized" events.
19 Ensure that events meet department's financial
goals.
20 Strategically expand or enhance outdoor facilities
to attract more events.
Sidebar: Survey Responses on Allocating Recreation Facility Time
The 2009 Recreation Plan Survey respondents assigned the following percentages of time
for recreation opportunities provided at City recreation facilities:
Recreation Opportunity % Use
Drop-in Use 291%
Such as lap swimming, basketball, and weight room
"Learn-to" Skill Development 22%
Such as beginner and intermediate classes
City-sponsored Leagues 190/0
Such as softball, youth football and adult soccer
Community Group Use 17%
Such as youth soccer, masters swimming, Little League
Advanced or Elite Programs 12%
Such as advanced classes and competitive programs
Sidebar: Events and Tournaments
The Department offers or facilitates different kinds of events, including:
Department Special Event - an event or activity primarily designed, organized, or
sponsored by the Department to generate revenue while contributing to the
individual, social, economic, and/or environmental health and well-being of the
community. Department special events will reflect the mission and goals of the
Department as well as the unique values and character of the community.
Promotional Event - an activity or event held at a Department facility for the
purpose of promoting a 'Department program, facility or activity or the Department
as a whole. Promotional events are designed to attract prospective new clients.
Programmatic Event - a one-time activity, event, or workshop held as part of the
Department's recreation programs and meeting the pricing, enrollment, and policy
criteria of a recreation program.
Public Engagement Event - a public meeting or event designed to gather input
from and/or share information with the community about Department plans,
opportunities, policies, or changes that could impact residents or user groups. Public
engagement events are always free and open to the public, requiring subsidy for all
associated event costs.
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,.GEN13A HF-_?JS ~r , PAc;E_T T..
Recommendations
1 Continue to implement Master Plan
recommendations related to recreation facilities.
See also Appendix XX
2 Create business plans for specific areas, such as
aquatics, athletic fields, and sports, to analyze the
existing facilities and program offerings, identify
needs, and develop future options.
3 Complete in-process master plans and business
plans for the Boulder Reservoir and Flatirons Golf
Course.
4 Explore the concept of themed recreation centers
to maximize facility design and use.
5 Implement priorities for facility use. The priority
order is recreation programs, drop-in facility use,
Citv programs, and rentals.
6 Create priorities for Department programs to use
program space, based on identified criteria.
7 Create an asset replacement and maintenance
schedule.
S Create priorities for renovation projects that will
increase facility use and revenues.
9 Ensure that all facility renovations and
development meet industry or sport standards. For
example, enlarge the substandard pool at Scott
Carpenter and the gymnasium at EBCC.
10 Implement energy efficiency and water
conservation measures and upgrades.
11 Explore partnerships for facilities, both developing
new and renovating old facilities.
12 Explore the concept of a caf6 or food service at
appropriate facilities, such as NBRC and EBCC.
13 Partner to develop a tennis teaching center or
indoor tennis facility.
14 Install artificial turf fields at community and City
arks.
Revise and/or develop policies, guidelines, and a
15 pricing structure for facility rental by partners,
nonprofit groups, and businesses.
16 Educate, implement, and enforce the existing
permit system for group use of Department parks
and facilities.
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AGENDA ITEM #_V-A-
-,PAGE q S
Capital Needs
Funding is currently available for ongoing facility maintenance and a limited amount of
upgrades each year. Additional funds will be needed for major facility renovations.
The funding comes from three sources: the Permanent Parks and Recreation Fund, the .25
Cent S ales Tax Fund and the .15 Cent S ales Tax Fund.
The Department's investment priorities for recreation facilities, identified in the
Department's Master Plan, build upon the Department goals to "Maintain and protect our
parks acid recreation facilities and programs" and "Become economically sustainable."
The Department's priorities for investing in existing recreation facilities and developing
new facilities are tied to funding. The current priorities for investment in facilities include:
Priority 1 - Invest in existing revenue-producing facilities.
Priority 2 - Invest in improving substandard facilities.
Priority 3 - Invest in existing facilities.
Priority 4 - Invest in new facilities with demonstrated need and community support
(through partnerships).
(See Master Plan for more information.)
Facility Renovation
The Department's recreation facilities need periodic renovation and upgrades to protect
the City's investment in these facilities, make safety improvements, and stay current with
industry trends and standards. In the past, the Department's process for determining
priorities for capital spending on recreation facilities has focused on community needs,
safety issues, and retrofits needed to meet legal requirements.
The Department's current priority for renovation is for energy efficiency upgrades and
retrofits, such as boiler replacement at EBCC and athletic field lighting replacement at
East Mapleton Ballfields. The City is conducting audits of the recreation facilities to
identify improvements for energy efficiency. The City will evaluate and create priorities
for improvements and will pay for the improvements through savings from reduced
energy costs as well as by leveraging existing capital funds through loans and grants. By
investing in energy efficiency, the Department will reduce its utility and ongoing
maintenance costs over the long term.
Development of Future Facilities
The development of any future facilities will be determined through regularly conducted
needs assessments and feasibility studies. Concept plans for Valmont City Park (see page
xx) and Foothills Community Park identify areas for future recreation facilities and
athletic fields. The Department also has a large parcel of land (191 acres) within the
Boulder Valley Comprehensive Plan (BVCP) Area III-Planning Reserve that is set aside
for potential future park and recreation facility needs. Before development could occur,
the parcel would need to be annexed into the City and undergo a planning process.
Draft 2.1610
4GC- DA ITPM V-/~ . PAGE ,2
• Duplication of programs beyond market carrying capacity
See Appendix xx for specific facility recommendations.
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t~
AG'FNIDA f EM # VI PAGE "i l
Special Events
There is an existing requirement that groups over a specified size must obtain a permit for
group use of Department parks and facilities. The criteria for needing a permit relate to
group size, and type and frequency of use. A fee is charged to off-set maintenance costs
and on-going impacts due to the use. The Department will work to educate all users
regarding the criteria related to permit requirements and work to equitably enforce
regulations.
City facilities have historically been utilized for special events. These events may be one
or more days, and may or may not require exclusive use of a specific facility. (See
sidebar for types of events.) Large events, such as the Boulder Creek Festival or the 4`h
of July softball tournament attract out-of-town visitors and result in additional sales tax
from lodging, restaurants and shopping.
Department facilities that host special events include Pleasant View Fields, Stazio
Ballfields, the Boulder Reservoir, Flatirons Golf Course and the Central Park area. At
times, portions of community and neighborhood parks may also be utilized for special
events. The city has a Special Events Committee that reviews all applications, identifies
concerns and meets with applicants as necessary. For most large events, a contract
between the city and the organizer or organization is required. Fees often include a
facility rental fee, a damage deposit and costs for public safety and environmental
enforcement staffing.
In order to continue to support special events in Boulder, the Department will review its
facilities and scheduling to maximize the benefits to the City economy from special
events. The Department will coordinate with other departments and the Boulder
Convention and Visitor's Bureau to determine the types and sizes of events that would be
the `best fit' for Boulder.
Facility Issues: Identified Needs or Deficiencies
In addition to physical deficiencies in recreation facilities, the Department must address
some programming and operational issues:
• Maximizing facility use: The Department's facility-use analysis indicates the
Department owns a range of recreation facilities. Some are not used to their
fullest capacity, and others are subject to more demands for space and time
than is available.
• The cost of operating and maintaining recreation facilities: Utility costs
have increased significantly in recent years as heating, electricity, and staffing
costs have risen.
• Balancing the scheduling of facility space for programs and rentals with
space and time availability for drop-in use.
• Facility crowding at peak times and parking problems at NBRC.
• Funding for facility renovations, including upgrading facilities.
• Capital funding
• Ensuring all facilities meet ADA compliance
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AGENDA ITEM # V -A , PAGE
Total 34,255 54,496 59.09% 715,909 741,937 3.64%
Currently, the Department offers drop-in use and scheduled programs during both peak
and off-peak hours. A majority of 2009 Recreation Plan Survey respondents agreed on
the importance of being able to drop into recreation centers for unscheduled and
nonprogrammed recreation activities such as leisure and lap swimming and basketball in
the gym.
To achieve economic sustainability goals, the Department will focus on maximizing use
of its facilities. An initial analysis of facility hours indicates that the recreation centers
and other facilities are not used fully at certain times. At peak times in the recreation
centers (generally 7 to 9 am, 11 am to 1 pm, and 4 to 7 pm), lap pools, fitness and weight
rooms are at or near capacity, and other rooms are programmed. There are some facility
spaces, such as gymnasiums and multipurpose rooms, where the demand exceeds
availability at peak times. However, the facilities are underused during some off-peak
times.
Athletic facilities are programmed or rented from March through early November,
depending on the facility. The Stazio, East Mapleton and Pleasant View Fields are used
by city programs and other sports organizations from March through October and heavily
programmed for tournaments and camps from May through August. The outdoor pools
are open from Memorial Day through Labor Day, and are used by families, lap swimmers,
and competitive swimmers as well as programmed classes.
A preliminary facility-use analysis showed the Department needs to create priorities for
space, programs, and funding. The analysis showed the Department offers many of the
same kinds of programs and classes, and that class minimums often are not met. This
prompted questions about whether the Department's facilities were used efficiently in
terms of space and scheduling, and open versus programmed times. The community
survey indicated that respondents valued drop-in use the most (see sidebar). The
Department will have to structure the use of facilities so as to balance the need for
revenue from programs and rentals to program partners with the community desire for
drop-in (nonprogrammed) use.
The Department's facilities are rented by several types of groups, including non-profit
organizations, BVSD, for-profit businesses and service clubs. The facility use fee that is
charged depends upon whether the use is a one-time use or an on-going use (i.e. for an
on-going program). Currently, there are historic agreements between the city and
several groups for use of the lap pools and athletic fields. The Department has policies
that address the priority for renting tennis courts and field space (multipurpose and
baseball fields) to independent sports organizations. However, the policies should be
expanded to include all outdoor and indoor facilities. In addition, the basis for rental fees
for all facilities should be standardized and will be determined based on actual operating
and maintenance costs and market rates. (See Appendix XX for Policies).
Draft 2.16.10 1,
• Spruce Pool (outdoor), is an eight lane 25-yard pool, located in the Whittier
Neighborhood. It also has a leisure pool with accessible ramp and play features
including jets, fountains, and a slide.
Facility needs/issues: bath house improvements; additional parking.
• Salberg Studio, the 2,400 square-foot building at Salberg Park, was remodeled in
2001 and is used for Pilates, yoga, and summer camps.
Facility needs/issues: maximum use of facility.
• Pottery Lab, located in a historic firehouse, includes 3,800 square feet on two
floors used for instruction.
Facility needs/issues: maximum use of space and time; additional storage,
alternate parking.
• Iris Studio, remodeled in 2006, is a 2,285 square-foot dance and yoga studio
located in the Iris Center administrative building.
Facility needs/issues: maximum use of space and time and compatible
uses with the Department Administration offices during business hours.
Facility Use
The recreation centers are used for programmed classes, drop-in use (gyms, weight rooms,
lap and leisure pools) as well as rentals of the pools, gyms, and multipurpose rooms.
Peak seasons of use are the fall and winter months (September to March). The NBRC
experiences the most use, followed by EBCC and SBRC as shown in the Facility Use
Chart.
Facility Use Chart
NBRC EBCC
2007 2008 % Change 2007 2008 % Change
Course 112,650 123,726 9.83% 43,669 48,056 10.05%
Drop-in 62,450 57,016 -8.70% 31,004 28,601 -7.75%
Membership 165,185 170,167 3.02% 134,924 127,685 -5.37%
Total 340,285 350,909 3.12% 209,597 204,342 -2.51%
SBRC Scott Carpenter Pool
2007 2008 % Change 2007 2008 % Change
Course 31,039 32,046 3.24% 321 90 -71,96%
Drop-in 7,243 7,876 8.74% 20,634 17,338 -15.97%
Membership 60,236 61,903 2.77% 12,299 12,937 5.19%
Total 98,518 101,825 3.36% 33,254 30,365 -8.69%
Spruce Pool
2007 2008 % Change
Course 8,334 26,212 214.52%
Drop-in 10,822 14,103 30.32%
Membership 15,099 14,181 -6.08% 2007 Total 2008 Total % Change
Draft 2.16.10 l
`t~rlV17l~. fIT:111 9 V`A . PA6E ~J~
The Department owns or manages 20 satellite athletic fields located in urban parks or at
Boulder Valley School District (BVSD) sites. The fields are used for Little League
baseball, youth softball, and field sports. All of the fields are rented to user groups for
practices and games. These athletic fields are located within the following city,
community and neighborhood parks: Valmont City Park; Foothills, East Boulder and
Harlow Platts community parks; and Arapahoe Ridge, Columbine, Martin, North Boulder
and Tom Watson parks. Since 1998, the Department has had a cooperative agreement
with BVSD to maintain athletic/sports fields at Aurora 7 School (Aurora 7 Park),
Columbine School (Columbine Park), Eisenhower Elementary School (Arapahoe Ridge
Park), Flatirons Elementary School and Summit Middle School.
Facility needs/issues: artificial turf fields at community parks.
Specialized Facilities
The Department owns and maintains the following specialized facilities:
• Flatirons Golf Course, owned by the City, opened for play in 1938 as the
Boulder Municipal Sports Center. The City and Flatirons Country Club (FCC)
entered into a 30 year lease agreement in 1956 where the Club would operate the
golf course and turned back over to the City in 1986 when its lease ended. It
features an 18-hole course, driving range, clubhouse, event center, and parking lot.
Revenues from the golf course support other recreation programs through the
Recreation Activity Fund.
Facility needs/issues: A site master plan and strategic business plan is
being developed to provide strategic long-term programmatic
recommendations and identify golf course improvements and facility
renovations. It will identify the funding needed to improve the golf course,
clubhouse, and event center.
• Boulder Reservoir was constructed in 1954 for water supply, storage, and
delivery, and for recreational uses. Recreational uses and facilities at the 450-acre
reservoir include swimming and boating, a boathouse, a
bathhouse/concession/restroom building, picnic facilities, and hikingibiking trails.
Facility needs/issues: A site master plan is underway and is scheduled for
completion in the third quarter of 2010. The plan will establish
management objectives that will guide future investment at the Reservoir,
including capital needs.
• Skatepark, a 14,000 square-foot special facility for skateboarding located at Scott
Carpenter Park, features a street course and deep bowls. The Skatepark is free and
open to all, and programming is provided in a partnership agreement with the
YMCA.
Facility needs/issues: accommodations for heavy use and different kinds
of riders, such as a stand-alone BMX park.
• Scott Carpenter Pool (outdoor), located in Scott Carpenter Park, is a 6-lane 50-
meter (substandard length; slightly smaller than regulation size) pool with a
diving well and a leisure slide.
Facility needs/issues: bath house improvements; pool replacement;
parking improvements.
Draft 2.1610
The community highly values the three existing Department recreation centers and data
shows that attendance at the centers increased by an average of four percent from
715,909 visits in 2007 to 741,937 in 2008. The centers were constructed according to the
service model from the 1970s and 1980s, in which recreation centers were built to serve a
geographic area of the community. As such, each recreation center has some specialized
elements, but all generally offer similar amenities. A variety of classes are scheduled at
all centers (see Chapter 3). The centers also are available for daily use through annual
pass memberships, punch cards, or a daily fee that allows users access to fitness classes,
weight rooms, gymnasiums, pools, hot tubs, saunas, and locker rooms. Facilities may also
be rented for events or parties.
Athletic Complexes
The Department has four athletic field complexes that it schedules and maintains and one
that is scheduled and maintained by BVSD and a partner: Gerald Stazio Ballfield
Complex, East Mapleton Ballfields, Pleasant View Fields and Scott Carpenter Ballfield.
These facilities are purpose-built athletic fields and are suitable for hosting tournaments
and events. Major park sites that are appropriate for future high-quality athletic fields
(grass or synthetic turf fields) are Valmont City Park and the three community parks
(East Boulder, Foothills, and Harlow Platts). The city and community park sites are also
suitable for high weekly use and smaller regional athletic events.
The Department's athletic fields include the following specialized athletic complexes:
• Gerald Stazio Ballfield Complex (Stazio Fields) on 23 acres features seven
lighted softball ballfields with bleachers, three concession/restroom/scorekeeper
buildings, roads, parking lots, multiuse trail and a playground.
Facility needs/issues: additional fields, energy-efficient field lights, shade
structures.
• East Mapleton Ballfields on 11 acres features three lighted softball fields,
bleachers, nine horseshoe pits, a playground, and a restroom/concession
stand/score-keeper building.
Facility needs/issues: energy-efficient field lights, additional parking, and
shade structures.
• Pleasant View Fields on 52 acres features a soccer and rugby complex with nine
sand-based turf fields, parking lot, restrooms, and multiuse trail.
Facility needs/issues: additional parking; a playground; shade structures.
• Scott Carpenter Park Baseball Field is a lighted Legion-size baseball field for
high-school age and adult players. The facility includes bleachers, a score box
building, and restrooms. The Department partners with BVSD, the primary user
of the fields, who is responsible for facility improvements.
Facility needs/issues: This facility is located in the Boulder Creek
Floodplain, which restricts most new construction. Replacement of both
dugouts is scheduled to be completed spring 2010.
Satellite Fields
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`CYFE` DA FDA ~ . PAGE JCS
Chapter 4: Recreation Facilities
The City of Boulder Parks and Recreation Department owns and manages a variety of
recreation facilities in addition to the City's urban parks. With an emphasis on
sustainability, the Department is committed to leveraging resources in maintaining and
improving recreation facilities. This chapter discusses the condition and needs of current
recreation facilities, investment priorities for facilities, facility programming and
operations, and the process for developing new facilities.
Existing Recreation Facilities
The Department's recreation facilities are discussed in the following section, along with
some key needs and issues for each facility. The Department also owns and manages 72
urban parks that include a variety of outdoor amenities, such as tennis, basketball and
handball courts, athletic fields, playgrounds, skate parks, walking paths, horticultural
plantings, picnic shelters, and ponds.
Recreation Centers
During a period of facility growth from the 1970s to early 1990s, the Department built
three full-service recreation centers (see Appendix XX)
• North Boulder Recreation Center (NBRC), was built in 1972 and remodeled in
2002-2003 as a LEED-Silver certified, 61,656 square-foot structure. It includes a
fitness and weight room, multipurpose room, gymnastics center, yoga room,
dance studio, gymnasium, leisure pool, lap pool, racquetball/squash courts, locker
rooms, child-care center, meeting room, and lounge/reception area. The building
has a solar thermal system, designed to provide heat to the lap and leisure
swimming pools and to the domestic hot water system for showers and
sinks. Annually, this provides roughly 50% of the thermal requirements of the
pool and avoids the consumption of roughly 17,000 gallons per year of fuel oil
equivalent. NBRC is designated as a Boulder County Office of Emergency
Management shelter for people with special needs in the event of a major flood or
other emergency.
Facility needs/issues: more parking; more utilization of facility spaces such
as gymnastics, dance, yoga and child care; larger fitness/weight area.
• East Boulder Community Center (EBCC) was built in 1992, and includes a
recreation center (41,000 square feet) and senior center (10,913 square feet). The
recreation center includes a fitness and weight area, dance studio, gymnasium,
fitness/yoga room, lap pool, leisure pool, locker rooms, child-care center and
climbing wall. The senior wing includes crafts rooms, a multipurpose room, and a
commercial kitchen.
Facility needs/issues: leisure pool improvements; fitness/weight area
expansion; regulation-size basketball courts.
• South Boulder Recreation Center (SBRQ was built in 1973 and renovated in
1999. Its 35,603 square feet include a fitness and weight room, dance studio,
gymnasium, yoga/Pilates room, racquetball court, lap pool, and locker rooms.
Facility needs/issues: overall facility renovation and expansion.
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AGFENDA, ITB # _V~ , PAGE 3 5
Department is responsible for all maintenance at the Skatepark; the YMCA is responsible for
custodial duties associated with activities the YMCA manages.
Sidebar: Scholarship Program
The Department is interested in establishing a scholarship program, which, in conjunction
with the reduced-rate program that is currently offered, will greatly expand access to
recreation programs and services to people that are economically disadvantaged. The
Department will explore various methods for fundraising, such as a direct donation
campaign, and create clear guidelines and procedures for applying and using these funds.
Draft 2.16.10
GF-- FDA ITEM # V -A , PAGE -3q.
Chapter 5: Funding Challenges and Pricing
The Recreation Program and Facilities Plan (RPFP) includes strategies that will help the
Department make decisions and develop a diverse and sustainable portfolio of programs
and facilities. Employing the funding strategy outlined in this plan will allow the
Department to make changes in programs, services, and facilities while improving
financial strength.
The Department's Current Financial Challenges
The current economic climate has caused a reduction in the City's sales and use tax
revenue collections, which resulted in a decline in the tax-supported funding to support
and subsidize recreation services. The Department must establish a decision-making
framework to ensure it operates strategically and effectively. The Department is utilizing
the following strategies to address financial challenges:
• Continue work to define service costs and set fees that cover expenses.
• Determine which recreation services should be provided by the City and which
should be provided by others.
• Determine how best to provide defined services with available resources,
including partnerships and/or contracting services.
• Allocate resources (funding and staffing) appropriately within program areas.
Recreation Funding
The Recreation Division's budget is composed of funding from the following five
sources: the Recreation Activity Fund, the City's General Fund, the .15 Cent Sales Tax
Fund, the .25 Cent Sales Tax Fund, and the Permanent Parks and Recreation Fund (see
page xx). The Lottery Fund, a sixth source of funding for the Department, does not
provide funds for the Recreation Division.
The Recreation Activity Fund
The Recreation Activity Fund (RAF), the main source of funding for the Recreation
Division, was created in 2001 as a special revenue fund to provide flexibility in financing
recreation operations. The RAF provides an accounting mechanism for fund balance that
can be used to offset declining revenues or weather impacts at facilities. As a quasi-
enterprise fund, its intent is to retain revenues in excess of expenses from recreation
activities and reinvest them in recreation services. Prior to the creation of the RAF all
excess revenues from recreation programs and facilities fees were added to the City's
General Fund. The majority of recreation funding (approximately 66 percent) is derived
from user fees, which are accounted for through the RAF. Since inception, the RAF
receives tax supported funding to subsidize programs and services that are not self-
sufficient (do not cover the operating costs to provide the service) through fees charged.
The RAF is currently reliant on the subsidy since the Department's community outreach
recreation programs do not charge cost recovery fees for services and funding for those
areas is accounted for within the RAF.
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AGENDA, ITEM # PAGE g
Before 2002, the number and range of recreation program offerings grew as the
Department experienced increases in demands for program services. From 2002 through
2008, recreation programming continued to be reactive but the Department was
beginning to respond to budget reductions and declining tax supported funding. As a
result of the decline in sales tax revenues, in 2004, the long-term sustainability of the
RAF became a concern. This was due to the Department's increasing operating expenses,
the limited ability to adjust fees and projected RAF deficits.
Recreation Fund Management Challenges
Given the current economic climate and the likelihood that it will be ongoing, the
Department needs to become more entrepreneurial and needs greater flexibility in
managing funds. Additional revenue collected in the same calendar year could be used to
enhance operations if the Department was on target to meet budget goals. An increase in
Council approved budget that utilizes such revenues is one idea. The current mechanism
that provides for additional appropriations to the base budget is permitted twice annually.
But this may not provide enough flexibility for the Department.
Another challenge the Department experiences is how funding is managed. Revenues
collected through fees for all recreation programs and facilities, contribute to the RAF
budget. All revenue earned throughout the year goes to the RAF "bottom line," similar to
a balance sheet. Revenues generated by programs and facilities are not reinvested directly
into the budgets of the recreation activities or areas in which they were earned. For
example, the golf course fees provide revenue in excess of the amount required to operate
golf services, but these additional revenues are not specifically reinvested in golf course
improvements.
As part of the City's budget process, revenue and expense projections are allocated
annually as the year begins. Revenue generated in 2009 is applied to the fund balance and
is not available in the current year. Once the annual budget is set, there is no mechanism
to access additional revenue generated from fees during the same year. The fund balance
cannot be used unless funds are appropriated through the City budget process. This can
restrict program flexibility. The Department has limited flexibility to make adjustments
that respond to unidentified needs and trends.
Recreation Cost Analysis
In April 2008, a key recommendation of the City Manager's Workgroup on Recreation
Financing was that the Department gain a better understanding of and formalize the costs
associated with operating recreation programs, services and facilities. Staff defined
recreation costs, determined the total cost of recreation operations, and analyzed revenues
in order to understand how much of the total cost of each program was recovered through
user fees. The Department completed a financial analysis to determine the total costs of
operating recreation programs, services and facilities. Based on revenues earned from
fees, cost recovery rates were calculated and subsidy amounts were identified. (See
Program, Service and Viability Report, Appendix X). Determining the total cost is
important because it will provide the foundation for the Department's fee-setting
methodology.
Draft 2.1610
q
AGENDA ITEM # V_A PAGp ~ I
The Program, Service and Viability Report included findings as follows:
• The total cost of providing recreation services includes the direct and indirect
expenses currently accounted for in the RAF.
• A baseline for the current costs accounted for in the RAF includes
o direct program and facilities expenses;
o recreation indirect expenses that are proportional to each program area and
facility, based on total direct costs; and
o revenue earned that is associated with programs and facilities.
• The RAF does not account for the total cost of recreation. Recreation-related
expenses and indirect expenses not accounted for in the RAF are not factored into
the total cost of recreation. These expenses include city cost allocated, capital,
and Department overhead.
Recreation Cost Definitions
The Department currently utilizes the following definitions when calculating and
analyzing recreation costs.
1. Program costs include personnel and non-personnel expenses specific to a
recreation program. These costs are incurred only when a program is provided and
include instructor salaries and program-specific supplies required for participation.
There are both fixed and variable program costs.
A. Program direct costs include expenses that are relative to the program scope
and size. The costs adjust according to program participation or demand and
are expended as needed for:
instructors
referees/umpires
lifeguards
some program specific material (items such as camp shirts and individual
pottery supplies)
B. Program facility costs are costs for facilities that exist solely for specific
programs at Iris Studio, Salberg Studio, and the Pottery Lab. These facilities
are programmed and not rented. The costs are incurred daily, including
utilities and custodial services, and are incorporated into fees paid by users.
C. Program indirect costs include costs that remain unchanged and must be
paid when the course is offered or service is provided, regardless of the
number of participants. These costs are incurred during hours of operation and
include:
program administration
class/program supervision
program expenses (includes mileage/business travel, training, professional
certifications, cell phone, some program-specific materials, equipment,
uniforms, and advertising)
2. Facility direct costs include the total of all direct personnel and non personnel
expenses associated with the operation and maintenance of the City's recreation
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AGENDA ITEM 4 ~ V o PAGE SD
facilities (North, South, and East Boulder recreation centers, Flatirons Golf Course,
Scott Carpenter and Spruce outdoor pools, Boulder Reservoir, aquatics operations,
and sports fields). A portion of facility costs is incorporated into fees paid by users.
These costs are incurred daily and include
recreation center administration and supervision (administrator and
supervisors, customer service team members)
registration staff
facility drop-in, childcare, and climbing wall-related oversight and instruction
maintenance and office supplies
utilities and water fees
financial and custodial services
Note: Indoor aquatics operations are included as part of the respective recreation
center.
3. Recreation indirect costs include the overhead personnel and non-personnel
expenses associated with the day-to-day operation of the Recreation Division.
These costs are incurred daily and include:
Administration (recreation superintendent, CLASS registration system
management, recreation administrative specialists)
Marketing and promotions (media specialist, recreation guides, camp guides,
program advertisement and promotions)
Note: Department and City overhead expenses, such as Parks and Recreation
Director, Business and Finance, Human Resources, City Attorney's Office, Risk
Management, Information Technology, and capital expenses are not included in
RAF indirect costs.
4. Program, service, and facility revenues include the total amount of money
received by the Department and accounted for within the RAF which are paid by
users for:
• program registration
• admissions (sale of annual passes, punch cards, drop-in fees)
• point of sale items (locks, swim diapers, fruit bars)
5. Nonoperating revenues include funding received from sources other than user fees
or goods purchased for resale that supplement the RAF to subsidize recreation
operations. Sources include:
Funding transfers from other City funds (including the General Fund,
Worker's Compensation Fund, and Transportation Fund)
Monies from grants, donations, and fundraising
Interest income
Current Pricing and Fee Types
Historically, fees and charges have been assessed on individual users or groups that
receive a benefit from specific recreation services. Corresponding to the City's budget
guidelines, these recreation services have been assigned partial, full, or enterprise cost-
recovery expectations. The pricing method for recreation services was set using the
Draft 2.1610
market and historical precedence to match fees of other agencies in the region, or set fees
at a point that was considered fair, reasonable, and equitable for users.
Currently, fees and charges are evaluated on an annual basis by recreation staff. The
Department adjusts program fees on the basis of the current costs of providing programs
and competitive market rates, and these fees are approved by recreation management
staff. The Department offers City residents discounted rates for classes and facility
entrance fees to acknowledge that residents already contribute to recreation facilities
through property taxes. The Department offers additional discounts through multi-use
punch cards and for residents with low incomes, people with disabilities, and members of
the Boulder Chamber and employer groups within the city.
Facility entrance fees for the recreation centers, the Boulder Reservoir, outdoor pools,
and Flatirons Golf Course are adjusted as part of the City budget ordinance approval
process. These fees are charged according to the Department's age-based pricing method.
Because these fees are identified in the city's municipal code, City Council must approve
the increase. Increases are generally tied to the consumer price index (CPI), which can
limit the Department's ability to raise fees in order to cover true expenses or to meet
market rate.
Pricing Goals
The Department is anticipating that tax-supported funding for the RAF will be reduced
and potentially eliminated. Through strategic program delivery, sustainable fund
management, and leveraging resources through partnerships, the Department can meet
these reductions effectively. Strategies for achieving this goal are as follows:
• Use a standard pricing method to calculate and analyze the total cost of service
consistently for all recreation programs, services, and facilities.
• Apply an appropriate amount of indirect costs to user fees.
• Reinvest in recreation infrastructure, following industry standards, by establishing
a facility investment fee in the pricing structure.
• Assign percentage of City cost allocations and capital expenses that would need to
be included in the total cost of recreation, beyond operating costs.
Service-based Pricing
The purpose of using a consistent pricing method is to ensure the creation of a sustainable
fee structure that reduces the Department's reliance on tax supported funding, therefore,
the Department is implementing service-based pricing for recreation programs and
facilities. Fees, including codified fees, will be established based on the defined cost to
provide recreation services and the market rate, when appropriate. Using this method will
ensure that all programs and facilities are priced appropriately and fees are set at the point
at which each program and facility will recover the identified cost recovery
amount. Understanding and defining the cost to provide the service will assist the
Department in establishing a cost-recovery goal for all recreation services. The
Department plans on phasing the implementation of service-based pricing beginning with
programs and rentals and eventually applying it to admission fees. Ultimately, subsidy
that is applied to admission fees will be eliminated.
Draft 2.1610
The service-based pricing process will include the following steps:
• Establish a baseline through identifying direct costs for each program/class.
• Calculate the following overhead (indirect) costs:
o all program indirect and recreation indirect costs;
o all recreation facility costs for operations and maintenance;
o all Department-related indirect costs;
o all City cost-allocated costs (including the city manager's office, city
attorney's office, finance office, information technology, and human
resources); and
o all capital-related costs, including major maintenance, replacement of existing
recreation facilities, and development of new facilities.
• Determine and apply an appropriate amount of indirect cost that will be
consistently passed onto user through fees.
• Identify and understand the City cost-allocated costs and all capital-related costs,
but do not pass these on if they cannot be accommodated by the market.
Subsidization
The Department's recreation programs are funded within the RAF Recreation funds,
which are derived from two general sources: user fees for services and subsidy from other
City funds (General Fund, Transportation and Workers Comp). Programs that generate
more revenue than is required to cover expense also help subsidize the recreation
programs and facilities that do not cover 100 percent of their costs. Programs and
services within the RAF recover varying amounts of expenses through user fees. The
average cost-recovery rate for recreation operations was 82 percent in 2008.
Although offerings for programs and services have expanded, the tax supported funding
has remained fairly constant. This poses a challenge, as the costs of providing services
have increased, causing a gap between revenues earned from fees and the expenses
required to provide services. To respond to this gap, the Department has established a
new process for applying subsidies based on program classifications, which includes the
following steps:
o Identify the program level based on the newly established criteria.
o Apply a subsidy, if available, to social core programs only.
Cost Recovery
Cost recovery is the portion of a program, service, or facility expense that is paid by user
fees. Recreation programs and facilities are funded through a combination of admission
fees and City revenue sources, including sales and property taxes. A cost-recovery policy
was developed to ensure that subsidies, if any, are directed primarily to social core
programs. This policy provides a systematic framework for determining appropriate fee
structures and evaluating programs that do not meet designated minimum cost-recovery
goals.
Draft 2.1610
3
,aCE.NDAeTEM# U-_,PAGE
Direct costs are identified as specific identifiable expenses associated with providing
recreation services. On a fund level, this includes all expenses from the Recreation
Activity Fund, partially supplemented by the Department's other funds. Indirect costs are
identified as Department and City overhead expenses.
Cost Recovery Expectations
The Department completed an analysis based on operating costs to determine current
cost-recovery rates for programs and services. Fees will be determined based on the
identified costs that are required to be recovered and cost recovery goals. The chart
below identifies general cost recovery goals according to whether they are programs,
contracted recreation services, facilities, or rentals and include program direct, program
indirect, facility, and recreation indirect costs. A potential future phase will analyze
department-related indirect costs, City cost-allocation, and capital costs.
Cost T es
Program Program Recreation Department City Cost
Recreation Services Direct* Indirect Facility Indirect Indirect Allocation
Programs (Classes, Teams,
Leagues, Camps) X X X X A A
Contracted Recreation
Services O O X X A A
Facilities (Admissions) O O X X A A
Rentals O O X X A A
*Cost baseline
X= City of Boulder Parks and Recreation Costs
O= Costs collected by outside program provider
A= Costs not presently recovered via user fees
Draft 2.16.10
j
Cost-recovery Goals are as follows:
Program Cost Recover Goal
Social Core Programs
XSI % cost recover (100% tax Supported)
Inclusion % cost recover (100% tax supported)
EXPANDSpecialized Programs 5%-100% cost recover
earn-to-Swim Programs 0%0-1001/o cost recover
Certification Programs 0%- 100% cost recovery
Level 100 "Learn-to" Programs 90%- 100% cost recover
Desirable Programs
Level 200-300 Programs 100% cost recovery
(achieving 100% plus cost recovery would
Hove the program from "Desirable" into
the Business Core category)
Business Core Programs
Level 400 programs, summer camps, private ost recovery exceeds 100%
lessons, tournaments
*Cost recovery goals relate to the program direct, program indirect, facility, and
recreation indirect costs, but will likely not recover department-related indirect costs,
City cost-allocation, and capital costs.
How Recreation Programs and Services Should Be Funded
Based on the RPFP guiding principles, three program types have been identified and will
be offered by the City: social core, business core, and desirable programs. Funding for
these programs comes from tax supported funding, user fees, or other programs.
Social core or "public good" programs have partial cost-recovery expectations of
between zero and 90 percent, and have user fees that are supplemented by tax supported
funding or RAF subsidy. These programs generally are traditional municipal youth
programs, programs that target disadvantaged populations, or activities that enhance the
health, safety, and livability of the community and therefore require the removal of a cost
barrier for optimum participation. There are two types of social core programs: 1) life and
safety and community health programs that engage youth and the community at large in
healthy activities and help achieve lifelong healthy habits; and 2) programs that serve
disadvantaged populations.
Business core programs have full cost-recovery expectations and beyond, or cost-
recovery expectations of more than 100 percent. They meet the needs of the market, at
market rate pricing, These programs generate revenue in addition to expenses, which can
be used to offset the costs of social core programs and thus lower the tax supported
funding.
Desirable programs have full (100 percent) cost-recovery expectations and respond to
expressed priority community needs.
Draft 2.1610
5S
AGENDA ITEM Y AGE
The chart below illustrates this "Phase 1" funding scenario. Currently, many desirable
programs do not meet the new cost recovery goal. During the next 1-2 years, the
department will implement actions such as reducing costs, raising fees and /or seeking
outside funding in order to meet the cost recovery goal. Ultimately, all Department
programs will fall into either the social core or business core categories. The additional
revenues generated by the majority of the programs will be channeled into subsidies for
social core programs and into a capital fund that will fund renovation, replacement and
capital construction.
Draft 23610
r
AGENDA ITEM U . o PAGE
5b
Recreation Programs and Services Funding - Phase 1
Social Core Programs Business Core Programs Desirable Programs
p (Partial cost recovery) (Full cost recovery plus) (Full cost recovery)
Subsidy from the _ Youth Services Initiative legal
General Fund EXPAND Inclusion (ov.t
-a
c
ei EXPAND Specialized eps.ioo el
0 Learn-to-Swim '190-,Inm Intra-Fund Subsidy
W User Fees 31- Red Cross Certs *(9056-100to<.}
-4--- -
v Beginning and
D Introductory Classes • all
o program areas f9o`{-loo%i
Programs that generate Programs and rentals
User Fees
revenue above required that cover required costs
costs
Social Core programs (Public Good progroms) Business core programs provide revenue Desirable programs are programs }fat meet
to are generally accepted as traditional municipal support for Ike Department's entire portfolio priority community interests. These pro.
7- youth programs, programs that target disadvan- of recreation services. Business core fees ore grams must meet the following criteria in
® Caged populations, or activities that enhance the generally set at market rate and are order to be offered through the City of
health, safety and livability of the community required to cover identified direct and Boulder:
and therefore require the removal of a cost bar- indirect (overhood) costs. Required:
rier for optimum participation. Tkem ore two 1. Program coven required direct and incii-
r types of social core programs: Life/Safety and reel casts (instructor fees and class mate-
Community Health Programs (Programs }hat en- rials and administrative costs),
gage the youth and the community at-large in 2. Physical program space is available.
Fealthful activities and help achieve lifelong 3. Program is in demand - classes often fill
t f:abits) and Programs targeted to Disadvan- up and may have a waiting list.
taged Populations (Programs that serve disad- 4 Program serves a large population or
vantaged populotienel. identified need of the community.
Desired:
" EXPAND Specialized, Learn-to-swim and Red 1 Program might provide a partnership
Cross Certifications are supplemented with user opportunity to leverage city resources.
fees for these programs. 2. Program maximizes facility use - might
0 use a space that would otherwise be
empty.
3, Program contributes to serving a diverse
cross-section of the community.
Fee Adjustments
Implementing a consistent pricing method will impact the current fees for recreation
services. Adjusting fees for programs and facilities will involve considerations such as
• analyzing all the impacts of the new pricing method and cost-recovery goals;
• considering a phased approach to modify fees (fees may increase or decrease
depending on the current market rate);
• communicating the rationale for fee changes to users and the community; and
• adjusting fees as needed to implement consistent pricing while maintaining
market-supported fees. If the market bears the fee, the Department would price
the program accordingly, regardless of the cost to provide the program.
Recommendations
Fund Management
1 Establish a target RAF fund balance.
2 Achieve recreation industry standard of 40 to 65%
of total operating budget for standard personnel
costs. [see also Chap 31
3 Identify recreation programs that should receive
tax support from the whole community vs.
supported by recreation program user fees.
4 Determine which programs and services are most
appropriately funded by taxes and which should be
supported b user fees.
5 Apply available subsidy to social core programs
6 Establish an "opportunity fund" that allows new
programs to be piloted without impacting or
reducing the funding for existing programs. [see
also Chap 3]
7 Develop controls and criteria that permit flexibility
in using revenues earned for services provided in
the same fiscal year
Pricing and Fees
8 Revise list of codified fees to include facility entry
fees only, as facilities were constructed with
taxpayer monies.
ACIENDA ITEM U~ PAGE ~S 0
9 Develop an annual fee adjustment mechanism
such as the consumer price index and/or market
rate adjustment to accommodate the cost of
providing service.
10 Explore a "facility investment fee" that is
incorporated into the pricing structure so there is
an opportunity to reinvest in recreation facilities.
11 Maximize facility use through peak/off-peak
pricing and agreements (e.g., inter-governmental
agreements, memorandums-of-understanding)
with other providers of recreation services and
facilities.
12 Standardize and simplify admission categories,
fees and discounts.
13 Create a "youth" category by combining child and
teen to serve children ages three to 18.
14 Revise "adult" category to include participants
ages 19 to 61.
15 Revise "senior" category to include 62 and over,
aligning with minimum Social Security
Administration age requirement.
Sidebar: City of Boulder Cost Recovery Philosophy
In 1994, City staff completed the Comprehensive Fee Study, which formalized general
expectations for fee setting and City cost recovery. Cost recovery categories were defined
as follows and are adopted annually as part of the budget process.
• No Cost Recovery
o Tax dollars should support essential City services that are available to and
benefit everyone in the community.
• Partial
o User fees may recover less than full cost for those services for which the
City desires to manage demand.
o User fees may recover only partial cost from those individuals who cannot
pay full cost due to economic hardship.
o A user fee may not recover full cost if competitive market conditions
make a full cost fee undesirable.
• Full
o User fees should recover the full cost of services which benefit specific
groups or individuals.
o User fees should recover the full cost for those services provided to
persons who generate the needs for those services.
• Enterprise
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AG*F.N A mTFV V`P , PAGE
o User fees could recover more than the full cost for a service in order to
subsidize other services provided to the community.
Sidebar: Support for Programs with Community Benefits
Some important questions for recreation funding are:
• Should recreation program and facility users be the only ones paying for programs
that provide communitywide benefits?
• Should the community as a whole support these programs?
Recreation programs that focus on life and safety, community health, and disabled and
low-income participants, including the Youth Services Initiative (YSI), EXPAND
inclusion, learn-to and drop-in swim, and First Aid and Cardiopulmonary Resuscitation
(CPR), are offered as a community service and have little or no opportunities to cover
their costs.
Sidebar: Pricing Methods
The Department is changing its pricing method for recreation fees to service-based
pricing, in which fees are set, based on the full or defined cost to provide the service.
Other kinds of pricing, which the Department also considered but found inappropriate,
include the following:
• Marginal: Fees are set at the point of the minimal cost of providing a single
unit of service (also known as cost per person).
• Average: Fees are set to include the full cost of providing the service.
• Differential: Fees are set at different levels for different types of use.
• Traditional: Fees are set based on historical precedence.
• Comparative: Fees are set to match the fees of other agencies.
• Equity: Fees are set at a point that is fair, reasonable, and equitable for all
users.
Sidebar: Program Classifications
The Department is implementing a classification system to define skill and experience
levels, simplify the registration process for programs and individual classes, and help
determine program and class fees. This model is based on the university course-level
model, which ranges from beginning to advanced or elite. Level 100 classes would
receive tax supported funding, if available, and Levels 200, 300, and 400 classes would
receive no subsidy. The categories include:
Level 100: introductory or basic level class or program targeted to any age group.
Level 200: advanced beginner/intermediate class or program targeted to any age
group; with a prerequisite class or equivalent related experience.
Level 300: advanced, elite, or competitive class or program for youth.
Level 400: advanced, elite, or competitive class or program for adults, or a private
class or program for any age.
Sidebar: Recreation Funding in Other Communities
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AGENDA ITEM # ~ ~ . PAGE ~OO
It is difficult to compare cost-recovery rates among cities because each community
calculates rates using different criteria and includes different costs. Cost-recovery rates
may or may not include Department and City indirect costs, enterprise operations such as
golf courses, facility maintenance and renovation, equipment replacement, and custodial
services and utilities. Some municipal and district recreation providers in the region may
say they are recovering up to 100 percent of their costs. But a closer look at an analysis
by the Department (see Appendix X) indicates that their cost recovery typically excludes
capital and administrative costs.
Recreation Sources of Cost Recovery Cost Expenses Recovered Expenses NOT
Budget Recreation Philosophy Recovery Recovered
Funding Rate
Broomfield $6.5M • General Staff establishes rates that 86% • Recreation operating • All administrative
Fund differ based on recreation • Recreation facility • Capital
• Fees program areas and O&M
facilities - rates are • City iT
exceeded whenever
possible. Goals vary
between 20 - 100%
Longmont $41VI • General City Council sets cost 75% • Recreation operating • Ballfield maintenance
Fund recovery rate for • Recreation facility • Capital over $5K
• Fees recreation services 0&M
annually-goal is 80% • City administrative
• Custodial
• Special events
• Youth/afterschool
programming
Ft. Collins $73M • General City policy states 50% cost 67% • Recreation operating • Capital
Fund recovery target - revenue + Recreation facility • City administrative
• Fees from fees offsets direct O&M • Utllfties
recreation expenses and • Recreation and
subsidy offsets overhead department
and facility expenses. administrative
Trends indicate additlonal
expenses will be
recovered through fees
and subsidy will be
reduced,
Foothills $eM • Property Staff attempts to recover 95% • Leisure services • All administrative
Park & Tax 100% of expenses for operations and • Capital
Recreation • Fees leisure services. Revenue programming
District deficiencies are offset by • Recreation facility
golf revenues. O&M
Sidebar: Sales Tax Sunsets and Reductions
• The City's General Fund and the .15 Cent and .25 Cent sales tax funds contribute
to the Department's funding.
• With declining sales tax revenues, the tax supported funding for recreation
services will continue to be reduced.
• The .15 Cent Sales Tax will "sunset" or expire in 2012.
o Boulder voters in November 2009 approved putting the sales tax on the
November 2010 ballot.
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AGENDA ITEM # V_A , PAGE ~.1
o This extension of the tax would be allocated for general parks and
recreation maintenance, not for Pleasant View and Gerald Stazio sport
complexes, which currently are earmarked for funding from the tax.
o The Department faces significant challenges in maintaining current
maintenance levels at those athletic complexes without secured funds.
• The .25 Cent Sales Tax will sunset in 2015.
o The ballot language will be revised based on the Department's needs and
will be proposed to voters as early as the 2012 ballot.
Draft 2.16.10
AGENDA, ITEM # U~~ PAGIF ~2
Chapter 6: Achieving Financial Sustainability
Financial Sustainability
One of the guiding principles of the Recreation Program and Facilities Plan (RPFP) is for
the Department to develop and implement a financially sustainable operating model for
recreation services within the next three to five years. Given the recent and dramatic
downturn in the economy and the over arching impact the downturn is having on the
City's financial health, it is evident that the Department must develop mechanisms to
reduce the reliance on tax based support. One method is to implement the RPFP that will
move the Recreation Division towards a healthier and stronger business model. This plan
is designed to help achieve the goal of fiscal sustainability without eliminating recreation
opportunities within the community. The key elements of this effort will include
reducing overall program direct and indirect expenses, improving program and facility
efficiency, enhancing marketing to increase the customer base and to develop
partnerships and sponsorships as well as strategically leverage key facilities and
opportunities to generate additional revenue.
This five-year plan is intended to achieve Phase 1 funding scenario (see page xx) and
begin Phase 2 funding scenario of the Department's financial sustainability goals.
Creating a financially sustainable Recreation Division would involve eliminating the tax-
supported funding to the Recreation Activity Fund (RAF) for recreation programs
(exclusive of support for YSI and EXPAND inclusion efforts) and establishing a capital
reinvestment funding source from the revenue proceeds of recreation programs and
services. Achieving this level of independence will take time, but can be accomplished
through a series of strategic steps over the next five years. Phase 2, as shown below,
would align all programs in their appropriate areas.
Draft 2.16.10
AGENDA I`fE~ll #---V-A- p,AGE
Recreation Programs and Services Funding - Phase 2
Social Core Programs Business Core Programs
(Partial cost recovery) (Full cost recovery plus)
Subsidy from the Youth Services Initiative to%l
General Fund EXPAND Inclusion ia%i
c
LL- EXPAND Specialized *vsiotl%l Intra-Fund
O Learn-to-Swim R190--100%j Subsidy
4" User Fees Red Cross Certs "l9T'1OGral
` Beginning and
:3 Introductory Classes • all
~Q program areas (ga>, feo at
User Fees Programs that generate Renovation,
revenue above Refurbishment, and
required costs Capital Fund
J'~Tg Social Core programs (Public Good programs) Business core programs meet the needs of
are generally accepted m traditional municipal the market, often of market rate. These are
0 youth programs, programs that target disadva programs that are Financially successful and
> loged populations, or oclMies that enhance the are able to help lower the subsidy from the
health, safely and livability of the community general Fund 6y generating revenue That can
M and therefore require the removal of a cost ber- be used to help offset the costs of Social
Tier for optimum participation. There ore two Core programs.
types of social core programs: life/SaFety and
f Community Health Programs (Programs that em All recreation programs offered by the
!I gage the youth and the community at-large in Department will generate revenues that meet
healthful octivilies and help achieve lifelong assigned revenue targets for the defined
l habits) and Programs targeted to Disadvan- program and Deportment.
}aged Populations (Programs that serve disod-
vantaged populations).
EXPAND Specialized, Learn-to-swim and Red
y Goss Certifications are supplemented with user
fees-
i~
The key strategies that will be used to achieve financial sustainability include the
following:
1. Prepare business plans for facilities and program areas
All major program areas and facilities will undergo a strategic planning process that will
identify the elements needed to become financially sustainable. These elements will
identify potential future operational efficiencies, facility investment needs as well as
other actions, such as marketing plans.
Planning efforts of this nature are already moving forward for the Boulder Reservoir and
Flatirons Golf Course. These plans align with other planning efforts, including the
Boulder Valley Comprehensive Plan, the 2006 Parks and Recreation Master Plan, and the
2010 Recreation Programs and Facilities Plan (see diagram below).
} BOULDERVALIEY COMPREHENSIVE PLAN .°cFsdJad for nw)or
ufdafe in 2036
f 2006 PARKS AND RECREATION I S hd Ud for
I MASTER PLAN I updofe in 2011
e ` J
2010 RECREATION PROGRAMS Un4rrn y-
AND FACILITIES PLAN •chdd d for
_ com#ebo n I n 2010
SITE MASTER PLANS
AND BUSINESS PLANS
' Underwo/bout DER FLATIRONS GOLF ,chdu'ed for
RESERVOIR COURSE comp'eHon in 20)0
ATHLETIC FIELDS AQUATICS '
FUTURE
~ - - mo:mme nTa don
from Hie BPFP
SPORTS Pii7
2. Enhance Marketing and Communication
Following approval of the RPFP in 2010, the Department will develop an overall
Marketing and Communications Plan. The intent of this plan is to provide a "blueprint"
for successfully implementing the necessary changes to the methods currently employed
by the Department to market and communicate to customers. Components of the
Department's Marketing and Communications Plan include: how the Department follows
trends, adapts programs, determines program lifecycles and achieves revenue, service
delivery and customer service goals.
AGENDA FEE # U'~ _ , PAGE
The marketing plan will provide marketing and communication goals and strategies to
achieve the overall goal of fiscal self-sustainability. Key elements of the plan will
include strategies for increasing participation in programs, generating revenue through
advertising and sponsorships, promoting new or cost-saving programs and
communicating significant program, and pricing or policies changes (stemming from the
RPFP) to the community. Above all, a Department Marketing and Communications
Plan will identify key opportunities and implementation strategies for attracting new
patrons and increasing recreation revenues.
3. Establish Market Based Prices
Service-based cost analysis will be utilized to determine the actual cost of providing
Department programs, services, and facilities. However, service-based pricing alone is
no longer a valid option for all Department programs and services if the Department's
Recreation Division. A blend of service-based pricing and market-based pricing will be
used to achieve financial sustainability. Program pricing is an essential component of the
business and marketing strategy behind fiscal sustainability. Business is a dynamic
discipline requiring both careful planning and rapid adjustment to meet the changing
demands and challenges of serving the community. The pricing of recreation programs
and facilities is subject to the pressures of supply and demand pricing within the Boulder
market. Market rates should be a regular consideration when establishing all fees in the
recreation and program marketplace. Such a flexible market-based pricing strategy will
help enable the Department to provide high quality recreation and fitness options while
achieving the Department's fiscal goals.
4. Create Efficiencies and Improve Revenues
A number of operating efficiencies can be employed to reduce the cost of providing
recreation programs and services. These include setting appropriate class minimums,
ensuring that classes that do not meet minimums are cancelled, maximizing facility use
through comprehensive scheduling and implementing peak and off-peak pricing;
ensuring an appropriate level of program, facility and administrative staffing to programs
offered; and reducing operating costs through energy efficiency upgrades.
5. Leverage Resources
As described in previous chapters, the Department will actively seek out partnerships and
sponsorships in order to leverage Department resources with other community partners.
6. Invest Strategically
Business plans will likely include a number of recommendations for investing
strategically in aging or inadequate amenities at facilities. These investments would be
designed to provide superior customer experience and increase revenues. In some cases,
the Department may seek out investment partners.
7. Assess Community Needs
Ongoing monitoring of the marketplace and community needs will occur through needs
assessments, surveys, and market research designed to provide the community with the
right mix of programs and services with a high level of customer service.
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AGENDA ITEM V -A , PACE b~
8. Acquire Additional Funding
Once business plans are completed with recommendations for facility investment
priorities, funding sources to make the improvements a reality must be identified.
Because capital funding is limited from the existing sources of recreation funding, new
monies would need to be identified to address the extensive backlog of facility renovation
needs. Depending on the scope of the facility improvements, revenue bonds may be one
source of funding, if approved by voters.
The Department also needs to ensure the .25 Cent Sales Tax Fund, a dedicated Parks and
Recreation ballot initiative approved by voters in 1995 and set to expire in 2015, is
renewed. An assessment was completed in 2006 that determined that almost all ballot
requirements have been met. (One additional neighborhood park is scheduled to be
completed by 2015.) Outreach to evaluate current community needs coupled with
recommendations from this plan will be considered when formalizing the ballot renewal
language. It is anticipated that the proposed, revised initiative could be on the ballot as
early as 2012.
Recommendations
Marketing and Communication
1 Develop a marketing plan for programs and
services (core programs and facilities and
desirable programs).
2 Create an advertising and promotion strategy.
3 Develop communication plan to convey RPFP
recommendations and their impacts (e.g., fees
changes, participation rates, facility use, class
offerings).
4 Explore advertisink opportunities to fund
recreation izuide.
5 Revise customer service guidelines to enhance
customer experience.
6 Develop early registration incentive program
within marketing plan.
7 Revise customer service guidelines to enhance
customer experience.
8 Develop early registration incentive program
within marketing plan.
Business and Funding
9 Prepare business plans for major facilities and
program areas.
10 Evaluate appropriate finding mechanisms for
facility renovation and/or new facility
construction.
Draft 2.1610
Ur~ .PAGE
+ GFNDA ITFN It
Appendices
A 2009 Recreation Plan Survey Results
B Inventory of other Recreation Providers in the Community
C City of Boulder Recreation Programs
D City of Boulder Recreation Facilities
E Policies (included in this draft)
F Specific Recreation Facility Recommendations
G Program Service and Viability Report
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AGENDA ITEM #_-_-V-h , PAGE b D
Appendix E - Policies
New or Updated from the Parks and Recreation Master Plan
Please refer to the 2006 Parks and Recreation Master Plan for the
complete list of policies.
2. Operational Policies
2.8 - Safety
Facilities and programs shall have operating plans that dictate safety procedures that will
be reviewed and updated annually. Controlled-access areas such as recreation centers will
be staffed during operating hours in order to maximize customer safety. Staff will be
trained to conduct their work assignments safely. Park and recreation facility design and
construction shall be guided by recommendations from the United States Consumer
Product Safety Commission, National Playground Safety Standards, manufacturers'
instructions, and other safety sources. Safety inspections of parklands and facilities will
be made according to the Department's procedures and in conjunction with the city's
Risk Manager and Facilities Asset Management staff.
3. Program Policies
3.1- Pricing
The Department is implementing service-based pricing to support recreation programs
and facilities. Fees will be established based on the defined cost to provide programs and
facilities and the market, when appropriate. Using this method will ensure that all
programs and facilities are priced appropriately and fees are set so that each program and
facility will recover the cost identified in its cost-recovery goals. Understanding and
defining the cost to provide the service will assist in the establishment of a cost-recovery
goal for the Department and for each service area.
The Department's pricing goals are as follows:
• Use a standard pricing method to calculate and analyze the total cost of service
consistently for all recreation programs, services, and facilities.
• Apply an appropriate amount of indirect costs to user fees.
• Understand City cost allocations and capital expenses that would need to be
included in the total cost of recreation, beyond operating costs.
• Reinvest in recreation infrastructure, following industry standards, by establishing
a facility investment fee in the pricing structure.
• Plan for reduced tax supported funding for the Recreation Activity Fund through
flexible (do we still want to use that word?) fund management and by generating
new revenue sources and increased profits through fees.
3.1A - Pricing for Facility Rentals
The same pricing methodology for Department programs will be applied to Facility
Rentals, which at a minimum will pay for direct costs. The rental amount will be
identified in the contractual agreement signed by the Department and the renter.
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AGENOA ffFM# V-A- , PAGE-A-
MB - Program Classification - Core and Desirable Programs and Program Levels
The Department offers three types of programs - Social Core, Business Core, and
Desirable. Social core, or "public good", programs have partial cost-recovery
expectations of between zero and 90 percent, and have user fees that are supplemented by
tax supported funding. These programs traditionally are municipal youth programs,
programs that target disadvantaged populations, or activities that enhance the health,
safety, and livability of the community and therefore require the removal of a cost barrier
for optimum participation. There are two types of social core programs: 1) life and safety
and community health programs that engage youth and the community at large in healthy
activities and help achieve lifelong healthy habits; and 2) programs that serve
disadvantaged populations.
Business core programs have full cost recovery, plus cost-recovery expectations of more
than 100 percent and meet the needs of the market, often at market rate. These are
programs that are financially successful and are able to help lower the tax supported
funding by generating revenue that can be used to help offset the costs of social core
programs.
Desirable programs have full (100 percent) cost-recovery expectations and respond to
expressed community needs. These programs must meet the following criteria to be
offered through the City:
Required Criteria:
• The program covers required direct and indirect costs (instructor fees, class
materials, and administrative costs).
Physical program space is available.
• The program is in demand. Classes often fill up and may have a waiting list.
• The program serves a large population or identified need of the community.
Desired Criteria:
• The program might provide a partnership opportunity to leverage city resources.
• The program maximizes facility use or uses a space that would otherwise be
empty.
• The program contributes to serving a diverse cross-section of the community.
The Department has developed and is implementing a classification system to define skill
and experience levels, simplify the registration process for programs and individual
classes, and help determine program and class fees. This model is based on the university
course-level model, that ranges from beginning to advanced or elite. Level 100 classes
could receive subsidy, if available, and Levels 200, 300, and 400 classes would receive
no subsidy. The categories include:
Level 100: introductory or basic level class or program targeted to any age group.
Level 200: advanced beginner/intermediate class or program targeted to any age
group, with a prerequisite class or equivalent related experience.
Level 300: advanced, elite, or competitive class or program for youth.
Level 400: advanced, elite, or competitive class or program for adults, or a private
class or program for any age.
Draft 2.1610
AGENDA 1TFM - V= A_.. PA.GF_
MC -Cost Recovery
Fees will be determined based on the costs that are identified to be recovered, and will
vary according to whether they are programs, contracted services, facilities or rentals, as
follows:
Cost T es
Program Program Recreation Department City Cost
Recreation Services Direct* Indirect Facility Indirect Indirect Allocation
Programs (Classes, Teams,
Leagues. Camps) X X X X A A
Contracted Recreation
Services O O X X A A
Facilities (Admissions) O O X X A A
Rentals O O X X A A
*Cost baseline
X= City of Boulder Parks and Recreation Costs
0= Costs collected by outside program provider
A= Costs not presently recovered via user fees
Cost-recovery goals are established once the cost type to be included in fees is
determined by the recreation service type
3.1D -Facility Use Priorities
In order to actively and successfully market its programs through the Recreation Guide,
the department must prioritize its own programs first. This allows programs and classes
to be scheduled in advance and advertised in the Recreation Guide. It also clarifies times
that the facilities are available for use by others, including other city departments that use
the facilities, community groups that are facility partners (on-going rentals) and one-time
rentals. Program partners who have established schedules at recreation facilities will
have priority over new program partners or expanded programs from existing partners.
3.2 - Use of Facilities And Park Lands By Not-for-Profit or Government
Organizations for Special Events
Parks and recreation facilities and park lands may be used by not-for-profit and
government organizations if their event is offered in collaboration with the Department,
assists the Department in its efforts to reach underserved populations, and is consistent
with the Department's mission. A proposal outlining the event, its purpose, target
audience, expected number of participants, fees, cost recovery expectations and staffing
will be submitted to the Director of the Parks and Recreation Department a minimum of
ten weeks before the event.
3.5 - Special Events
The Department works with groups and individuals to hold special events subject to the
following guidelines:
• The event is consistent with the Department's mission
Draft 2.1610
II
AC~rNDA ITEM # y ~ 9 PAGE I
• The event provider enters into a contractual agreement with the City
• There are sufficient staff resources to manage the department's interface with the
special event provider
• The frequency of events does not pre-empt regular public use of the area.
• The event is held in an appropriate area for the anticipated size of the event and
expected attendance and does not affect a neighborhood on a continuing basis.
• Environmental, safety, and public health concerns are addressed.
• Other city departments are kept informed of or involved in events.
• Event holders must comply with all city special event policies.
3.5A - Internal Special Events
The department offers or facilitates special events to either generate revenue, promote a
program or activity, engage the public, or celebrate individuals or events. Each type of
event requires an approved event plan. Internal special events are subject to the following
guidelines:
• The event is consistent with the Department's mission
• The event provider prepares a detailed budget showing expenses and expected
revenues
• The event will generate revenues in excess of the cost of providing the event
(industry standard is 150 percent cost recovery)
Department Special Event - an event or activity primarily designed, organized or
sponsored by the department to generate revenue while contributing to the
individual, social, economic and/or environmental health and well-being of the
community.
Department-sponsored, mission-driven special events must recover all associated
staff and direct expenses plus generate revenue (achieve 150 percent cost recovery
per industry standard) within a specified period of time as identified within the
approved event plan.
Promotional Event - an activity or event held at a Department facility for the
purpose of promoting a program, facility or activity of the department or the
Department as a whole. Promotional events are designed to attract prospective new
clients. Promotional events may require modest subsidy, but should be as revenue
neutral as possible. Promotional events should reflect the mission and goals of the
Department.
Programmatic Event - a one-time activity, event or workshop held as part of the
recreation programs of the Department and meeting the pricing, enrollment and
other policy criteria of a recreation program.
Public Engagement Event - a public meeting or event designed to gather input
from and/or share information with the community about Department plans,
opportunities, policies or changes that could impact residents or user groups. Public
engagement events are always free and open to the public, requiring subsidy for all
associated event costs.
Ceremonial Event - a public event designed to celebrate, honor or commemorate
achievements or individuals related to the mission and goals of the Department.
Draft 2.16 10
AGENDA ITEM #_1/-/4 -,PAGE
7Z-
Ceremonial events are generally free and open to the public, requiring
support/subsidy for all associated event costs.
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ADEN®A ITUA # W -A y PAGE -j3
3.6 - Use of Parks and Recreation Facilities for Private Profit/Gain
Facilities provided by city governments are for the public good and are not intended for
private profit. Activities for private gain will not be allowed when they interfere with the
conduct of city programs or general use by the public. Such activities may be allowed
through a permit process with an appropriate fee. These activities will not be allowed if
the city is already providing or sponsoring a similar program (e.g., private lessons will
not be conducted in city swimming pools). The permit/rental fee for commercial (private
gain) purposes will be at least two times the rate for a private rental, which is higher than
a nonprofit rental.
5. Environmental Management and Maintenance Policies
5.9 - Recycling
The Department encourages and supports recycling efforts in its facilities and at special
events and promotes the use of products and services that are durable, repairable,
reusable, recyclable, or otherwise represent a low-waste solution, including the recycling
of organic waste. The Department complies with city purchasing guidelines that promote
the purchase of recycled and recycled-content products. (BVCP Policies 4.42 Waste
Minimization and Recycling and 4.43 Promoting the Use of Recycled Materials)
5.10 - Energy Conservation
The Department will promote energy conservation through its choices of high-
performance building and landscape designs, building materials, and renewable energy
sources wherever possible, such as those used in achieving LEED" Silver Certification
for the remodeled North Boulder Recreation Center. The Department will purchase fuel-
efficient hybrid vehicles when appropriate, and will pursue the latest in technological
advancements in furthering the use of renewable energy sources. The Department will
strive to achieve zero waste at all indoor facilities. (BVCP Policies 4.39 Energy
Conservation and Renewable Energy and 4.41 Energy Efficient Building Design and
Construction Waste Minimization)
5.11- Light Pollution
The Department will comply with municipal ordinances governing light pollution in new
lighting design and replacement of existing outdoor lighting systems. Exceptions may be
required when existing lighting at existing facilities must be upgraded and industry
standards are not compatible with City standards. (BVCP Policy 4.46 Outdoor Lighting /
Light Pollution)
5.19 - Dogs
The Department recognizes the important relationship between park visitors and their
canine companions. The Department is committed to a citywide effort requiring
responsible guardianship and well-behaved dogs. Policies on dogs that protect the land,
visitors, and wildlife in both natural and maintained park lands are supported by local
ordinances. The Department will continue to advocate interagency and resident
participation in policies related to dogs.
Draft 2.16 10
~ ~
AGENDA iTBA . v n ,ACEo ..,1