East Boulder Community Park - Racket Courts

The timeline for the project has shifted out to a 2028 completion date. The design process was paused midway to allow for the necessary steps required for annexation of the Hogan Pancost property and to hire a new Project Manager (PM) which was previously delayed due to the City hiring freeze. With annexation achieved and a new PM hired, the current Design Development phase can become more granular with regards to the permitting and construction processes. In addition, there is a need to do a request for proposal (RFP) to hire a consultant firm to complete the design process, which will take approximately four months. Through careful planning of permitting review periods and a conservative approach to number of review cycles, the longer timeline is anticipated compared to previous assumptions.

Revised Timeline
· Site Analysis (Sept. 2024 – Jan. 2025) - Complete
· Concept Plan Development (Mar. – Nov. 2025) - Complete
· Annexation Accepted (Feb. 2026) – Complete*
· RFP for Consultant (March – June 2026)
· Monitor Wetland Boundaries (May – August 2026)
· Design Development Begins (July 2026)
· Design + Site Review + Permitting (Summer 2026 – Summer 2027)
· Construction (Fall 2027 – Summer 2028)
· Courts Grand Opening (Fall 2028)

*Annexation: The annexation of 5399 Kewanee Drive, 5697 South Boulder Road, and portions of the related 55th Street Right of Way was approved with a unanimous vote by the Planning Board on November 18, 2025 and by City Council at the public hearing on Feb. 19, 2026, Item 5a. The full memos are available below under the heading 'Related Documents'.

City Council unanimously approved the annexation of 5399 Kewanee Drive, 5697 South Boulder Road, and portions of the related 55th Street Right of Way at a public hearing on February 19, 2026. The property is adjacent to the East Boulder Community Park, where the new tennis courts are proposed. This will allow the Parks and Recreation Department to proceed with plans to develop tennis courts on the expanded park property.

Motions approved by City Council:

1. Consideration of a motion to adopt Resolution 1370 setting forth findings of fact and conclusions regarding the annexation of approximately 24.04 acres of land generally located at 5399 Kewanee Drive and 5697 South Boulder Road and including 55th Street right-of-way to the City of Boulder (LUR2025-00003).
2. Second reading and consideration of a motion to adopt Ordinance 8734 annexing to the City of Boulder approximately 24.04-acres of land generally located at 5399 Kewanee Drive and 5697 South Boulder Road and including portions of 55th Street right-of-way with an initial zoning classification of Public (P), and, for a portion of right-of-way, an initial zoning classification of Residential – Low 2 (RL-2) as described in Chapter-9-5, “Modular Zone System,” B.R.C. 1981; amending the Zoning District Map forming a part of said Chapter to include the property in the above-mentioned zoning districts; and setting forth related details (LUR2025-00003).
3. Consideration of a motion to change the Boulder Valley Comprehensive Plan (BVCP) land use map designation on the 19-acre portion of the property west of 55th Street from Low Density Residential to Park, Urban and Other (PK-U/O) (LUR2025-00008).

Next Steps

• Design Development & Construction Documentation Phases
• Continued Collaboration with the Community
• Site Review

This is an update of the annexation application progress for 5399 Kewanee Drive, 5697 South Boulder Road, and portions of the related 55th Steet Right of Way. The property is adjacent to the East Boulder Community Park, where the new tennis courts are proposed. This annexation process does not include any court development proposal. It is only for consideration of annexation and initial zoning.

Planning Board Public Hearing on Nov. 18, 2025
The Planning Board unanimously approved 2 motions.
1. Motion to approve the proposed Boulder Valley Comprehensive Plan land use map change for the 19-acre portion of the property west of 55th Street known as 5399 Kewanee Dr. and 5697 South Boulder Rd. from Low Density Residential (LR) to Park, Urban and Other (PK-U/O), incorporating this staff memorandum as findings of fact, pertaining to case number LUR2025-00008.
2. Motion to recommend to City Council approval of the proposed annexation of the property located at 5399 Kewanee Dr. and 5697 South Boulder Rd., including 55th Street right-of-way, with an initial zoning of Public (P) on 23.6 acres and an initial zoning of Residential – Low 2 (RL-2) on a 0.44-acre portion of right-of-way, under case number LUR2025-00003, incorporating the staff memorandum as findings of fact.

City Council Consent Item on Jan. 8, 2026
City Council unanimously approved the consent agenda which included 2 motions related to the property.
1. Motion to adopt Resolution 1369 finding the annexation petition is substantially in compliance with Section 31-12-107(1), C.R.S. and setting a hearing to determine compliance with other state statutory annexation requirements and setting forth related details. AND
2. Motion to introduce and order published by title only Ordinance 8734 annexing to the City of Boulder approximately 24.04 acres of land generally located at 5399 Kewanee Drive and 5697 South Boulder Road and including portions of 55th Street right-of-way with an initial zoning classification of Public (P) and, for a portion of right-of-way, an initial zoning of Residential – Low 2 (RL-2) as described in Chapter-9-5, “Modular Zone System,” B.R.C. 1981; amending the Zoning District Map forming a part of said Chapter to include the property

Next Steps
City Council Public Hearing Feb. 19, 2026
There is a City Council meeting on Feb 19. The community has an opportunity to participate in this hearing on annexation and initial zoning of the property. This meeting does not include the court development proposal. It is only for consideration of annexation and initial zoning.

Staff facilitated and open house on October 8, featuring the revised draft concept plans for 8 new outdoor tennis courts and the conversion of 3 existing courts to 6 dedicated pickleball courts. Approximately 50 community members attended the open house and provided their feedback. The boards will be available for viewing in the lobby of the East Boulder Community Center through October 24. Community members, community organizations and staff feedback will be analyzed for the final concept plan to be completed in November. Construction is anticipated to begin in late summer 2026.

Once the concept plan is completed, staff will work with PLAY Boulder Foundation on a fundraising campaign. While city funding for the project is limited and will focus on core infrastructure, the community will have the opportunity to support additional amenities such as benches or a practice wall.

An application for the annexation of the city-owned property south of East Boulder Community Park, formerly known as Hogan Pancost, is underway. Once the application is reviewed and approved, there will be a presentation to the Planning Board and 2 City Council meetings.

Planning Board: Public Hearing on November 18, 2025

City Council: Consent Item on January 8, 2025

City Council: Public Hearing on February 19, 2025

In 2022, the Parks and Recreation Advisory Board, Planning Board and City Council unanimously supported the Parks and Recreation Department Plan. This plan was developed with significant community input and analysis of the current system. Through that broad-based planning, the growth of racket sports amidst a decline in supply of courts in the community pointed the city to further evaluate this topic through a Court System Plan.

The Court System Plan, completed in 2024, identified the need for new outdoor tennis and pickleball courts to meet community needs. The plan also identified only 5 urban park locations where courts could be developed. East Boulder Community Park was 1 of the 5 future sites appropriate for tennis and pickleball courts based on criteria such as acres of park land, topography, noise and geographical distribution.

Along with a priority to provide access and service to tennis and pickleball courts as part of the commitment to community health and wellness outlined as a key theme in the 2022 Parks and Recreation Department Plan, this project required additional site analysis to provide critical information about the natural resources of the property. The 22-acre city-owned property adjacent to East Boulder Community Park offers an opportunity to balance multiple needs such as creating improved habitat with recreation activities that support the health and wellness of the community. A local professional developed an ecological report with a focus on floodplain, wetlands, wildlife, vegetation, and threatened and endangered species.

The southern portion of EBCP was acquired by the City in 2019 for stormwater and flood management, parkland, and open space purposes. The land was formerly outside of city limits and needed to be annexed before courts could be built on a portion of it. The annexation process was approved with a unanimous vote by City Council at the public hearing on Feb. 19, 2026

Including an indoor facility with the EBCP Courts Project was originally proposed as a temporary, fast, and straightforward opportunity to address the desire for public indoor tennis in Boulder. Given our planned project for outdoor courts and the opportunity to partner with CU Athletics, we explored the potential with due diligence. The site constraints and the cost of constructing a code compliant facility ultimately proved to be challenges that the City and CU Boulder could not collectively overcome.

The City of Boulder and CU Athletics remain committed to continuing to work together to identify opportunities that meet the growing needs of the University of Colorado women's tennis team and those of the Boulder Community. As those opportunities progress, we will make sure we update the community as appropriate.

The 2024 Court System Plan was developed to understand better the community needs, programming improvements and feasible locations for courts.

The Court System Plan explained the community's need for racket sport courts and supported the approval of funding for courts at East Boulder Community Park. With the system-wide evaluation and recommendations of the Court System Plan and funding identified in the 2024-2025 Capital Improvement Program.

There is money in the 2025 CIP budget for this project and we anticipate fundraising with the PLAY Boulder Foundation, BPR’s non-profit philanthropic partner.

Engagement Window #1: Share a Foundation of Information and Inquiry

September 2024 – January 2025

The intent of the first engagement window is to inform the community about the project’s goals and timelines and the work to annex and develop 19 acres of the acquired property. Communication will be sent out via the project web page and the e-newsletter. Community members can sign up for the e-newsletter, which will communicate when the web page is updated and engagement opportunities are planned throughout the project. If you have signed up for Court System Plan updates, you will automatically receive East Boulder Community Park – Courts updates. Please share this page with community members who want to be added to the email list.

Engagement Window #2: Identify Options and Evaluate Issues

January – April 2025

The second engagement window will provide the community with the background information and summaries of the studies on the city-owned property adjacent to East Boulder Community Park. This included existing conditions, opportunities and constraints, and the site program. This engagement window included a community meeting to provide an opportunity to share information and answer questions.

Engagement Window #3: Communicate Decision and Rationale

August – November 2025

The third engagement window will present the final concept plan with information on community engagement, policy direction, and research outcomes. This will include a public meeting in October to share the concept plan draft, provide an opportunity for discussion about how decisions were made, and identify any missed opportunities.

Post Occupancy Review: Reflect and Evaluate

2027

This is an opportunity to evaluate and reflect on the project after community members have used the courts. This will begin with an opening celebration and provide an opportunity for feedback on the physical improvements, volunteer opportunities, fund raising, and programming.

Annexation Proposal

Annexation means incorporating property into City limits. It is the process of transferring parcels of land from unincorporated areas of a county into the service area and jurisdiction of a city. Properties brought into the City receive services such as water, sewer and emergency services.

The annexation process does not include approval of development. The annexation process focuses on whether it is appropriate for the parcels to be included in the City limits, but does not approve any specific development of the property.

An annexation and initial zoning application has been submitted to follow through with City Council direction to use the property for partially for parks and recreation purposes, partially for future flood mitigation and partially for open space use. Annexation brings the property into Boulder City Limits and allows connection to city infrastructure.

Racket Courts Project Process

The timelines are estimates. We will work hard to move through all of the appropriate steps and include the community thoughtfully.

• Site Analysis (September 2024 – January 2025)
  • This phase includes completing required studies on property annexation, feasibility and site programming. The department will contract services from experts to perform studies such as, but not limited to, wetlands mapping, land survey, wildlife and vegetation inventories.
• Concept Plan Development (Spring - Winter 2025)
  • This phase includes visual project concepts, sharing information, answering questions, and evaluating alternatives with the community. This phase also includes developing high-level cost estimates to inform final budgeting and an anticipated capital campaign with the PLAY Boulder Foundation.
• Construction Documentation and Permitting (Spring 2026 – Spring 2027).
  • This phase moves the project from a concept plan to construction documentation, including all the details that will ensure this project provides a high-quality experience for our community.
• Construction (Spring - Fall 2027)
  • Ground breaking for the project through to completion of construction. This phase can be weather-dependent.
• Ribbon Cutting and Celebration (Fall 2027)
  • Opening of the courts for dedicated pickleball and tennis

Preble’s Meadow Jumping Mouse

Critical habitat for the Preble’s Meadow Jumping Mouse occurs on the eastern part of the property east of 55th Street. The land west of 55th Street does not provide critical habitat for the mouse or any other sensitive species. The critical mouse habitat is not affected by the project. The critical habitat is shown in Figure 4 of the 2025 Ecological Report.

Prairie Dogs

The 2025 Ecological Report, prepared by a professional consultant, indicated there were no prairie dogs on the site. A small area of abandoned prairie dog burrows was present in the north-central part of the site. Prairie dogs were not observed at the site when it was examined for prairie dogs 8 different times over 6 months. The old burrows were collapsing and there were no signs of prairie dog scat or vegetation grazing.

Wetlands Mapping

Wetlands mapping accepted during the annexation was based on the 2024 wetlands mapping. Staff discovered a significant discrepancy between the 2016 and 2024 wetlands maps. Several breaches in the ditch bank along the south edge of the property were discovered and shored up to prevent unmonitored flood irrigation from the ditch across the property from south to north. Staff will resubmit wetlands mapping after groundwater monitoring is completed in the summer of 2026. More information about the wetlands can be found in the 2025 Ecological Report.

Noise and Light Impact

Court lights will include timers, activated by players for a specified length of time and not allowed to function after the designated play time. This is a best practice for the court lights across the BPR system.

The tennis courts are located in the area closest to the existing parking lot and 55th Street. The courts will adhere to the city noise ordinance and have posted playing hours, in line with best practices for courts across the BPR system.

Pickleball was intentionally placed adjacent to the handball courts to reduce noise impacts on neighbors and potential habitat.

Stormwater Filtration and Retention

The project is required by code to include appropriate stormwater filtration and retention. The department prioritizes preserving water quality and will address the known concerns about the high water table and its effects on neighboring properties.

Botanic Garden

Staff believe a botanic garden could be an appropriate use of areas of the parkland not set for court development. Staff have offered a path forward, including help coalescing thoughts and ideas into a proposal that can be effectively reviewed and considered by the department. A proposal has not been received. If a proposal is submitted, it will be reviewed, considered and routed through proper channels.

Tribal Consultation

City staff recognize the importance of honoring Tribal sovereignty and self-determination and conducts government-to-government consultations with Tribal Representatives appointed by federally recognized Tribal Nations. One result of this consultation is the Fort Chambers/Poor Farm Management Plan.

Last year, the City of Boulder worked on a project with Arapaho and Cheyenne Tribal Representatives to complete a long-term planning process to create a concept plan for land with a direct community connection to the Sand Creek Massacre.

In addition, the City of Boulder and Representatives from the Arapaho and Cheyenne Tribal Nations worked with the city to complete a collaborative stewardship plan based on the vision "Heal the land; Heal the people." The plan guides how the city cares for the Fort Chambers / Poor Farm site, preserving agriculture, supporting future visitor use and enhancing natural ecosystems. Learn about the site's historical, ecological and agricultural features and its direct connection to the Sand Creek Massacre.

Staff are seeking guidance on the East Boulder Community Park property with our official Tribal partners. The outcomes of the collaboration will be shared as soon as available.

Purchase of Property

Community members have expressed their desire to purchase the Hogan Pancost Property. The property is not currently for sale and is designated to meet community stormwater detention and parkland needs. No offer has been made outside of emails stating the intent. The sale of any park property would require a public process outlined in the Boulder Municipal Code.
Sec. 162. - Disposal of park properties.
Park lands may be disposed of by the city council, but only upon the affirmative vote of at least four members of the parks and recreation advisory board. An advisory recommendation, which shall not be binding on the council, shall be obtained from the planning board prior to the disposition or lease of park lands. (Added by Ord. No. 2392 (1961), § 1, adopted by electorate on January 31, 1961. Amended by Ord. No. 5574 (1993), § 1, adopted by electorate on November 2, 1993.)

The PLAY Boulder Foundation is proud to support the development of cutting-edge tennis and pickleball courts at East Boulder Community Park and a state-of-the-art public pickleball facility at Tom Watson Park.

Through your financial support these community courts will become vibrant, accessible gathering spaces where families, friends, and neighbors come together to play, connect, and grow. Contributions can enhance these projects with amenities like a shade structure, benches, picnic tables, or drinking fountains to support comfort and usability.

• Learn more and support enhancing these projects