They were then confronted by the sight of two men engaged in sexual activity beside a fence.
At the time, the council's parks and recreation manager Garry Page said he was aware of the situation but not the extent to which it was happening.
"It's a hard one to control. Cleaning that stuff up is not a pleasant task for anyone, but it has been going on for some time."
Mr Page said a police sting of people using the old Kuirau Park toilets for sex about 10 years ago may have moved the problem from the toilets to the bushes.
The Rotorua District Council has done a lot of work in the park during the past few years to open the park up by cutting down trees and trimming back bushes, making it safer for people to walk through.