RCID did not pay taxes on the park admission, nor did the employees, which is why they are being called out in the report. Someone has to pay the bill.
Former district administrator John Classe was aware these benefits should be taxed, but decided to consider it "employee training" to dodge the taxes. It's ironic, because if we were to accept his argument that it is "employee training" then there's an FLSA violation there for unpaid wages, as training would be compensable time (unless for some reason the various CBAs exempt it, which is highly unlikely).
You know any of this for a fact? You worked in the HR office?
The income value of the passes, IF taxable, would be added to the gross income on the employee's W-2 under wages, tips and other compensation.