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City Council Work Session
Meeting Minutes
1
680 Park Avenue
Idaho Falls, ID 83402
Monday, June 22, 2026
3:00 PM
City Council Chambers
Call to Order and Roll Call
There were present:
Mayor Lisa Burtenshaw (Left at 5:10 pm, on Teams at 5:44 pm)
Council President Jim Francis
Councilor John Radford
Councilor Michelle Ziel-Dingman (Arrived at 3:24 pm)
Councilor Jim Freeman
Councilor Kirk Larsen
Councilor Brandon Lee
Also present:
Chris Canfield, Public Works Director
Ian Turner, Airport Director
PJ Holm, Parks and Recreation Director
Kevin Kavran, Golf Operations, Parks & Rec
Margaret Wimborne, Chief of Staff
Scott Grimmett, Fire Marshal
Johan Olsen, Fire Chief
Cody Gordon, CDS
Bryce Johnson, Police Chief
Brian Cunningham, PW Engineer
Zack Jones, City Attorney
Linda Lundquist, City Clerk
Mayor Burtenshaw called the meeting to order at 3:03 p.m. with the following items:
Mayor, City Council – Discussion: Citywide updates, concerns, questions, reports:
•
Council President Francis – Will provide updates about alcohol ordinances during meeting.
•
Councilor Radford –
o Parks and Recreation / Infrastructure Questions
▪
Councilor Radford asked about recent construction activity near the river performance stage
and adjacent restrooms, noting a new concrete section had been installed.
▪
Staff clarified that a separate new pad with plumbing in the nearby parking lot is being
prepared for electric vehicle charging stations.
▪
Councilor Larsen noted a new EV charger near City Hall and Mayor Burtenshaw referenced
additional chargers planned through a Department of Energy grant program.
o Farmers Market Community Outreach
▪
Radford discussed efforts to increase City Council visibility and accessibility at the Idaho Falls
Farmers Market.
▪
Staff is coordinating with the market's new manager to provide opportunities for Councilors
to attend on an informal, rotating basis.
▪
Plans include setting up a dedicated table near the market where Councilors can meet with
residents, distribute City information, and answer questions.
▪
Community engagement materials such as City text-notification information, river guides, and
paddle guides will be available.
▪
A special "City Council and Mayor Day at the Market" is planned for the end of July.
o Improving Public Access to Council
Radford explained that previous outreach efforts showed residents were more likely to
approach a standard table setup than a formal-looking Council display. He emphasized
City Council Work Session
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680 Park Avenue
Idaho Falls, ID 83402
the importance of creating more opportunities for residents to interact with Council
members outside formal meetings. Radford noted that one of the major criticisms heard
during the last election was that residents wanted greater access to elected officials and
more opportunities to be heard.
o Town Hall and Public Education Concept
Radford proposed creating periodic public forums or modified town halls focused on specific
topics rather than open-ended discussions. Potential topics could include public safety, parks and
recreation, the river corridor, land use issues, or other major community discussions.
Council President Francis suggested:
•
Having two Council members attend to avoid the formality of a formal City
Council Meeting.
•
Focusing each meeting on one or two specific topics.
•
Providing educational information first so residents better understand City
processes and Council responsibilities.
•
Allowing structured discussion and public interaction afterward.
•
Having residents submit comments on unrelated issues through written cards.
•
Potentially involving relevant City staff members.
o Radford suggested these forums could help residents better understand how City decisions are
made and clarify the Council's role on community issues.
o Future Outreach Ideas
▪
There is an interest in partnering with local schools and community facilities as potential
venues for future public engagement events.
▪
Staff indicated that additional details on both the Farmers Market outreach program and
potential town hall-style events will be developed and shared with the Council.
o Animal Shelter Adoption Process Concerns
▪
Councilor Radford shared concerns about the customer experience at the Idaho Falls Animal
Shelter after a recent visit.
▪
He said he had heard similar complaints from two other individuals and then experienced the
issue himself when he attempted to visit the shelter to view adoptable animals.
▪
Radford explained that he was told he needed an appointment and would be required to
complete extensive paperwork before being allowed to view animals, which he felt was not
customer-friendly.
▪
He noted that both he and the person accompanying him were discouraged by the process,
and he believed it could deter otherwise qualified prospective adopters.
▪
Radford requested that staff provide the Council with additional information in the future
about the shelter's procedures and the reasons behind the current requirements.
Staff Response
▪ Staff explained that the experience Radford encountered was primarily related to dog
adoptions, where appointments and screening procedures are required.
▪ Staff indicated there are reasons for the process and suggested additional discussion could be
provided to the Council at a later date.
•
Councilor Larsen –
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680 Park Avenue
Idaho Falls, ID 83402
o
Councilor Larsen reported that summer is an especially busy season for Public Works, as
construction projects are actively underway throughout the City.
o
He highlighted progress on the Police Department firing range project, noting that foundations
are being installed for the shipping container ("Connex") structures that will be part of the facility.
o
Larsen also noted that Fire Department projects continue to move forward, including ongoing
coordination with the fire district and other related initiatives already familiar to the Council.
•
Councilor Freeman –
o Disc Golf Expansion at Ryder Park
▪
Councilor Freeman met with a local disc golf group interested in establishing a disc golf course
in portions of Ryder Park.
▪
The group proposed building and maintaining the course at no cost to the City, requesting
only permission to use the land.
▪
Freeman noted that the organization has already been actively involved in the park, including
helping install sod and participating in cleanup efforts.
▪
The group is also adopting Ryder Park as part of its community volunteer efforts.
▪
After touring the proposed layout, Freeman said he was impressed with the concept and did
not identify any significant conflicts with existing park uses.
▪
Discussion also highlighted the popularity of disc golf in Idaho Falls, with Freeman Park
recognized as one of the nation's most popular disc golf courses.
o Park Incident
▪
Freeman informed the Council that a suicide had recently occurred at Civitan Park.
▪
He noted that the incident took place several days earlier and that the situation had since
been addressed by the appropriate authorities.
•
Councilor Lee –
o The City's crematorium operation was reported to be running smoothly.
o Lee noted that the shipping container ("Connex") units for the new police firing range are
expected to be delivered soon, marking another step toward completion of the project.
o Officer Tim Downs is retiring from the Idaho Falls Police Department, with his final day of service
scheduled for Wednesday.
o Full Staffing Milestone
▪
Lee highlighted a significant staffing achievement for the Police Department
▪
Chief Johnson clarified that this milestone applies specifically to sworn officer positions,
reflecting progress in recruiting and staffing efforts.
•
Councilor Dingman – not yet present at the time of announcements
•
Mayor Burtenshaw –
o Boone Property Annexation Update
▪
The Mayor provided a heads-up that the Boone property annexation item, located on Saint
Leon, has been tabled again after previously coming before the Council.
▪
She clarified this is a legislative (not quasi-judicial) item and explained the background:
o
The property owners originally approached the City about obtaining water service and
potential annexation.
o
The City informed them the property was already eligible for annexation.
City Council Work Session
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680 Park Avenue
Idaho Falls, ID 83402
o
While annexation was not required, it would facilitate infrastructure coordination,
including water line extension and planned road improvements.
o
The County would have required alternative infrastructure (such as a fire well) if they did
not annex.
o
The City has been coordinating with the property owners, engineers, Public Works, and
Fire to support development needs, including utility and roadway planning.
o
The Mayor emphasized that City staff have worked extensively and cooperatively with the
property owners throughout the process.
o
She noted she is unsure why the item was tabled again but confirmed the City remains
prepared to proceed if it returns.
o Employee Event Reminder
▪
The Mayor reminded Council of the upcoming City employee picnic scheduled for Wednesday
at Tautphaus Park.
Public Works: Discussion – Traffic Mobility, Multi-modal, Bike Lanes, Speed Limits and Safe Streets for All
(Director Canfield):
•
Overall framework:
o
Explained how Public Works plans transportation projects using:
▪
The regional long-range transportation plan (2050 MPO plan)
▪
The City’s Connecting Our Community plan
o
Projects are categorized by safety, mobility, economic vitality, quality of life, fiscal responsibility,
and public involvement.
•
Project status overview:
o
Shared a list of projects that are:
▪
Recently completed, under construction and/or planned
o
Noted many projects also align with safety or multimodal (bike/pedestrian) goals.
o
Emphasized coordination with development projects and regional planning.
•
Multimodal transportation / bike infrastructure:
o
City is working to improve connectivity of bike lanes, shared-use paths, and pedestrian routes.
o
Gaps in bike networks are often due to:
▪
Right-of-way constraints
▪
Funding limitations
o
Recent shift in regional planning:
▪
Earlier plans included on-street bike lanes on arterials
▪
New approach favors separate shared-use paths off-road in many corridors
▪
Some exceptions remain (e.g., 49 South and 65th North corridors)
•
Speed limits discussion:
o
Explained the 85th percentile method (standard engineering practice):
▪
Speed limits are often set based on the speed at or below which 85% of drivers travel.
o
Noted additional context factors:
▪
Schools, parks, pedestrian activity, road design, etc.
o
Council pushed back, arguing:
▪
The method may “follow behavior upward” rather than prioritize safety
▪
Context and street design should play a stronger role than raw speed data alone
o
Canfield responded:
▪
85th percentile is still the industry standard
City Council Work Session
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680 Park Avenue
Idaho Falls, ID 83402
▪
But acknowledges context and design should be part of decisions
▪
Upcoming Safe Streets for All study will help reassess speed-setting practices
•
Examples of speed studies:
o
Utah Avenue: recommendation to increase from 25 to 35 mph due to observed speeds and road
conditions
o
Other corridors: mixed results (some changes recommended, others not)
o
Noted that road design (width, lanes, parking, turn lanes) strongly affects driver behavior
•
Traffic mobility and signal timing:
o
Ongoing efforts with consultants to improve corridor signal coordination
o
Example: improvements on Fifth Street / Holmes corridor through signal timing adjustments
o
Work continues on balancing major corridors like 17th Street and Sunnyside
•
Safe Streets for All grant:
o
City received a $500,000 federal grant (80/20 match; $100,000 City share)
o
Will fund a comprehensive safety action plan aimed at:
▪
Reducing fatalities and serious injuries (“Vision Zero” style goal)
▪
Identifying high-crash locations
▪
Recommending engineering and programmatic safety improvements
▪
Includes reevaluation of speed limits and roadway safety strategies
•
Project coordination / construction planning:
o
Emphasized efforts to:
▪
Coordinate timing of projects to reduce disruption
▪
Stagger construction (including seasonal and low-traffic timing like Sundays)
▪
Limit simultaneous disruptive work (e.g., chip seal scheduling)
•
Council discussion themes:
o
Debate over reliance on 85th percentile vs. street context/design
o
Concerns about how speed limits reflect neighborhood character
o
Recognition that some roads feel too fast despite “technical compliance”
o
General support for using the upcoming safety study to refine policy
Airport: Review – 2026-2027 Airport Budget (Director Turner):
•
Director Turner presented the FY 2026–2027 Airport budget, noting that he is temporarily leading the
financial side of the department as Bruce is heading back to Finance (MS) in a week.
•
Key revenue funds (PFC & CFC):
o
Passenger Facility Charges (PFC):
▪
~19% growth overall (corrected from a misprinted higher percentage)
▪
Driven by increased passenger activity and new/expanded airline service (e.g., Portland
service and additional Chicago flight)
▪
Funds primarily support capital projects like the terminal expansion
▪
About $5M balance remains in the PFC fund
o
Customer Facility Charges (CFC):
▪
Approximately 102% increase in revenue
▪
Driven by updated rental car agreements and new rates
▪
About $1.6M transferred to capital projects
•
Major capital focus:
o
Terminal expansion and apron work dominate the budget
o
Roughly $12M in one phase of apron/terminal expansion work
City Council Work Session
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680 Park Avenue
Idaho Falls, ID 83402
o
Approximately $28M in additional terminal expansion costs
o
Overall capital plan heavily driven by construction timelines and FAA grants
•
Operating budget highlights:
o
Administration: No major changes; removal of a prior contingency line (~$30M) and some staffing
adjustments (retirements/replacements at lower pay grades)
o
Custodial: ~22% increase due to supply cost inflation (cleaning materials and general operating
supplies)
o
Airfield operations:
▪
Increased training costs for new staff
▪
Shift toward renting equipment instead of purchasing infrequently used capital assets
▪
Includes removal of an old structure (“potato cellar”) near airport property
o
Security division: Minor changes driven by staffing replacement costs
•
Fire protection / ARFF (Airport Rescue & Firefighting):
o
~$165K increase tied to staffing (six firefighters under MOU wage/step structure)
o
~$750K allocated for a replacement ARFF/reserve firefighting truck due to prior equipment
loss/damage
o
Additional funds for firefighting foam supplies
•
Landside operations (parking & access):
o
Parking system not fully self-sufficient as expected; still requires staff intervention
o
Plan to hire additional part-time staff to support customer service at exit booths
o
Proposed:
▪
New entry/exit lane for economy parking lot
▪
Continued use or replacement of shuttle van (depending on ARFF truck purchase)
•
Terminal building operations:
o
~30% increase in operating costs driven by:
▪
Higher-than-expected maintenance contracts (HVAC, elevators, escalators)
▪
New equipment being installed as part of terminal expansion utilities/infrastructure
•
Overall budget picture:
o
Shift from roughly -$2.2M to +$5M net change
o
Driven largely by construction funding, grants, and increased passenger-related revenue
•
Capital improvement plan (FAA-dependent):
o
Only the first-year column (FY26–27) is considered relatively firm
o
Later years remain uncertain due to:
▪
FAA funding variability
▪
Federal budget appropriations
o
Major known projects include:
▪
Terminal expansion (largest confirmed item)
▪
Additional infrastructure improvements tied to grants and planning
•
Runway and long-term outlook:
o
Planned runway rehabilitation in ~5 years
o
Likely funded across multiple federal fiscal years
o
Will be a major, disruptive project potentially requiring runway closures
o
Also involves aging airport stormwater infrastructure upgrades
•
Discussion themes/questions:
o
Clarification of staffing changes and contingency shifts
o
Questions about capital certainty and FAA funding reliability
o
Brief explanation of airfield infrastructure (blast pads, runway safety systems)
City Council Work Session
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680 Park Avenue
Idaho Falls, ID 83402
o
Recognition that airport projects are highly dependent on federal coordination and funding timing
•
Closing: Council received the budget positively, with the discussion emphasizing that most uncertainty lies
in FAA-dependent capital timing, while near-term terminal expansion funding is largely secured.
Parks & Recreation, Legal: Discussion - Declaration of Intent to Value & Exchange Real Property at Sage Lakes Golf
Course (Director Holm, Mr. Kavran, Mr. Cunningham, Attorney Jones):
The Parks and Recreation Department presented a proposed land exchange at Sage Lakes Golf Course to enable
construction of a long-planned restroom on the front nine. Director Holm explained that the restroom was
already budgeted in the golf fund, but the ideal location lacked accessible utilities. The only feasible site for a
permanent restroom lies near an area where the City owns a small, isolated parcel of land separated by an
irrigation canal and poorly suited for golf course use.
To solve the utility and siting issue, staff proposed exchanging that City parcel for a larger, better-positioned piece
of land owned by a developer adjacent to the course, which would also make it easier to extend water, sewer,
and power lines to the restroom site.
Key points of the proposal:
•
The restroom would be a small, two-unit, single-user unisex facility (not a larger multi-stall structure),
intended primarily for golfers during a long stretch of play where no facilities currently exist.
•
The location fills a known gap on the course where players can be 3+ hours into a round without nearby
restrooms; porta-potties have been used temporarily for years.
•
The exchange is necessary to efficiently bring utilities across the canal area and connect to existing
infrastructure near adjacent development.
Property and valuation details
•
City parcel: ~0.229 acres, appraised at about $25,000
•
Developer parcel: ~0.05 acres, appraised at about $5,500
•
Net difference: approximately $19,500 owed to the City
•
Appraisal cost: $3,500 total (split 50/50 with the developer)
•
Utility coordination may allow the developer to help offset or assist with utility extension costs
The item will return for a formal public hearing after publication, and if approved, the exchange will allow the City
to proceed with designing and constructing the restroom facility at Sage Lakes.
Motion: Move that Council declare its intent to exchange real property consisting of 0.229 acres of City-
owned property located at the north end of Inglewood Drive in exchange for 0.050 acres of developer-
owned property northeast of the north end of Eaglewood Drive and adjacent to Sage Lakes Golf Course.
The exchange shall be based on a valuation of $2.50 per square foot, subject to final survey results, with
an equalizing cash payment to be made by the developer to the City based on the difference in value.
The developer shall also pay one-half of the $3,500 appraisal cost.”
o
Moved by: Councilor Freeman
o
Second: Councilor Lee
o
Vote: Aye: Francis, Dingman, Freeman, Larsen, Lee, Radford. Nay: none.
o
Motion carries
City Council Work Session
Meeting Minutes
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680 Park Avenue
Idaho Falls, ID 83402
Legal, Police, City Clerk, CDS, Fire: Review - Additional Updates to Draft Alcohol Ordinance (COS Wimborne, Fire
Marshal Grimmett, Chief Olson, Building Official Gordon, Chief Johnson):
The discussion focused on updates to the City’s alcohol ordinances, with the goal of consolidating separate beer,
wine, and liquor regulations into a single streamlined code while addressing safety concerns, enforcement
consistency, and modern event practices.
City staff explained that the effort has been highly collaborative, involving the Police Department, Fire
Department, Building Department, and City Attorney (and office of the City Clerk), along with extensive outreach
to downtown businesses and nonprofits. The intent was not only to simplify the ordinance structure, but also to
close loopholes, improve enforcement and appeals processes, and better align alcohol service rules with building
and fire safety standards.
A major focus was the proposed restructuring of alcohol catering permits, which allow alcohol service at
temporary events. The original draft would have reduced allowable permits over time (from 52 to 26 to 12 per
year per location). However, feedback from businesses and nonprofits revealed that many venues host far more
frequent events than the original assumptions, sometimes multiple per week, using multiple caterers and short-
term permits.
As a result, Council considered revisions such as:
•
Keeping no change in years 1–2, then phasing down in later years (e.g., 52 → 26 → 12)
•
Or using a more gradual or adjusted phase-down schedule (including a possible 104-license option
discussed)
•
Recognizing that the intent is to prevent under-equipped buildings from operating as de facto nightclubs
without proper safety upgrades
Fire and building officials emphasized that occupancy limits, exits, and sprinkler requirements already control how
many people can safely occupy a building when alcohol is served. Alcohol service often reduces allowable
occupancy unless a building is upgraded to meet higher standards. The ordinance is intended to ensure that
buildings used frequently for alcohol events eventually meet appropriate safety classifications (such as A2 or
sprinklered assembly use), rather than repeatedly relying on temporary permits.
Another major issue was nonprofit treatment. Nonprofits argue they should be exempt from permit caps because
they already operate under state oversight, fundraising constraints, and internal governance rules. Staff clarified
that:
•
“Alcohol catering permits” would still be capped unless exempted
•
“Not-for-Profit Alcohol Catering Permits” are a separate category and could remain unlimited if properly
registered
•
The key policy question is whether to exempt only state-recognized charitable organizations (such as
501(c)(3) entities or equivalent state-registered charities) from catering permit limits
Council ultimately leans toward allowing greater flexibility for qualifying nonprofits, potentially exempting them
from the caps on catering permits, while still maintaining building safety requirements.
A second major theme was legal liability and enforcement risk, especially concerns that the ordinance could
unintentionally:
•
Criminalize landlords or business owners if alcohol is present without their knowledge
•
Over-regulate private gatherings such as weddings, employee parties, or informal events
City Council Work Session
Meeting Minutes
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680 Park Avenue
Idaho Falls, ID 83402
•
Create selective enforcement problems if owners are held responsible for actions they did not knowingly
permit
Staff and legal counsel responded that the ordinance uses a “knowingly” standard, meaning liability would only
apply if an owner was aware of and allowed violations. They noted this is a relatively high legal threshold and
consistent with other regulatory frameworks.
Even so, Council expressed concern about clarity and unintended consequences, particularly regarding:
•
Whether private or employee-only gatherings should require permits
•
How to distinguish casual internal events from regulated commercial event operations
•
Whether outdoor events should count toward permit limits
•
Ensuring landlords and venue operators are not unintentionally exposed to criminal liability
There was also discussion about server training requirements, which were refined in response to feedback:
•
Clarifying who must complete training
•
Extending time to produce training records
•
Creating a tiered enforcement system (infractions, then escalating penalties rather than immediate
misdemeanor charges)
•
Allowing the police department (or designee) to approve training programs based on defined subject
requirements
Additional adjustments include removing outdated rules such as a six-day waiting period between charitable
event permits, and simplified internal definitions to reduce confusion.
Toward the end, Council worked toward a general consensus that the ordinance should:
•
Focus primarily on commercial alcohol service and safety compliance
•
Rely on existing fire and building codes for occupancy and safety standards
•
Avoid regulating casual or internal private gatherings
•
Provide clear, consistent rules to prevent selective enforcement
•
Allow flexibility for nonprofits while maintaining safety oversight
Overall, the discussion reflects an effort to balance three competing priorities: public safety in event spaces,
practical flexibility for businesses and nonprofits, and legal clarity to avoid unintended criminal liability or
overregulation of private events.
Mayor - Announcements, Events, Calendaring, Proclamations, Notes and/or Minutes from Boards and
Commissions:
•
Mayor closed the discussion with a few logistical notes and acknowledgements. She appreciated the
weekly Friday calendar update and noted that it reflects ongoing coordination within the Mayor’s Office.
•
She noted upcoming travel beginning Wednesday and flagged that she—and at least two other
Councilors—may attend via Teams for City Council Meeting on Thursday night.
There being no further business, the meeting adjourned at 5:52 PM
City Council Work Session
Meeting Minutes
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680 Park Avenue
Idaho Falls, ID 83402
/s/ Linda Lundquist_________________
/s/ Lisa Burtenshaw
_____________
Linda Lundquist, City Clerk
Lisa Burtenshaw, Mayor
Projects recently completed:
da
65" North Bridge over the Idaho Canal - (Safety, Mobility, Fiscal Responsibility)
2. 2025 Overlays - Current Seal Coat Projects (Fiscal Responsibility)
3. 5 & Holmes Signal (Safety, Mobility, Fiscal Responsibility)
Projects Under Construction or Scheduled :
44
2.
5.
E St (Memorial to Yellowstone). (Safety, Mobility)
Seal Coats - Lincoln, Riverside Drive (Memorial to Science Center), Lindsay (North
of Broadway), Skyline (Pancheri to Bellin), Pancheri (Yellowstone to Utah), Utah
(Broadway to Snake River Parkway), Holmes Sunnyside to Yellowstone), St Clair
(Sunnyside to John Adams), Woodruff (Sunnyside to 1* St), Channing (Sunnyside to
17" St, 1 st & Lomax (Yellowstone to the split) (Idaho Canal to 25" East), Pancheri
(Bellin to Broadway) (Safety, Fiscal Responsibility)
Boulevard & Birch Round about Construction (Safety, Mobility)
Yellowstone Lighting Upgrades (Yellowstone & Broadway) (Safety, Fiscal
Responsibility)
Yellowstone Sidewalk (Fall) Pancheri to Sunnyside) (Safety, Mobility)
Planned (beyond this year): (Safety, Mobility, Fiscal Responsibility, Multi-Modal)
Elm St (Yellowstone to Blvd)
4
2. Woodruff (Yellowstone to 33% North)
3. Pioneer Road Bridges
A.
5
6
7
5 West Turn Lanes (near Fairway Estates)
. Woodruff Ave (Kearney to Yellowstone) 2028
. 15” East & 49" S Signal — 2027
. Sunnyside & 17" St Microseal
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