Agenda Item No: K.2
AGENDA REPORT
DATE: July 7, 2026
TO: Mayor and Council
FROM: David Gassaway, City Manager
SUBJECT: Resolution 2026-156 PR Golf Volunteer Program
Authorize Development of a Volunteer Program for City Golf Courses and Adopting Volunteer Service Benefit Policy
Funding Source: N/A
Contact: Kristina Kaunzinger, (707) 428-7470
RECOMMENDED ACTION
Adopt resolution.
STATEMENT OF ISSUE
Touchstone Golf Foundation is dissolving and volunteer program at the golf courses will terminate. Staff seek approval to develop and implement a new city volunteer program specific for volunteer services at Rancho Solano and Paradise Valley golf courses.
Background:
In 2022, City Council directed an Request for Qualifications ( RFQ)/Request for Proposal ( RFP) process for management of the golf courses. The goal was a management service agreement with a single operator to improve service levels, effectiveness of overall management, and to maximize revenue generation. Council also affirmed expe ctations that golf operations be self - sufficient as an enterprise fund.
The RFQ/P was released in 2023, and Touchstone Golf was selected as the operator, taking over management of the courses in January 2024. Since January 2024, staff have worked with Touchstone to identify operating inefficiencies and maximize revenue generation.
Touchstone Golf, LLC partnered with Touchstone Golf Foundation, a third -party non -profit organization, which provided volunteers who, in connection with their efforts to impr ove communities through service and by raising funds for charitable efforts through golf related
activities, helped augment the player experience at Rancho Solano and Paradise Valley golf courses.
In March 2025, the city was notified that KemperSports (Kemper) had acquired Touchstone Golf.
The Touchstone Golf Foundation is a separate independent non-profit entity and was not part of the Touchstone Golf LLC acquisition by Kemper. Following the Kemper acquisition, the Foundation is being dissolved.
Section 6.12D6 of the management agreement (Attachment 10) between the City and Touchstone/Kemper requires the operator to identify and report on all discounts, fee waivers, donations and complimentary golf. This section was explicitly added to the contract due t o concerns raised about previous operators past practices and lack of policy and structure of complimentary or discounts provided.
DISCUSSION
In late 2025, the City was notified that the Touchstone Golf Foundation would be dissolved. As such, Kemper can no longer support the volunteer program as currently structured. Kemper, who purchased Touchstone Golf in 2025, proposed either 1) the volunteer program come under the City or, 2) they would hire employees to serve in those roles.
In discussions with the G olf Advisory Board (GAB) on the approach to maintaining volunteer services, several current volunteer members requested the City consider continuing the program under the City’s oversight. The GAB concurred with the request and directed staff and Kemper to provide information needed to make a recommendation to the council.
On May 7, 2026, the GAB received the following information:
1. Kemper provided analysis of the 2025 volunteer services, including the number of volunteer rounds played and days of the week complimentary golf was provided to volunteers. (Attachment 3)
2. Staff provided a memorandum from legal counsel on relevant labor la ws concerning compliance with de minimis benefit provisions for volunteers under the Fair Labor Standards Act. (Attachment 4)
3. An outline of key components for a formal city volunteer program. (Attachment 5)
4. Board members were asked to provide a recommendat ion to the City as to reasonable benefits for golf volunteer services. A key consideration was the amount of free golf and discounts on food and merchandise provided to volunteers based on the number of volunteer hours worked. At their May 7, 2026, meeting , the GAB was unable to reach consensus on a recommendation and requested additional information from Kemper as to the benefits received by employees. The Board held a special meeting on May 28, 2026, to review the employee benefits and recommend benefits for volunteer services.
5. Kemper provided the Board with their Employee Golf Policy for reference at the May 28, 2026, Special Board meeting (Attachment 6). Staff also presented recommended volunteer service benefits for a city-managed volunteer program (Attachment 7).
6. After deliberation, the Board came to consensus for an alternative to the City’s proposed benefits (Attachment 8).
Action Requested:
Two key areas must be taken into account with any recommendation presented.
1. Consider legal definition of what constitutes/defines a volunteer and benefits received as outlined in Attachment 4
2. Consider financial impact and operation efficiency
Given the factors above, the best option for creating operational efficiency, minimizing city risk and liability, and greatest opportunity for revenue enhancement is to have tasks previously provided by volunteers integrated into Kemper’s responsibilities.
However, in recognition of GAB’s recommendation and support for developing a new city - managed volunteer program, and hearing from current volunteers of their desire to continue providing volunteers services, staff has prepared a draft proposal for Council’s review.
Based on Council goals and expectations of golf enterprise self -sufficiency, and outside counsel legal co nsiderations, staff recommends: 1) a limitation on tasks assigned; 2) a reduction in complimentary golf rounds provided; and 3) a modification to other benefits for volunteers. By providing fewer free rounds of golf for volunteers, additional tee times are available for paying customers, which should increase revenue for the courses.
This includes a restriction on when complimentary golf can be redeemed and recommends City Council to:
1. Direct staff to develop and implement a golf volunteer program; and
2. Adopt a policy clearly specifying the benefits received for volunteer services rendered as outlined in Attachment 9.
FINANCIAL IMPACT
Any direct costs associated with the City’s golf volunteer services will be charged to the golf fund.
Kemper anticipates that revenue generation will increase with opening tee -times to paying customers through limiting the days/times of when complimentary golf is available for employees and volunteers.
PUBLIC CONTACT/ADVISORY BODY RECOMMENDATION
At their February 12, 2026, May 7, 2026, and May 28, 2026, meetings, the Golf Advisory Board reviewed and discussed options relating to the dissolution of the Touchstone Golf Foundation and its impact with continuing the Golf Volunteer Program. At the May 28, 2026, Special Meeting, with an affirmative vote of 6 with 1 conflict abstention, the Board provided their recommendation for golf benefits (Attachment 8).
ALTERNATIVE ACTION
1. Deny developing a City volunteer program and have Kemper staff assume all operational duties, tasks, and responsibilities formerly provided by volunteers.
2. Approve Golf Advisory Board recommendation.
3. Any alternative action as directed by council.
COORDINATED WITH
City Attorney’s Office, City Manager’s Office, Finance Department, and Human Resources Department
STAFF CONTACT
Kristina Kaunzinger, Parks & Recreation Director
(707) 428-7470
[email protected]
ATTACHMENTS
Attachment 2: Proposed Resolution
Attachment 3: Kamper Analysis
Attachment 4: Legal Memorandum
Attachment 5: Outline Volunteer Program
Attachment 6: Employee Play Policy
Attachment 7: City Proposed Options
Attachment 8: GAB Recommendation
Attachment 9: City Proposed Volunteer Program Benefits
Attachment 10: Executed Agreement Touchstone 2023
Attachment 11: City of Fairfield Golf Course Volunteer Program