I do not own at BLT and am not clear on TOWL's status but I believe it is likely a "Commercial Unit" in the BLT DVC condominium. Commercial Units are more or less their own animal within a DVC resort. The owner of the unit can rent it out for commercial purposes (store, restaurant, TOWL, other). That owner, whom I suspect is currently DVD, not the association, is responsible, along with whomever it rents to, for all maintenance and repair of the commercial units and costs associated wither operation such as utility costs. The member dues do not go towards maintenance of commercial units themselves but do pay for maintenance of limited common elements that service the unit, such as walkways leading into it.The Commercial Units contribute to dues but a very small sum -- a Commercial Unit is deemed to own only .00000001% of the common elements and contributes to the dues for all common expenses of the resort on that share basis.
The owner of that commercial unit could at any time decide to make using TOWL a paying activity for members (and others) rather than a free one for members.