8B - 2011-2016 Parks & Recreation Capital Improvement Program (CIP)
CITY OF BOULDER
PARKS AND RECREATION ADVISORY BOARD AGENDA ITEM
MEETING DATE: April 26, 2010
AGENDA TITLE:
2011 - 2016 Parks and Recreation Capital Budget
PRESENTERS:
Kirk Kincannon, CPRP, Director Parks and Recreation
Alice Guthrie, Recreation Superintendent
Abbie Poniatowski, Senior Business Manager
EXECUTIVE SUMMARY
The purpose of this agenda item is for the Parks and Recreation Department to communicate its
planning for the 2011 capital budget, specifically Capital Improvement Program (CIP) projects.
At this time, the Parks and Recreation Advisory Board (PRAB) will have an opportunity to ask
questions and provide comments. The PRAB input is essential throughout the 2011 capital
budget process. Staff will consider the Board's comments on the proposed 2011 expenditures
and will return at the May business meeting for a formal recommendation of the CIP budget,
including the appropriation of the Permanent Parks and Recreation Fund. Additionally, the
PRAB will be asked to provide a recommendation on the CIP budget for the .25 Cent Sales Tax
and Lottery Funds. The department's CIP budget will then be submitted to the Planning Board
and City Council for review and respective considerations and approvals.
All projects exceeding $50,000 will be included in the CIP. The only exception would be
emergency repairs that are needed during the budget year. The proposed allocation of the CIP
budget includes average annual projected increases in the Permanent Parks and Recreation, .25
Cent Sales Tax and Lottery Funds.
IMPACTS
Fiscal: $3M. This amount reflects the total uses of funds projected for 2011 in the Permanent
Parks and Recreation, .25 Cent Sales Tax and Lottery Funds. Note that target budget projections
will not be released by the city Finance Office until the beginning of May, and therefore all 2011
figures are preliminary. The department will provide a budget update with final projections for
the CIP at the May business meeting.
PUBLIC FEEDBACK
There will be a public hearing at the May 24, 2010 PRAB meeting for public comment on the
department's recommended 2011 CIP budget. The public will also have the opportunity to
comment during the Planning Board's CIP review in June and City Council's discussions and
review of the 2011 recommended budget at several subsequent study sessions and public
hearings.
AGENDA ITEM # VIII.B. ; PAGE 1
BACKGROUND
Capital Budget Overview
The department's capital budget consists of CIP projects and renovation, refurbishment and
major maintenance projects.
CIP Projects
CIP projects are defined as any major project with a cost greater than $50,000 for purchase or
construction, or major replacement of physical assets. CIP projects are potentially subject to a
Community and Environmental Assessment Process (CEAP) review that evaluates any potential
environmental, traffic or social impacts to Boulder residents, neighborhoods and businesses.
These projects are budgeted within the framework of the city of Boulder's CIP Budget. CIP
projects are categorized as:
• Existing Facility -Rehabilitation and Repair/ Deficiency Correction
o Repair damage to existing infrastructure
o Rehabilitate due to deterioration
o Bring in compliance with safety or other regulations
o Replacements without enhancements
• Existing Facility - Enhancements/Upgrades
o Renovate and improve
o Road/intersection additions/improvements
o Rehabilitation to improve or enhance existing infrastructure
o Minor additions or new construction associated with existing facility
o Restoration
• Reconstruction
o Move existing facility
o Reconstruct former existing facility
o Major renovations for new use
• New Construction - Growth Related Facility/Additions
o New facility; directly growth related
o Expanded space to accommodate growth related needs
• New Construction - Not Growth Related
o New improvement/facility; not directly growth related
• Planning
• Study or Analysis
Major Maintenance Projects
Major maintenance projects consist of restoring and/or enhancing the service life of existing
capital assets, either through refurbishment or replacement. These projects are budgeted within
AGENDA ITEM # VIII.B. ; PAGE 2
the city of Boulder Operating Budget. Although these items technically are capital expenditures,
they are budgeted differently than new CIP projects and are included here for context. The
budget recommendation focuses on the work areas below. Estimates are based on the same
levels of service provided during 2010, which could change based on current economic
conditions.
• Urban Park Renovation and Refurbishment (R&R)
o Emergency safety repairs identified throughout the year
o Repair and upgrade to walkways and parking areas
a Americans with Disabilities Act (ADA) accessibility improvements
o Refurbishment of older park irrigation systems to improve efficiency of water use
and to reduce maintenance requirements (funds project costs that exceed annual
CIP appropriation)
o Refurbishment of outdated playgrounds elements to improve function and to
address safety and accessibility requirements (funds project costs that exceed
annual CIP appropriation)
o Refurbishment of park shelters and restrooms
o Repair and/or replacement of bridges and shelters
• Recreation Facility Renovation and Refurbishment (R&R)
o Public Safety and Health enhancements
o Americans with Disabilities Act (ADA) accessibility improvements
o Energy efficiency improvements
o Recreation facility improvement projects
• Maintenance
• Removal of state listed noxious weeds from department owned and managed
lands and inventory plants and animals for management and budgetary decision
making
• Wildlife management on department owned and managed lands
• Refurbishment and grant matching funds for projects at the Columbia Cemetery,
Chautauqua Park area, Boulder Museum of Contemporary Art (BMOCA), the
Harbeck House and Locomotive #30/74.
Capital Budget Funding
The capital budget is funded from the following sources:
• Permanent Parks and Recreation Fund (Fund 230)
• .25 Cent Sales Tax Fund (Fund 118)
• Lottery Fund (Fund 111)
Permanent Parks and Recreation Fund (Fund 230)
The source of the Permanent Parks and Recreation Fund comes from the 0.9 mill levy of
assessed valuation of all taxable property in the city, gifts and donations, proceeds of sale of park
property or equipment, any appropriations from City Council, and revenues from a one time
AGENDA ITEM # VIII.B. ; PAGE 3
development excise fee (DET) assessed on each new residential unit constructed in or annexed to
the city with the exception of affordable housing units. The fund is utilized for the acquisition of
park land, permanent improvements or major maintenance of park and recreation facilities.
The funds received from the Open Space Mountain Parks (OSMP) Department for the purchase
of the Kentucky and Papini properties go into this fund amounting to approximately $670,000
per year for three years, beginning in 2009.
In the November 2008 election, the "debrucing" ballot initiative was passed by the voters that
will positively impact the department's capital budget. A phased removal of the remaining
restriction on the property tax that is limited by the Taxpayers Bill of Rights (TABOR) will
increase at a rate higher than inflation resulting in additional funding in the Permanent Parks and
Recreation Fund. As long as property values remain stable, it is estimated that the fund will
receive approximately $100,000 in additional annual revenues.
Per city charter, the PRAB's role is to approve expenditures from the fund.
.25 Cent Sales Tax Fund (Fund 118)
The source of the .25 Cent Sales Tax Fund comes from a dedicated sales tax that was approved
by voters in 1995. The fund is utilized for the payment of principal, interest and premium if any,
on bonds, and then for development, operation, and maintenance of the land and improvements
purchased and constructed with the proceeds of the bonds, for renovation and refurbishment or
replacement of park and recreation facilities.
The PRAB's role regarding the .25 Cent Sales Tax Fund is to provide feedback to the department
on its planned uses of these funds.
Lottery Funding (Fund _1.1.1)
The Colorado State Lottery is the source of the Lottery Funding. By State of Colorado statute,
the city of Boulder receives revenues from the Lottery's Conservation Trust Fund on a per capita
basis. The monies are to be used for land acquisitions, equipment purchases, facility
development, natural lands maintenance, park maintenance and renovation or restoration of local
facilities. In the 2010 capital budget, the funds are allocated to Habitat Restoration and Urban
Parks Renovation and Refurbishment (R&R).
The Lottery Fund allocation is based on the 2001 PRAB and Open Space Board of Trustees
(OSBT) joint recommendation to City Council. The departments agreed that portions of the
annual appropriation would be earmarked for the department to pay off debt service and for the
OSMP Department to fund Mountain Parks projects ($100,000) and Tributary Greenways
projects ($150,000). Thereafter, the remaining Lottery funding would be split 50/50 between
departments.
For 2010, an interim Lottery Fund interdepartmental agreement continues to be in tact between
the department and the OSMP Department - both departments were allocated equal $525,000
distributions (after the $150,000 for Tributary Greenways) rather than each department receiving
specific "earmarks" prior to the 50150 distribution.
AGENDA ITEM # VIII.B. ; PAGE 4
The PRAB's role regarding Lottery Funding is to provide feedback to the department on its
planned uses of these funds.
Budget Status
Due to the national economic downturn, sales and use tax have estimates continue to be less than
anticipated and revised downward to reflect 2009 year-end actuals and collections trends for
2010. The 2009 revenue decline will carry into 2010 resulting in reductions to the approved
budget. As a result, planned operating and capital expenses must be reduced to maintain the
required fund balances between revenues and expenditures.
The sales/use tax revenue decline impacts capital funding in the .25 Cent Sales Tax Fund. Staff
is awaiting official projections from the city's Budget Office, but is prioritizing funding for CIP,
renovation, refurbishment and major maintenance projects. Staff is working collaboratively with
the Facilities Asset Management (FAM) workgroup to prioritize funding for deferred, major and
ongoing facility maintenance. Some enhancement-related improvements and development
projects will be put on hold. Staff will reevaluate work plans and invest in projects that mitigate
ongoing maintenance expenses, take advantage of reduced commodity costs or increased
revenue-generating opportunities and stimulate the local economy. For example, funding may be
redirected for energy efficiencies at recreation centers or utilized to accelerate projects (e.g., golf
course irrigation replacement, concrete and sidewalk repair).
Budget Guiding Principles
In an effort to plan capital investment in an uncertain economic time, staff updated its guiding
principles based on the city's business plan and the department's master plan goals. The
following framework was utilized to determine and plan CIP projects and make budget decisions
that are sustainable over time. These priorities are also focused on maintaining the integrity of
the current infrastructure and facilities before expanding and/or enhancing programs and
facilities.
I. Commitment (C) - Projects that are required by law/ballot (e.g., Elks Park), are in-
process of development (e.g., East Boulder Community Park), or recommended goals in
the department master plan (e.g., Playground and Irrigation System Renovations).
2. Safety and Health (S) - Projects that preserve the safety and health of the current
infrastructure and facilities that are required to be completed to comply with regulations
or may be hazardous to users if not repaired in a timely manner (e.g. Arrowwood Bridge
Repair).
3. Efficiencies (E) - The department will consistently seek efficiency improvements in both
operational and capital investments. Projects will result in savings in resources, energy
or water usage (e.g., Flatirons Golf Course Irrigation System Replacement, Computerized
Irrigation System).
4. Revenue impacts/potential (R) - The department will invest in facilities and programs
AGENDA ITEM 4 VIII.B. ; PAGE 5
that generate revenue that support valued recreational opportunities in the Boulder
community. Projects will enhance the department's ability to earn more revenue after
initial investment and operational costs are considered (e.g. Flatirons Golf Course
Playability Enhancements).
Project Prioritization
Based on the budget guiding principles, the PRAB is asked to provide guidance in prioritizing
the list of CIP projects. Due to the volatility of the economy, staff is making its best estimate to
determine the revenue projections utilized as the basis of available funding in the .25 Cent Sales
Tax Fund. Fortunately, the sources of funding for the Permanent Parks and Recreation and
Lottery funds are more stable and can be budgeted as anticipated for 2011. The department is
proposing the following CIP projects in 2011. CIP Project Summary sheets by funding source
for 2011 - 2016 are provided for additional information (Attachments A - Q.
Proposed
Project Category Project Description 2011
Funding
Computerized Begin replacement of system-
Irrigation System wide computerized irrigation $250,000
Replacement system to improve efficiency of
water usage in Urban Parks
Dairy Center for the
Arts Landscape and P&R will complete landscape and $80,000
Irrigation irrigation renovations
Improvements
Existing Facility
Enhancement and d Flatrions Golf Course Improvements include drainage,
Playability tee boxes on high impact tees and $140,000
Upgrades Enhancements some new bunkers
The pool shell is inefficient
resulting in water leakage and
Scott Carpenter Pool needs to be replaced. A fiberglass
Repair shell with a 10-15 year lifetime $200,000
will be installed until a plan for
major renovation or replacement
is established.
Existing Facility - To ensure safety of patrons, major
Rehabilitation, Repair d Bridge bridge improvements will be $85,000
Repair and/or Repair completed
Deficiency The Family Gathering Place
Correction located in the 1300 Block of the
Family Gathering Place Pearl Street Mall requires $150,000
renovation
AGENDA ITEM # VIII.B. ; PAGE 6
The department has a master plan
commitment to renovate one
Playground and playground and one irrigation
Irrigation System system per year. The specific $600,000
Renovation sites are determined based on
criteria, assessed annually and
communicated to the PRAB.
In March 2009, a Plant
Investment Fee (PIF) ordinance
was adopted related to water,
wastewater and storm water PIF
changes. These changes are to be
Thunderbird Lake phased in over the next three
Plant Investment Fee years. These fees are charged $250,000
(PIF) when an increase in demand is
placed on the city's existing water
system. If the use of the
retrofitted irrigation system is
continued after the completion of
this project term in 2011, a PIF
fee will be charged.
Phase 1 development (portion of
the park north of Valmont Road)
will continue through 2011.
New Construction - Plans include construction of the
Growth-related Site Valmont City Park bike park, dog park, disc golf $650,000
or Facility Additions course, regional trail connections
and other associated
infrastructure, utilities and park
amenities.
Per the .25 Cent Sales Tax Ballot,
New Construction - Elks Neighborhood an additional neighborhood park $500,000
Not Growth-related Park must be completed prior to ballot
expiration.
Upon completion of the Boulder
Boulder Reservoir Site Reservoir Master Plan, site
Planning Planning planning will be needed to $100,000
determine specific facility
improvements.
AGENDA ITEM # VIII.B. ; PAGE 7
Upon completion of the Flatirons
Flatirons Golf Course Golf Course business plan, site
Site Planning planning will be needed to $100,000
determine specific facility
improvements.
Per the recommendation within
the department's master plan
approved in 2006, an update is
P&R Master Plan required every 5 years. The $200,000
Update update will be consultant-led with
staff support and include a facility
needs assessment and community
survey.
Updates to 2010 - 2015 CIP
Since sales tax revenues are the source of .25 Cent Sales Tax Fund funding and budget
reductions are required again in 2010, staff has re-evaluated the CIP project funding based on the
current fund balance and preliminary sales tax forecasts. Utilizing the budget principles, the
scopes of some projects have been revised and some projects will continue as planned.
Additionally, with reduced funding sources, staff is requesting that the PRAB allocate prior year
"unanticipated opportunities" fund balance to supplement current projects. The following list is
a brief summary of the changes.
• Staff has made an assessment and reduced the initial scope of the Stado Irrigation
Replacement Project from $150,000 to $50,000. Staff is making essential repairs to the
system to improve efficiencies while considering patron use in the upcoming season.
• In an effort to commence development of Phase I of Valmont City Park, additional
monies are required to supplement the project budget. Adequate funding is not available
to accommodate the anticipated project scope, even with donations from partners. As
part of the city adjustment-to- base process, staff requested that that remaining funding
from the completed Dakota Ridge Park project ($160,750) be redirected to the project.
Additionally, the revenues from the sale of the Papini and Kentucky properties to OSMP
($671,333) that would be budgeted for 2011 will be advanced/taken from fund balance
and utilized in 2010.
• Lastly, staff is requesting that the PRAB authorize prior year's "unanticipated
opportunities" fund balance of $200,000 for Phase 1 of Valmont City Park. This
funding, combined with the above mentioned budget reallocations, will ensure adequate
monies are in place to begin construction.
Future Funding Considerations
The department master plan provided a list of priority items to complete if additional funding is
obtained. As staff researches and proposes new financial sustainability strategies, they will be
brought to the PRAB for consideration. Also, as development priorities are shifted, staff will
adjust the CIP accordingly, in consultation with the PRAB.
AGENDA ITEM # VIII.B. ; PAGE 8
• As new parks are developed and current parks are expanded, additional maintenance
funding will be required to manage these areas and facilities. Staff will estimate
maintenance needs and provide a recommendation to the PRAB on how the funding
might be obtained or prioritized.
• A Development Excise Tax (DET) study analyzed the existing revenues generated from
the collection of the DET and City Council approved the implementation to increase
revenues from the DET and institute impact fees.
• Staff is systematically quantifying the deferred maintenance needs of the parks and
recreation system including park site and recreation facility needs.
• All city departments include an Unfunded Capital Projects (Attachment D) list that
reflects the respective Action and Vision plans.
QUESTIONS FOR THE BOARD
• What questions does the PRAB have regarding the department's draft 2011 CIP project
list?
• What are the PRAB's recommended priorities for 2011 CIP projects?
• What questions does the PRAB have regarding proposed expenditures from the
Permanent Parks and Recreation Fund?
NEXT STEPS
The department will provide final projections to the capital budget and conduct a public hearing
regarding the CIP at the PRAB's May business meeting. At that time, the PRAB will be asked to
approve the expenditures from the Permanent Parks and Recreation Fund and to support a
motion to recommend approval of the department's CIP budget.
Attachment:
A. Permanent Parks and Recreation Fund (Fund 230) Project Summary Sheet 2011- 2016
B. .25 Cent Sales Tax Fund (Fund 118) Project Summary Sheet 2011 - 2016
C. Lottery Fund (Fund 111) Project Summary Sheet 2011 - 2016
D. P&R Unfunded Capital Projects
AGENDA ITEM # VIII.B. ; PAGE 9
Attachment A
Recommended Permanent Parks Recreation Fund (Fund 230)
2011-2016 Capital Improvement Program
Project Summary Sheet
2011 2012 2013 2014 2015 2096
Priority Recommended Projected Projected Projected Projected Projected Total
Existing Facility- Enhancements/Upgrades
Com utehzed Irrigation System Replacement E 250,000 205,000 165,000 620,000
Dairy Center Landscape and Irrigation Improvements C 80,000 80,000
Flatirons Golf Course Irrigation Replacement C, E 200,000 600,000 600,000 1,400,000
Flatirons Golf Course Pla abili Enhancements R 140,000 140,000
Lighting Ordinance Implementation C, E 100,000 100,000 250,000 250,000 250,000 950,000
Pearl Street Mail Irrigation Replacement E 750,000 750,000 1,500,000
Scott Carpenter Pool Repair C S 200 000 200,000
Subtotal 670,000 505,00011 865,000 850,000 1,000,000 1,000,000 4,890,000
Existing Facility-Rehab/Repair/Deficiency Correction
Pla round and Irrigation System Renovation C 300,000 300,000 300,000 300,000 300,000 300,000 1,800 000
Thunderbird Lake PIF C 250,000 250,000
Subtotal 550,000 300,000 300,000 300,000 300,000 300,000 2,050,000
New Construction-Growth Related Facility/Additions
Valmont City Park Phase I C 500,000 250,000 250,000 250,000 1,250,000
Subtotal 500,000 250,000 250,000 250,000 1,250,000
New Construction- Not Growth Related
Longs Garden Land Purchase/Lot Development C 474,000 474,000
Washin ton School Pocket Park C 150,000 150,000
Subtotal 150,0001 1 474,000 624,000
On-Going Projects
Unanticipated Opportunities C 100,000 100,000 100,000 100,000 100,000 50C,000
Subtotal 100,000 100,000 100,000 100,000 100,000 500,000
Planning
Area III Planning C 100,000 100,000
Boulder Reservoir Site Planning C-1 R 100,000 50,000 150,000
Flatirons Golf Course Site Planning E R 100,000 50,000 150,000
P&R Master Plan Update C 200,000 200,000
Scott Carpenter Pool Assessment and Outreach S R 100,000 100,000
Subtotal 400,000 200,0001 1 100,000 700,000
ota 2,2 0,000 11,355,000 1,989,000 1,600,000 1,400,000 11,400,000 110,014,000 1
AGENDA REM # V1//-lb , PAGE
Recommended .25 Cent Sales Tax Fund (Fund 118) Attachment B
2011-2015 Capital Improvement Program
Project Summary Sheet
2011 2012 2013 2014 2015
Priority Recommended Projected Projected Projected Projected Total
Exisiting Facility - Enhancements/Upgrades
Artificial Turf Field Installation R 500,000 500,000 1,000,000
Subtotal 500,000 500,000 1,000,000
Existing Facility - Rehab/Repair/Deficiency Correction
Arrowwood Bridge Repair S 85,000 85,000
Family Gathering Place S 150,000 150,000
Wonderland Lake Sidewalk Repairs S 75,000 75,000 150,000
Subtotal 235,000 75,000 75,0001 1 385,000
New Construction - Growth Related Facility/Additions
Valmont City Park Phase I C 150,000 150,000
Subtotal 150,000 150,000
New Construction - Not Growth Related
Elks Neighborhood Park C 500,000 500,000 600,000 1,600,000
Subtotal 500,000 500,000 600,000 1,600,000
ota 685,000 575,00 675,000 500,0001 500,000 3,135,000
,
AGENDA ITEM # V111 -f o PAGE.
Attachment C
Recommended Lottery Fund (Fund 111)
2011-2016 Capital Improvement Program
Project Summary Sheet
2011 2012 2013 2014 2015 2016
Priority Recommended Projected Projected Projected Projected Projected Total
Exisitin Facility Rehab/Repair/Deficiency Correction
Playground and Irrigation System Renovation P&R C 300,000 300,000 300,000 300,000 300,000 300,000 1,800,000
Subtotal 300,000 300,000 300,000 300,000 300,000 300,000 1,800,000
On-Going Projects
Tributary Greenwa s Program (PVV) 150,000 150,000 150,000 150,000 150,000 150,000 900,000
Historical Structures & Trails Stabilization & Restoration OSMP 475,000 475,000 475, 000 475,000 475,000 475,000 2,850,000
Subtotal 625,000 625,000 625,000 625,000 625,000 625,000 3,750,000
Total 926,0001 2 ,000 925,000 925, 00 925,000 925,000 ,550,
AGENDA ITEM # V111- , PAGE 2-
Attachment D
Parks and Recreation Unfunded Capital Projects
Boulder Reservoir Entryway E $1,000,000
Boulder Reservoir Facility Improvements E, R TBD
Coot Lake Dock Replacement S $60,000
EBCC: Lockerroom upgrades R $150,000
Flatirons Event Center Replacement R $8,000,000
Flatirons Golf Course Pla abili Enhancements R $740,000
Lyons to Boulder Trail E, S TBD
Municipal Complex Implementation E, S TBD
Parkin Lot Improvements (system-wide) S TBD
Park Operations Building Land Purchase - Yards MP E $2,000,000
Park Operations Building Construction - Yards MP E $1,200,000
Pearl Street Mall Improvements E, R TBD
Pleasant View Parkin Lot S $450,000
Recreation Center Major Renovations E, R TBD
Scott Carpenter Pool Replacement E, R TBD
Transit Village Planning C TBD
Turf Improvements (satellite fields system-wide) E TBD
AGENDA ITEM # Vl' I I , PAGE