Matters Memo

City of Boulder City Council Agenda Item Meeting Date: October 15, 2026 Agenda Title Public Safety Building Relocation Options Analysis

Staff Contact • • • • • •

Michele Crane, Facilities & Fleet Deputy Director Joanna Crean, Facilities & Fleet Director Adam Goldstone, Facilities Principal Project Manager Steve Redfearn, Police Chief Krista Morrison, Chief Financial Officer Charlotte Huskey, Budget Officer

Executive Summary The purpose of this item is to provide City Council with an update on potential options to relocate and replace the current Public Safety Building (PSB). The current PSB is in decline with systems and equipment vulnerable to failure. The Recreation and Safety Bond Measure is being considered by the community to support up to $400 million in infrastructure investment and replacement of the PSB is a named project in the bond measure. Costs for replacement of the PSB at the current Municipal Services Center (MSC) site have been estimated at $170 million which includes extensive site infrastructure work that would be necessary. A new opportunity to either lease or purchase an existing building to house the Police Department (PD) and 911 dispatch’s needs have been identified which could drastically reduce costs associated with relocating PD from their current facility into one that could last long into the future. Staff are working quickly to evaluate this opportunity and the implications of moving in this direction rather than constructing a new replacement

building. Preliminary estimates of capital costs for leasing/purchasing and improving the existing building are significantly less than developing a new building at the MSC site. Staff are working quickly to better refine true costs associated with both lease and purchase options; however, the savings could exceed $90 million. Relocation of PD to this existing building could be an option to consider whether the Recreation and Safety Bond Measure passes or not, however without bond funding tradeoffs will need to be considered within the 2027 CIP and beyond to fund the project. After the results of the election are known, staff plans to bring more information forward for council consideration and direction.

Questions for Council 1. Does City Council have any questions or feedback on the public safety building relocation options analysis that has been presented?

Alignment with City Plans and City Council History Sustainability, Equity, and Resilience (SER) Framework and Citywide Strategic Plan Alignment SER Framework Goal Area Safe - A new PSB directly impacts the safety of the community and public safety employees executing their daily job functions. The wide variety of services and functions provided by the PD need to be performed from a secure and reliable building with adequate space to support all functions. This cannot be achieved in their current building. Responsibly Governed - Investing in building infrastructure that is necessary and capable of accommodating the staff and equipment to deliver services, programs and excellent customer experience, responsibly manages the city’s assets. Good buildings ensure that the city is a safe, resilient, equitable, and inclusive workplace. Citywide Strategic Plan City facilities connect directly or indirectly to many of the Citywide Strategic Plan goals since the staff and programs that provide services to the community are housed in city buildings. The most direct connection is to all strategies under the Safe category whose goal is to provide A welcoming and inclusive community that fosters positive neighborhood and community relations and ensures that all residents are secure and cared for during emergencies and natural disasters. Public infrastructure is wellmaintained and reliable, and natural resources like water, air, and land are protected. A new PSB directly impacts the ability to carry out the intentions of this goal area.

There is also a direct connection to strategy 10 which is to continue advancement toward the city’s goal of an 80% reduction in emissions. Specifically, within Strategy 10 is Priority Action 10(b) which is to prioritize climate-related elements in city-owned facilities and operationalize key climate-related elements of the Facilities Strategic Plan. A new PSB could also support Strategy 13 regarding employee retention, as many surrounding departments have modern facilities that have functioning amenities and provide the space for wellness and training.

Alignment with Additional City Plans The Facilities Investment Strategy (FIS) is the next step of implementing the 2021 Facilities Strategic Plan (FSP). The Boulder Valley Comprehensive Plan and the City’s Sustainability, Equity, and Resilience Framework are key governing documents and are complimentary with the FSP guiding principles. Other key policies and plans have been considered, including the racial equity plan and the Reimagine Police departmental plans. In addition, the FIS is connected to, building upon, and supporting the Long-Term Financial Strategy (LTFS). The LTFS is a two-year initiative and council priority that focuses on the development of a comprehensive financial strategy to help guide fiscal decision making and long-range financial health of the city. This multifaceted approach looks at revenue opportunities and services to address underfunded and unmet community needs. This FIS is interwoven with this larger financial body of work with an aim to reduce the total cost of owning and operating city buildings. The Reimagine Policing department plan seeks to transform how police serve and engage with the community. The goal is to move the department from a traditional model of policing that relies heavily on enforcement after crime has occurred to one that centers holistic problem-solving. It reimagines a policing model that emphasizes crime prevention and community-based solutions. Accommodating some of these shifts in how the department functions will be easier and more efficient in a newer, betterdesigned building.

City Council History The building that houses the police department was originally constructed in 1968 and purchased by the city in 1989 when the Police Department outgrew its location in the Boulder County Justice Center and relocated here. In 2005, an addition was constructed that added the underground firing range and an additional 10,000 sf of training and meeting space. Over the years, there have been many interior renovations to space and minor improvements made to keep pace with advancing technologies such as the Dispatch and real time information center functions and to help support shifts and growth in operations. This has carved up the building and exacerbated

challenges with repairing systems in the walls and ceilings, making it challenging to efficiently run the building today. Aside from these minor renovations, preventive maintenance, equipment and systems replacements have failed to keep pace with the 24/7 operations and heavy use by our public safety officers. The poor conditions of the current Public Safety Building were presented to City Council as part of the 2021 Facilities Strategic Plan (FSP) when the building was identified as the worst in the city’s 75 building portfolio. It was also in the FSP that the idea the PSB could relocate to the current MSC as part of the Consolidation Initiative was first presented as an option. Earlier this year at the April 9th City Council Study Session on the facilities investment strategy; staff provided an update on the building condition which had only declined since 2021 and identified it as a top priority building to address. This resulted in the building being a named project as part of the $400 million Recreation and Safety Bond measure.

Analysis Over the past several years, it has become increasingly urgent to evaluate all options for relocating our PD services and functions. Concerns about operating the current Public Safety Building continue to arise that make it unclear how long the reactive approach to fixing issues can last and at what cost. Large investments will be needed simply to keep the building operating while still not meeting the space and programmatic needs of the PD. Continued investment in this building does not make good fiscal sense. In parallel with public discussions around infrastructure improvements and ballot items this year, staff have continued to search for alternative solutions for PD. This work builds upon many years of work already conducted that defined the specific needs for the PD now and into the future and developed a holistic and more strategic approach for addressing several city buildings in decline that will offer a more sustainable future. A Brief History of Analysis Supporting Current Considerations It has been known for many years that the PD is outgrowing the space in the current Public Safety Building and that the building itself is in decline, falling behind in major infrastructure investments and in renovating space to meet current building standards. This awareness led to a consideration of relocating the PD and 911 dispatch to the current MSC as part of a redevelopment of that site which was called the Eastern City Campus (ECC) in the FSP. The concept of redeveloping this city-owned, roughly 25acre site emerged as several other buildings and department needs were surfacing alongside work supporting consolidation of services. In 2018, a Max Capacity Analysis, ATTACHMENT A, of the MSC site was developed and submitted to Planning & Development Services in the form of a Pre-Application Review to help inform what the total development potential was on this site. This included regulatory analysis of

floodplain considerations, land use, zoning, height limitations, etc. Development scenarios for the site, including a new PSB were created to test fit synergies, investigate and uncover technical challenges both on the surface and under the ground, identify costs and holistically understand what could be accomplished by re-envisioning this centrally located, large parcel of city-owned property. This work on the ECC was included in the FSP as a key piece of the Consolidation Initiative. The FSP identified continued development of a Consolidation Plan and Financial Strategy following acceptance. This work has continued and in 2024 an analysis of the conceptual reconfiguration of an East Campus to support consolidation that included financial cost analysis and phasing was in progress. This work was conducted as part of evaluating the merit of a Public-Private Partnership (P3) to help finance development of this site and other projects. ATTACHMENT B is a work product from that P3 evaluation that demonstrates considerations and a phasing approach for developing the MSC site along with costs. As a further continuation of these efforts, a Public Safety Building Options Analysis was conducted in 2022 to better understand the space needs of PD and assess the current PSB sites’ ability to accommodate those needs. The assessment confirms that a new site, whether at the ECC or not, is necessary to support PD’s needs both now and for the future. The report was never finalized, but a draft is provided as ATTACHMENT C. These reports and many other separate work efforts over the past several years have provided a foundation for the evaluation of options being presented and have informed development requirements on the MSC site, including what is needed for a new PSB in that location and cost estimations for the 2026 Bond Measure. Searching for Solutions for PD In 2025 staff conducted a search for lease space to support several PD functions and work groups that were outgrowing the current building and could possibly be separated out to another location. This search did not result in any viable options. Early in 2026 as staff prepared work for an update to City Council on the FIS, the urgency to continue to investigate multiple options for PD was even more apparent. Even if funding was made available for a full replacement building, design and construction would take at least five years in the most optimistic scenario and likely, it would be 7-10 years before PD moved out of their existing facility. In that time frame, significant investment would still be needed in the current PSB and there are concerns that this investment would not be able to rectify infrastructure issues and it would not be able to address space needs. Investing in leasing space for all of PD to move out of the current building could make more sense than investing in the current building while a

new replacement building was being designed and constructed. Furthermore, the current PSB site could be sold to help offset costs for relocating PD, either temporarily or permanently. A new search for lease space was initiated following the April 9th Study Session and this time that search identified a unique opportunity. An existing, vacant building has been identified, referred to as the Identified Existing Building (IEB) in the following evaluation, that appears to satisfy most of the very specific needs for PD. After an evaluation over the summer, staff have been actively negotiating on a letter of intent with current ownership to allow for time to conduct a more in-depth analysis of the suitability of the building in both a lease or purchase scenario and to better define the costs associated with improving this building to support PD. Options Analysis Staff have worked to identify and prioritize key criteria for a replacement building. These key factors are incorporated into the Relocation Comparison, ATTACHMENT D, along with the Key Performance Indicators identified in the FSP to show a side-by-side comparison of how a new replacement building compares with the IEB and the current PSB. The comparison shows that the IEB is a suitable alternative to a new replacement building. Staff are in the process of conducting a more extensive analysis of the IEB size and layout to “test fit” that it can accommodate the programmatic needs of PD and at what cost. Initial evaluation suggests that most programmatic needs could be met but some storage space and a gun range would need to be located elsewhere, likely at the MSC site in the future. Staff are also evaluating the physical building infrastructure to ensure it is in good condition and any equipment or systems that might need replacement are being incorporated into cost estimates. Preliminary estimates of capital costs for purchasing and improving the IEB are significantly less than developing a new building at the MSC site. Staff are working quickly to better refine true costs associated with both lease and purchase options; however, the savings could exceed $90 million for a few key reasons: 1. Site Investment: The site would require little improvement except for security features. This contrasts with development of a new site which would require underground utility work, earthwork, potential right-of-way investments, in addition to security features. 2. Building Reuse: The existing building is 20 years old and original development and construction costs were much less expensive per square foot as it was originally developed as a speculative office building. This is reflected in the current pricing due to prevailing market conditions.

3. Timeline: Renovation and reuse of the existing building would require a far less extensive regulatory process, likely only requiring a building permit in contrast to a site review process, tec docs and then a building permit. The design work associated with reuse is focused primarily on interior improvements rather than design of a brand-new building and site. The overall schedule for relocating PD from their current building to the existing building could be accomplished in roughly two years versus a 5 to 7-year development process. This reduces risk and cost with greater schedule predictability, staying ahead of cost escalation and limiting unknown construction risk factors associated with new development. This IEB, in particular, appears to meet the needs and requirements of the PD. Staff are still early in negotiations and conducting a thorough investigation, the results of which could dissolve the opportunity at some point for many potential reasons. It would likely be very difficult to identify an equal opportunity in the future should this one not materialize, and a new replacement building may still be the best solution.

Anticipated Fiscal and Workplan Impacts Fiscal Impacts Investment in the IEB would require far less capital investment, tens of millions less, than a new replacement building and the total cost of ownership would be close to equivalent to a new building. The capital funding approach is heavily affected by passage, or not, of the Recreation and Safety Bond measure in November. The bond measure would allow the city to borrow up to $400M for specific infrastructure projects. 1. If the bond passes: funding would be available to pursue either option of the remodeled building or constructing a new replacement building. Staff will continue to quickly develop the merits of both scenarios to help inform a final decision. Should the city decide to reuse the existing building which would likely result in much smaller capital cost for the PSB infrastructure project, funding could either be available for other projects or less money bonded all together. These options would all be presented to City Council later as more information is developed. 2. If the bond does not pass: the city would not have funding to pursue a new replacement building but could still consider investment in the IEB, either as a lease or purchase if funding can be identified. The pros and cons of a lease versus purchase would need to be more thoroughly considered alongside reconsideration of development schedule of other major capital projects being

advanced. If a decision to proceed with the IEB is made, approximately $3-6M annually will be needed to support renovation, lease or purchase debt payments. The proposed 2027 budget calls for $1.5M in 2027 for improvements in the current PSB and more than $6.2 million over the 6-year CIP period. This planned funding would be redirected to any of these new scenarios. The current PSB site could be sold to also support these options and these factors will be included in future funding analysis. Workplan Impacts The current workplan anticipates making infrastructure improvements in the existing PSB consistent with what is being brought forward in the 2027 proposed budget. Any of the scenarios discussed redirect staff workplans.

Equity Analysis The Racial Equity Instrument will be used to help further analyze the two options and will also be implemented to inform the final design of the chosen building.

Climate, Resilience, and Sustainability Considerations The public safety building is one of the largest contributors of greenhouse gas emissions (GHG), just behind Utilities process facilities and recreation centers. Moving from a building shell built in the 1960’s to a building exterior built in the 2000’s will have a significant positive impact on performance and comfort.

Staff are evaluating the IEB from a Climate, Resilience and Sustainability standpoint and in contrast to building a new replacement building which would be designed and constructed under future energy codes, likely to be equal or more aggressive than current codes. Reuse of this building would be considered an adaptive reuse of a structure, which saves significantly on embodied carbon. Some studies have suggested that the

embodied carbon in a building is about 10-20 years' worth of emissions (The Importance of Assessing the Carbon Footprint of Buildings). A 20-year-old building also suggests much of the major mechanical equipment would be nearing the end of its useful life. This can be looked at as either a liability or an opportunity to make meaningful energy upgrades as part of initial improvements in the building for PD. The building will not meet the city’s current energy goals as it likely has average energy performance that relies heavily on natural gas. If the city were to consider purchase of the building, an approach to converting equipment to electric and increasing energy efficiency can be incorporated into cost modeling. Converting this building to a higher performing building is likely achievable due to a building envelope constructed in the last 25 years, a modern electrical system and relatively accessible equipment (much of this is simply not possible in the current public safety building). Investments in energy efficiency make more sense in a PSB compared to an office building because it operates 24/7 and therefore energy investments pay back almost twice as fast as in other buildings. Other considerations that will be balanced as the design team more thoroughly assess the building to suit PD will include integrating complex public safety functions like the crime lab, dispatch, property & evidence. Code requirements could drive these spaces to use more outside air which will result in more energy consumption. From a resiliency perspective, the location is ideal for response and easy to provide generator power back-up, although this will also need to be accounted for in renovation costs. The location of the building allows for an opportunity for the building to become part of a future energy district (this is many years, possibly decades away) since this part of town has been identified as a good location for a thermal energy district.

Community Engagement The community has been informed of the issues with the current PSB and need for relocation. Community engagement is not anticipated if there is a decision to relocate PD to the IEB.

Next Steps for City Council Outcomes of the bond measure will heavily influence budget considerations that will be brought forward to council on this matter. Following an outcome on the bond, staff will prepare an options analysis which includes funding strategies for council consideration.

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Attachments A – 2018 MSC Max Capacity Analysis P&DS Pre-App B – P3 Analysis for MSC/ECC C – 2022 Public Safety Building Options Analysis D – Relocation Comparison Matrix