Attachment B - Transportation Maintenance Fee Study

Special Meeting, October 9, 2025 · item 3A: Introduction, first reading, and consideration of a motion to order published by title only Ordinance 8719 adding a new Section 8-2-26, “Tra… · 33 pages

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Transportation Maintenance Fee Report

Prepared for:

Boulder, Colorado

October 1, 2025

4701 Sangamore Road Suite S240 Bethesda, MD 20816 301.320.6900 www.TischlerBise.com

Transportation Maintenance Fee Report Boulder, Colorado

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Transportation Maintenance Fee Report Boulder, Colorado

TABLE OF CONTENTS EXECUTIVE SUMMARY ................................................................................................................................. 2 A FUNDING GAP EXISTS BETWEEN AVAILABLE REVENUES AND TRANSPORTATION NEEDS ................ 2 TRANSPORTATION MAINTENANCE FEE (TMF) IS A VIABLE FUNDING SOURCE .................................. 3 LAND USE ASSUMPTIONS ............................................................................................................................ 5 SUMMARY OF GROWTH INDICATORS ...................................................................................................... 5 RESIDENTIAL DEVELOPMENT ................................................................................................................. 6 Occupancy by Housing Type ..................................................................................................................................................... 6 Occupancy by Bedroom Range ................................................................................................................................................ 7 Occupancy by Housing Unit Size ............................................................................................................................................. 8 Residential Estimates .................................................................................................................................................................. 9 Residential Projections ............................................................................................................................................................... 9 NONRESIDENTIAL DEVELOPMENT ........................................................................................................ 10 Nonresidential Demand Factors ...........................................................................................................................................10 Nonresidential Estimates .........................................................................................................................................................11 Nonresidential Projections......................................................................................................................................................12 DEVELOPMENT PROJECTIONS ............................................................................................................... 13

TRANSPORTATION MAINTENANCE FEE CALCULATION ............................................................................ 14 Person Trip Methodology ........................................................................................................................................................14 Trip Generation Rates................................................................................................................................................................15 Mode Share and Vehicle Occupancy ....................................................................................................................................22 Calculation of Person Trips .....................................................................................................................................................23 Projected Demand for Services and Costs ........................................................................................................................25 Transportation Maintenance Fee Calculation.................................................................................................................26 Transportation Maintenance Fee Revenue ......................................................................................................................28

ADDITIONAL CONSIDERATIONS................................................................................................................. 29 FISCAL.................................................................................................................................................... 29 ADMINISTRATION.................................................................................................................................. 29 APPENDIX A: LAND USE DEFINITIONS...................................................................................................... 30 RESIDENTIAL DEVELOPMENT ............................................................................................................... 30 NONRESIDENTIAL DEVELOPMENT ........................................................................................................ 31

Transportation Maintenance Fee Report Boulder, Colorado

EXECUTIVE SUMMARY The City of Boulder has contracted with TischlerBise, Inc. to develop a methodology for a transportation maintenance fee (TMF). The Colorado Supreme Court ruled TMF’s as a legal financing mechanism in the 1989 case of Bloom v. City of Fort Collins. The Court held that such a fee “is reasonably related to the expenses incurred by the City in carrying out its legitimate goal of maintaining an effective network of City streets”. In ruling in the City’s favor, the Court noted the following characteristics of a fee versus a tax: •

Unlike a tax, a special fee is not designed to raise revenues to defray the general expenses of government, but rather is a charge imposed upon persons or property for the purpose of defraying the cost of a particular government service.

•

The amount of special fee must be reasonably related to overall costs of particular governmental services being supported.

A special fee is reasonably designed to defray the cost of the particular service rendered by the municipality. The methodology utilized in this report adheres to these principles. This document includes the following: •

Current estimates of residential and nonresidential development in the City.

•

Projections of future residential development and nonresidential development in the City.

•

Adjusted vehicle trip generation rates.

•

Demand generated by existing development in the City under different scenarios.

•

Projection of demand by future development in the City under different scenarios.

•

Identification of costs.

•

TMF calculations and amounts under different scenarios.

•

Projection of TMF revenue under different scenarios.

•

Discussion of fiscal, policy, and administrative considerations.

Calculations throughout this report are based on an analysis conducted using Excel software. Most results are discussed in the report using two, three, and four decimal places, which represent rounded figures. However, the analysis itself uses figures carried to their ultimate decimal places; therefore, the sums and products generated in the analysis may not equal the sum or product if the reader replicates the calculation with the factors shown in the report (due to the rounding of figures shown, not in the analysis).

A FUNDING GAP EXISTS BETWEEN AVAILABLE REVENUES AND TRANSPORTATION NEEDS The City’s ability to operate and maintain its existing transportation system has declined. As noted in the staff report for City Council’s Study Session on June 18th, 2019, regarding the 2019 Transportation Master Plan Update (TMP) update: including Vision Zero, Complete Streets and Funding: 2

Transportation Maintenance Fee Report Boulder, Colorado

“The Transportation Division is highly dependent on sales tax, which represents 80 percent of nonfederal funds, or $26 million of the $32.8 million budget excluding federal funds ($11.8 million) in 2018. Transportation’s dedicated sales tax ($0.75) is not keeping up with inflation, resulting in declining purchasing power. Even with approximately 88% of our expenditures going to essential services versus enhancements, we are still deferring maintenance, and we are unable to complete the list of projects in our Capital Improvement Program (CIP) For example, while sales taxes generally have increased by 1 or 2 percent annually, concrete and asphalt are increasing at 5 to 7 percent annually, and a capital improvement project that cost $10 million in 2012 now costs approximately $14.5 million.” The City has been able to fund some maintenance utilizing one-time funding opportunities such as intergovernmental revenues from the Federal and State governments and proceeds from debt issues. However, these revenues are one-time in nature and have been for capital improvements and catch-up activities. Additionally, the previously mentioned report to council notes that competition for state and federal funding is increasing, making it an even less reliable source for funding. Operations and maintenance (O&M) is the basic and most essential function of the City’s Transportation Division and is funded entirely by local revenue sources, primarily sales tax. Some types of transportation infrastructure maintenance projects that the city identified in need of funding are: •

Roadway pavement resurfacing

•

Roadway reconstruction

•

Sidewalk and Multi-Use Path maintenance

•

Median maintenance

•

Snow and ice response

•

Signage and pavement marking maintenance

•

Signals and traffic operations maintenance and technological modernization

•

Planning and design efforts for maintaining Boulder’s transportation system

A stable, on-going source of revenue is needed to ensure that the City does not fall further behind on these key needs.

TRANSPORTATION MAINTENANCE FEE (TMF) IS A VIABLE FUNDING SOURCE From 2018 to 2019 as part of the process to update Boulder’s Transportation Master Plan City staff created the Funding Working Group (FWG) which is made up of various community stake holders. Stakeholders who were a part of this group included large employers in the city, representatives of various institutions such as CU Boulder, community organizations, and community members. The group considered factors such as the appropriateness of funding sources, how each would impact behavior, who would pay, and revenue raising potential. Input from FWG members and stakeholders suggest the most viable revenue sources include TMF and county-wide/ regional transportation taxes. 3

Transportation Maintenance Fee Report Boulder, Colorado

TMF was identified as a Tier 1 funding mechanism which “represents the highest level of consensus by the FWG members and represent mechanisms that can be implemented in the near term.”

Transportation Maintenance Fee Report Boulder, Colorado

LAND USE ASSUMPTIONS The estimates and projections of residential and nonresidential development in this technical memo are for Boulder, Colorado. The current demographic estimates and future development projections will be used in the calculation of road maintenance fees.

SUMMARY OF GROWTH INDICATORS Key land use assumptions include projections of population, housing units, employment, and nonresidential floor area. TischlerBise projects future development based on data provided by Boulder city staff. Development projections are summarized at the end of this document in Figure L9. These projections will be used to estimate maintenance fee revenue. During the next 10 years in Boulder, residential development projections indicate a population increase of 6,870 persons in 3,387 housing units. Nonresidential development projections indicate an employment increase of 7,871 jobs in approximately 3 million square feet of floor area. Figure L1: Boulder Annual Projections Summary Boulder, Colorado Population Housing Units Single Family Multi-Family Total Employment Industrial General Commercial Office & Other Services Institutional Total Nonres. Sq. Ft. (x1,000) Industrial General Commercial Office & Other Services Institutional Total

2025 2026 Base Year 1 106,951 106,957

2027 2 107,793

2028 3 108,647

2029 4 109,489

2030 5 110,253

10-Year 2035 Increase 10 113,821 6,870

25,917 26,808 52,724

25,918 26,809 52,727

26,121 27,019 53,140

26,328 27,233 53,560

26,532 27,444 53,976

26,717 27,635 54,352

27,581 28,530 56,111

1,665 1,722 3,387

13,847 20,056 48,021 33,179 115,103

13,991 20,265 48,520 33,524 116,299

14,115 20,445 48,951 33,821 117,332

14,206 20,577 49,268 34,040 118,091

14,291 20,699 49,561 34,243 118,793

14,373 20,819 49,846 34,440 119,479

14,794 21,428 51,305 35,448 122,974

947 1,372 3,284 2,269 7,871

8,820 9,447 14,742 10,949 43,958

8,912 9,545 14,896 11,063 44,415

8,991 9,629 15,028 11,161 44,810

9,049 9,692 15,125 11,233 45,100

9,103 9,749 15,215 11,300 45,368

9,156 9,806 15,303 11,365 45,629

9,424 10,093 15,751 11,698 46,964

603 646 1,008 749 3,006

Transportation Maintenance Fee Report Boulder, Colorado

RESIDENTIAL DEVELOPMENT This section details current estimates and future projections of residential development including population and housing units. Occupancy by Housing Type According to the U.S. Census Bureau, a household is a housing unit occupied by year-round residents. Occupancy calculations require data on population and the types of units by structure. The 2010 census did not obtain detailed information using a “long-form” questionnaire. Instead, the U.S. Census Bureau switched to a continuous monthly mailing of surveys, known as the American Community Survey (ACS), which has limitations due to sample-size constraints. For example, data on detached housing units are combined with attached single units (commonly known as townhouses, which share a common sidewall, but are constructed on an individual parcel of land). For occupancy estimates in Boulder, single-family units include detached units, attached units, and mobile home units. Multi-family units include duplexes, structures with two or more units on an individual parcel of land, recreational vehicles, and all other units. Figure L2 below shows the occupancy estimates for Boulder based on 2019-2023 American Community Survey 5-Year Estimates. Single-family units averaged 2.42 persons per housing unit and multi-family units averaged 1.65 persons per housing unit. The estimates shown below are used for household size and housing unit mix factors and may not match population and housing unit estimates shown throughout this report. Figure L2: Boulder Occupancy by Housing Type Housing Type 1

Single-Family Multi-Family2 Total

Persons 55,527 39,161 94,688

Households 21,980 16,754 38,734

Persons per Persons per Housing Units Household Housing Unit 2.53 2.34 2.44

22,970 23,795 46,765

Source: U.S. Census Bureau, 2019-2023 American Community Survey 5-Year Estimates 1. Includes detached, attached (townhouse), and mobile home units. 2. Includes dwellings in structures with two or more units, RVs, and all other units.

2.42 1.65 2.02

Housing Mix

Vacancy Rate

49.1% 50.9% 100.0%

4.31% 29.59% 17.17%

Transportation Maintenance Fee Report Boulder, Colorado

Occupancy by Bedroom Range Transportation maintenance fees should be proportionate to the demand for infrastructure. Averages per housing unit have a strong, positive correlation to the number of bedrooms, so one option is a fee schedule where larger units pay proportionately higher transportation maintenance fees. Benefits of the proposed methodology include 1) a proportionate assessment of infrastructure demand using local demographic data and 2) a progressive fee structure (i.e., smaller units pay less, and larger units pay more). Currently Boulder does not have the adequate information required to charge the fee based on residential unit size, but in the future if this data does become available this option will be considered. TischlerBise creates custom tabulations of demographic data by bedroom range using individual survey responses provided by the U.S. Census Bureau in files known as Public Use Microdata Samples (PUMS). PUMS files are only available for areas of at least 100,000 persons, and Boulder is in Public Use Microdata Areas (PUMA) 401, 501, and 502. Shown below in Figure L3, cells with yellow shading indicate the unweighted PUMS data used to calculate the unadjusted estimate of 2.18 persons per housing unit for PUMAs 401, 501, and 502. Unadjusted persons per housing unit estimates are adjusted to match the control total of 2.02 persons per housing unit for Boulder shown in Figure L2. Adjusted persons per housing unit estimates range from 1.07 persons per housing unit for units with zero to one bedroom up to 2.87 persons per housing unit for units with five or more bedrooms. Figure L3: Occupancy by Bedroom Range Bedroom Range 0-1 2 3 4 5+ Total

Persons1 1,102 2,929 6,124 5,240 2,920 18,315

Housing Units1 954 1,761 2,743 1,984 941 8,383

Housing Mix 11% 21% 33% 24% 11% 100%

Unadjusted PPHU 1.16 1.66 2.23 2.64 3.10 2.18

Adjusted PPHU2 1.07 1.54 2.06 2.44 2.87 2.02

1. U.S. Census Bureau, 2019-2023 American Community Survey (ACS) 5-Year Estimates, Public Use Microdata Sample (PUMS) for Colorado PUMAs 401, 501, and 502. 2. Represents unadjsted PUMS values scaled to control totals for Boulder using 20192023 American Community Survey (ACS) 5-Year Estimates.

Transportation Maintenance Fee Report Boulder, Colorado

Occupancy by Housing Unit Size To estimate square feet of living area by bedroom range, TischlerBise uses 2023 U.S. Census Bureau data for housing units constructed in the west region. Based on 2023 estimates, average square feet of living area ranges from 996 square feet for housing units with zero to one bedroom up to 4,235 square feet for housing units with five or more bedrooms. Average square feet of living area and persons per housing unit by bedroom range are plotted in Figure L4 with a logarithmic trend line derived from U.S. Census Bureau estimates discussed in the previous paragraph and adjusted persons per housing unit estimates shown in Figure L3. Using the trend line formula shown in Figure L4, TischlerBise calculates the number of persons per housing unit by square feet of living area. TischlerBise recommends a minimum size range of 799 square feet or less and a maximum size range of 3,600 square feet or more. Figure L4: Occupancy by Housing Unit Size Average persons per housing unit derived from 2019-2023 ACS PUMS data for the area that includes Boulder. Unit size for 0-1 bedroom from the 2023 U.S. Census Bureau average for all multi-family units constructed in the Census West region. Unit size for all other bedrooms from the 2023 U.S. Census Bureau average for single-family units constructed in the Census West region.

Actual Averages per Housing Unit Bedrooms Square Feet Persons 0-1 996 1.07 2 1,532 1.54 3 2,070 2.06 4 2,986 2.44 5+ 4,235 2.87

Fitted-Curve Values Sq Ft Range Persons 799 or less 0.70 800 to 999 0.86 1,000 to 1,199 1.19 1,200 to 1,399 1.40 1,400 to 1,599 1.58 1,600 to 1,799 1.74 1,800 to 1,999 1.88 2,000 to 2,199 2.00 2,200 to 2,399 2.12 2,400 to 2,599 2.22 2,600 to 2,799 2.32 2,800 to 2,999 2.41 3,000 to 3,199 2.49 3,200 to 3,399 2.57 3,400 to 3,599 2.65 3,600 or more 2.72

Persons per Housing Unit Boulder, CO

3.50

Persons per Housing Unit

3.00 2.50 2.00 1.50

y = 1.2603ln(x) - 7.6391 R² = 0.9949

1.00 0.50 0.00

500

1,000

1,500

2,000

2,500

Square Feet of Living Area

3,000

3,500

4,000

4,500

Transportation Maintenance Fee Report Boulder, Colorado

Residential Estimates Base year (2025) estimates of resident population was provided by City staff. This was then converted into a housing unit estimate using the persons per housing unit factors shown in Figure L2. Base year population is estimated to be 106,951 persons and base year housing units are estimated to be 52,724 units. Residential Projections Population and housing unit projections are used to illustrate the possible future pace of service demands, revenues, and expenditures. To the extent these factors change, the projected need for infrastructure will also change. If development occurs at a more rapid rate than projected, the demand for infrastructure will increase at a corresponding rate. If development occurs at a slower rate than projected, the demand for infrastructure will also decrease. The analysis uses population projections provided by City staff. Countywide resident population is projected to increase by 6,870 over the next 10 years. Housing units are projected by using the persons per housing unit factors shown in Figure L2. Housing growth is projected at 3,387 units. Figure L5: Annual Residential Projections Boulder, Colorado Population Housing Units Single Family Multi-Family Total

2025 Base Year 106,951

2026 1 106,957

2027 2 107,793

2028 3 108,647

2029 4 109,489

2030 5 110,253

2035 10 113,821

10-Year Increase 6,870

25,917 26,808 52,724

25,918 26,809 52,727

26,121 27,019 53,140

26,328 27,233 53,560

26,532 27,444 53,976

26,717 27,635 54,352

27,581 28,530 56,111

1,665 1,722 3,387

Transportation Maintenance Fee Report Boulder, Colorado

NONRESIDENTIAL DEVELOPMENT This section details current estimates and future projections of nonresidential development including jobs and nonresidential floor area. Nonresidential Demand Factors TischlerBise uses the term jobs to refer to employment by place of work. In Figure L6, gray shading indicates the nonresidential development prototypes used to derive employment densities. For nonresidential development, TischlerBise uses data published in Trip Generation, Institute of Transportation Engineers, 11th Edition (2021). The prototype for industrial development is Light Industrial (ITE 110) with 637 square feet of floor area per employee. For office development, the proxy is General Office (ITE 710) with 307 square feet of floor area per employee. Institutional development uses Government Office (ITE 730) with 330 square feet of floor area per employee. The prototype for general commercial development is Shopping Center (ITE 820) with 471 square feet of floor area per employee. Figure L6: Nonresidential Demand Units ITE Code

110 130 140 150 254 254 310 565 610 620 710 720 730 770 820

Land Use Group

Light Industrial Industrial Park Manufacturing Warehousing Assisted Living Assisted Living Hotel Day Care Hospital Nursing Home General Office (avg size) Medical-Dental Office Government Office Business Park Shopping Center (avg size)

Demand Unit

1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft bed 1,000 Sq Ft room student 1,000 Sq Ft bed 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft

Avg Wkdy Trip Ends Avg Wkdy Trip Ends Employees Per Square Feet Per Demand Unit1 Per Employee1 Demand Unit Per Employee

4.87 3.37 4.75 1.71 2.60 4.19 7.99 4.09 10.77 3.06 10.84 36.00 22.59 12.44 37.01

1. Trip Generation, Institute of Transportation Engineers, 11th Edition (2021).

3.10 2.91 2.51 5.05 4.24 4.24 14.34 21.38 3.77 3.31 3.33 8.71 7.45 4.04 17.42

1.57 1.16 1.89 0.34 0.61 0.99 0.56 0.19 2.86 0.92 3.26 4.13 3.03 3.08 2.12

637 864 528 2,953 na 1,012 na na 350 na 307 242 330 325 471

Transportation Maintenance Fee Report Boulder, Colorado

Nonresidential Estimates ESRI Business Analyst 2024 employment estimates for Boulder include 110,791 jobs. This employment estimate includes 13,328 industrial jobs, 19,305 commercial jobs, 46,222 jobs related to office and other services, and 31,936 institutional jobs. Applying the employment density factors shown in Figure L6 to employment estimates shown in the upper portion of Figure L7 provides a nonresidential floor area estimate of approximately 42 million square feet. Base year (2025) estimate of total jobs was provided by City staff. To calculate estimated floor area the 2024 percentage of total jobs estimate for each prototype category was applied to the 2025 total jobs, and then the employment density factors shown in Figure L6 were used to calculate floor area. The 2025 base year estimate is 115,103 total jobs and approximately 44 million square feet of nonresidential floor area. Figure L7: Boulder Nonresidential Estimates Development Type Industrial4 General Commercial5 Office & Other Services6 Institutional7 Total

2024 1

Jobs 13,328 19,305 46,222 31,936 110,791

Percent of Total Jobs 12% 17% 42% 29% 100%

Square Feet 2

per Job 637 471 307 330

2024 Estimated Floor Area3 8,489,936 9,092,655 14,190,154 10,538,880 42,311,625

1. Esri Business Analyst Online, Business Summary, 2024. 2. Trip Generation, Institute of Transportation Engineers, 11th Edition (2021). 3. TischlerBise calculation (2024 jobs X square feet per job). 4. Major sectors are Manufacturing, Construction; and Wholesale Trade. 5. Major sectors are Retail Trade; Accommodation & Food Services. 6. Major sectors are Professional, Scientific and Tech Services; Healthcare and Social Assistance. 7. Major sectors are Educational Services; Public Administration.

Development Type Industrial3 General Commercial4 Office & Other Services5 Institutional6 Total

2025 Jobs1 13,847 20,056 48,021 33,179 115,103

Percent of Total Jobs 12% 18% 43% 30% 104%

2025 Estimated Floor Area2 8,820,348 9,446,523 14,742,407 10,949,033 43,958,311

1. Boulder, CO 2. TischlerBise calculation (2025 jobs X square feet per job). 3. TischlerBise calculation (2025 total jobs X 2024 % of total Jobs). 4. TischlerBise calculation (2025 total jobs X 2024 % of total Jobs). 5. TischlerBise calculation (2025 total jobs X 2024 % of total Jobs). 6. TischlerBise calculation (2025 total jobs X 2024 % of total Jobs).

Transportation Maintenance Fee Report Boulder, Colorado

Nonresidential Projections Employment and floor area projections are used to illustrate the possible future pace of service demands, revenues, and expenditures. To the extent these factors change, the projected need for infrastructure will also change. If development occurs at a more rapid rate than projected, the demand for infrastructure will increase at a corresponding rate. If development occurs at a slower rate than projected, the demand for infrastructure will also decrease. TischlerBise projects future nonresidential development based on jobs projections provided by City staff. The percentage split between each prototype category is assumed to stay the same. Employment density factors shown in Figure L7 are applied the employment projections to get nonresidential floor area projections. Figure L8: Annual Nonresidential Projections Boulder, Colorado Employment Industrial General Commercial Office & Other Services Institutional Total Nonres. Floor Area Industrial General Commercial Office & Other Services Institutional Total

2025 Base Year 13,847 20,056 48,021 33,179 115,103

2026 1

2027 2

2028 3

2029 4

2030 5

2035 10

13,991 20,265 48,520 33,524 116,299

14,115 20,445 48,951 33,821 117,332

14,206 20,577 49,268 34,040 118,091

14,291 20,699 49,561 34,243 118,793

14,373 20,819 49,846 34,440 119,479

14,794 21,428 51,305 35,448 122,974

10-Year Increase 947 1,372 3,284 2,269 7,871

8,820,348 8,912,002 8,991,177 9,049,373 9,103,149 9,155,667 9,423,542 603,195 9,446,523 9,544,684 9,629,480 9,691,808 9,749,401 9,805,648 10,092,540 646,017 14,742,407 14,895,598 15,027,932 15,125,203 15,215,083 15,302,862 15,750,592 1,008,185 10,949,033 11,062,806 11,161,089 11,233,331 11,300,084 11,365,277 11,697,801 748,768 43,958,311 44,415,090 44,809,679 45,099,715 45,367,716 45,629,454 46,964,475 3,006,164

Transportation Maintenance Fee Report Boulder, Colorado

DEVELOPMENT PROJECTIONS Provided below is a summary of development projections used in this technical memo. Development projections are used to illustrate a possible future pace of demand for service units and cash flows resulting from revenues and expenditures associated with those demands. Figure L9: Boulder Annual Projections Summary Boulder, Colorado

2025 2026 Base Year 1 106,951 106,957

2027 2 107,793

2028 3 108,647

2029 4 109,489

2030 5 110,253

2031 6 111,001

2032 7 111,732

2033 8 112,447

2034 9 113,144

10-Year 2035 Increase 10 113,821 6,870

25,918 26,809 52,727

26,121 27,019 53,140

26,328 27,233 53,560

26,532 27,444 53,976

26,717 27,635 54,352

26,898 27,823 54,721

27,075 28,006 55,081

27,248 28,185 55,434

27,417 28,360 55,777

27,581 28,530 56,111

1,665 1,722 3,387

13,991 20,265 48,520 33,524 116,299

14,115 20,445 48,951 33,821 117,332

14,206 20,577 49,268 34,040 118,091

14,291 20,699 49,561 34,243 118,793

14,373 20,819 49,846 34,440 119,479

14,461 20,946 50,151 34,651 120,208

14,540 21,061 50,426 34,841 120,868

14,617 21,172 50,692 35,024 121,504

14,712 21,310 51,023 35,253 122,299

14,794 21,428 51,305 35,448 122,974

947 1,372 3,284 2,269 7,871

8,912 9,545 14,896 11,063 44,415

8,991 9,629 15,028 11,161 44,810

9,049 9,692 15,125 11,233 45,100

9,103 9,749 15,215 11,300 45,368

9,156 9,806 15,303 11,365 45,629

9,212 9,866 15,396 11,435 45,908

9,262 9,920 15,481 11,497 46,160

9,311 9,972 15,562 11,558 46,403

9,372 10,037 15,664 11,634 46,707

9,424 10,093 15,751 11,698 46,964

603 646 1,008 749 3,006

Population Housing Units Single Family 25,917 Multi-Family 26,808 Total 52,724 Employment Industrial 13,847 Retail 20,056 Office & Other Services 48,021 Institutional 33,179 Total 115,103 Nonres. Sq. Ft. (x1,000) Industrial 8,820 Retail 9,447 Office & Other Services 14,742 Institutional 10,949 Total 43,958

Transportation Maintenance Fee Report Boulder, Colorado

TRANSPORTATION MAINTENANCE FEE CALCULATION Boulder is a unique community with residents and workers using varying modes of travel. In suburban, greenfield communities that concentrate on roadway expansion to accommodate additional vehicles, a development’s impact is usually best estimated by calculating the additional vehicle trips or vehicle miles traveled (VMT) generated by the development. However, based on the urban environment and residents’ travel behaviors, a multimodal approach is necessary for the City of Boulder. This is also consistent with Boulder’s desire to serve all modes of travel. As such, the multimodal approach calculates person trips generated by the varying development types in the study. Person Trip Methodology According to the Institute of Transportation Engineers (ITE), there are several elements necessary to calculate person trips. The following equation is provided in the ITE’s Trip Generation Handbook (2021): Person trips = [(vehicle occupancy) x (vehicle trips)] + transit trips + walk trips + bike trips To create a more streamlined approach, this study uses “walk / bike / scooter” as the sum of walk and bike trips. The Trip Generation Handbook outlines the general approach to calculating person trips: 1. Estimate vehicle trip ends generated by development type. This study uses the vehicle trip rates found in Figure T5. 2. Determine mode share and vehicle occupancy. Trip survey data from Boulder’s Modal Shift Report Resident Travel Diary and Boulder Valley Employment Survey are used to calculate needed factors. 3. Convert vehicle trips to person trips. This conversion calculates the total person trips by combining the vehicle trip mode share and vehicle occupancy.

Transportation Maintenance Fee Report Boulder, Colorado

Trip Generation Rates Average weekday vehicle trips are used as a measure of demand by land use. Vehicle trips are estimated using average weekday vehicle trip ends from the reference book, Trip Generation, 11th Edition, published by the Institute of Transportation Engineers (ITE) in 2021. A vehicle trip end represents a vehicle entering or exiting a development (as if a traffic counter were placed across a driveway). To calculate the transportation maintenance fees, trip generation rates are adjusted to avoid double counting each trip at both the origin and destination points. The basic trip adjustment factor is 50 percent. As discussed further below, the impact fee methodology includes additional adjustments to make the fees proportionate to the infrastructure demand for particular types of development. Residential Trip Generation Rates As an alternative to simply using national average trip generation rates for residential development, published by the Institute of Transportation Engineers (ITE), TischlerBise also calculates custom trip rates using local demographic data. Key inputs needed for the analysis, including average number of persons and vehicles available per housing unit, are available from American Community Survey (ACS) data.

Transportation Maintenance Fee Report Boulder, Colorado

Vehicle Trip Ends by Bedroom Range Another option is a fee schedule where larger units pay higher impact fees than smaller units. Benefits of the proposed methodology include: 1) proportionate assessment of infrastructure demand using local demographic data, and 2) a progressive fee structure (i.e., smaller units pay less, and larger units pay more). Currently Boulder does not have the adequate information required to charge the fee based on residential unit size, but in the future if this data does become available this option will be considered. TischlerBise creates custom tabulations of demographic data by bedroom range from individual survey responses provided by the U.S. Census Bureau in files known as Public Use Microdata Samples (PUMS). PUMS files are only available for areas of at least 100,000 persons, and Boulder is in Public Use Microdata Areas (PUMA) 401, 501, and 502. Shown in Figure T1, cells with yellow shading indicate the unweighted survey results, which yield the unadjusted number of persons and vehicles available per housing unit. Unadjusted persons per housing unit and vehicles per housing unit are adjusted to control totals in Boulder – 2.02 persons per housing unit and 1.53 vehicles per unit. The analysis multiplies adjusted persons per housing unit estimates by the ITE weighted average trip rate per person to estimate trip ends per housing unit based on persons. The analysis multiplies adjusted vehicles per housing unit estimates by the ITE weighted average trip rate per vehicle to estimate trip ends per housing unit based on vehicles. Finally, the analysis calculates average trip ends per housing unit using the average number of trip ends per person and per vehicle. Housing units with 0-1 bedrooms generate 3.27 vehicle trips ends per day and housing units with 5+ bedrooms generate 8.70 vehicle trip ends per day.

Transportation Maintenance Fee Report Boulder, Colorado

Figure T1: Vehicle Trip Ends by Bedroom Range Housing Vehicles Bedroom Unadjusted Adjusted Unadjusted Adjusted Persons1 1 1 Housing Mix Range VPHU PPHU VPHU2 Units Available PPHU2 0-1 1,102 954 919 11% 1.16 1.07 0.96 0.76 2 2,929 1,761 2,617 21% 1.66 1.54 1.49 1.17 3 6,124 2,743 5,676 33% 2.23 2.06 2.07 1.64 4 5,240 1,984 4,643 24% 2.64 2.44 2.34 1.85 5+ 2,920 941 2,388 11% 3.10 2.87 2.54 2.01 Total 18,315 8,383 16,243 100% 2.18 2.02 1.94 1.53 National Averages According to ITE AWVTE AWVTE AWVTE Local ITE Code per Person per Vehicle per HU Housing Mix 210 SFD 2.65 6.36 9.43 49% 221 Apt 2.28 3.97 4.54 51% Weighted Avg 2.46 5.14 6.94 100% Recommended AWVTE per Housing Unit AWVTE per AWVTE per AWVTE per 1. U.S. Census Bureau, 2019-2023 American Community Survey 5-Year Bedroom HU Based HU Based Housing Estimates, Public Use Microdata Sample (PUMS) for Colorado PUMAs Range 4 3 401, 501, and 502. on Persons on Vehicles Unit5 2. Represents unadjsted PUMS values scaled to control totals for Boulder 0-1 2.63 3.91 3.27 using 2019-2023 ACS 5-Year Estimates. 2 3.79 6.01 4.90 3. Adjusted persons per housing unit multiplied by ITE weighted average 3 5.07 8.43 6.75 trip rate per person. 4 6.00 9.51 7.76 4. Adjusted vehicles available per housing unit multiplied by ITE 5+ 7.06 10.33 8.70 weighted average trip rate per vehicle. Average 4.97 7.86 6.42 5. Average trip rates based on persons and vehicles per housing unit. ITE Code

AWVTE per Person

AWVTE per Vehicle

AWVTE per HU

210 SFD 221 Apt

5.95 4.06

8.49 7.27

7.22 5.67

All Types

4.97

7.87

6.42

Transportation Maintenance Fee Report Boulder, Colorado

Vehicle Trip Ends by Housing Size To derive average weekday vehicle trip ends by dwelling size, Tischler Bise uses 2023 U.S. Census Bureau data for housing units constructed in the west region. Based on 2023 estimates, living areas range from 996 square feet for 0- to 1-bedroom housing units up to 4,235 square feet for 5+ bedroom housing units. Citywide average floor area and weekday vehicle trip ends, by bedroom range, are plotted in Figure T2 with a logarithmic trend line formula to derive trip ends by housing unit size. TischlerBise recommends a minimum size based on 799 square feet or less and a maximum size of 3,600 square feet or larger. A medium-size unit with 2,400 to 2,599 square feet has a fitted-curve value of 7.10 vehicle trip ends on an average weekday – this is less than the national average of 9.43 vehicle trip ends per single-family unit. With a “one-size-fits-all” approach, small units pay more than their proportionate share while large units pay less than their proportionate share. Figure T2: Vehicle Trip Ends by Housing Size Actual Averages per Housing Unit Average weekday vehicle trip ends Bedrooms Square Feet Trip Ends per housing unit derived from 0-1 996 3.27 2019-2023 ACS 5-Year PUMS data 2 1,532 4.90 for the area that includes Boulder. 3 2,070 6.75 Unit size for 0-1 bedroom from the 4 2,986 7.76 2023 U.S. Census Bureau average 5+ 4,235 8.70 for all multi-family units constructed in the Census West region. Unit size for all other bedrooms from the 2023 U.S. Census Bureau average for singlefamily units constructed in the Census West region.

Average Weekday Vehicle Trip Ends per Housing Unit Boulder, Colorado

Trip Ends per Housing Unit

10.00 9.00 8.00 7.00 6.00 5.00 4.00 3.00 2.00 1.00 0.00

y = 3.8462ln(x) - 23.129 R² = 0.9784

500

1,000

1,500

2,000

2,500

Square Feet of Living Area

Fitted-Curve Values Sq Ft Range Trip Ends 799 or less 2.45 800 to 999 2.94 1,000 to 1,199 3.93 1,200 to 1,399 4.58 1,400 to 1,599 5.13 1,600 to 1,799 5.61 1,800 to 1,999 6.04 2,000 to 2,199 6.43 2,200 to 2,399 6.78 2,400 to 2,599 7.10 2,600 to 2,799 7.40 2,800 to 2,999 7.68 3,000 to 3,199 7.94 3,200 to 3,399 8.18 3,400 to 3,599 8.40 3,600 or more 8.62

3,000

3,500

4,000

4,500

Transportation Maintenance Fee Report Boulder, Colorado

Nonresidential Trip Generation Rates For nonresidential development, TischlerBise uses trip generation rates published in Trip Generation, Institute of Transportation Engineers, 11th Edition (2021). The prototype for industrial development is Light Industrial (ITE 110) which generates 4.87 average weekday vehicle trip ends per 1,000 square feet of floor area. Institutional development uses Government Office (ITE 730) and generates 22.59 average weekday vehicle trip ends per 1,000 square feet of floor area. For office & other services development, the proxy is General Office (ITE 710), and it generates 10.84 average weekday vehicle trip ends per 1,000 square feet of floor area. The prototype for general commerical development is Shopping Center (ITE 820) which generates 37.01 average weekday vehicle trips per 1,000 square feet of floor area. Figure T3: Average Weekday Vehicle Trip Ends by Land Use ITE Code

110 130 140 150 254 254 310 320 520 522 525 540 550 565 610 620 710 720 730 750 760 770 820

Land Use Group

Light Industrial Industrial Park Manufacturing Warehousing Assisted Living Assisted Living Hotel Motel Elementary School Middle School High School Community College University/College Day Care Hospital Nursing Home General Office (avg size) Medical-Dental Office Government Office Office Park Research & Dev. Center Business Park Shopping Center (avg size)

Demand Unit

1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft bed 1,000 Sq Ft room room student student student student student student 1,000 Sq Ft bed 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft 1,000 Sq Ft

Avg Wkdy Trip Ends Avg Wkdy Trip Ends Employees Per Square Feet Per Demand Unit1 Per Employee1 Demand Unit Per Employee

4.87 3.37 4.75 1.71 2.60 4.19 7.99 3.35 2.27 2.10 1.94 1.15 1.56 4.09 10.77 3.06 10.84 36.00 22.59 11.07 11.08 12.44 37.01

3.10 2.91 2.51 5.05 4.24 4.24 14.34 25.17 22.50 23.41 21.95 14.61 8.89 21.38 3.77 3.31 3.33 8.71 7.45 3.54 3.37 4.04 17.42

1.57 1.16 1.89 0.34 0.61 0.99 0.56 0.13 0.10 0.09 0.09 0.08 0.18 0.19 2.86 0.92 3.26 4.13 3.03 3.13 3.29 3.08 2.12

637 864 528 2,953 na 1,012 na na na na na na na na 350 na 307 242 330 320 304 325 471

1. Trip Generation, Institute of Transportation Engineers, 11th Edition (2021).

Transportation Maintenance Fee Report Boulder, Colorado

Trip Rate Adjustments Trip generation rates require an adjustment factor to avoid double counting each trip at both the origin and destination points. Therefore, the basic trip adjustment factor is 50 percent. As discussed further in this section, the impact fee methodology includes additional adjustments to make the fees proportionate to the infrastructure demand for particular types of development. Commuter Trip Adjustment Residential development has a larger trip adjustment factor of 59 percent to account for commuters leaving Boulder for work. According to the 2009 National Household Travel Survey (see Table 30) weekday work trips are typically 31 percent of production trips (i.e., all out-bound trips, which are 50 percent of all trip ends). As shown in Figure T4, the U.S. Census Bureau’s OnTheMap web application indicates 56 percent of resident workers traveled outside of Boulder for work in 2022. In combination, these factors (0.31 x 0.56 x 0.33 = 0.09) support the additional nine percent allocation of trips to residential development. Figure T4: Commuter Trip Adjustment Trip Adjustment Factor for Commuters Employed Residents Residents Living and Working in Boulder Residents Commuting Outside Boulder for Work Percent Commuting out of Boulder Additional Production Trips1 Standard Trip Rate Adjustment Residential Trip Adjustment Factor

38,073 16,914 21,159 56% 9% 50% 59%

Source: U.S. Census Bureau, OnTheMap Application (v 6.24.1) and LEHD Origin-Destination Employment Statistics, 2022. 1. According to the National Household Travel Survey (2009)*, published in December 2011 (see Table 30), home-based work trips are typically 30.99 percent of “production” trips, in other words, out-bound trips (which are 50 percent of all trip ends). Also, LED Boulder's workers travel outside the city for work. In combination, these factors (0.3099 x 0.56 x 0.33 = 0.09) account for 9 percent of additional production trips. The total adjustment factor for residential includes attraction trips (50 percent of trip ends) plus the journey-to-work commuting adjustment (9 percent of production trips) for a total of 59 percent. *http://nhts.ornl.gov/publications.shtml ; Summary of Travel Trends - Table "Daily Travel Statistics by Weekday vs. Weekend"

Adjustment for Pass-By Trips For general commercial and institutional development, the trip adjustment factor is less than 50 percent because this type of development attracts vehicles as they pass by on arterial and collector roads. For example, when someone stops at a convenience store on the way home from work, the convenience store is not the primary destination. For the average shopping center, ITE data indicate 34 percent of the vehicles that enter are passing by on their way to some other primary destination. The remaining 66 percent of attraction trips have the commercial site as their primary destination. Because attraction trips are half of all trips, the trip adjustment factor is 66 percent multiplied by 50 percent, or approximately 33 percent of the trip ends. 20

Transportation Maintenance Fee Report Boulder, Colorado

Average Weekday Vehicle Trips Shown below in Figure T5, multiplying average weekday vehicle trip ends and trip adjustment factors (discussed on the previous page) results in average weekday vehicle trips per development unit for residential and nonresidential land uses. Figure T5: Average Weekday Vehicle Trips by Land Use Development Type Single-Family Multi-Family

Unit Size 799 or less 800 to 999 1,000 to 1,199 1,200 to 1,399 1,400 to 1,599 1,600 to 1,799 1,800 to 1,999 2,000 to 2,199 2,200 to 2,399 2,400 to 2,599 2,600 to 2,799 2,800 to 2,999 3,000 to 3,199 3,200 to 3,399 3,400 to 3,599 3,600 or more

Development Type General Commercial Office Institutional Industrial Research and Dev. Center Warehouse University Elementary School Middle School High School

Residential Development Development Vehicle Trip Unit Ends per Unit Dwelling 7.22 Dwelling 5.67

Trip Rate Adjustment 59% 59%

Vehicle Trips per Unit 4.26 3.35

Residential Development Development Vehicle Trip Unit Ends per Unit Dwelling 2.45 Dwelling 2.94 Dwelling 3.93 Dwelling 4.58 Dwelling 5.13 Dwelling 5.61 Dwelling 6.04 Dwelling 6.43 Dwelling 6.78 Dwelling 7.10 Dwelling 7.40 Dwelling 7.68 Dwelling 7.94 Dwelling 8.18 Dwelling 8.40 Dwelling 8.62

Trip Rate Adjustment 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59% 59%

Vehicle Trips per Unit 1.45 1.73 2.32 2.70 3.03 3.31 3.56 3.79 4.00 4.19 4.37 4.53 4.68 4.83 4.96 5.09

Nonresidential Development Trip Rate Development Vehicle Trip Ends per Unit Adjustment Unit 1,000 Sq Ft 37.01 33% 1,000 Sq Ft 10.84 50% 1,000 Sq Ft 22.59 33% 1,000 Sq Ft 4.87 50% 1,000 Sq Ft 11.08 50% 1,000 Sq Ft 1.71 50% Student 1.56 33% Student 2.27 33% Student 2.10 33% Student 1.94 33%

Vehicle Trips per Unit 12.21 5.42 7.45 2.44 5.54 0.86 0.51 0.75 0.69 0.64

1. See Land Use Assumptions

Transportation Maintenance Fee Report Boulder, Colorado

Mode Share and Vehicle Occupancy Mode share and vehicle occupancy data used in this analysis is from Boulder’s Modal Shift Report Resident Travel Diary and Boulder Valley Employment Survey. These broke down a sample of local trips by purpose and mode. Based on the categories in the survey, a residential trip is defined as: 1. Go home 2. Social/recreation 3. Work or work commute The transportation mode split for residential purpose trips is listed in Figure T6. Of the 2,917 residential trips, 53.3 percent were by vehicle, 3.8 percent were by transit, and 42.9 percent were non-motorized. Figure T6: Residential Purpose Person Trips by Mode Mode Vehicle Transit Non-Motorized Total

Trips 1,555 110 1,252 2,917

% 53.3% 3.8% 42.9% 100.0%

Source: Modal Shift in the Boulder Valley 2023 Travel Diary Study; TischlerBise analysis.

This analysis also calculated mode share for nonresidential trips. Based on the categories in the survey a nonresidential trip is defined as: 1. Shopping 2. Personal business 3. Other work/business 4. Eat a meal 5. School 6. Other The transportation mode split for nonresidential purpose trips is listed in Figure T7. Of the 1,424 total trips, 63.6 percent are by vehicle, 3.4 percent transit, and 33.1 percent non-motorized. Figure T7: Nonresidential Purpose Person Trips by Mode Mode Vehicle Transit Non-Motorized Total

Trips 906 48 471 1,424

% 63.6% 3.4% 33.1% 100.0%

Source: Modal Shift in the Boulder Valley 2023 Travel Diary Study; TischlerBise analysis.

Transportation Maintenance Fee Report Boulder, Colorado

Additionally, according to data from Boulder’s Modal Shift Report Resident Travel Diary and Boulder Valley Employment Survey, the average vehicle occupancy for a trip in Boulder is 1.47 passengers per vehicle trip. Calculation of Person Trips The total person trip end rate for each land use can be calculated using the vehicle trip end rate, vehicle occupancy rate, and vehicle mode share. The following formula to calculate vehicle trip ends is provided in the ITE’s Trip Generation Handbook (2021): Vehicle trip ends = [(person trip ends) x (vehicle mode share)]/(vehicle occupancy) To calculate average weekday person trip ends for each land use, the analysis inputs vehicle trip ends, vehicle occupancy, and vehicle mode share factors found in earlier sections. For example, a 2,400 to 2,599 square foot housing unit generates 7.10 average weekday vehicle trip ends, has a vehicle occupancy rate is 1.47, and the vehicle mode share is 53.3 percent. Based on these factors, a 2,400 to 2,599 square foot housing unit generates 19.58 average weekday person trip ends ([7.10 vehicle trip ends X 1.47 occupancy rate] / 53.3 percent vehicle mode share). This is then multiplied by the trip adjustment factor to yield the person trips calculation. Figure T8 includes average weekday person trip ends for each land use.

Transportation Maintenance Fee Report Boulder, Colorado

Figure T8: Average Weekday Person Trip Ends by Land Use Development Unit Dwelling Dwelling

Residential per Development Unit Vehicle Vehicle Mode Person Trip Trip Rate Vehicle Trip Person Trips Ends per Ends per Unit Adjustment1 per Unit Occupancy1 Share1 7.22 1.47 53.3% 19.91 59% 11.75 5.67 1.47 53.3% 15.64 59% 9.23

Development Unit Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling Dwelling

Residential per Development Unit Trip Rate Vehicle Vehicle Mode Person Trip Vehicle Trip Person Trips Ends per Ends per Unit Adjustment1 per Unit Occupancy1 Share1 2.45 1.47 53.3% 6.76 59% 3.99 2.94 1.47 53.3% 8.11 59% 4.78 3.93 1.47 53.3% 10.84 59% 6.40 4.58 1.47 53.3% 12.63 59% 7.45 5.13 1.47 53.3% 14.15 59% 8.35 5.61 1.47 53.3% 15.47 59% 9.13 6.04 1.47 53.3% 16.66 59% 9.83 6.43 1.47 53.3% 17.73 59% 10.46 6.78 1.47 53.3% 18.70 59% 11.03 7.10 1.47 53.3% 19.58 59% 11.55 7.40 1.47 53.3% 20.41 59% 12.04 7.68 1.47 53.3% 21.18 59% 12.50 7.94 1.47 53.3% 21.90 59% 12.92 8.18 1.47 53.3% 22.56 59% 13.31 8.40 1.47 53.3% 23.17 59% 13.67 8.62 1.47 53.3% 23.77 59% 14.02

Development Development Type Unit General Commercial 1,000 Sq Ft Office 1,000 Sq Ft Institutional 1,000 Sq Ft Industrial 1,000 Sq Ft Research and Developme 1,000 Sq Ft Warehouse 1,000 Sq Ft University Student Elementary School Student Middle School Student High School Student

Nonresidential per Development Unit Vehicle Vehicle Mode Person Trip Trip Rate Vehicle Trip Person Trips Ends per Ends per Unit Adjustment1 per Unit Occupancy1 Share1 37.01 1.82 63.6% 105.96 33% 34.97 10.84 1.82 63.6% 31.03 50% 15.52 22.59 1.82 63.6% 64.67 33% 21.34 4.87 1.82 63.6% 13.94 50% 6.97 11.08 1.82 63.6% 31.72 50% 15.86 1.71 1.82 63.6% 4.90 50% 2.45 1.56 1.82 63.6% 4.47 33% 1.48 2.27 1.82 63.6% 6.50 33% 2.15 2.10 1.82 63.6% 6.01 33% 1.98 1.94 1.82 63.6% 5.55 33% 1.83

Development Type Single-Family Multi-Family

Unit Size 799 or less 800 to 999 1,000 to 1,199 1,200 to 1,399 1,400 to 1,599 1,600 to 1,799 1,800 to 1,999 2,000 to 2,199 2,200 to 2,399 2,400 to 2,599 2,400 to 2,599 2,600 to 2,799 2,800 to 2,999 3,000 to 3,199 3,400 to 3,599 3,600 or more

1. Modal Shift in the Boulder Valley 2023 Travel Diary Study; TischlerBise analysis.

Transportation Maintenance Fee Report Boulder, Colorado

Projected Demand for Services and Costs Shown below in Figure T9, multiplying average weekday person trip ends and trip adjustment factors (discussed in the previous section) by Boulder’s existing development units provides the average weekday person trips generated by existing development. As shown below, existing development generates 1,398,261 person trips on an average weekday. As shown in the Land Use Assumptions document, over the next 10 years projected development growth in Boulder is 3,387 total housing units and approximately 3 million square feet of nonresidential floor area. This results in an increase of 93,365 average weekday person trips. Figure T9: Projected Annual Average Weekday Person Trips Base 1 2 3 4 5 10 2025 2026 2027 2028 2029 2030 2035 Single Family Units 25,917 25,918 26,121 26,328 26,532 26,717 27,581 Multi-Family Units 26,808 26,809 27,019 27,233 27,444 27,635 28,530 Industrial KSF 8,820 8,912 8,991 9,049 9,103 9,156 9,424 General Commercial KSF 9,447 9,545 9,629 9,692 9,749 9,806 10,093 Office & Other Services KSF 14,742 14,896 15,028 15,125 15,215 15,303 15,751 Institutional KSF 10,949 11,063 11,161 11,233 11,300 11,365 11,698 Single-Family Trips 304,440 304,458 306,838 309,267 311,665 313,840 323,996 Mobile Home Trips 247,370 247,385 249,319 251,293 253,241 255,008 263,261 Residential Trips 551,810 551,843 556,158 560,560 564,906 568,848 587,257 Industrial Trips 61,478 62,117 62,669 63,074 63,449 63,815 65,682 General Commercial Trips 330,315 333,747 336,712 338,892 340,905 342,872 352,904 Office & Other Services Trips 228,728 231,105 233,158 234,668 236,062 237,424 244,370 Institutional Trips 233,664 236,092 238,190 239,732 241,156 242,548 249,644 Nonresidential Trips 854,185 863,061 870,729 876,365 881,573 886,659 912,600 Total Person Trips 1,405,995 1,414,905 1,426,887 1,436,925 1,446,479 1,455,507 1,499,857 Boulder, Colorado

10-Year Increase 1,665 1,722 603 646 1,008 749 19,556 15,890 35,446 4,204 22,589 15,642 15,980 58,415 93,861

Transportation Maintenance Fee Report Boulder, Colorado

Transportation Maintenance Fee Calculation Figure T10 includes the transportation projects cost factors for the transportation maintenance fees. These projects represent current underfunded or unfunded maintenance costs. The total cost for each project includes administrative costs that are reasonable estimates developed by City staff. The cost per service unit is $4.57 per person trip. Figure T10: Transportation Projects Cost Factors Transportation Projects Pavement and Street Safety Asset Management Bridge Asset Management Sidewalk Repair Multi-Use Path Capital Maintenance Roadway Markings Maintenance Bus Stop Maintenance Total

2025 AWPTE Total Cost Cost per Trip

Cost Factors

Underfunded or Unfunded Needs $4,229,000 $813,000 $434,000 $380,000 $296,000 $271,000 $6,423,000

1,405,995 $6,423,000 $4.57

Transportation Maintenance Fee Report Boulder, Colorado

Transportation maintenance fees assessed according to person trips generated per development unit and the cost factors shown at the top of Figure T11. For example, the single family fee of $54 is calculated using a cost per service unit of $4.57 per person trip multiplied by 11.75 person trips per housing unit. The entire fee schedule is shown below in Figure T11. Figure T11: Transportation Maintenance Fee Fee Component Transportation Projects Total

Cost per AWPTE $4.57 $4.57

Residential Fees per Development Unit Development Person Trips Development Type Unit per Unit Single-Family Dwelling 11.75 Multi-Family Dwelling 9.23

Transportation Maintenance Fee $54 $42

Residential Development Development Person Trips Unit per Unit Dwelling 3.99 Dwelling 4.78 Dwelling 6.40 Dwelling 7.45 Dwelling 8.35 Dwelling 9.13 Dwelling 9.83 Dwelling 10.46 Dwelling 11.03 Dwelling 11.55 Dwelling 12.04 Dwelling 12.50 Dwelling 12.92 Dwelling 13.31 Dwelling 13.67 Dwelling 14.02

Transportation Maintenance Fee $18 $22 $29 $34 $38 $42 $45 $48 $50 $53 $55 $57 $59 $61 $62 $64

Nonresidential Fees per Development Unit Development Transportation Person Trips Development Type Unit Maintenance Fee per Unit General Commercial 1,000 Sq Ft 34.97 $160 Office 1,000 Sq Ft 15.52 $71 Institutional 1,000 Sq Ft 21.34 $97 Industrial 1,000 Sq Ft 6.97 $32 Research & Dev. Center 1,000 Sq Ft 15.86 $72 Warehouse 1,000 Sq Ft 2.45 $11 University Student 1.48 $7 Elementary School Student 2.15 $10 Middle School Student 1.98 $9 High School Student 1.83 $8

Transportation Maintenance Fee Report Boulder, Colorado

Transportation Maintenance Fee Revenue Projected fee revenue shown in Figure T12 is based on the development projections in the Land Use Assumptions section and the proposed transportation maintenance fees shown in Figure T11. If development occurs at a more rapid rate than projected, the demand for additional maintenance projects will increase and maintenance fee revenue will increase at a corresponding rate. If development occurs at a slower rate than projected, the demand for maintenance projects will also decrease, along with maintenance fee revenue. Projected maintenance fee revenue equals $73,083,546 over the next 10 years. Based on the actual mix of future residential construction, the projected transportation maintenance fee revenue shown below may change. The revenue collected in the first year of implementation may be lower than this projection shows due to fee collection beginning mid-year. Additionally, if the City chooses to adjust the transportation maintenance fee according to the Colorado Construction Index or a similar construction cost index, or adjust the input costs the projected revenue will change as well. Figure T12: Projected Annual Transportation Maintenance Fee Revenue

Base Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7 Year 8 Year 9 Year 10

Year

2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035

Single-Family Multi-Family $54 $42 per unit per unit Hsg Unit Hsg Unit 25,917 26,808 25,918 26,809 26,121 27,019 26,328 27,233 26,532 27,444 26,717 27,635 26,898 27,823 27,075 28,006 27,248 28,185 27,417 28,360 27,581 28,530

Year Single-Family Multi-Family Base 2025 $1,390,770 $1,130,061 Year 1 2026 $1,390,854 $1,130,129 Year 2 2027 $1,401,728 $1,138,964 Year 3 2028 $1,412,823 $1,147,980 Year 4 2029 $1,423,777 $1,156,881 Year 5 2030 $1,433,712 $1,164,953 Year 6 2031 $1,443,439 $1,172,857 Year 7 2032 $1,452,945 $1,180,580 Year 8 2033 $1,462,237 $1,188,131 Year 9 2034 $1,471,307 $1,195,500 Year 10 2035 $1,480,108 $1,202,652 10-Year Total Revenue $15,763,700 $12,808,688

Gen. Comm. Office Institutional Industrial $160 $71 $97 $32 per 1,000 sq ft per 1,000 sq ft per 1,000 sq ft per 1,000 sq ft KSF KSF KSF KSF Yearly Revenue 9,447 14,742 10,949 8,820 $6,423,000 9,545 14,896 11,063 8,912 $6,463,700 9,629 15,028 11,161 8,991 $6,518,438 9,692 15,125 11,233 9,049 $6,564,295 9,749 15,215 11,300 9,103 $6,607,940 9,806 15,303 11,365 9,156 $6,649,181 9,866 15,396 11,435 9,212 $6,691,546 9,920 15,481 11,497 9,262 $6,731,138 9,972 15,562 11,558 9,311 $6,769,565 10,037 15,664 11,634 9,372 $6,812,957 10,093 15,751 11,698 9,424 $6,851,786 10-Year Total Revenue $73,083,546

Residential Gen. Comm. $2,520,831 $1,508,974 $2,520,983 $1,524,655 $2,540,692 $1,538,200 $2,560,803 $1,548,156 $2,580,658 $1,557,356 $2,598,665 $1,566,340 $2,616,296 $1,575,905 $2,633,525 $1,584,553 $2,650,368 $1,592,899 $2,666,807 $1,603,322 $2,682,760 $1,612,168 $28,572,388 $17,212,528

Office Institutional $1,044,899 $1,067,448 $1,055,756 $1,078,540 $1,065,136 $1,088,121 $1,072,030 $1,095,164 $1,078,401 $1,101,672 $1,084,622 $1,108,028 $1,091,245 $1,114,794 $1,097,233 $1,120,912 $1,103,013 $1,126,816 $1,110,230 $1,134,189 $1,116,356 $1,140,447 $11,918,921 $12,176,131

Nonresidential Industrial $280,849 $3,902,169 $283,767 $3,942,718 $286,288 $3,977,745 $288,141 $4,003,492 $289,853 $4,027,282 $291,526 $4,050,516 $293,306 $4,075,250 $294,915 $4,097,613 $296,469 $4,119,197 $298,409 $4,146,150 $300,055 $4,169,026 $3,203,578 $44,511,158

Yearly Total $6,423,000 $6,463,700 $6,518,438 $6,564,295 $6,607,940 $6,649,181 $6,691,546 $6,731,138 $6,769,565 $6,812,957 $6,851,786 $73,083,546

Transportation Maintenance Fee Report Boulder, Colorado

ADDITIONAL CONSIDERATIONS In addition to the amount of the TMF, the annual revenue requirements to be met, and use of the funds, there are several fiscal, policy, and administrative considerations the City will have to address. These considerations are discussed in this section of the report.

FISCAL •

The City should establish accounting structures and procedures to ensure TMF funds are collected and spent in a manner consistent with their establishment.

•

The TMF program will have to be incorporated into the City’s budget process and financial management policies and practices.

•

The City should establish a policy of annual inflationary adjustments to the TMF to guard against erosion of the TMF’s purchasing power.

•

The City should also establish a policy to conduct a full re-evaluation of the TMF setting process on a semi-regular basis to ensure that the underlying assumptions are still valid and that the TMF meet the intent of being a fee.

ADMINISTRATION •

The City will have to decide how often to collect the TMF (monthly, bi-monthly, quarterly, etc.).

•

TMF’s are often billed as a part of a municipality’s existing utility billing processes. If the City chose to utilize its existing utility billing system, the system will have to be evaluated as to whether it can be compatible with the characteristics, timing, and extent to which the TMF is billed.

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An administrative manual will need to be established to address appeals processes, billing procedures, non-payment, establish definitions, and answer frequently asked questions.

Transportation Maintenance Fee Report Boulder, Colorado

APPENDIX A: LAND USE DEFINITIONS RESIDENTIAL DEVELOPMENT As discussed below, residential development categories are based on data from the U.S. Census Bureau, American Community Survey. Boulder will collect transportation maintenance fees from all residential units. Single-Family Units: 1. Single-family detached is a one-unit structure detached from any other house, that is, with open space on all four sides. Such structures are considered detached even if they have an adjoining shed or garage. A one-family house that contains a business is considered detached as long as the building has open space on all four sides. 2. Single-family attached (townhouse) is a one-unit structure that has one or more walls extending from ground to roof separating it from adjoining structures. In row houses (sometimes called townhouses), double houses, or houses attached to nonresidential structures, each house is a separate, attached structure if the dividing or common wall goes from ground to roof. 3. Mobile home includes both occupied and vacant mobile homes, to which no permanent rooms have been added. Mobile homes used only for business purposes or for extra sleeping space and mobile homes for sale on a dealer's lot, at the factory, or in storage are not counted in the housing inventory. Multi-Family Units: 1. 2+ units (duplexes and apartments) are units in structures containing two or more housing units, further categorized as units in structures with “2, 3 or 4, 5 to 9, 10 to 19, 20 to 49, and 50 or more apartments.” 2. Boat, RV, Van, etc. includes any living quarters occupied as a housing unit that does not fit the other categories (e.g., houseboats, railroad cars, campers, and vans). Recreational vehicles, boats, vans, railroad cars, and the like are included only if they are occupied as a current place of residence.

Transportation Maintenance Fee Report Boulder, Colorado

NONRESIDENTIAL DEVELOPMENT Nonresidential development categories represent general groups of land uses that share similar average weekday vehicle trip generation rates and employment densities. The nonresidential development categories can be used for all new nonresidential development within Boulder. General Commercial: Establishments primarily selling merchandise, eating/drinking places, and entertainment uses. By way of example, Commercial includes shopping centers, supermarkets, pharmacies, restaurants, bars, nightclubs, automobile dealerships, and movie theaters, hotels, and motels. Industrial: Establishments primarily engaged in the production, transportation, or storage of goods. By way of example, Industrial includes manufacturing plants, distribution warehouses, trucking companies, utility substations, power generation facilities, and telecommunications buildings. Institutional: Establishments including public and quasi-public buildings providing educational, social assistance, or religious services. By way of example, Institutional includes schools, universities, churches, daycare facilities, and government buildings. Office & Other Services: Establishments providing management, administrative, professional, or business services; personal and health care services. By way of example, Office & Other Services includes banks, business offices, assisted living facilities, nursing homes, hospitals, medical offices, and veterinarian clinics. Research & Development Center: A research and development center is a facility or group of facilities devoted almost exclusively to research and development activities. The range of specific types of businesses contained in this land use category varies significantly. Research and development centers may contain offices and light fabrication areas. Warehouse: A warehouse is primarily devoted to the storage of materials, but it may also include office and maintenance areas. University: This land use includes 4-year universities or colleges that may or may not offer graduate programs. Elementary School: An elementary school is a public school that typically serves students attending kindergarten through the fifth or sixth grade. An elementary school is usually centrally located in a residential community to facilitate student access. Bus service is commonly provided to students living beyond a specified distance from the school. Middle School: A middle or junior high school is a public school that serves students who have completed elementary school and have not yet entered high school. High School: A high school is a public school that serves students who have completed middle or junior high school.