Matters Memo

City of Boulder City Council Agenda Item Meeting Date: December 11, 2025 Agenda Title Boulder Valley Comprehensive Plan Preliminary Policy & Land Use Direction

Staff Contact • •

Kathleen King, City Planner Principal, Planning & Development Services Brad Mueller, Director, Planning & Development Services

Executive Summary The purpose of this item is to share the latest progress on the major update to the Boulder Valley Comprehensive Plan (Comprehensive Plan or Plan) with Planning Board and City Council and collect policymaker feedback on preliminary policy direction and the future land use strategy. Preliminary direction for the plan represents a shift towards a clearer, values-driven framework that responds directly to what community members have said they want from Boulder’s future. Through the most inclusive engagement process in the plan’s history, including partnerships with youth, cultural organizations, affinity groups, artists, and a randomly selected Community Assembly, community members consistently emphasized their desire for stronger connections -- to nature, to opportunity, to daily needs and to one another. In response, the project team has developed a streamlined policy structure and a reimagined future land use strategy designed to be more flexible, outcome-oriented, easier to use, and now also aligned with the goals of the Sustainability, Equity and Resilience (SER) Framework. The December 11, 2025, study session is a key milestone in refining this direction. Feedback from City Council and Planning Board at this stage will guide drafting of the updated Comprehensive Plan, which is scheduled to be available to the community for review and feedback in March 2026.

Questions for Council Policy Section 1) Do Planning Board and Council have any questions about the community feedback and how it has informed the preliminary policy direction? 2) Do Planning Board and Council have feedback on the preliminary policy direction? Future Land Use Strategy Section 1) Do Planning Board and Council have any questions about the community feedback and how it has informed the preliminary future land use strategy? 2) Do Planning Board and Council have feedback on the preliminary future land use strategy?

Alignment with City Plans and City Council History Sustainability, Equity, and Resilience (SER) Framework and Citywide Strategic Plan Alignment The draft update to the Comprehensive Plan will establish overall citywide and/or valleywide policy direction related to all seven SER Framework goal areas. Staff continue to explore how the Plan can be organized to directly reflect the SER Framework and more clearly inform the Citywide Strategic Plan and individual department work plans. The County has also accepted these goals, for the purposes of this Plan. SER Framework Goal Area The draft update to the Comprehensive Plan reflects all SER Framework Goals.

Citywide Strategic Plan The update to the Comprehensive Plan will guide future updates to the Citywide Strategic Plan. Staff Notes N/A

Alignment with Additional City Plans The Comprehensive Plan will provide the overarching vision, goals, and policies that guide all other city plans, including subcommunity and area plans and department plans, Boulder municipal code updates, annual budget, and the Capital Improvements Program.

City Council History Boulder Valley Comprehensive Plan Memos & Study Session Summaries • • • • • • • • • • • • •

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Jun 1, 2023 Information Item: June 1, 2023: Information Item C - Schedule for Boulder Valley Comprehensive Plan Major Update Jul 25, 2024 Matters Item: Item 5A - Training & Pre-Update Overview of the Boulder Valley Comprehensive Plan Aug 22, 2024 Study Session: Item 1 - Boulder Valley Comprehensive Plan Update: Draft Scope, Schedule, Engagement Strategy Sep 19, 2024 Study Session Summary Memo: Item 3E - Study Session Summary: Comprehensive Plan Update: Draft Scope, Schedule, Engagement Strategy Nov 7, 2024 Matters Item: Item 6A - Boulder Valley Comprehensive Plan Update Process Subcommittee Representative Feb 5, 2025: 4-Body Working Session Memo: Boulder Valley Comprehensive Plan Update – Existing Conditions and Focus Areas Feb 5, 2025 4-Body Working Session Summary: 4-Body Policy Makers Working Session Summary Feb 27, 2025 Council Mid-Term Priority Projects Check-in: Council Midterm Check-in Mar 20, 2025 Information Item: Information Item A: Project Progress Update – Boulder Valley Comprehensive Plan Major Update May 22, 2025 Joint Special Meeting: Item 1A - 2025 BVCP Major Update Joint Working Session With Planning Board Jun 26, 2025 Joint Special Meeting Summary Memo: Item 2C - May 22, 2025 Study Session Summary Aug 28, 2025 Study Session Memo: Item 1 – Boulder Valley Comprehensive Plan Preliminary Analysis & Trade-Offs Oct 9, 2025 Study Session Summary: Consideration of a motion to accept the August 28, 2025, Study Session Summary regarding Boulder Valley Comprehensive Plan Future Land Use Nov 14, 2025 Information Packet: Boulder Valley Comprehensive Plan Summer 2025 Engagement Summary

Analysis The following information describes the latest progress of the major update to the Comprehensive Plan.

Purpose of the Major Update Opportunity to Re-envision the Comprehensive Plan after 50 Years The current Comprehensive Plan functions as a complex guiding document, containing more than 200 policies, maps, and supporting materials intended to reflect and balance the community’s diverse interests. While thorough and effective throughout its history, its current breadth and level of detail can make it difficult to identify clear priorities or understand the overarching direction it intends to set. This update draws inspiration from the original plan adopted in 1977 to re-establish the Comprehensive Plan as an aspirational document. The project team aims to create a plan that more clearly articulates a values-based direction for the future and provides a cohesive set of policies supported by an understandable approach to change. The goal is to strengthen the plan’s ability to serve as a unifying framework that guides long-term decision-making across the city and county. Policies and Future Land Use Designations are intended to be more integrated in this update and focus on what the vision is and why it is important, instead of how to specifically achieve it, which is more appropriate for future department work planning, budgeting, and implementation. This approach allows the plan to be more resilient to future societal, economic and environmental changes and allows policymakers, community members and city and county staff to use the best technology, tools and methods of the time to implement the vision.

How the Plan Is Used / How the Plan Could Be Used Feedback from city and county staff, policymakers, and community members has highlighted that the current plan can be challenging to interpret in practice. Because many policies attempt to balance or prioritize conflicting ideas, it is often difficult to determine how specific programs, projects, or development proposals align with the community’s vision for the future. This ambiguity can lead to inconsistent interpretations, confusion, or uncertainty in decision-making. A more streamlined and clearly articulated plan can provide a more accessible roadmap—one that allows policymakers, staff, and community members to understand how individual actions support shared goals. By clarifying the relationships between policies, future conditions, and community values, the updated plan has the potential to become a more practical and widely used tool for shaping growth, investment, and community initiatives. Note, that the Comprehensive Plan, as aspirational document, will not be free of potentially conflicting policies when applied to a specific case or geography. The Plan can effectively hold competing values that need to be reconciled for particular circumstances. This is not a weakness of community planning; it is the strength of the quasi-judicial decision-making process and other policy structures that embody local governance.

Who Will Use It The updated Comprehensive Plan is intended to be a foundational resource for a broad range of users. Policymakers will rely on it to guide decisions on land use, development, budgeting, and long-term planning priorities. City and county staff will use it to review proposed land use cases and shape additional plans, programs, services, capital projects and regulatory updates. Community organizations, partner agencies and local institutions may reference it to align their work with broader community goals. Finally, community members will be able to use the plan to better understand decisions being made, why certain actions are prioritized, and how they can participate in shaping Boulder’s future. By making the plan clearer and more accessible, the

update seeks to ensure it serves as a shared foundation for coordinated action across the entire community.

Community Leading the Direction A More Inclusive Process The engagement approach for this Comprehensive Plan update was intentionally designed to be the most inclusive effort to date. In addition to traditional methods such as open houses and surveys, staff partnered with organizations including CU Boulder, Growing Up Boulder, Once & Future Green, and YOUnify, as well as several local artists, to reach community members who have not typically participated in city processes. New tactics such as playback improv, Community Hosted Conversations, and the Boulder Valley’s first-ever randomly selected Community Assembly helped broaden participation and bring a wider range of perspectives into the discussion. This approach has generated useful input from a broad cross-section of the community. It has also helped build trust and spark interest in civic engagement among residents who are new to these conversations. For 77% of Community Assembly members, this was their first time engaging with the city, and 92% expressed interest in participating in future processes. Staff are now working to share clear pathways for continued involvement. Across events, the project team consistently heard an appetite to engage with the city and each other. At the Aug. 19 Community Hosted Conversations, one high school participant shared, “I loved talking with my peers about interesting topics such as hazards, real estate, and some of the largest issues in Boulder.” When asked what they loved most about the event, others responded, “Collaborating with others to solve problems,” “Lots of voices here!,” and “…getting to connect with new people and bond over problems in Boulder that are affecting all of us.”

More Inclusive Outcomes This intentionally broad approach to engagement has reconfirmed some community priorities such as a commitment to the natural environment and conservation of Boulder’s open spaces; support for innovation in addressing the changing climate; strong desire for robust mobility choices to move about the city comfortably and with a lower carbon footprint; and a desire for public spaces that are beautiful, clean and above all, safe. The engagement undertaken as part of this project has also revealed new community needs and interests. The future of the agricultural community in the Boulder Valley is of great concern to many. Water needs, farm worker housing and a desire to continue to expand access to local farming culture, all have driven new areas of exploration in this update. There’s also recognition among community members that there are people left out of Boulder – people who can’t access housing or are facing barriers to participation in the local economy. Community members are calling for innovative approaches to make Boulder a more inclusive and welcoming place at all stages of life. There has also been a shift in how the community wants to see neighborhoods evolve in the future. The recently completed statistically valid survey (survey) identified that about 75% of respondents favor increasing housing that is more affordable and allowing moderate-density housing types in more areas. Respondents also expressed openness to diverse housing

options, especially when located on underutilized sites within city limits. This is a substantial increase from results of a survey conducted as part of the last major update (2015) where support for such direction was more moderate. For a more in-depth review of the results of the survey and the companion online questionnaire, refer to Attachment D. The recently concluded Community Assembly also provided specific recommendations on 15minute neighborhoods, including a new definition: a diverse, inclusive, and connected community in which services and amenities are easily and equitably accessible within 15minutes from home for pedestrians of all abilities. Assembly members expressed a desire to see more of these types of neighborhoods in Boulder, as mixed-density and mixed-income places where people from different walks of life can encounter each other and all benefit from proximity to goods and services. Consistent with survey results, the Assembly also emphasized allowing in-home businesses. Throughout the process, there has been a current of community feedback around a singular and simple idea that is full of potential: CONNECTION. Community members want to connect to nature and experience the full breadth of Boulder’s unique setting while protecting precious resources. They want a connection to self and are looking for support to achieve their potential as residents, as workers, as students, as parents, as children and as people with unique backgrounds and cultures. They want the ability to connect to different places easily, safely, and in varied ways. They want the opportunity to deepen their connection to this community. More than anything, we have heard that people want to connect to each other. They want safe spaces to gather, celebrate, protest and learn together. They want to feel they belong at businesses, events, parks and council chambers. They want a trusted network of people, institutions, homes and businesses, rooted in their neighborhoods, that can be counted on during good times and hard days. This process has revealed that committing to building CONNECTION across the Boulder Valley is the path to realizing the vision of the Comprehensive Plan:

Our community works together to ensure everyone belongs, to create opportunities for all and to sustain the health of the Boulder Valley for future generations.

The project team has heard these voices and offers potential direction in policy and a future land use strategy that can build and strengthen these connections to nature, to opportunity and to one another over the next 20 years. For a full capture of the takeaways from community engagement completed to date in the planning process, please reference:   

Attachment D: Statistically Valid Survey Report November 14, 2025 Summer Engagement Summary Information Packet December 11, 2025 Community Assembly Recommendations and Report

Key Policy Direction The Comprehensive Plan sets policies that will guide choices in the Boulder Valley for the next 20 years. In this major update, policy direction is meant to be aspirational, striving for a better future that meets the Comprehensive Plan vision, incorporates community feedback and considers the context of our times and trends for the future. Comprehensive Plan policies are structured to respond to the city’s SER Framework. The following highlights a few examples of how key community feedback has informed policy direction under each of the SER goals. SER Goal – Accessible and Connected Our sustainable multimodal transportation system and open access to information connect people safely and seamlessly to each other and to opportunities. Community Member Feedback Community members identified Travel Options as a key area of focus early in the process, emphasizing the need for safe, accessible, and reliable ways to move around the city. Participants in the update consistently call for a more effective and trustworthy public transit system, along with expanded pedestrian and bicycle infrastructure. Many shared concerns about feeling unsafe while walking, biking, or using public transit. They also highlighted the environmental benefits of reducing car dependency. Through their feedback, community members clearly called for transportation solutions that promote safety, sustainability, and equitable access. Some Context The city has been tracking how residents and employees move in and around Boulder for decades. The proportion of residents moving in cars has steadily decreased since the 1990s and the proportion of people moving by bike has increased. The proportion of residents and employees traveling by bus hasn’t changed much since the early 2000s and we know that since the COVID-19 pandemic, fewer people are riding the bus today than they were five years ago. In 2023, 35% of all trips made by Boulder residents were made in single-occupant vehicles. Approximately 35% of greenhouse gas (GHG) emissions are attributed to motor vehicles and transportation-related sources are the second highest emitters after the commercial and industrial sector. Key Policy Direction While there are many Comprehensive Plan policies that address the community’s goals for an Accessible and Connected community, there are three important updates to highlight for Planning Board and Council feedback. The first directly focuses on a people-centered transportation network that prioritizes moving people over moving cars and provides varied transportation choices. This means that the planning, design, operation and maintenance of Boulder’s multimodal transportation system will focus on moving more people over moving more vehicles while improving infrastructure for walking, rolling, bicycling, scooting, taking transit, riding micromobility, and also for driving. The second centers around a joyful and communitycentered transportation system. This prioritizes an enjoyable, safe, fun and communitycentered experience for all members of the traveling public. This effort helps build a network of mobility choices that connect people and places, making traveling to and through Boulder a pleasant experience. A third update considers innovation in transportation and describes that

the city will invest in innovative transportation technologies, while ensuring affordable and equitable access to them. Together, these key updates to the Comprehensive Plan help move the community’s transportation network and variety of mobility options to a future where the choice to travel by modes other than cars are more attractive and enjoyable and where technological advancements in the field of transportation are within reach to all community members. SER Goal – Economically Vital Our economy is resilient, inclusive and driven by innovation and collaboration to benefit all who live, work and visit the Boulder Valley. Community Member Feedback Two major themes within this goal area have emerged in community feedback. The first is that many participants want to see more local and community-minded businesses integrated into Boulder’s economic ecosystem. Second is a desire to improve community members’ ability to build wealth and create opportunities for entrepreneurship. Community members recognize Boulder as an expensive place to be and want to find ways to build their own wealth to afford a quality life in the community. Additionally, there is some feedback indicating that though Boulder has world-class business and education networks, not everyone has been able to benefit from them. They called for more support to help all residents grow, innovate, and succeed in the community. Some Context There are approximately 8,000 employers and 95,600 employees in the city of Boulder, representing about 43% of employers and 49% of total employment in Boulder County. Most businesses in Boulder are considered small businesses as 90% of them have less than 20 employees. Small businesses in the community represent many different industries, from retail to manufacturing to design and engineering to health and wellness. A diverse mix of businesses is an important piece of a resilient economy. When a community is too dependent on a single or a few industries, a downturn in that sector can lead to major unemployment. A diverse business mix also creates employment opportunities for a wide range of people with different skillsets, helping to keep unemployment rates low. Fostering a diverse business community means that Boulder has to offer diverse spaces for that business activity. Just like housing, space to do business in Boulder can be more expensive than in other communities. The local rent for commercial real estate in Boulder is typically higher than the average for the county. Creating more flexibility in allowed uses across the city can open up more and different kinds of spaces that might suit the wide variety of businesses and entrepreneurs that want to be located in Boulder. Despite the cost, the availability of business space in Boulder is relatively competitive. While there have been increases in vacancies since the COVID-19 pandemic for all types of spaces, office space has experienced the highest increases. The office vacancy rate in downtown Boulder is around 29%. A “healthy” vacancy rate in a city is typically between 5%-10% allowing for sufficient availability while maintaining demand. Boulder’s current office vacancy rate is similar to many downtowns across the country. Higher vacancies mean fewer people in the area, supporting businesses like restaurants and shops, providing opportunities for social interaction, and creating a vibrancy that makes people feel safe in public spaces.

One change impacting the use of office space is how business is done, offering previously office-based workers the option to work remotely (outside the office) for part or all of their scheduled work hours. This transition has been taking place since the early 2000s and became much more common during the COVID-19 pandemic. Many industry leaders anticipate the future of the workplace will continue to be more flexible with more workers working from home than in the past. This means the community may need to re-envision how spaces previously used for offices might be reused for more and different things in the future. Key Policy Direction Although Boulder faces some economic challenges, community members see great opportunity in the local economy. Continuing to support the University of Colorado and Federal labs, along with resources for business and a collaborative business environment, will help ensure Boulder is a place where innovation can thrive. One key direction for economic policy concerns where business can take place. Support for small-scale commercial activity in residential areas opens up new opportunities for home-based businesses, accessory commercial units or other live-work forms that offer affordable options for local businesses, cottage industries and creatives. Nearly 9 out of 10 respondents to the survey supported allowing small-scale, neighborhood-serving businesses in residential areas, either throughout them or in specific locations like near transit stops. This concept can create new opportunities for neighborhood vibrancy, while important community destinations such as Downtown and the Hill, continue to be critical to the overall economy. These areas can evolve by embracing local culture and offering more opportunities for a segment of the economy based on in-person experiences. Reducing barriers to experiences that enhance cultural life and strengthen local businesses while ensuring that the positive impact of tourism flows back to community members will help address community members’ interests and concerns about the future of Boulder’s economy. Additionally, expanding the city’s options for tools and strategies to ensure the future health of the local economy will allow for new mechanisms for financing and management. SER Goal – Environmentally Sustainable Our community lives in balance with nature by committing to clean energy, conserving resources and improving the ecosystems that support and sustain us. Community Member Feedback Throughout the process, community members have provided a great deal of feedback on the desire for the Comprehensive Plan to address the valley’s natural resources and changing climate. Eighty percent of participants in the survey indicate that it is essential or very important to protect and enhance the natural environment. Comments collected represent interests in climate change mitigation and adaptation, natural resource protection, and building resilience into many aspects of planning for the future. Some Context A unique feature of the Boulder Valley is its commitment to preserving and maintaining open space areas. These open spaces provide opportunities for recreation and retreat but also protect natural ecosystems, support regional biodiversity and preserve local agriculture. Open space lands increase community resiliency by protecting floodplain areas, acting as a carbon sink and retaining soil moisture to help defend our region from the worst impacts of climate change. Boulder was the first community in the country to implement a self-tax to fund the creation and maintenance of open space. Boulder Open Space and Mountain Parks (OSMP) preserves and manages 46,600 acres of land surrounding the city. One-third of OSMP land

(16,000 acres) is leased by partner ranchers and farmers, increasing local food production and supporting the health of native grasslands and wetlands. With over 155 miles of designated trails, and 6 million annual visits, this land is important to support the health of the community in the Boulder Valley. Boulder has aggressive targets to take action that will help the community adapt to a changing climate and mitigate future damage from greenhouse gas (GHG) emissions. The city is targeting a 70% reduction in GHG emissions by 2030 and is working to become net-zero by 2035, which means actions in the next ten years are essential. Key Policy Direction Continued conservation and management for the Boulder Valley’s open space lands remains a hallmark of Comprehensive Plan policy. New considerations for these lands address the future of agriculture, promoting sustainable and regenerative practices on open space lands and identifying avenues to offer the agricultural workforce additional support. In more urbanized areas, a number of concepts are addressing issues of nature in the city, including the pursuit of a nature everywhere policy, offering equitable access for community members to live with, learn from and play within natural places. Additionally, concepts for urban natural infrastructure and greenways call out these assets as key components of the community’s natural systems and essential for community resilience in the face of a changing climate. SER Goal – Healthy and Socially Thriving Our community nurtures well-being where everyone can meet their needs, champions human rights, and offers rich opportunities to learn, create, connect and enjoy life. Community Member Feedback Community members have described needs to support a more diverse community, including finding ways to foster belonging, support health and wellness, and strengthen social connections. Written and recorded feedback frequently touched on related themes, including the protection of diverse communities, the need for more gathering places other than work or home often referred to as “third spaces,” family-friendly housing, and broader efforts to increase affordability. Historically marginalized groups have voiced a strong need to be heard by the government, noting that past engagement efforts often ignored their perspectives. This feedback underscores the need for a community where everyone feels supported and that they belong. Some Context The Boulder community has changed over the past 10 years. The proportion of the county’s population living within Boulder city limits has gone down as nearby towns like Longmont, Lafayette, Louisville and Erie experience new development and population growth. The population of these neighboring communities have higher proportions of children under the age of 18 than Boulder does, causing the demand for the Boulder Valley School District to consider how to best plan for the evolution of the district and its facilities. The county population between ages 20-39 is also projected to decline over the next 20 years. While the community’s younger populations are declining, the proportion of the community over age 65 has grown and is projected to continue to make up a greater proportion of Boulder’s population. The county population over age 80 is projected to grow 220% by 2050. Planning for

this evolution includes thinking about how our neighborhoods can evolve to be more ageinclusive, including providing the housing options and infrastructure that support the needs of families with young children, young adults and older adults. At both the county and city levels, recent census results demonstrate that Boulder’s population has become more diverse over the past 10 years. As people from different lived experiences move to the Boulder Valley, finding ways to make the community supportive and offer opportunities for people of all backgrounds will continue to be a priority. Key Policy Direction A new concept to the Comprehensive Plan is the support for social infrastructure, encouraging spaces, programs and institutions throughout the city that offer social places for interpersonal connections, belonging, well-being and community cohesion for people of all cultures, generations, backgrounds and abilities. One path towards (re)building a social infrastructure network is the evolution of the walkable neighborhoods (also referred to as 15minute neighborhoods) concept, informed by the Community Assembly, where community members of all abilities can enjoyably and equitably access daily needs, connect with others and experience nature within a short walk. Additionally, updates to policy around arts and culture investments highlight opportunities to reflect the cultural and linguistic diversity of Boulder’s community members. SER Goal – Livable Our community is a great place to live, with safe well-built homes and buildings, and well-maintained infrastructure that supports the diverse ways people live, work, learn and play. Community Member Feedback A top area of interest, many community comments have identified local housing challenges as a priority to address in this major update. Concerns for housing affordability and availability are a driving force with community members describing a lack of housing opportunities through an individual’s lifetime, including those who would like to remain in Boulder as they grow older. The survey indicates that three-fourths of participants support increasing housing that is more affordable, allowing moderate-density housing types in more areas and encouraging the use of underutilized sites within the city before developing areas outside the city boundary. Some community members also voiced concerns about managing population growth, large residential buildings, change in quality of life, and change in established residential neighborhoods and rural areas. Some Context Within the city’s service area, there are approximately 53,000 homes. About half (48%) are condos or apartments, 40% are single unit detached homes, a little less than 10% are single unit attached homes like townhomes or triplexes, and manufactured housing make up 2.5% of the total housing stock. Over the last ten years, the city’s affordable housing goals have produced affordable units at a high rate. Thirty-seven percent of all new housing developed in the city over the past decade is permanently affordable. Today, the smaller housing types like apartments, condos, townhomes and triplexes are not widely distributed and are typically concentrated in places like downtown, the Hill and around major transit facilities. This aligns with how land use is described in the last update to the

Comprehensive Plan, where the majority of land in the city is designated for low density residential housing types. Recent zoning updates have expanded the types of housing and how much can be developed in these areas, but the Comprehensive Plan has limited how neighborhoods can evolve in the future by establishing low density limits and describing a limited set of uses. At the state level, recent legislation requires new minimums for density near transit corridors that in some cases surpass the limits set by the Comprehensive Plan. Despite Boulder’s evolution and the change in population across the Front Range over the last 50 years, the density descriptions in the Comprehensive Plan Land Use Designations have not been updated since the 1977 plan. This update offers an opportunity to rethink these limits, both to meet state regulations and to deliver the greater variety and choice of housing in Boulder that was originally described in the first Comprehensive Plan policy:

“The City and County, through their land use regulations and incentive programs, shall encourage the private sector to provide a mixture of housing types with varied price ranges and densities, which attempt to meet the needs of all elements of the Boulder Valley population."

Key Policy Direction Housing affordability and diversity was a major focus area of the 2015 comprehensive plan, leading to new programs, policies, and many code changes. In this major update, there are new and on-going key concepts offered for Council and Planning Board’s consideration. The first is a clear commitment to increasing the housing supply in the Boulder Valley to contribute to regional housing needs. The second commits to increasing diversity of housing types across the city, to enable people to remain in the community as their needs, incomes and household compositions change over time. Additionally, continuing to strengthen city/county collaboration around policy to help people experiencing homelessness move into safe housing and help them stay housed remains a priority. The city and county have already built a strong foundation by providing comprehensive support services, behavioral health assistance, community building and opportunities for social integration. This work, along with associated policies, should continue to evolve to better support these community members. SER Goal – Responsibly Governed Our government serves with integrity, manages resources wisely and makes decisions shaped by data and inclusive community voices, including those historically left out. Community Member Feedback While governance issues have not been among the top priorities for the community overall, the management of community resources, particularly water supply, has been an issue raised by some community members throughout the process. Other topics of community interest under this SER goal include municipal spending and maintenance of infrastructure, particularly roads, and a desire expressed especially by youth and local indigenous peoples for more meaningful opportunities to engage with the city and county.

Some Context Boulder’s water supply planning looks 50 years and more ahead to ensure future water resourcing needs can be met. This approach requires making informed assumptions about many unknowns, including future climate conditions, potential for changes in Colorado River management that could reduce allocations to Front Range communities like Boulder, and how land use and water demand may evolve within the city. Across the city’s utility system, roughly half of the water distributed is used outdoors, supporting private landscaping and gardens, city parks and urban tree canopy. Future modeling indicates that a reduction in outdoor water use may be necessary to help adapt to climate change impacts. Reducing the amount of water for outdoor irrigation would result in shifts from Boulder’s current landscape to more climateadaptive and water-wise alternatives. That kind of shift would need careful consideration to balance water needs with recreation, cooling and quality of life benefits. While the spirit of equity has been valued in prior versions of the Comprehensive Plan, the concept has not been specifically recognized. The city and county have made concerted efforts in the past 10 years to address racial equity and dismantle institutional and systemic racism in the community. The city’s Racial Equity Plan was adopted in 2021, leading to the establishment of the Office of Equity and Belonging and the creation and use of a variety of equity assessment tools used throughout the city organization. Key Policy Direction The current Comprehensive Plan includes key policies that promote efficient use of land and resources in the Boulder Valley. The project team recommend keeping these foundational policies in place to continue to guide how the community manages change, including directing new urban development to Area I and requiring annexation before urban facilities and services are provided. Additionally, Comprehensive Plan policy directs new development or redevelopment to pay its own way, including the costs of providing needed facilities and equitable share of services. Related to water supply and growth management, a water resource planning policy directs the city to use a variety of strategies to meet municipal and open space water resources and agricultural goals. It also ensures that the city can achieve water supply reliability criteria through water supply and demand management while balancing in-stream flow maintenance and preservation of sustainable agriculture. Additionally, aligned with the Responsibly Governed SER goal, boards, commissions and council will consider a new overarching policy that directly speaks to equity, racial justice and social resilience aimed at dismantling institutional and systemic racism and ensuring that all voices, experiences and needs of community members are fully and equitably heard and considered, including those who have been historically excluded from local government. SER Goal – Safe Our community is welcoming and inclusive, ensures everyone is safe and cared for during emergencies and in day-to-day life and provides reliable infrastructure to keep our air, water and land clean. Community Member Feedback Safety has been a top concern for community members and the issue touches multiple arenas, including transportation, public spaces, housing, and resilience to climate change impacts. Hazard preparation and resiliency is an area of concern for 91% of survey participants. Eightyeight percent identified safety of pedestrians and bicyclists as an area for concern. To address these concerns, community members describe a need for the design and care of infrastructure

and public spaces to reflect the range of diverse needs of the people using them. Public spaces should enhance community trust and strengthen social fabric through shared care, cultural and historic understanding, and inclusive activities. These approaches help create a stronger sense of safety for all community members. There is also interest in supporting the mental health and wellness of community members who are suffering or have been fatigued by multiple local crises. Some Context The city’s 2023 Community Survey revealed that perceptions of safety in the community have declined since the prior survey in 2018, particularly for the downtown area. However, notable decreases this year in violent and property crimes indicate improvements in criminal activity around the community. The Boulder Police Department (BPD) participates in the stratified policing crime reduction strategy to conduct evidence-based resource allocation and identification of concerning patterns and locations. As part of the Reimagine Policing plan, BPD also regularly hosts and joins events like the eight-week BPD Community Academy, coffee with a cop events, neighborhood safety meetings, Boulder Pride Festival, National Night Out, and many other events for BPD community liaison officers to engage with underrepresented populations. Related to transportation, crash data indicates that 67% of traffic crashes that result in serious injury or fatality occur on Boulder’s arterial streets. In response, the city is focusing its investments and resources to design and construct improvements on the Core Arterial Network , a connected system of protected bicycle lanes, intersection enhancements, pedestrian facilities and transit facility upgrades that will help reduce the potential for severe crashes and make it more comfortable and convenient for people to get where they need to go along Boulder’s main corridors. Climate impacts have had serious effects on community safety. Over 1,000 homes in the Boulder Valley and neighboring communities have been lost to local wildfires since 2016. Portions of Boulder are within the wildland-urban interface, or WUI. This is the area where human development and undeveloped wildland meet and is a common term in areas that experience wildfire. Because portions of Boulder are within the WUI, wildfires are one of the community’s biggest risks. Other serious impacts of climate change that the city and county continue to plan for include extreme heat and drought, high wind events, and significant flood risks. Key Policy Direction There are a number of policy updates and new policy direction for Planning Board and City Council’s consideration related to safety. First, although the comprehensive plan has referenced Vision Zero in the past, until now it has not defined Boulder’s understanding of Vision Zero: the city and county aim to reduce the number of traffic-related fatalities and serious injuries to zero. Community safety is prioritized by employing holistic problem solving and crime prevention strategies to support a safe community and participation in active public life. To address resilience in the face of future wildfires, the city and county will collaborate on a fire adapted community policy by integrating wildfire resilience throughout the Boulder Valley and working to reduce risk, enhance safety and plan for efficient and effective response and recovery.

Policy Next Steps The above descriptions highlight some key policy updates and do not include an exhaustive list of all policies and upcoming revisions. City and county staff continue to collaborate on a unique set of policies that will serve the community and guide decision making for the next 20 years. The project staff also continues to collaborate with community members to analyze how updated policies work towards the city equity goals. To review a sample of the application of the Racial Equity Rapid Assessment Tool and feedback from Community Connectors-in-Residence on some policies, see Attachment C. Project staff will use Planning Board and City Council feedback to continue to build on this work in progress. Community members and policymakers can expect to see the full set of Comprehensive Plan policies with the release of the draft plan in March 2026. _______________________________________

Land Use as a Tool for the Future At August study sessions, Planning Board and City Council reviewed a new direction for the Boulder Valley Comprehensive Plan Future Land Use Map and associated Future Land Use Designations and expressed support for revisions to the tool that would offer greater clarity and flexibility than the current map and designations. After engagement with the community, multiple city boards, Boulder County Planning Commission and the Board of County Commissioners, staff have made the following revisions to the Future Land Use designations to better align with community feedback, policy direction and the SER framework: 1. Revisions to Neighborhoods and Hubs designations that allow for more organic, smallscale, and community-driven commercial activity to take place throughout the city, without identifying particular sites or intersections, as previously described in a ‘Local Hub’ designation. 2. The addition of a Civic Hub designation that considers how civic sites can evolve into the future to offer more amenities and opportunities for social connection and safe, welcoming spaces. 3. The creation of a Greenways designation that intentionally defines and conserves these unique community assets and helps city staff collaboratively manage the future of these spaces. 4. The consolidation of land designations in unincorporated Boulder County to provide greater clarity and reinforce the commitment that Rural Lands outside the Open Space system will continue to support local food systems, land based economic activities and cultural heritage while helping to prevent sprawl and leapfrog, non-contiguous or scattered development. 5. The addition of Mobility features for each designation to further strengthen the relationship between land use and transportation planning functions within the city and county and support greater coordination with regional partners, such as RTD. The updated Future Land Use Strategy includes the following future land use classes and designations (more details and definitions can be found in Attachment A):

In addition, city and county staff are preparing language that will clarify how the future land use designations will apply to unincorporated lands, especially in Area II. The intent of this text is to establish expectations that county zoning and planning processes will continue to govern land use decisions in Area II lands. In the event that those areas are incorporated and annexed into the city, then the more urban-oriented land use designations described above would apply.

Making the Map The Boulder Valley Comprehensive Plan Future Land Use Map (Map) depicts a plan of the desired future land use pattern in the Boulder Valley. It represents a vision for how places within the community will evolve over time. The map is not regulatory but offers guidance for some zoning decisions and is considered in development review processes. The proposed land use strategy represents a shift from the fine-grained approach to managing urban land uses depicted in the current Comprehensive Plan to considering broader applications of designations that allow for a wider range of uses and activities. This approach means that significant revisions to the map are currently underway through a collaborative process between city and county cross-department staff and community members. Proposed Map revisions include: 1. Aligning the 26 designations of the previous version of the map to the 13 draft designations, where appropriate. 2. Using community feedback collected at the September 9 Community Workshop, September 12 Community Connectors-in-Residence meeting and October 7 CU Boulder

Environmental Center Workshop to identify and refine areas for Hubs and Neighborhoods. 3. Using multiple data sources and employing a cross-department team to more accurately map Open Space, Parks and Greenways systems. 4. Creating opportunities to further realize recently adopted state legislation. 5. Incorporating opportunities to implement updated and new draft policies of the Comprehensive Plan, as informed by community and policymaker input.

Proof of Concept Attachment B to this memo is a “proof of concept” diagram depicting the work-in-progress map. This does not represent a draft version of the Future Land Use Map. Many details are still inprocess. The diagram represents a working version of ongoing edits and should be used as an example of how the proposed designations may apply to the Future Land Use Map. A complete draft version of the Map will be available with the release of the draft Comprehensive Plan in March 2026. This working diagram indicates that the proposed Future Land Use Strategy can offer the following benefits over the previous version of the Map and associated designations: 1. More clearly describes a vision for the Boulder Valley, indicating key centers of activity, like Regional and Community Hubs while communicating which lands will be reserved as community assets, such as Open Space. 2. Defines a unified vision for areas at a neighborhood scale while offering a variety of choices for redevelopment at the parcel level. 3. Expands opportunities for diversifying housing and business locations throughout the city. 4. Distributes opportunities for change more equitably across more areas of the city. 5. Defines a vision where land use, mobility networks, and policy direction are planned in concert. The team will continue to model land use changes and evaluate how they can influence the capacity for population growth, residential units, non-residential space, CO2 emissions, transportation, waste, water use and energy use. Modeling results will influence the draft map and any policies necessary to mitigate impacts of land use choices.

Key Milestone This December 11, 2025 joint study session of Planning Board and City Council is a key milestone in the planning process. Staff will use feedback from policymakers at this session to move into Phase 4 of the project and begin drafting the updated Boulder Valley Comprehensive Plan. This session is the best opportunity for policymakers to identify red flags and any major perceived gaps in policy direction and to offer feedback that can be incorporated into the draft plan. The draft plan is scheduled to be shared with the community for review and feedback in March 2026.

Anticipated Fiscal and Workplan Impacts There are no anticipated fiscal or workplan impacts related to this item at this time.

Equity Analysis For this project, the project team applied the City of Boulder’s Rapid Response Equity Assessment Tool to evaluate how a selection of preliminary Comprehensive Plan policies and land use designations may affect racial equity and historically excluded communities. This tool guided a structured analysis focused on identifying who benefits, who may be burdened, who may be missing from the policy’s assumptions, and what unintended consequences could arise. The assessment emphasized high-level policy intent (the “what” and “why”) rather than implementation details, ensuring the analysis remained aligned with the Comprehensive Plan’s purpose. The equity analysis showed that the policies with the greatest potential impact, positive or negative, on communities of color include those related to racial justice, housing access, displacement prevention, workforce opportunity, nature access, and community safety. These policies could significantly benefit historically excluded residents by increasing access to stable housing, improving connectivity to services, expanding economic opportunity and creating more welcoming and culturally responsive public spaces. At the same time, without intentional design, certain policies could inadvertently reinforce disparities. For example, if investments in natural spaces or commercial activity are concentrated in higher-income areas or if redevelopment pressures intensify, opportunity inequalities and/or displacement could be worsened. The findings from this analysis directly shaped the direction of the Plan by helping identify which draft policies warranted deeper community engagement, particularly with the city’s Community Connectors-in-Residence and staff affinity groups. Additionally, the analysis identified where revisions were needed to strengthen equity outcomes. As a result, staff selected fifteen priority policies for facilitated discussion and invited written feedback on all other draft policies that were run through the equity tool to ensure a more inclusive and representative planning process. This equity analysis ultimately helps ensure the Comprehensive Plan update advances a more just and equitable future for the Boulder Valley. See Attachment C for equity policy analysis.

Climate, Resilience, and Sustainability Considerations Climate, resilience and sustainability considerations have been highlighted throughout this memo.

Community Engagement The community engagement process and community feedback is documented in the November 14, 2025 information packet and has been highlighted throughout this memo. Attachment D includes the findings of the statistically valid survey and companion online questionnaire.

Future Engagement The project is entering the final phase of the process, A Boulder Future. The draft plan will be available online for at least 30 days from early March to early April. During that period, community members can provide feedback through an online comment form or by emailing staff. A community event will be held at the Dairy Arts Center on March 10 to celebrate this milestone, share key elements of the plan, and highlight the ways to offer input.

Throughout March, the project team will also have a few focused meetings. These include a session with the Youth Opportunities Advisory Board to explain alignment with Child Friendly City Initiative priorities; a meeting with the Community Connectors-in-Residence on how their feedback shaped the draft and next steps; and discussions with partner agencies. The team will also reconnect with Community Assembly members to explain how their recommendations are reflected in the draft plan. Additionally, staff will be presenting the draft plan to city boards, Boulder County Planning Commission and Board of County Commissioners. All feedback collected on the draft plan with be shared with policymakers as part of the adoption process beginning in early June.

Next Steps for City Council Planning Board and City Council will each host public hearings on two items related to the Comprehensive Plan update in January 2026. The following descriptions offer a brief overview of the purpose of these hearings and role of the bodies for each item. Area III-Planning Reserve Community Needs Assessment Review The Service Area expansion process that would allow the ability to change lands in the Area IIIPlanning Reserve to Area II, and enable annexation, requires three steps. Step 1, preparation of an Urban Services Study, was completed in late 2024. At that time, both bodies determined there was interest in considering Service Area expansion as part of this Comprehensive Plan update. This decision initiated Step 2 to identify priority community needs through the update process and evaluate them against three criteria. Public hearings on January 15 (City Council) and January 20 (Planning Board) are required to review the community needs and for each body to determine whether the needs are of sufficient priority to warrant preparation of a Service Area Expansion Plan (Step 3). If the needs are determined to be of sufficient priority, City Council and Planning Board may direct staff to schedule a future meeting to consider initiating a Service Area Expansion Plan for the Area III-Planning Reserve (Planning Reserve). If either body determines the identified needs are not of sufficient priority, the Area III-Planning Reserve process will pause and may be reconsidered during the next mid-term or major Comprehensive Plan update. More details on the process will be provided during the January 15 meeting. Community Change Request Screening During each Comprehensive Plan update, property owners and community members may request changes to the policies, future land use map, and Planning Areas (Area I, II, III) map in the plan. Community Change Requests for this update were accepted from August 11 through October 10, 2025. Public hearings on January 15 (City Council) and January 20 (Planning Board) are required to consider all requests for changes, together with the staff recommended list, and determine which requests should be considered further as part of the Comprehensive Plan update. The bodies are not deciding in January whether the requested change should be

made, but instead only if the submission warrants additional analysis and consideration. Requests for changes that concern Boulder County will be reviewed at public hearings on January 21 (Planning Commission) and January 27 (Board of County Commissioners). Upcoming Meeting Dates and Milestones The table below outlines remaining meeting dates for the four policy-making bodies: City Council, Planning Board, Board of County Commissioners, and Boulder County Planning Commission. Staff are providing this summary to help policy makers anticipate upcoming discussions and understand the timing and focus of each meeting. It is also intended to help the adopting bodies anticipate key milestones as staff finalize the draft Comprehensive Plan update.

2025 Date

Bodies*

Dec. 16

BOCC

Dec. 17

PC

Meeting

What to Expect County will focus on preliminary policy and land use direction where they apply specifically to the county. See above

2026 (dates tentative and subject to change) Date

Bodies*

Meeting

What to Expect

Jan. 15

CC

Public Hearings: Area IIIPlanning Reserve Community Needs Assessment and Community Change Request Review

- Review community needs and determine if they are of sufficient priority to consider a Service Area Expansion Plan (Step 3 of Area III-Planning Reserve process). - Review Community Change Requests and determine which should be considered further as staff draft the Comprehensive Plan update.

Jan. 20

PB

Public Hearings

Jan. 21

PC

Public Hearing

Jan. 27

BOCC

Public Hearing

Mar. 26

CC & PB

Joint Study Session: Draft Plan & Land Use Map Review

Early Apr

CC, PB, BOCC, PC

4-Body Informational Meeting

Same two items as the Jan. 15 meeting above. Review Community Change Requests that apply to Boulder County Same item as the Jan. 21 meeting above. Last opportunity to provide significant feedback on draft plan and future land use map before adoption cycle. Draft is anticipated to be available for community review from March 2-April 3. Last opportunity to provide significant feedback on draft policies and future land use plan elements that apply to both the city and county.

Jun. 4

CC & PB

Jun. 16

PB

Joint Public Hearing (hearing only, no deliberation or vote) Deliberate & Vote

Jun. 18

CC

Deliberate & Vote

Jul. 15

PC

Public Hearing

Jul. 21

BOCC

Public Hearing

Review final plan and future land use map and receive community feedback through the public hearing. Discuss and vote on final plan and future land use map. Discuss and vote on final plan and future land use map. Review final plan policies and future land use map elements that apply to Boulder County, receive community feedback through the public hearing, and discuss and vote on final plan. Same item as the Jul. 15 meeting above.

Bodies* CC = City Council PB = Planning Board PC = Boulder County Planning Commission BOCC = Board of County Commissioners

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Attachments A. Land Use Strategy B. Proof of Concept: Future Land Use C. Racial Equity Rapid Assessment: Policy Analysis D. BVCP Statically Valid Survey Report