About

Overview

What is a Park and Recreation District?

A park and recreation district is a quasi‑municipal corporation and political subdivision established under the Special District Act (Title 32, Article 1, Colorado Revised Statutes). These local governments are created to plan, finance, construct, and, in some cases, operate and maintain parks, trails, open space, and recreational facilities when cities or counties are unable to provide those amenities due to fiscal constraints, including those imposed by the Taxpayer’s Bill of Rights (TABOR). Once formed, park and recreation districts must operate in accordance with their approved service plan, governing documents, and applicable laws.

A park and recreation district’s service plan defines the district’s authority to levy taxes, issue debt, impose fees, and provide specific improvements and services, and establishes requirements for transparency, accountability, and oversight by the approving local government.

Park and recreation districts have limited taxing authority and may issue tax‑exempt bonds to finance eligible park and recreation infrastructure. Property owners within the district are subject to property taxes (mills) used to repay this debt. This approach localizes the cost of parks and recreational amenities to the benefiting development, rather than spreading those costs across the entire municipality. As governmental entities, park and recreation districts can often borrow at lower interest rates, making it more cost‑effective to deliver public recreational facilities for future residents.

Park and recreation districts are formed through approval of a service plan by a city council, town board of trustees, or board of county commissioners following public hearings and organizing elections. The approving authority retains ongoing oversight through limits on taxation, debt, fees, and services.

Park and recreation districts are governed by an elected Board of Directors, with elections held in May of every odd‑numbered year. Initially, developer‑affiliated directors may serve due to the absence of residents, but over time resident electors may run for board positions, allowing community members to participate directly in district governance.

For additional information about metropolitan districts please visit Metro District Education Coalition.

How to Become a Board Member

Regular special district elections are elections held for the purpose of electing eligible electors to the Board of Directors of the special district. Elections are held biennially on the first Tuesday after the first Monday of May in odd-numbered years. C.R.S. 1-13.5-111(1). A regular election may include the submission of questions to the eligible electors or any ballot issue required under TABOR. A canceled election counts as having conducted an election; the directors are elected by acclamation.

Special elections may occur in February, May (even years), October, November, and December. An election question may be asked at any election. A TABOR ballot question may only be asked at a regular special district election date, the general election date, or the first Tuesday in November of odd numbered years.

Directors typically serve staggered 4-year terms. For special districts with five Board members, two directors serve until the next regular election after the district organization and three directors serve until the second regular election after organization. Term limits apply to special district Board members. The voters of any political subdivision may lengthen, shorten or eliminate the term limits. Art. XVIII, Sec. 11 Colorado Constitution.

An eligible elector is an individual who is registered to vote in Colorado and is a resident of the special district (regardless of property ownership) OR an owner, or the spouse or civil union partner of an owner, of taxable real or personal property situated in the district. A partnership, corporation, or trust cannot register to vote, is not a "person" in the context of voter registration and therefore is not an eligible elector. CRS 32-1-103(5).

Under certain circumstances, a person may qualify as an eligible elector if the person is obligated to pay taxes under a contract to purchase taxable property within the boundaries of the special district. Such individual is considered an owner of property for purposes of eligible elector status. CRS 32-1-103(5).

A special district candidate must complete a self-nomination form, which form is due 67 days prior to the regular election date. No earlier than January 1 and no later than the normal close of business on the 67th day before the date of a regular special district election, any person who desires to be a candidate for the office of a special district director shall file a self-nomination and acceptance form or letter signed by the candidate and the candidate’s signature/form must be witnessed by an eligible elector of the state. An amended self-nomination form or letter may be accepted by the Designated Election Official up to the normal close of business on the 67th day before an election. C.R.S. 1-13.5-303.

Alternatively, a special district candidate may complete a write-in affidavit, which affidavit is due 64 days prior to the regular election date.

All candidates must comply with the Fair Campaign Practices Act (FCPA) and Amendment 27 of the Colorado Constitution. Information on campaign finance laws and regulations may be obtained from the website of the Colorado Secretary of State.

Under the election laws, the board of directors of the special district is charged with appointing a Designated Election Official (DEO) who oversees the election. C.R.S. 1-13.5-103(2), C.R.S. 1-13.5-108(1).

If the number of candidates is equal to or less than the number of seats available, the election may be canceled, and the candidates are elected by acclamation. The election may be canceled at any point in time after the 63rd day before the election. C.R.S. 13-5-513(1). However, if the electors are to consider the election of directors and ballot issues or ballot questions, the election may only be canceled if those ballot issues or questions have been withdrawn. No election may be canceled in part. C.R.S. 1-13.5-513(3),(4).

Additional information regarding special district elections can be found on the Department of Local Affairs (DOLA) Special District Elections website.

Services provided:

The District is authorized to provide park and recreation services and improvements, including the planning, design, financing, construction, ownership, operation, and maintenance of:

Parks and recreational facilities
Open space and trail systems
Irrigation systems serving parks and open space
Stormwater management infrastructure associated with park and recreation facilities

Limitations:

The District may not operate amusement parks, artificial‑surface golf courses, or similar facilities without City approval.
All parks, trails, and open spaces must remain open to the general public free of charge, including non‑District residents.
Facility fees may not exceed 10% above the City’s Parks Fee Schedule unless approved by the Mayor.
The District may only operate and maintain facilities specifically authorized by its Service Plan

Amount of Debt a district can incur:

$32,000,000

Revenue to Repay Debt

Ad Valorem Property Taxes: The primary source of repayment is through a Debt Mill Levy imposed on taxable property.
Fees: The District may impose fees for services, programs, or facilities, but End User Debt Service Fees are prohibited.
Other Sources: Specific ownership taxes and intergovernmental reimbursements may also be used, but sales tax is not permitted.

Max mill levy to repay debt:

5.000 mills

Overlapping Entities:

El Paso County
El Paso County Road & Bridge Share
City of Colorado Springs
El Paso County – Colorado Springs Road & Bridge Share
El Paso County School District No. 49
Pikes Peak Library District
Southeastern Colorado Water Conservancy District
Central Colorado Conservation District
Freestyle Metropolitan District No. 4