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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho Falls, ID 83402
I DAHO
FALLS
Monday, November 10, 2025
City Council Chambers
3:00 PM
Call to Order and Roll Call
There were present:
Council President Lisa Burtenshaw
Councilor Jim Freeman
Councilor Kirk Larsen
Councilor John Radford {Left at 4:26 pm)
Councilor Jim Francis
Absent:
Mayor Rebecca L Noah Casper
Councilor Michelle Ziel-Dingman (City Business)
Also present:
Pam Alexander, Municipal Services Director
Nick Terry, TOK Commercial Real Estate
Brooks Slyter, Assistant Finance Manager
John Marley, Police Captain
Chris Canfield, Assistant PW Director
Zach Jones, Interim City Attorney
PJ Holm, Parks and Recreation Director
Mark Hagedorn, Finance Manager/Treasurer
Bryce Johnson, Police Chief
Chris Fredericksen, Public Works Director
Margaret Wimborne, Chief of Staff
Emily Geisler, City Clerk
Council President Burtenshaw called the meeting to order at 3:02 p.m. with the following items:
Executive Session:
Motion: Move into Executive Session called pursuant to Idaho Code Section 74-206(l)(f) to communicate
with legal counsel for the public agency to discuss the legal ramifications of and legal options for pending
litigation, or controversies not yet being litigated but imminently likely to be litigated. The mere presence
of legal counsel at the executive session does not satisfy this requirement. Council will reconvene after
the executive session.
Moved by: Councilor Francis
Second: Councilor Freeman
Vote: Aye: Burtenshaw, Francis, Freeman, Larsen, Radford. Nay: none.
Motion carries.
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Executive session began at 3:05 PM. There were present: Council President Burtenshaw, Councilor Freeman,
Councilor Francis, Councilor Larsen, Councilor Radford, Pam Alexander, and Zachary Jones.
Executive Session adjourned at: 3:12 PM with the Work Session beginning immediately after
Motion: Give Idaho Falls Human Resources Director Darin Jones authority to negotiate a settlement
amount for a Workers' Compensation claim brought by Sergio Soto.
Moved by: Councilor Larsen
Second: Councilor Freeman
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APPROVED
NOV 2 5 im
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho FalIsJD 83402
I DAHO
FALLS
Vote: Aye: Burtenshaw, Francis, Freeman, Larsen, Radford. Nay: none.
Motion carries.
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Municipal Services - Report: Quarterly/Fiscal Year End Financials (Director Alexander)
1. Overall Financial Position
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City expenditures and revenues are generally in line with the budget.
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Personnel costs are closely monitored, representing just under 98% of budgeted amounts.
Increases are primarily due to additional staffing and wage adjustments across City departments
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Operating expenditures show some variance, mainly due to grant timing (revenue not yet
received or spent).
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Capital outlay variances are mostly timing-related; large projects and equipment often span
multiple fiscal years, leading to $42 million in outstanding commitments at fiscal year-end—within
normai ranges (typically 70-78% of capital budget).
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Debt service payments exceeded the budget due to bonds issued after budget adoption, such as
the outstanding bonds for the Police Station and Wastewater Treatment Plant, and the 2024
bonds for the Peaking Plant.
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Transfers and cost allocations fluctuate annually based on projects and interdepartmental service
needs, but these are planned and communicated to departments in advance.
2. Department-Level Highlights
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Fire & EMS: Only department over budget, due to:
Hiring of additional firefighters earlier than planned
Leave coverage requiring overtime
Late-arriving equipment orders
Impact fees and new station construction included in their budget
●
Police: Stayed close to budget, with operational savings offsetting minor overruns in personnel
and prior-year equipment upfitting.
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Parks & Recreation: Under budget due to grant timing, unspent impact fees, and staff turnover
(replacing higher-paid staff with entry-level employees).
●
Municipal Services: Savings primarily from projects (funds budgeted for but not used) like
elevators, ERP implementation,and fuel canopy and tanks. Fuel costs were reduced by using
weekly competitive vendor quotes.
●
Public Works: $400K in savings due to transit contract capacityand personnelsavings.
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Library: Expenditures under budget due to capital projects not executed and contingency funds
retained; minor draw on savings for operational purposes.
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Airport & Power: Capital projects, including the Peaking Plant, contributed to increased spending
compared to prior years.
Departments are increasingly receiving monthly reporting on expenses, particularly equipment and
vehicle costs, to help inform future budgeting decisions.
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3. Revenue Overview
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General Fund Revenues:
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Taxes and franchise fees slightly exceeded expectations due to prior-year collections,
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Intergovernmental revenues (state-shared funds, wildland fire reimbursements, county
contracts) largely on target.
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho FalIsJD 83402
I DAHO
FALLS
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Fees and permits (Parks, Library, development permits) exceeded budget but slightly
below prior-year actuals,
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Interest income recognized $1.9M: ~$1M from COP bond interest (offsetting debt
service), ~$620K from investments.
Zoo & Funland: Revenues below budget due to forecasting timing, but above prior-year
performance. Departments stayed tight on spending, resulting in minimal impact on the General
Fund ('“$6,000).
Other financing sources: Transfers from the General Fund to support capital or equipment
projects in other funds (e.g.. Parks, Golf) occur as projects progress.
4. Expenditure Trends
●
Operating Expenses: Departments held spending tight due to budget constraints; unspent grant
funds and operational savings contributed to variances.
●
Capital Outlay: Timing of large projects led to unspent capacity that will roll forward into the next
fiscal year (Frontier Center, ERP system, fuel projects).
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Debt Service: Slight excess capacity due to prior fiscal-year budgeting; debt payments included
bonds not anticipated in original FY24 budget.
Key points:
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Cash on hand often differs from budget availability due to encumbered projects.
●
The City is expected to break even, with minimal net surplus after accounting for committed
expenditures.
5. Special Programs & Initiatives
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GIFT Program: Electrification of non-City-owned vehicles has reduced fuel expenses.
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Fuel Management: Weekly competitive quotes for fuel purchases saved '“$700K in Municipal
Services.
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Budgeting Improvements: Departments receive monthly usage reports to track vehicle and
equipment costs, supporting better planning and replacement decisions.
6. ARPA Grant Update
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Total grant received: $10.5M
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Spent to date: $9.9M, remaining: $572,000
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Outstanding projects include:
o
Police BearCat (delivery expected spring 2026)
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Fire Station #7 generator (installation underway)
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Frontier Center lobby expansion
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Heritage Park restrooms (nearly complete, $1,100 remaining)
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Community Park water conversion ($12,000 remaining)
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All ARPA funds must be spent by December 2026, and the City is on schedule for full expenditure.
7. Summary & Outlook
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Overall, City finances are stable.
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Most departments either came in under budget or only slightly exceeded it due to planned
staffing or operational needs.
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Unspent funds primarily reflect timing of projects and grant usage, not overspending.
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Upcoming financial software upgrades are expected to provide real-time visibility into
departmental spending, helping future planning and budgeting.
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho Falls, ID 83402
I DAHO
FALLS
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Fiscal management demonstrates conservative budgeting, effective cost control, and strategic
project planning, keeping the City on track to meet all financial obligations while maximizing
efficiency.
Motion: Move the Police item (Conex)to be presented before the Public Works item (Contract Admin).
Moved by: Councilor Radford
Second: Councilor Francis
Vote: Aye: Burtenshaw, Francis, Freeman, Larsen, Radford. Nay: none.
Motion carries.
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Police, Municipal Services - Discussion: Conex Shooting Range (Director Alexander, Captain Marley, Chief Johnson,
Assist Finance Director Slyter)
Project Overview
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The City Council budgeted $950,000 for a mobile shooting range to be located at the Idaho Falls
Police Complex.
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The range is a modular, semi-permanent style building (Conex), placed within existing privacy
fencing and a currently unused dirt area.
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It is indoor, climate-controlled, rated for both rifle and pistol use, and can operate two people
simultaneously.
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The facility will enhance officer training by allowing daily, quick, controlled training without
moving to external locations or nighttime sessions.
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Existing ranges will still be operational, but this range adds flexibility and safety.
Funding and Budget
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Funding comes from budgeted contingency and COP (Certificate of Participation) fund savings,
totaling approximately $999,700 in available cash, plus $500,000 still in the COP fund after debt
payments and arbitrage obligations.
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The $950,000 budget covers:
Range purchase ($746,933.56)
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Site preparationand electrical connections
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Project is expectedto come slightly under budget.
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This is a one-time capital expenditure, with no ongoing debt service beyond existing obligations.
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Construction and Maintenance
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The building is a metal structure with armored interior, soundproofing, and a bullet trap.
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Bullet trap requires cleaning every 3-4 years, estimated at $8,000-$10,000.
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Climate control and interior systems require quarterly maintenance.
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Life expectancy: 10-15 years for the building, though the infrastructure and footprint may last
much longer with proper maintenance.
Operational Advantages
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Provides controlled environment for daily training and qualifications.
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Reduces reliance on offsite locations and nighttime training sessions.
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Technology is well-established and widely used, originating from federal and military mobile
range programs.
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho Falls, ID 83402
I DAHO
FALLS
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Cost-effective compared to traditional brick-and-mortar range construction.
Motion: Move that we move $950,000 from the contingency fund into the Capital Improvement fund to
fund the Conex shooting range,
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Moved by: Councilor Freeman
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Second: Councilor Larsen
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Vote: Aye: Burtenshaw, Francis, Freeman, Larsen, Radford. Nay: none,
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Motion carries.
Public Works. Municipal Services. City Attorney - Discussion: Contract Administration, Change Orders and
Quantity Variance (Director Alexander, Director Fredericksen, Assist. Director Canfield)
Background & Purpose
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The City is implementing a new financial system and reviewing internal processes, including asset
management, procurement, and audit documentation.
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A prior audit identified a lack of a purchasing policy; a new draft policy is expected for Council
review in early December.
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Contract administration is a multi-departmentaleffort.
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Primary goals:
Ensure transparency, consistency, and accountability from budget approval to project
completion.
Provide flexibility in project delivery while maintaining oversight.
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Project Management & Budgeting
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Public Works oversees an average of 22 types of projects annually (streets, water, wastewater,
etc.).
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Projects are funded through capital budgets, e.g., $4 million for street maintenance, with
flexibility to optimize funds across projects.
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The objective is to maximize project completion within budget, ensuring effective use of
resources.
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Flexibility is key: unspent funds can be reallocated within projects or extended to nearby work for
efficiency.
Contract Structure
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Public Works primarily uses unit price contracts, rather than lump sum, e.g.:
o
Paving paid per ton
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Sidewalks per square yard
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Curbs per linear foot
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This structure allows for quantity variances to accommodate unforeseen conditions (e.g.,
additionalconcreteor storm drain work).
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Example: Bridge projects often reveal extra concrete or rebar needs once work begins.
Change Orders & Quantity Variances
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Quantity variance: Adjusting project units within ±25% of the estimated quantity, provided the
item represents >10% of the contract.
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Change orders: Occur when quantities or costs exceed established thresholds.
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Process:
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho FalIsJD 83402
I DAHO
FALLS
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Inspectors monitor progress and quantities monthly,
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Adjustments may be made mid-project (e.g., extending paving or adding storm drains),
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Negotiation ensures work stays within budget; projects may be modified
if needed.
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Approval thresholds:
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Projects <$200,000: Mayor can approve up to 25% change orders,
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Projects >$200,000: Mayor can approve up to 15%.
o
Any change order >$500,000 requires that the Mayor will inform Council.
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Cumulative tracking ensures Council is informed of multiple or large adjustments.
Budget Focus & Flexibility
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Some Council members would prefer to focus primarily on dollar amounts, rather than linear feet,
square yards, or units.
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Quantity variances allow the City to extend or optimize work without needing additional contracts
or approval delays, saving time and money.
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Contractors typically cooperate with adjustments; mobilization costs are negotiated if necessary.
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This approach maximizes project impact within approved budgets, avoiding underutilization of
funds.
Purchasing Policy Implementation
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Public Works, Legal, and Finance developed definitions and guidance for quantity variance
purchases.
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Policy ensures:
Compliance with state statutes
Alignment with director authority and change order processes
Efficient processing of requisitions without delays
Proposed policy language will:
Establish a 25% approved range for quantity variances, consistent with contract
conditions
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Clarify thresholds for change orders and Council approvals
Staff will report final numbers to their Council liaison to maintain transparency while minimizing
micromanagement.
Policy review scheduled for early December, followed by Council approval.
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Municipal Services. City Attorney - Update: Sale of City Property (Director Alexander, Nick Terry, Director Holm)
Background
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On September 11, the City Council reviewed three letters of intent for a City-owned property.
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The Council selected Clearstone, LLC, offering the highest and best use and a $2 million purchase
price.
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The City Attorney's Office prepared a Purchase and Saie Agreement for Council review and approval,
which has already been signed by the purchaser.
Key Terms of the Agreement
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Purchase price: $2 million
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho Falls, ID 83402
I DAHO
FALLS
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Earnest money; $10,000, nonrefundable on day one
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Due diligence period: 120 days, extendable by 30 days if needed
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Rights conveyed: Water, irrigation, and mineral rights (normal for such transactions)
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Easements; City retains easements for existing infrastructure (e.g., golf course sprinkler pipeline)
Current Status
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Agreement was drafted by the City's legal department and reviewed by the buyer.
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Buyer has signed and is ready to proceed pending Council approval.
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Minor administrative note: Exhibit A labeling will be corrected for clarity.
Motion: Approve the Purchase and Sale Agreement and authorize the Mayor and City Clerk to sign the
necessary documents,
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Moved by: Councilor Freeman
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Second: Councilor Francis
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Vote: Aye: Burtenshaw, Francis, Freeman, Larsen. Nay: none,
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Motion carries.
Mayor and Council: Calendars, Announcements, Events, Reports. Updates, Concerns, Questions, Proclamations,
Notes or Minutes from Boards and Commissions:
Council President Burtenshaw
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Power Board meeting: Wednesday, normal start at 7:45 a.m., shortened schedule.
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City Council meeting: Thursday at the normal time; agenda already received.
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BMPO Policy Board meeting: Combined with TAC this month.
Councilor Freeman
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Early voting dates: Thursday, November 13 through Wednesday, November 26.
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City offices closed: Thursday, November 27‘^ and Friday, November 28th.
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Councilmember Freeman emphasized the need to alert citizens so they don't miss early voting.
City Clerk Geisler
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Clarified that the original dates for early voting were the 17“’ through the 26“^. However, the decision
was just made that morning to move the start date up to the 13“’ to allow for 10 business days, which
is consistent with what was done for the regular election.
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Appreciation was expressed for the Bonneville County Elections employees who plan to work through
Veteran's Day to ensure the earlier Early Voting schedule.
Councilor Francis
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Tree lighting: November 22, elected officials meeting at City Hall at 5:40 p.m. to ride the fire engine.
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UTV Parade: Starts at 6:00 p.m. at Freeman Park [the date of December 19*^ was not stated but was
listed on a printed calendar].
Route adjusted due to parking availability at Mountain America Center; will use ISU and Willow
Creek overflow parking.
Registration: 400 UTVs max; as of announcement, 281 registered.
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City Council Work Session
Meeting Minutes
680 Park Avenue
Idaho Falls, ID 83402
I DAHO
FALLS
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Beneficiary: 100% of proceeds go to the Community Food Basket, which
is seeking cash
donations for items such as baby formula and baby food.
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Council members can participate in the parade with UTVs; staff will decorate vehicles.
Ribbon Cuttings
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Station Six: December 22 at 10:00 a.m.
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Peaking Plant: December 4
Parks & Cemetery Ordinances on the agenda for Thursday's meeting
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Golf Advisory Board; Adjustment to total number of members to 12 (11 voting + 1 ex-officio) to prevent
tie votes.
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Cemetery Ordinance: No burials allowed during Memorial Day weekend to maintain a quiet space;
details to be explained at Thursday's meeting.
Councilor Larsen
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New police shooting range allows smaller, consistent training sessions, improving quality over time.
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Includes virtual training room for reaction and scenario-based practice.
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Range supports recruitment and enhances overall training quality for small police departments.
There being no further business, the meeting adjourned at 5:26 PM
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