Agenda Memo

City of Boulder City Council Agenda Item Meeting Date: September 3, 2026

Agenda Title Second reading and consideration of a motion to adopt Ordinance 8757 amending Title 4, “Licenses and Permits,” B.R.C. 1981, allowing for Pedal-Cab Agency and Driver Licenses; and setting forth related details

Staff Contact • •

Alisa Darrow, Licensing Manager, Finance Krista Morrison, Chief Financial Officer

Draft Motion Language Staff requests council consideration of this matter and action in the form of the following motion: Motion to adopt Ordinance 8757 amending Title 4, “Licenses and Permits,” B.R.C. 1981, allowing for Pedal-Cab Agency and Driver Licenses and establishing related fees; and setting forth related details

Executive Summary The purpose of this item is for council to consider an ordinance establishing a regulatory framework for pedal-cab agencies and pedal-cab drivers operating within the city of Boulder. The ordinance creates new pedal-cab agency and driver license requirements, establishes application and licensing fees, and sets forth operational requirements intended to protect public health, safety, and welfare.

Pedal-cabs provide an alternative form of transportation and may operate within public rights-of-way where passenger safety, driver qualifications, and appropriate insurance coverage are important considerations. The proposed ordinance establishes minimum requirements for pedal-cab agencies and drivers, including age and driver license requirements, background and driving record reviews, insurance requirements, notification requirements for changes in agency-driver relationships, and compliance with applicable bicycle traffic regulations. Proposed Ordinance 8757 also establishes enforcement provisions allowing the city manager to deny, suspend, or revoke licenses for violations of licensing requirements, misrepresentations, or other noncompliance. Additionally, the ordinance prohibits pedal cab operators from offering, selling, serving, delivering, or providing products, including food, beverages, and alcohol, while conducting pedal-cab activities to maintain appropriate regulatory boundaries. The proposed licensing fees are designed to recover the city’s costs associated with application review, license issuance, and regulatory oversight. Establishing a licensing program will provide the city with a mechanism to ensure pedal-cab operations meet basic safety, insurance, and accountability standards while supporting this form of transportation within the community. Staff recommends adoption of Proposed Ordinance 8757 to establish clear requirements for pedal-cab operations and provide the city with appropriate regulatory authority to oversee these businesses.

Council Action Options Option

Outcome

Approve motion language as drafted

If the motion is approved, the Ordinance will be published and become effective in 30 days.

Define and adopt a modified motion

Council would need to define any modifications or amendments to the draft motion language. This will likely require staff to bring back an amended version once those changes have been incorporated.

Deny the motion or take no action

If this motion is denied, staff will take no further action and no license for pedal-cab agencies or drivers will be implemented.

Refer back to staff

If council refers this item back to staff will need feedback on additional information needed and any changes requested before bringing it back to Council.

Alignment with City Plans and City Council History Sustainability, Equity, and Resilience (SER) Framework and Citywide Strategic Plan Alignment SER Framework Goal Area Proposed Ordinance 8757 supports the City of Boulder’s Sustainability, Equity, and Resilience (SER) framework by establishing a regulatory structure that promotes safe, accessible, and accountable pedal-cab operations within the community. Safe: The proposed ordinance advances the SER goal of fostering a climate of safety for individuals in public spaces by establishing licensing requirements for pedal-cab agencies and drivers. Requirements related to driver qualifications, insurance coverage, background and driving record reviews, and compliance with applicable traffic laws provide a framework to protect passengers, drivers, and the broader community while supporting safe use of public streets. Accessible and Connected: The proposed ordinance supports Boulder’s goal of providing a safe, accessible, and sustainable multimodal transportation system by recognizing pedal-cabs as a transportation option available within the community. Establishing clear operating requirements allows pedal-cab services to be integrated into Boulder’s transportation network while encouraging a variety of mobility options for residents and visitors. Responsibly Governed: The proposed ordinance supports responsible governance by creating a consistent licensing process, establishing clear operational standards, and providing the city with appropriate oversight authority. The licensing program promotes transparency, regulatory compliance, and effective customer service by ensuring operators understand their responsibilities and by providing the city with a mechanism to address violations when necessary. Economically Vital: The proposed ordinance supports economic opportunity by establishing a predictable regulatory framework for pedal-cab agencies and drivers seeking to operate in Boulder. Clear licensing requirements allow businesses and independent operators to participate

in this service sector while ensuring operations are conducted in a manner that supports community safety and quality of life. Overall, Proposed Ordinance 8757 advances the city’s SER framework by balancing support for innovative transportation options and economic activity with the need for public safety, accountability, and equitable regulatory oversight. Citywide Strategic Plan Proposed Ordinance 8757 supports several priorities identified in the Citywide Strategic Plan by establishing a regulatory framework that promotes safe operations, supports multimodal transportation options, improves regulatory clarity, and provides a consistent process for businesses and individuals operating pedal-cabs within the city of Boulder. Safe – Strategy 1: Focus community safety efforts on reducing community harm at critical locations known for high incident rates or significant vulnerabilities. The proposed ordinance supports community safety by establishing licensing requirements for pedal-cab agencies and drivers operating within public spaces. Requirements related to driver qualifications, insurance coverage, background and driving record reviews, and compliance with applicable traffic laws create accountability standards designed to reduce risk and promote safe interactions among pedal-cab operators, passengers, pedestrians, bicyclists, and motorists. Accessible and Connected – Strategy 7: Invest in and maintain a transportation system with an array of multi-modal choices to reduce vehicle miles traveled and greenhouse gas emissions. The proposed ordinance supports Boulder’s multimodal transportation goals by creating a regulatory structure for pedal-cabs as an additional mobility option for residents and visitors. Establishing clear requirements for operation allows pedal-cab services to safely integrate into the transportation system while supporting a broader range of transportation choices. Responsibly Governed – Strategy 12: Implement organizational and financial best practices to continuously improve asset management, customer experience, and project and program performance. The proposed ordinance advances responsible governance by creating a transparent and consistent licensing process, establishing clear operational requirements, and providing the city with appropriate oversight tools. A defined licensing process improves customer experience by allowing businesses and applicants to understand requirements upfront and provides the city with a mechanism to ensure compliance with adopted regulations.

Economically Vital – Strategy 15: Streamline processes for housing, parking, infrastructure, land use, and events that tie directly to priority community outcomes. The proposed ordinance supports economic vitality by creating a predictable regulatory pathway for pedal-cab agencies and drivers seeking to operate in Boulder. Clear licensing standards help reduce uncertainty for businesses and individuals while ensuring operations align with community expectations for safety and quality of life. Overall, Proposed Ordinance 8757 supports the Citywide Strategic Plan by balancing support for innovative transportation options and economic activity with the need for public safety, regulatory accountability, and a well-managed public realm.

Staff Notes Pedal-cab operations have occurred within the city of Boulder, including during high attendance events such as University of Colorado, Boulder, football games and other community events that generate increased pedestrian and visitor activity. Currently, the city does not have a specific licensing framework governing pedal-cab agencies or drivers.

Alignment with Additional City Plans None.

City Council History This item has not previously been brought before City Council because pedal-cab operations have not historically been subject to a dedicated local regulatory program. As activity has increased and the city continues to evaluate appropriate oversight of businesses operating in public spaces, staff identified the need to establish a clear regulatory framework to support safe operations and align with the city’s goals for a well-managed, multimodal transportation system. This item was brought to City Council on first reading on August 20, 2026.

Analysis The city has observed pedal-cab operations occurring within Boulder, including during high-attendance events such as University of Colorado Boulder football games and

other activities that bring increased numbers of visitors and pedestrians into the community. While these operations provide an additional transportation option, the city currently does not have a licensing framework specifically addressing pedal-cab agencies or drivers. Proposed Ordinance 8757 is intended to proactively establish clear operating requirements, create accountability for operators, and ensure basic public safety standards are in place. The proposed ordinance provides a mechanism for the city to verify qualifications, insurance coverage, and responsible operation while creating a consistent and transparent process for businesses seeking to provide pedal-cab services. The proposed licensing program is expected to have the following impacts: Public Safety and Community Experience: Proposed Ordinance 8757 establishes baseline requirements intended to protect passengers, drivers, and other users of public streets and spaces. Requiring driver qualifications, insurance coverage, and compliance with traffic laws provides greater assurance that pedal-cab operations are conducted responsibly. The city will also have clear authority to address violations through license denial, suspension, or revocation when appropriate. Business and Operator Impacts: Pedal-cab agencies and drivers operating in Boulder will be required to complete a licensing process and pay applicable fees. The requirements create a consistent set of expectations for all operators and provide clarity regarding responsibilities, insurance, and operating standards. The proposed fees are intended to recover the city’s costs associated with application review, license issuance, and program administration. Administrative Impacts: The Licensing Division will be responsible for administering the program, including processing applications, issuing licenses, maintaining records, and overseeing compliance. The anticipated workload is expected to be manageable within existing resources. Staff may develop administrative procedures and rules as needed to implement the ordinance. Transportation and Economic Impacts: The proposed ordinance supports a diverse transportation system by establishing a framework for pedal-cabs as an additional mobility option for residents and visitors. It also provides a predictable regulatory pathway for businesses and independent operators interested in providing pedal-cab services in Boulder.

Overall, Proposed Ordinance 8757 is intended to establish proactive oversight of an existing activity while balancing the benefits of additional transportation options with the city’s responsibility to protect public safety, maintain effective regulatory processes, and support a well-managed public realm.

Equity Analysis Proposed Ordinance 8757 establishes a uniform licensing framework for pedal-cab agencies and drivers operating within the city of Boulder. By creating consistent requirements for qualifications, insurance coverage, and operational standards, the proposed ordinance promotes transparency and ensures that all operators are subject to the same regulatory expectations. The licensing program is intended to support equitable access to operating opportunities by providing a clear process for individuals and businesses interested in providing pedal-cab services. Establishing defined requirements and fees allows applicants to understand expectations before entering the market and provides consistent treatment of all applicants. Staff recognize that new licensing requirements may create administrative or financial considerations for small businesses or individual operators. To mitigate potential barriers, the proposed ordinance establishes straightforward application requirements and fees intended to recover the city’s costs of administering the program rather than create a barrier to participation. Staff will monitor implementation of the program and evaluate whether additional process improvements are needed to ensure equitable access. The proposed ordinance also advances community safety goals by establishing minimum standards related to driver qualifications, insurance, and accountability. These requirements are intended to protect all community members who interact with pedal cab operations, including passengers, pedestrians, bicyclists, and other users of the public right-of-way.

Fiscal Note Estimated Fiscal Impact Narrative Current Year Estimated Fiscal Impact Fund(s): General Fund Department(s): Finance Program(s): Regulatory Licensing

FY 2026 Budget

FY 2026 Estimated Impact

FY 2026 Net Change

Beginning Fund Balance

$43,506,310

$0

$43,506,310

Total Forecasted Revenue

$198,791,103

$3,300

$198,794,403

Total Estimated Expenses

$194,483,460

$3,300

$194,486,760

Ending Fund Balance(s) After Reserves

$1,871,568

$0

$1,871,568

FTE

801

0

801

Item

Three-Year Estimated Fiscal Impact

Item

FY 2026

FY 2027

FY 2028

Total Forecasted Revenue

$3,300

$3,300

$3,300

Total Estimated Expenses

$3,300

$3,300

$3,300

Net Estimated Impact

$0

$0

$0

Implementation of the proposed ordinance is expected to be supported within existing departmental resources throughout the three-year period. Related administrative responsibilities associated with implementation are planned to be absorbed by current staffing capacity and departmental resources, therefore, no additional appropriations for FTE’s are anticipated.

Climate, Resilience, and Sustainability Considerations Proposed Ordinance 8757 supports the city’s climate, resilience, and sustainability goals by establishing a regulatory framework for a human-powered transportation option that can complement Boulder’s broader multimodal transportation network. Pedal-cabs provide an additional mobility choice for residents and visitors and may support efforts to reduce reliance on single-occupancy vehicle trips, particularly in areas and during events where alternative transportation options are beneficial. By creating clear licensing requirements, the ordinance supports a resilient and well managed transportation system. Establishing minimum standards related to driver qualifications, insurance coverage, and operational accountability helps ensure that pedal-cab services can safely operate as part of the city’s transportation landscape. The proposed ordinance also supports responsible governance and long-term sustainability by creating a consistent process for oversight, ensuring that the city has appropriate information about operators, and providing a mechanism to address operational concerns as needed. The licensing program is designed to be administered efficiently while supporting community goals related to safe, accessible, and sustainable mobility options. While the ordinance does not directly establish climate-related requirements or result in measurable emissions reductions, it supports broader city transportation goals by recognizing and regulating a low-impact transportation option within the community.

Community Engagement No formal community engagement has been conducted regarding Proposed Ordinance 8757. The proposed licensing framework was initiated based on internal coordination and operational needs identified by multiple city departments, including the Police Department, Code Enforcement, and Transportation and Mobility staff. These departments identified the need for a clear regulatory framework for pedal-cab operations occurring within the city, including operations associated with high attendance events such as University of Colorado, Boulder, football games. Establishing a licensing program will provide the City with a consistent process for

communicating requirements, identifying responsible operators, and addressing operational or public safety considerations. Following adoption, staff will provide information to affected operators regarding the new licensing requirements and implementation process. Staff will continue to monitor the program and consider feedback from operators, community members, and partner departments as the program is implemented.

Workplan Considerations Proposed Ordinance 8757 is not expected to have a significant impact on the Licensing Division’s current work plan. Implementation of the pedal-cab licensing program will involve establishing administrative processes, reviewing applications, issuing licenses, and maintaining records; however, these activities are anticipated to be absorbed within existing staff capacity and ongoing regulatory licensing responsibilities. Staff will develop necessary procedures and materials to support implementation, including application requirements, license administration, and communication with affected operators. The addition of this license type is not expected to require additional staffing resources or changes to existing work plan priorities.

Next Steps for City Council If adopted, proposed Ordinance 8757 will be published and become effective in 30 days. No further action by City Council will be needed.

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Attachments A - Proposed Ordinance 8757