Douglas County advances Zebulon sports complex, approving design, infrastructure and financing steps after public debate

Douglas County commissioners voted March 31, 2026, to advance the Zebulon Regional Sports Complex, approving a package of contracts and a financing resolution that staff say will allow the county to begin programming, schematic design and infrastructure work for the proposed 46‑acre sports campus.

The board approved four items: a $2,700,000 phase‑1 contract with KT Development for programming and schematic design; an infrastructure acquisition agreement to fund grading, water and sewer work (the motion listed $12,046,296); an agreement to retain Stifel as the county's financial adviser to support certificate‑of‑participation (COP) financing; and a resolution declaring the county's intent to reimburse eligible project costs from a future COP issuance.

Why it matters: County staff and private partners say the complex—planned to include multiple ice rinks, indoor turf, courts, baseball fields, and an aquatics facility—will address a long‑standing shortage of field and ice time in northwest Douglas County, reduce travel burdens for youth teams, and act as a year‑round economic driver. Dan Avery, deputy county manager, told the board the county solicited partners, held town halls and surveys, and expects partner investment to supplement county funding.

What supporters said: Commissioners and partner groups emphasized no new taxes for the county and a self‑sustaining operating model. A commissioner opening the debate said the plan is "No new taxes, no impact to the general fund," and framed the project as a fulfillment of voter priorities identified in the 2022 parks and open‑space sales‑tax renewal. Local sports organizations and residents testified they routinely travel outside Douglas County for tournaments and practices and said Zebulon would retain those events locally and create jobs. Ellie Reynolds, CEO of the Douglas County Economic Development Corporation, cited an independent Metro Denver EDC analysis staff repeatedly referenced that estimated a $1.3 billion total economic impact to the county over time.

Finance and guarantees: Budget director Martha Marshall told the board staff is proposing to issue up to $100 million in certificates of participation over 30 years, with a preliminary allocation of $65 million for design and construction, $12 million for infrastructure (wet utilities), $15 million for dry utilities and $8 million for contingencies. Marshall said Zebulon operating profits are expected to be the primary source of lease/ COP repayment, with parks & trails sales‑tax proceeds and conservation trust funds as secondary sources if needed.

Contractor assurances and scope: Tim Hallmark, the county's facility director, presented the recommended phase‑1 scope; KT Development's Luke Taylor described KT's prior projects and operating experience and told commissioners KT expects to deliver within the contract's guaranteed maximum price. When asked whether KT could meet the contract cap, Taylor replied, "100%" and said past experience and repeatable design helped control costs.

Concerns raised: During an hour of public comment, several speakers asked that financing be presented to voters as a bond or ballot measure rather than a COP structure that, while not statutorily long‑term debt, requires annual appropriation. State Representative Bob Marshall urged a ballot approach, saying, "If this is such a good idea, put it to the ballot at the primary." Other residents and experts warned about road capacity and evacuation timelines for neighboring communities, water use and drought vulnerability, and potential lingering contamination from an historical firefighting‑foam release on part of the site.

Staff responses and safeguards: Staff said Sterling Ranch has agreed to remove the identified firefighting‑foam release area at its cost under an agreement with CDPHE oversight and that the site currently has no CDPHE surface‑use restrictions. Staff emphasized that the proposed outdoor fields will be synthetic to reduce irrigation demand and that the county will only make reimbursement payments under the infrastructure agreement after inspection and formal acceptance of the work. Dan Avery said phase‑1 work will include a feasibility analysis and detailed pro forma to refine access fees and operating assumptions.

What the board approved: Commissioners voted by voice to approve the KT phase‑1 contract, the infrastructure acquisition agreement, the retention of Stifel as financial adviser, and the reimbursement resolution for future COP proceeds. The motions passed after discussion in which commissioners cited high public survey support for parks investments and the guaranteed maximum construction price written into the phase‑1 contract.

Next steps: Staff said phase‑1 work will start immediately if directed by the board, with programming and schematic design proceeded by negotiations with partners and further development of the fee model, construction schedule and COP issuance timeline. Marshall indicated staff is planning a mid‑July COP issuance and an additional public meeting to adopt an authorizing resolution for debt issuance and collateralization details.

Board action summary: The board's approvals authorize design and infrastructure work to begin and allow staff to move forward with preparing COP financing and formalizing the partner agreements that staff say are needed to deliver a self‑supporting facility.

The meeting adjourned after the four motions were adopted.