Matters Memo

City of Boulder City Council Agenda Item Meeting Date: November 13, 2025 Agenda Title Civic Area Concept Plan and Phase 2 Scope

Staff Contact   

Mark Davison, Senior Planning Manager, Parks and Recreation davisonm@bouldercolorado.gov Shihomi Kuriyagawa, Senior Landscape Architect, Parks and Recreation kuriyagawas@bouldercolorado.gov Ali Rhodes, Director, Parks and Recreation rhodesa@bouldercolorado.gov

Executive Summary The intent of this memo is to update Council on the Civic Area Phase 2 project. The update includes 1) an overview of the concept plan; 2) elements advancing into design and construction for Phase 2 implementation; 3) the balance of policy, technical analysis and Engagement Window 3 that has informed the concept plan. The project team will take questions and feedback on these topics from the Parks and Recreation Advisory Board (PRAB) and City Council. Final design and permitting will occur in 2026 with construction to begin in 2027. Staff will keep PRAB, council members, and the community updated on project progress and milestone celebrations.

Questions for Council 1) Does Council have feedback on the concept plan for Civic Area?

2) Does Council have feedback on the elements advancing into construction in Phase 2 for the Civic Area?

Alignment with City Plans and City Council History Sustainability, Equity and Resilience (SER) Framework and Citywide Strategic Plan Alignment SER Framework Goal Area • Safe: 1, 5 • Healthy and Socially Thriving: 1, 2, 3 • Accessible and Connected: 3 • Environmentally Sustainable: 3 • Responsibly Governed: 1, 2, 3, • Economically Vital: 6 Citywide Strategic Plan 2024-2026 • Healthy and Socially Thriving: 4d • Livable: 6b • Accessible and Connected: 8a, 8b

Staff Notes Investment in the largest parcel of public land in downtown Boulder directly advances the Sustainability, Equity, and Resilience (SER) Framework by: •

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Enhancing parks and public spaces that are free, open to all and foster physical activity, mental well-being, community building and universal accessibility to ensure all ages and backgrounds are welcomed in the space. This meets the Healthy and Socially Thriving Community as well as Accessibility and Connected values from the SER framework. Creating a climate-resilient park through habitat restoration, water quality strategies, nature-based play to contribute to the Environmental Sustainability value by aligning with goals for ecological health and long-term resilience. Building downtown spaces that serve the community through resilient park amenities that stand the test of time, are easily maintained and fiscally responsible. This contributes to the Responsibly Governed value in the SER framework. Improving the quality of Boulder’s largest downtown park contributes to the city’s exceptional quality of life and Economic Vitality, which 87% of corporate

executives name as an important factor when considering new facility placements, expansion or relocation plans. In addition, investments in downtown parks have been shown to have an economic return of $7 for every $1 invested. Alignment with Additional City Plans The Civic Area concept plan was crafted to align its values and goals with several city efforts by creating an inclusive, resilient and vibrant urban center. All phases of the Civic Area design are integrated with these city plans and strategic frameworks: • Downtown Urban Design Guidelines, 2002 • Civic Area Plan, 2015 • Community Cultural Plan, 2015 • City of Boulder Engagement Strategic Framework, 2018 • Transportation Master Plan, 2019 • Racial Equity Plan, 2021 • Boulder Valley Comprehensive Plan, 2021 • City of Boulder Facilities Plan, 2021 • Parks and Recreation Department Plan, 2022 • Historic Places Plan, 2023 As well as these relevant studies: • Andrews Arboretum Promenade Study, 2018 • Cable Transit Study, 2020 • Downtown Boulder Vision Plan (Downtown Boulder Partnership), 2022 • Boulder Social Streets on 13th pop-ups evaluation, 2023 • Central Park Cultural Landscape Assessment, 2023 • Boulder Downtown Station Expansion Plan, 2023 • Boulder Civic Area East Bookend Existing Conditions (draft)

City Council History In 2023, the project team launched the scoping task for the Civic Area Phase 2 project, including updating City Council on the overall project process, scope and goals at the December 14, 2023 study session. At that meeting, City Council confirmed the continued relevance of the Guiding Principles in the 2015 Civic Area Plan. In 2024, the project moved through the planning analysis phase which included research of the existing conditions, gathering technical data, and engaging the community in imagining the future of the Civic Area during Engagement Window 1. The first window asked community members to dream big and share all ideas that could be in this space. A summary of the findings can be found here in the August 23, 2024 council IP.

At the April 17, 2025 council meeting, the project team reviewed findings from the Planning Analysis phase as well as the input gathered from Engagement Window 2. The project team also reviewed a separate process within the Civic Area for the East Bookend with council. Council supported the process to seek potential Public-Private Partnerships for the development of the East Bookend. In addition to Council, the Parks and Recreation Advisory Board (PRAB), the Landmarks Board and the Transportation Advisory Board (TAB) have been involved throughout the project at various key stages of the project. Previous Board Engagement for this project includes:  PRAB - Civic Area Kickoff – 1/23/23 (page 25)  Landmarks – 4/12/23  PRAB - Historic District – 6/26/23 (page 29)  Landmarks – 7/7/23  PRAB - July Update – 7/24/23 (page 45)  PRAB - Site Tour Event – 8/28/23 (page 17)  PRAB and Landmarks – 12/18/23  PRAB - Planning Analysis Update – 7/22/24 (page 86)  Landmarks – 9/3/2025  TAB – 10/13/2025 (presentation only, no written memo)  PRAB – 10/27/2025 (page 50) Overall, the project team uses feedback from three key inputs throughout the design process to build the final concept plan including: public engagement (including feedback from council and city boards), key policy guidance from several citywide plans and regulations and data from existing conditions analysis and technical studies.

Analysis The Civic Area Phase 2 concept plan advances the 2015 Civic Area Plan and builds on Phase 1 work completed in 2018. It aims to create a more inclusive, resilient and vibrant public space that supports year-round activation and community well-being. The concept plan is based on input from the community over the past two years and captures voices from across the city including historically excluded groups, multigenerational populations and those with racially diverse backgrounds. The design team analyzed all feedback for key priorities heard across the community, ensured the priorities heard from historically excluded groups were elevated and evaluated these design elements for feasibility of implementation based on site parameters and budget constraints. Staff completed a final overlay of analysis on design elements to ensure they met policy guidance (City of Boulder’s plans and goals for downtown and the Civic Area) and regulatory needs (safety and code requirements). The proposed improvements will create connected green spaces for community events, gatherings and flexible use with Boulder Creek at the heart. A network of paths will support walking, biking and access to nearby areas like downtown, CU’s campus and the Pearl Street Mall. Gardens will filter stormwater before it reaches the creek, while native plants, pollinator pathways and climate-friendly landscapes will offer an immersive nature experience. The plan includes an array of new amenities for the community such as shade structures, playgrounds, picnic areas and public restrooms to make the space welcoming for everyone. Infrastructure upgrades like lighting, seating and accessible paths aim to make the park safer and more inviting year-round. To create an iconic and distinctive sense of place, the plan also considers opportunities for art, a connected path that elevates the stories of this community and of history past and providing elements of signage and wayfinding. Following site analysis, key design drivers were identified: culture to nature spectrum, creek personalities categories, welcoming new gateways, iconic viewsheds and celebrating the funky aspects of Boulder’s culture. Figure 1 below shows the final Concept Plan that emerged from synthesizing the inputs from the three windows of engagement, guiding policy and the planning analysis.

Figure 1: The Civic Area Phase 2 concept plan shows desired features across four key zones of the park.

The concept plan is divided into four zones to allow for more in-depth conversations with the community: Zone 1: West End The west-most area of the park from 9th Street to the library focuses on nature immersion and enhanced circulation that connects out to the adjacent park and continues a more rustic and naturalized theme. This is proposed to include native plantings, nature exploration for youth with an iconic feature and improved creek access through raised paths and a new pedestrian bridge. Zone 2: Boulder Beach The area east of the library up to Broadway, nicknamed “Boulder Beach,” is envisioned to be the Civic Area’s new nature recreational hub through conversion of current asphalt to flexible green space and enhanced creek access. The concept plan shows an entry plaza at Canyon Boulevard and 11th Street, food and beverage offerings and large patio steps to the water on the north side of the creek. On the south side, an accessible kids’ creek feature can allow young community members and people using mobility aids to

experience the creek waters along with a new tube eddy and rental kiosk. A proposed food truck plaza, swing forest and nature hub with public restrooms would ensure the park serves a diversity of community members through a food and beverage kiosk, youth programming and educational opportunities as well as a ranger station. An outdoor shade shelter could provide opportunities for picnicking and casual dining in the park. Zone 3: East End The East End between Broadway and 14th Street will become a vibrant park and urban space, featuring a pedestrian-first festival street for an expanded Farmers Market, an enhanced Bandshell, flexible green and future food and cultural spaces that connect city life with the park. An enhanced creek viewing deck and connected green above this short section of ditch would allow space for improved mobility and access to the creek. A beer garden, “the Porch” seating and plaza, tea house garden, wayfinding signage and shaded areas and canopy will increase social opportunities and improve community member experience in the area. The nature play and splash pad combination can provide youth recreation, further bringing activation to the space. Nature Exploration Pilot: Wild Woods Pop-Up Area At the beginning of summer 2025, a temporary nature exploration area (Picture 1) installed south of the Bandshell in Central Park brought positive social behaviors and multi-generational community to the area. Along with other citywide efforts to improve safety, this resulted in a significant decline in police reports in the area for summer 2025. Given the overwhelmingly positive community reception of this exploration area, staff will maintain this area, as feasible, until construction of larger park improvements begins.

Picture 1: Kids enjoying the temporary nature exploration area in Civic Area in Summer 2025.

Bandshell Enhancements Based on feedback from the community in Window 2 engagement, the concept plan proposes to maintain and expand the role of the Glen Huntington Bandshell (the Bandshell) in its current location within the park through improved accessibility, lighting, audio/visual and seating. To recognize the historic landmark status and unique characteristics of the Bandshell, staff propose using a framework specific to historic outdoor theaters in tandem with Boulder’s regulatory process. The framework outlined in the “Preserving Landscape Experience in Historic Outdoor Theaters”, a project funded by National Center for Preservation Technology and Training, a unit of the National Park Service, will allow the project team to better assess potential changes to the Bandshell. The September 3, 2025 memo to Landmark’s Board demonstrates how the guidebook’s nine step framework might be used as a tool for proposing enhancements to the Bandshell. Connecting Central Park Connecting the lawn and creating a land bridge over one area of the irrigation ditch in the Civic Area would improve continuity, accessibility and usability within the Central Park space. This modification would enhance circulation, support a wider range of public uses and expand the Farmers Market functionality. A majority of community members voted to connect the green lawn in Central Park while keeping the ditch open by the Tea House. Zone 4: Arboretum Zone 4, encompassing the Arboretum and path leading from Civic Area to the Hill and CU, will become a welcoming, dynamic and space for all modes of transportation and feature gardens, a boardwalk, viewing tower and youth-oriented gathering spaces. Distinctive lighting will contribute to placemaking and a well-lit, safe environment. Overall Features Across all zones, community members have shared enthusiasm for the creation of an art, history and cultural story walk. This walk could include celebration and integration of the many historic elements throughout the space from stories of indigenous communities to the five designated landmarks within the Civic Area: the Atrium Building, the Dushanbe Teahouse, the Storage and Transfer Building (currently Boulder Museum of Contemporary Art), the Penfield Tate II Municipal Building and the Glen Huntington Bandshell. In the future, this proposed pedestrian loop could connect from Pearl Street through the Civic Area to The Hill and up to Chautauqua, tying multiple neighborhoods across the city together into a dynamic storytelling trail. Staff continue to build on the research started as part of the Civic Area Historic District proposal of 2023-

2024 and will begin to reach out to community and organizations to inform the content of this walk as displayed in the conceptual overview in Figure 2.

Figure 2: A conceptual historic and cultural storytelling pedestrian loop through Civic Area.

Recommendations Advancing in Phase 2 After evaluating community feedback, including an equity focus, incorporating existing policy guidance and building off the technical analysis that was completed for the project, this evaluation pointed to focusing on Zone 3: East End for the next investment in the Civic Area. Along with gateways, signage and storytelling woven throughout the Civic Area, these improvements will support unifying Boulder’s heart and the park at the core in Phase 2. The next step for the design team involved running the concept plan through a construction costing exercise. This exercise estimates the cost of construction for all design features in the Civic Area and allows the team to evaluate what can be built in Phase 2 based on currently available funding. For the project, City Council has approved $18 million in funding for Civic Area Phase 2 effort from the voter approved Community, Culture, Resilience and Safety (CCRS) Tax and the Lottery Fund (see the Fiscal and Workplan Impact section for more detail).

Following this cost analysis, the project team recommends improvements to be concentrated in Zone 3: The East End, with wayfinding and storytelling elements added throughout the park to allow for greatest impact and create a unifying feel for the Civic Area (the boundary for Phase 2 implementation can be seen below in Figure 3, in the pink outline and areas below). The project team also recommends consideration of potential pop-ups and interim improvements to be explored outside of the current project funding from the CCRS Tax at the Boulder Beach and Arboretum areas. Minor, low-cost improvements can enhance community experience in these areas and the park while larger improvements are not feasible at this time due to existing buildings and funding. Additionally, staff will continue to study the area near the future park entrance at Arapahoe and Broadway to inform potential future phases.

Figure 3: The pink highlighted boundaries will move forward into construction for Civic Area Phase 2. In orange, these areas will consider potential pop-ups and interim improvements to be explored outside of the current project funding from the CCRS Tax. In blue, this area will continue to be studied in design.

The programming enhancements prioritized for Phase 2 Implementation are outlined below with a summary of how the programming elements were determined to be appropriate for the next phase of construction:

Features

Key Inputs

All Proposed • Features for Phase 2 •

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Farmers Market and Festival Street at 13th Street

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• Nature play with splash pad

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Flexible seating, dining and picnic areas

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Engagement: All features are high priorities for Boulder’s historically excluded groups and align with the project’s Racial Equity Instrument process. Policy: All proposed features contribute to active and/or passive programming which creates a more vibrant and safe downtown space CA7 Life and Property Safety as well as CA7 The Civic Heart of Boulder. See the Alignment with City Plans and City Council History section in this memo and previous April 17, 2025 council meeting, for a summary of how the Civic Area team addresses all policy overlays. Analysis: All proposed features within the Phase 2 Boundary align with timing considerations for construction and funding. Due to rising costs of materials and construction escalation, actual implementation may be modified for final construction in 2027. All features will meet code requirements. Engagement: Community feedback emphasized expanding and enhancing the Farmers Market and pedestrian experience in this area as one of the most important priorities. Policy: 2015 Civic Area 7 Guiding Principles (CA7) Enhanced Access and Connection envisions a pedestrian festival street with flexible space for events and activities while balancing the 2019 Transportation Master Plan connections. Analysis: Technical studies confirmed this area as ideal for improved access and upgraded event infrastructure. Engagement: Youth and families prioritized this element in the top 5 activities they would like to see in the Civic Area. This program has been confirmed with enthusiastic support of the Wild Woods pop-up installation over the summer of 2025. Policy:  CA7 Place for Community Activity and Arts through inclusive, child-friendly public spaces.  CA7 Outdoor Culture and Nature through creating nature inspired spaces with opportunity to explore and discover.  CA7 Sustainable and Viable Future through sourcing local natural materials for climate-resilient design. Analysis: This approach meets technical criteria for safe, accessible, and engaging play in this key downtown location and provides needed park features for families. Engagement: Community members requested more casual, social spaces for eating that are accessible to all. Organizations such as the Farmers Market also requested these features to support events and programmed activities. Policy: CA7 Civic Heart of Boulder and Place for Community Activity and Arts by providing adaptable, multi-use public areas to support community gathering and creating a welcoming space.

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Portions of the Storywalk with interpretative and wayfinding signage

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Artful Elements

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Enhancements to the Bandshell

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Public Restrooms

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Analysis: These features are low-maintenance, high-use elements that activate the park throughout the day, across seasons and provides multi-generational spaces. Engagement: This reflects importance the community placed on educational and cultural aspects of Civic Area, which members of historically underrecognized communities specifically emphasized. Policy:  CA7 Celebration of History and Assets through prioritizing equitable cultural storytelling, honor and recognizing past histories of the space.  CA7 Enhanced Access and Connection through providing clear signage to connect the community destinations in and beyond the Civic Area. Analysis: Wayfinding meets the need to improve navigation and helps unify the Civic Area. Interpretive signage is also a way to create distinct identity and enhance visitors’ understanding of the site’s history and ecology. Engagement: Community feedback emphasized a desire for identity, beauty, and meaningful design elements within the park. Policy: CA7 Place for Community Activity and Arts through enriching the park experience with creative expression. Analysis: Integrated art can be an effective low-cost and highimpact investment to engage the community, create a sense of identity and build a sense of ownership of the space with community members. Engagement: Input highlighted community love for the Bandshell and desire for a wider range of programming and more flexible uses. Policy:  CA7 Celebration of History and Assets through upgrades to the historic Bandshell honoring its historic character while enhancing functionality.  CA7 Enhanced Access and Connection and Place for Community Activity and Arts improving accessibility, safety, and performance capacity in alignment with city policies. Analysis: Technical assessments identified enhancements necessary to improve functionality and celebrate the Bandshell’s important role within the park. Engagement: Permanent, accessible public restrooms are a top community request. Policy: Public restrooms directly support city health, equity, and community experience goals. Analysis: Location and specifications will be determined based on continuing evaluation of floodplain requirements, feasibility, and partnership potentials.

Other key programming elements the community expressed excitement in seeing include the ‘Boulder Beach’ and a hangout area next to the creek with more access to

the water, flexible gathering spaces and open green space. The community was also very interested in the Nature Hub as a space for youth programming, gathering spaces and public restrooms with the potential for food and beverage services. The project team will continue to study areas (highlighted in Figure 3’s orange boundaries) for potential pop-up improvements and interim enhancements for gathering along the creek and connecting to the CU campus through the Arboretum path to support space activation and safe connections in these areas. The Nature Hub, pop-ups and interim improvements will continue to be studied through schematic design as alternative funding is sought. The construction of longer-term park features in Zone 2 will align with the deconstruction of Park Central and New Britain as well as the East Bookend Development, as funding allows. The interim space activation, following on the success of the pop-up Wild Woods Play Area, will support creating a unified, welcoming and activated Civic Area.

Anticipated Fiscal and Workplan Impacts Currently, in the 2024-2027 Capital Improvement Program, there is $18 million in funding from the Community Culture, Safety and Resilience (CCRS) Tax ($17.1M) and Lottery Fund ($900K) for the design and construction of Civic Area Phase 2. As mentioned during 2026 Budget discussions, city staff anticipate bringing forward a debt issuance supported by CCRS Tax revenues in 2026 to support the next phase of the Civic Area Phase 2 project in 2026. The $18 million is recommended to fund Phase 2 improvements in the Civic Area and reflected here in the published fund financial. Since the next phase of the project (beginning in 2026) will be supported with debt from CCRS revenues, the appropriation is not reflected in 2026 in the budget per standard practice of bringing forward the appropriation through a special ATB (Adjustment to Base) at time of issuance. Full Project Budget ($18.0M): • 2024 Budget:  CCRS Fund: $500K • 2025 Budget: ($2M)  Lottery Fund: $900K  CCRS Fund: $1.1M • 2026-2028 Remaining Budget in CCRS: ($15.5M)  2026 Budget: $3.5M  2027 Projected: $10.0M

 2028 Projected: $2.0M The team also continues to study the Total Cost of Ownership which includes the maintenance and operations of the proposed capital improvements. The team is developing a Park Management Plan for the Civic Area as a final deliverable and will incorporate strategic guidance on how the park can be responsibility managed and reduce operating burden. Overall, the concept plan represents a long-term vision for the Civic Area with clearly identified design for public amenities, programming and festivities that will be implemented in Phase 2. This project is on the workplan for design and permitting in 2026 with Phase 2 construction scheduled to begin in 2027. BPR will lead implementation of Phase 2 with support from the core team members; all involved departments (Transportation and Mobility, Utilities, Planning and Development Services, Facilities and Fleet and City Manager’s Office) have identified this project in their workplan (from the years 2024-2027). Areas outside of what was prioritized for Phase 2 will become part of a future Phase 3 effort, for which funding and a cross-departmental workplan have yet to be identified.

Equity Analysis The project is following the city’s Engagement Strategic Framework and Racial Equity Instrument (REI) to ensure historically excluded community members are meaningfully represented in Phase 2 recommendations. The project team partnered with two Downtown Community Connectors, the city’s Community Connectors in Residence, Growing Up Boulder and youth, and families with children experiencing disabilities to engage diverse communities. At each design, engagement, and analysis stage, input from these groups has guided the goal of creating a welcoming, inclusive downtown park. View the full REI process and community groups reached.

Climate, Resilience and Sustainability Considerations The project supports the city’s Climate, Resilience and Sustainability goals by prioritizing flood improvements, climate-conscious landscaping and long-lasting design. The team is coordinating with key city departments to ensure construction aligns with climate targets, minimizes long-term impacts, and reflects responsible use of resources.

Community Engagement Engagement Window 3, conducted from March through August of 2025, was guided by the project’s REI process and overseen by two Downtown Community Connectors. The goal was to ask the community which Civic Area Phase 2 concept plan features should be prioritized within the Phase 2 budget, with the goal to elevate the voices of youth and historically excluded groups. The features shown in the concept plan came from community ideas and feedback gathered and confirmed during Engagement Windows 1 and 2. Window 3 Results Summary Over a series of 20 engagement events, 5 pop-ups and an online questionnaire, Window 3 engaged community members from across the city and created an opportunity for residents to rank and discuss their top priorities of the 38 park features shown within the concept plan. During Window 3, they were asked to vote for their favorite feature in each section of the concept plan (West End, Boulder Beach, East End and Arboretum Path) to help the project team prioritize which features to move forward into Phase 2 construction. Figure 4 shows the Top 10 features overlayed on the concept plan: Farmers Market and Festival Street, Boulder Beach, Nature Hub with public restrooms, Beer Garden and Market Hall and Nature Play with Splash Pad as well as accessible shallow kids’ creek, swing forest, accessible elevated boardwalk and experiential lighting. Voting results showed alignment between historically excluded groups and the broader community.

Figure 4: Civic Area concept plan with the top 10 features voted on by the community during Window 3 highlighted.

Bandshell Programming Community members were also asked what types of events they would most like to attend at the Bandshell. Both the broader community and historically excluded groups voted concerts and movie nights as their top preference out of the following options: • Concerts • Movie Nights • Theater, Symphony & Musicals • Cultural Events • Picnic Space • Dance, Yoga, Exercise • Art Installations & Lighting A New, Connected Green Park Additionally, community members were asked if they would prefer to keep the existing ditch or use a land bridge to create a new connected green park. 67% of all community members and 70% of members from historically excluded groups voted to create a new connected green park. Figure 5 shows the two options presented to the community.

Figure 5: Visual preference survey showing two options for the irrigation ditch in Central Park. One diagram shows the ditch covered to create a new connected green park, and the other diagram shows the ditch as it is currently.

Attachment B fully summarizes engagement data gathered during Window 3, including youth, people experiencing disabilities, and other historically excluded groups.

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Final design and permitting will occur in 2026 with construction of identified elements to begin in 2027. The project team continues work to align resources to effectively manage and operate the park. This includes collaboration with work led by other city teams, including a potential future Downtown Development Authority (DDA) and examining a potential role for the Boulder Urban Renewal Authority. In the next several months, the project team will engage community members in a conversation about identity of the space including the colors, materials and name of the space. Depending on feedback, renaming the park to something other than Civic Area could be proposed in 2026 in alignment with city policy. Staff will keep PRAB, council members and the community updated on project progress and milestone celebrations. After ribbon cutting to open Phase 2 Improvements and as funding allows, the team will implement a Park Management plan that will cover guidance for rules and park policy, launch new space activation programming with key partners and implement a new operations and maintenance plan.

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Attachments Attachment A – Civic Area Concept Plan Attachment B – Engagement Window 3 Summary