Matters Memo

City of Boulder City Council Agenda Item Meeting Date: August 6, 2026 Agenda Title Boulder Valley Comprehensive Plan (BVCP) Adoption: Consideration of one or more motions to: (1) approve or amend conditions of approval to the BVCP update made by the Planning Board; and (2) approve or amend conditions of approval to the BVCP update made by the Board of County Commissioners; and (3) approve or amend recommended amendments to the BVCP update made by the Planning Board, County Planning Commission, and Board of County Commissioners.

Staff Contact • •

Brad Mueller, Director, Planning and Development Services Kristofer Johnson, Comprehensive Planning Manager, Planning & Development Services

Draft Motion Language Staff recommends that City Council consider each condition of approval and recommended amendment and requests Council then take action in the form of the following motions: 1. Move to approve/amend the conditions of approval to the BVCP update made by Planning Board. 2. Move to approve/amend the conditions of approval to the BVCP update made by the Board of County Commissioners.

3. Move to approve/amend the recommended amendments to the BVCP update made by Planning Board, the County Planning Commission and the Board of County Commissioners.

Executive Summary Adoption of the major update to the Boulder Valley Comprehensive Plan requires approval by four bodies: City Council, the city Planning Board, Boulder County Planning Commission, and the Board of County Commissioners (BOCC). All applicable approving bodies must reach agreement on proposed conditions of approval and/or recommended amendments. City Council last met on June 25, 2026, for a public hearing and deliberation to consider the major update to the Boulder Valley Comprehensive Plan. All four approving bodies completed their initial deliberations on the Boulder Valley Comprehensive Plan on the following dates: • • • •

June 16: Planning Board June 17: Boulder County Planning Commission June 25: BOCC June 25: City Council

These initial deliberations resulted in several conditions of approval and recommended amendments. Because these items affected multiple approving bodies, additional public hearings were required to reconcile potential amendments and to reach final approval of the plan. A second round of public hearings were held with the other three approval bodies on the following dates: • • •

July 15: Boulder County Planning Commission July 21: BOCC July 21: Planning Board

City Council had a meeting originally scheduled for July 23, 2026, but it was continued to August 6, 2026. Members are being asked to consider the remaining conditions of approval and recommended amendments at this meeting. Attachment A: BVCP Amendment Tracking provides a summary of the outcomes of both rounds of deliberation as of July 21, 2026. The Analysis section of this memo summarizes the remaining items requiring City Council action.

Council Action Options Option Approve remaining conditions of approval and recommended amendments.

Modify a condition of approval or recommended amendment.

Deny a condition of approval or recommended amendment.

Outcome Staff will return to any bodies that still require review of any remaining items. Once all conditions of approval and recommended amendments are reconciled, the plan update is adopted. Council would need to define any modifications to the proposed conditions of approval or recommended amendments. If any conditions of approval remain unreconciled, the plan update is not adopted. Any unreconciled conditions of approval or recommended amendments will require additional consideration by the other approval bodies. If any conditions of approval remain unreconciled, the plan update is not adopted. Council could ask other approval bodies to consider amending or removing their condition of approval. Any recommended amendments that are not supported by Council will be removed from consideration.

Alignment with City Plans and City Council History Sustainability, Equity and Resilience (SER) Framework and Citywide Strategic Plan Alignment SER Framework Goal Area The recommended Comprehensive Plan reflects all SER Framework goals due to integration of the SER Framework as the Plan basis and provides long-term policy direction to advance sustainability, equity and resilience outcomes. Citywide Strategic Plan The recommended Comprehensive Plan will continue to guide future updates to the Citywide Strategic Plan and inform annual work planning and budgeting decisions.

Staff Notes N/A

Alignment with Additional City Plans The Comprehensive Plan provides the overarching vision, values and policies for the Boulder Valley and continues to guide subcommunity and area plans, department plans, Boulder Municipal Code updates, the annual budget and the Capital Improvements Program.

City Council History Initial Public Hearings City Council and Planning Board held a joint public hearing on the recommended update to the Boulder Valley Comprehensive Plan on June 4, 2026. The County Planning Commission and Board of County Commissioners held a similar joint public hearing on June 11, 2026. The four bodies then continued their respective hearings and individually deliberated and took action on approval of the update to the plan on June 16 (Planning Board), June 17 (County Planning Commission), and June 25 (BOCC and City Council).  June 4, 2026: Joint City Council and Planning Board Meeting Memo: Item 4A City Council and Planning Board public hearing and consideration by each body of a motion to approve the major update to the Boulder Valley Comprehensive Plan To review conversations of the other three approval bodies, please refer to the following videos:  June 16, 2026: Planning Board Meeting (items begins at 9:05)  June 17, 2026: County Planning Commission Meeting (item begins at 2:00)  June 25, 2026: Board of County Commissioner Meeting (item begins at 2:28)  June 25, 2026: City Council Meeting (item begins at 0:08)

Additional Public Hearings and Reconciliation of Conditions of Approval and Recommended Amendments Additionally, the County Planning Commission, BOCC and Planning Board held public hearings to reconcile conditions of approval and recommended amendments proposed by the other approval bodies on the following dates. To review the second round of conversations of the other three approval bodies, please refer to the following videos:

• • •

July 15: County Planning Commission Meeting (item begins at 0:00:23) July 21: Board of County Commissioners Meeting (item begins at 1:04:02) July 21: Planning Board Meeting (item begins at 0:11:00)

Analysis June 2026: First Round of Public Hearings During the first round of public hearings in June 2026, the four approval bodies considered approval of the plan, some proposed conditions of approval and recommended amendments to the Boulder Valley Comprehensive Plan major update. Several conditions of approval were proposed during this first round, requiring further consideration by the other bodies. A number of recommended amendments were also proposed. Recommended amendments that were accepted by all applicable bodies will be included in the final plan, and those that were not supported by one or more bodies will not be included in the plan. Recommended amendments introduced after Council completed their first round of review are included in this memo. For more information related to the first round of public hearings, refer to the staff memo prepared for Item 3B on the July 23, 2026, meeting agenda. Also see Attachment A: Amendment Tracking PDF for additional details. With the additional time available prior to the continued hearing date of August 6, 2026, staff have updated this analysis section to focus on the remaining conditions of approval and recommended amendments that require action by City Council. Because the approval process requires agreement among all applicable bodies, the remaining conditions of approval and recommended amendments requiring reconciliation advanced to a second round of review in July 2026. The outcomes of these second-round meetings of Planning Board, Planning Commission and the BOCC are summarized below and reflect the status of the remaining items as of July 21, 2026, for City Council’s consideration. Note: The term “condition of approval” is used to describe an amendment that must be included for the particular body to approve the major update, while “recommended amendment” describes an amendment to the major update a particular body recommends, but does not require, to approve the major update.

July 2026: Second Round of Public Hearings The County Planning Commission met on July 15, 2026, for their second round of review. The BOCC and Planning Board both met on Tuesday, July 21, 2026. Attachment A: Amendment Tracking PDF includes information related to this second round of review. For all conditions of approval and recommended amendments below, the plan language (as proposed by staff) is italicized. All strikethroughs are proposed removals of language while all text in red constitutes proposed additions. Note: The letter and number references below refer to the tracking sheet identifiers in Attachment A. Remaining Conditions of Approval A2. Policy 82: Housing Diversity and Supply Originally a Planning Board condition of approval, BOCC had edited this condition in the first round, and neither of the suggested edits were accepted by Council. In the second round, BOCC removed their proposed reference to “the county” and did not take a position on other edits. BOCC’s decision makes the policy a city-only policy as originally drafted, and the county will no longer review it. Planning Board proposed to modify their original condition to more clearly describe their intent. The board then passed a second motion that approves the plan with or without the change, which allows City Council to make a final determination on whether to accept the proposed edit or not. “The city supports increasing the housing supply by promoting a full spectrum of housing types and price points that are more affordable, including middle housing and middle income opportunities, throughout the city that enable people to remain in and join the community as their needs, incomes and household compositions change over time.” B2. Policy 79: Municipal Airport In the second round, BOCC modified their condition and accepted the Planning Board edits in the first portions of the policy but proposed to remove the additional sentences at the end that implicated the county to a higher degree than they were comfortable with. Planning Board approved the amended language proposed by BOCC. The current proposed condition of approval now includes following edits: “The city maintains the Boulder Municipal Airport as a safe environment for aviation, aviation-related businesses and special events, aviation-related research and

education, and business-related travel, scientific and research flights, recreation and tourism, flight training and vocational education, aerial fire-fighting, emergency medical flights, and medical and disaster-related support for the city and county. The city will help manage strives to minimize and mitigate noise and other impacts of airport operations via methods such as noise abatement procedures, land use tools, controls and partnership with the State and fuel providers to offer unleaded fuel. The city promotes the adoption of electric aircraft technology.is also forward-looking as aircraft electrification becomes reality. The city will continue to build relationships that allow the airport to be a valuable resource for a wider range of people in the Boulder community. The city will coordinate with the county to provide consistent regulations addressing noise and other airport influences, where possible.” If City Council accepts this condition, the item will be complete. A denial or additional edits will require returning to Planning Board and BOCC. Note, County Planning Commission voted to remain neutral on this item. E. 50 Years of Planning (History Section) BOCC reiterated their first-round condition of approval to remove this section from the plan because they felt it was incomplete and contained unsubstantiated claims. Planning Board rejected this condition, but they then also passed a motion that approves the plan with or without the change, which now leaves the decision to BOCC, County Planning Commission, and City Council. If City Council accepts this condition, the item still requires second review by County Planning Commission. A denial or additional edits will require return to BOCC and County Planning Commission. G. Future Land Use Map change in Area 2 (see also Item 18B) BOCC reiterated their first-round condition of approval to change all Neighborhood 1 designated properties in Area 2-Urban Edge to the Rural Lands designation to emphasize the county’s jurisdiction and be responsive to community members. Planning Board accepted this condition and added an edit to the associated Rural Lands definition that sets expectations for a change to the land use designation upon annexation (see Item 18B). If City Council accepts this condition, the item will be complete. A denial or additional edits will require return to Planning Board and BOCC. I. Neighborhood 1 Definition, Urban Design Section Planning Board reintroduced an earlier proposed recommended amendment as a new condition of approval to remove language referring to setbacks and massing that are

harmonious with the surrounding neighborhood. The Board expressed concern that the language is vague and large setbacks may not accommodate desired new commercial uses or housing types envisioned for Neighborhood 1. “Residential and commercial buildings in these neighborhoods are typically moderate in scale, maintaining a residential form and rhythm along a block, generally one to three stories with massing and setbacks that are harmonious with the surrounding neighborhood.” City Council did not see this item in June because the BOCC rejected the recommended amendment in the first round of review. If the land use change in Area 2 (Item G) is approved, county approval bodies would no longer review edits to the definition of Neighborhood 1, as it would no longer apply anywhere in the county. If City Council accepts this condition, the item will be complete. A denial or additional edits will require return to Planning Board. Note, BOCC would still review this item if the land use change in Item G is not approved, because Neighborhood 1 would still be applied in the county. Remaining Recommended Amendments 14B. Rural Land Use Class, Land Use Goals BOCC approved a modified amendment to add a bullet to the Land Use Goals section in the Rural Class definition that was originally requested by County Planning Commission to better describe the value of working lands and livelihoods built on use of land in rural areas. Planning Board approved this amendment. The amendment would add: “Support economic livelihoods that are based on the land consistent with responsible land stewardship and environmental sustainability.” If City Council accepts this recommended amendment, the item will be complete. A denial will eliminate it from consideration. Additional edits will require a return to all three other bodies.

16B. The Future of Housing First-round City Council recommended amendment: “Context-specific infill and change in neighborhoods can sensitively introduce opportunities for various housing forms, such as duplexes, triplexes, rowhomes, small houses on small lots, cottage courts, backyard cottages (ADUs) and as well as multiunit buildings near transit in areas like Neighborhood 1.” Planning Board did not support the City Council amendment to add “near transit” related to multi-unit buildings in Neighborhood 1 as they found it was too specific and potentially limiting on where multi-unit buildings could be appropriate. Since the denial resulted in elimination of all proposed edits to this language, the Board requested City Council reconsider their original amendment to add “small houses on small lots.” Planning Board modified amendment: “Context-specific infill and change in neighborhoods can sensitively introduce opportunities for various housing forms, such as duplexes, triplexes, rowhomes, small houses on small lots, cottage courts, backyard cottages (ADUs) and multi-unit buildings in areas like Neighborhood 1.” If City Council accepts the recommended amendment, the item will be complete. A denial will eliminate it from any further consideration by any bodies. Additional edits will require a return to all three other bodies. 17B. Policy 89: Fire Adapted Communities First-round City Council recommended amendment: “The city and county are committed to creating and sustaining a fire adapted community through a coordinated, region-wide approach to fire and wildfire resilience and prevention throughout the Boulder Valley. Strategies will address the full spectrum of fire and wildfire risk, including urban conflagration, while enhancing public safety, promoting equitable protection and supporting efficient and effective response and recovery. The city considers an integrated approach to wildfire risk, including emergency management planning and egress capacity, when evaluating development that affects residential density within mapped wildfire ignition zones.” Planning Board did not support the City Council amendment as written. The Board proposed to strike “that affects residential density” from the additional language as they found emergency management planning should apply to all uses, not only residential, and were concerned that the proposed language could be used to limit housing opportunities.

Planning Board modified amendment: “The city and county are committed to creating and sustaining a fire adapted community through a coordinated, region-wide approach to fire and wildfire resilience and prevention throughout the Boulder Valley. Strategies will address the full spectrum of fire and wildfire risk, including urban conflagration, while enhancing public safety, promoting equitable protection and supporting efficient and effective response and recovery. The city considers an integrated approach to wildfire risk, including emergency management planning and egress capacity, when evaluating development within mapped wildfire ignition zones.” If City Council accepts the recommended amendment, the item will be complete. A denial will eliminate all edits from consideration. Additional edits will require a return to Planning Board only, as this statement only references the city. 18B. Necessary Edits to Rural Lands Definition (see also Item G) Staff recommended edit: What it is “Rural Lands are the unincorporated areas of the Boulder Valley that are within expected to remain in the county’s jurisdiction and include a variety of land uses and county zone districts. Future use of these areas will be guided by county planning processes, the uses permitted by county zoning and policies in the comprehensive plan that intend to preserve the rural character of these areas, except that upon annexation, any annexed areas would be subject to city processes, zoning, and policies.” BOCC accepted staff recommended edits to the Rural Lands definition that will be necessary if the proposed land use change from Neighborhood 1 to Rural Lands is approved, because the current definition of Rural Lands does not anticipate it being applied in Area 2. Planning Board approved a modified amendment that more clearly explains that the future land use designation would be updated to a non-rural designation as part of an approved annexation. Planning Board modified amendment (addition highlighted in yellow): What it is “Rural Lands are the unincorporated areas of the Boulder Valley that are within expected to remain in the county’s jurisdiction and include a variety of land uses and county zone districts. Future use of these areas will be guided by county planning processes, the uses permitted by county zoning and policies in the comprehensive plan that intend to preserve the rural character of these areas, except that upon annexation, any annexed areas would be expected to update to a non-rural land use designation and would be subject to city processes, zoning and policies.”

If City Council accepts the recommended amendment, the item will then be reviewed by BOCC and County Planning Commission for final approval. Additional edits will require a return to all three other bodies.

Approved Conditions and Amendments Several other conditions of approval and recommended amendments have now been reviewed by all approval bodies and reconciled for inclusion in the final plan, including: • • • • •

C. Policy 102 Consultation with Federally Recognized Tribal Nations D. Policy 103 Engagement with Local Indigenous Peoples F. How the City and County Address Today’s Challenges 13. Policy 53 Local Renewable Energy Generation 15. Policy 16 Out-of-City Utility Service

Refer to Attachment A: Amendment Tracking PDF for language related to each of these approved items that will be included in the final plan for approval.

Anticipated Fiscal and Workplan Impacts No direct fiscal impacts are associated with the consideration of the major update to the Boulder Valley Comprehensive Plan. All work related to public engagement, technical analysis, policy development and intergovernmental coordination has been accommodated within existing appropriations and department budgets. While adoption of the Comprehensive Plan establishes a long-range policy framework intended to guide future land use, housing, transportation, environmental and infrastructure decisions over the next 20 years, implementation of specific policies or future capital improvements may have fiscal implications that will be evaluated separately through future budget, work program and development review processes. At this time, no additional appropriations are required as part of the proposed action.

Equity Analysis Equity is a foundational pillar of the updated comprehensive plan, beginning with the first policy, which establishes equity as a guiding principle for decision-making across all city systems. This policy emphasizes reducing disparities in access, opportunity, and outcomes for historically underserved communities, and it directs all planning, investment, and service delivery to be evaluated through an equity-focused lens. The plan affirms the city’s responsibility to ensure that the benefits and burdens of growth, development, and public investment are shared fairly among Boulder residents.

Climate, Resilience, and Sustainability Considerations The recommended plan includes multiple policies and land use choices that will have impacts on the community’s resilience and sustainability in the face of a changing climate. Many policies work in concert to support community resilience and sustainability.

Community Engagement The Boulder Valley Comprehensive Plan update was supported by an extensive, multiphase engagement process designed to broaden participation and incorporate a wide range of community perspectives. Over approximately 18 months, the process included more than 70 engagement opportunities, combining both traditional and innovative methods to reach a diverse cross-section of the Boulder Valley community. Engagement activities included community open houses, a statistically valid survey, office hours, online feedback tools, several community “pop-ups,” and a formal community change request process. In addition, new approaches such as Community Hosted Conversations, playback improv sessions, and a Community Assembly were used to expand participation and elevate voices that have historically been less represented in planning processes. Staff used feedback from these engagement efforts to develop preliminary policy and land use direction, which was shared with and reviewed by policymakers in December 2025. Direction from policymakers helped inform the development of the draft plan, which was released for public review and comment on March 3, 2026, marking a major milestone in the update process. The draft reflected extensive prior engagement, advisory board input, intergovernmental coordination, and initiated a formal public review period. Throughout the March to April 2026 review and comment period, staff collected, reviewed, and synthesized input from community members, advisory boards, and the four approval bodies. This included 287 online form submissions and 220 emails, as well as input gathered through public comment, study sessions, open houses, office hours, online engagement and the Equity Review Group meeting. Feedback was analyzed and used to identify refinements to the plan, including updates to policies, the Future Land Use Strategy, and plan organization and language. The recommended Future Land Use Map and Planning Areas Map were posted for public review on May 4, and the full recommended major update to the comprehensive plan was posted for public review on May 18. These reflect targeted revisions in response to this feedback while maintaining the overall direction established in the draft. The recommended plan remains available for public review through the adoption process.

Next Steps for City Council Following additional review by the other approval bodies as needed, City Council is scheduled to consider any remaining conditions or amendments on August 20, if necessary. Below are the scheduled dates for remaining public hearings to resolve conditions of approval and proposed amendments. •

August 13: Board of County Commissioners

• • •

August 18: Planning Board August 19: County Planning Commission August 20: City Council (if necessary)

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Attachments A: BVCP Amendment Tracking PDF