Agenda Memo

City of Boulder City Council Agenda Item Meeting Date: October 1, 2026

Agenda Title Introduction, first reading, and consideration of a motion to order published by title only Ordinance 8774, rezoning approximately 3.72 acres of land located at 2106 and 2130 Arapahoe Avenue, an adjacent 0.03-acre portion of Marine Street, and a portion of adjacent Arapahoe Avenue Right-of-Way from the Public (P) to the Residential – High 5 (RH-5) zoning district; a portion of adjacent Arapahoe Avenue Right-of-Way from the Residential – High 2 (RH-2) to the Residential – High 5 (RH-5) zoning district; and a portion of adjacent Arapahoe Avenue Right-of-Way from the Residential - Mixed 1 (RMX-1) to the Residential – High 5 (RH-5) zoning district as described in Chapter 9-5, “Modular Zone System,” B.R.C., 1981, and setting forth related details. Reviewed under Case number LUR2025-00034.

Staff Contact •

Chandler Van Schaack, Principal Planner, Planning and Development Services Brad Mueller, Director, Planning and Development Services

Draft Motion Language Staff requests council consideration of this matter and action in the form of the following motion: Motion to introduce and order published by title only Ordinance 8774 rezoning approximately 3.72 acres of land located at 2106 And 2130 Arapahoe Ave., an adjacent 0.03-acre portion of Marine Street, and a portion of adjacent Arapahoe Avenue right-ofway from the Public (P) to the Residential – High 5 (RH-5) Zoning District; a portion of

adjacent Arapahoe Avenue right-of-way from the Residential – High 2 (RH-2) to the Residential – High 5 (RH-5) Zoning District; and a portion of adjacent Arapahoe Avenue right-of-way from the Residential - Mixed 1 (RMX-1) to the Residential High – 5 (RH-5) Zoning District as described in Chapter 9-5, “Modular Zone Systems,” B.R.C. 1981, and setting forth related details.

Executive Summary The purpose of this item is for City Council to consider a request to rezone approximately 3.72 acres of land located at 2106 and 2130 Arapahoe Avenue, an adjacent 0.03-acre portion of Marine Street, and a portion of adjacent Arapahoe Avenue Right-of-Way from the Public (P) to the Residential – High 5 (RH-5) zoning district; a portion of adjacent Arapahoe Avenue Right-of-Way from the Residential – High 2 (RH2) to the Residential – High 5 (RH-5) zoning district; and a portion of adjacent Arapahoe Avenue Right-of-Way from the Residential - Mixed 1 (RMX-1) to the Residential – High 5 (RH-5) zoning district. Reviewed under application LUR202500034. The applicant is requesting the proposed Rezoning concurrent with a Site Review application (LUR2026-00003), which council is being asked to consider for callup under a separate agenda item.

Council Action Options Option

Outcome

Introduce and motion order published by title only Ordinance 8774.

If the ordinance is introduced and ordered published by title only, second reading of the ordinance and a public hearing will be scheduled on October 15, 2026, to consider action on the rezoning ordinance.

No action is taken on Ordinance 8774

The rezoning process ends.

Key Issues Staff has identified the following key issue to help guide council’s discussion: 1.

Is the rezoning request consistent with the Rezoning criteria in Sections 9-219(e), B.R.C. 1981?

Background Property Description & Site Context The 2106 and 2130 Arapahoe Ave. property is currently one of the two campus locations of Naropa University (Naropa), a private, nonprofit liberal arts institution. The approximately 3.7-acre (161,909 sq. ft.) property is located at the intersection of Arapahoe Avenue and 21st Street, and it is adjacent to the northern edge of the University of Colorado campus. The area west of Naropa and south of Arapahoe Avenue, zoned RH-1, is a mix of small businesses and multi-unit housing; much of the multi-unit housing is student-oriented. To the north of Arapahoe Avenue is the GossGrove neighborhood, an RH-2 and RMX-1 zoned area of mixed density housing with many single-unit residences that are one to three stories in height. There is also multiunit residential housing scattered throughout the neighborhood. The rezoning site sits immediately north of the University of Colorado (CU) campus, adjacent to the “North Boulder Creek” (NBC) campus area as identified in the 2021 University of Colorado Campus Master Plan. The NBC area is in the process of redevelopment, with approximately 1 million square feet of new student housing and amenities planned in a series of buildings that range from five to seven stories tall. See Figure 1 below for vicinity map.

The Naropa Institute, the original name of Naropa University, was founded in 1974 by one of the foremost teachers of Buddhism in the west. The Naropa Institute has operated on this campus since 1983 and purchased the site in 1989. There are existing Planned Unit Development (PUD) and Special Review approvals for the Naropa Institute main campus. The plans have been amended several times over the years (1982, 1985, 1987, 1989, 1992 and most recently in 1999). As shown below in Figure 2, the current campus contains 16 buildings totaling approximately 72,000 square feet organized around the landmarked Lincoln Hall at the center of the site. Both the Chestnut House and Arapahoe House (shown in Figure 3) are pending Individual Landmark Designation (HIS2025-00382 and HIS2025-00384) and were approved for relocation and rehabilitation by the Landmarks Board in April 2026. The buildings are interspersed by green spaces and contain three sycamore trees and one oak tree that are identified as Colorado “Champion” trees. There are currently views of the Flatirons across the site from Arapahoe Avenue looking southwest. Currently, there is an internal private drive that provides vehicular access from Arapahoe Avenue south to the intersection of Marine Street and Grandview Avenue and to the parking lots on the south side of the property. The Marine Street right-of-way terminates at the south end of the Naropa property, and the Grandview Avenue right-ofway terminates immediately to the south on the CU campus. 20th Street also provides access to the short section of Marine Street that accesses the property.

BVCP Land Use Designation While the 2025 Update to the BVCP was adopted after the Rezoning application wase filed, the applicant has agreed to the review of the application under the new BVCP. As shown in Figure 6, the 2025 BVCP land use designation for the site is Neighborhood 2. Per the recently adopted 2025 BVCP Major Update: “Neighborhood 2 areas are primarily residential neighborhoods that feature a mix of denser housing types and larger buildings. Thoughtfully integrated commercial and other non-residential uses are generally concentrated near transit services. Neighborhood 2 provides opportunities for more people to live close to jobs, schools, parks, shops and mobility options. The additional density in these neighborhoods supports vibrant businesses and community spaces, supports the development of a robust transit network and fosters walkable urban neighborhoods.”

Primary uses include Residential - Attached Unit; Multi-Unit; and Group Living. In terms of urban design, the BVCP lists the following characteristics: 

Residential and mixed-use buildings are generally medium or high in intensity and scale.



Building forms accommodate up to 5 stories and create a high-quality urban street frontage.



Overall site design emphasizes efficient land use while maintaining a comfortable, pedestrian scale through thoughtful building design, gathering spaces, natural infrastructure and streetscape amenities.



Structures may occupy larger portions of their lots, with limited setbacks, and shared open spaces such as courtyards, playgrounds, plazas or green spaces.

In terms of mobility, the BVCP lists the following characteristics: 

Neighborhood 2 offers a more urban mobility experience, where sidewalks, bicycle facilities, and transit supportive infrastructure are integral to the street network.



These neighborhoods prioritize safe multimodal access to homes, jobs and other local destinations, making it easy to connect without relying on a car.



Curbsides may be actively managed, balancing parking with space for transit, bicycle facilities, micromobility, and deliveries to support the higher density and mix of uses.



If off-street parking is provided, unbundled, structured, underground and shared is preferred.

Zoning. As shown below in Figure 7, the existing zoning for the site is Public (P), which is defined in Section 9-5-2 of the Land Use Code as “Public areas in which public and semi-public facilities and uses are located, including without limitation, governmental and educational uses.” The existing zoning was put in place during the 2015 BVCP Update at the request of Naropa. The benefit to Naropa in receiving the Public Land Use and Zoning designations at that time was that it removed any limitations on floor area for any improvements that Naropa might choose to make. Naropa is now looking to vacate and sell the 2130 Arapahoe Ave. campus, and it is seeking to change the zoning to Residential – High 5 (RH-5), which is defined as “High density residential areas primarily used for a variety of types of attached residential units, including without limitation, apartment buildings, and where complementary uses may be allowed,” per Section 9-5-2, B.R.C. 1981. Additional information on the requested RH-5 zoning is provided below, and an analysis of the Rezoning criteria is included in the Key Issues section below.

Intensity standards for the RH-5 zone allow for a maximum Floor Area Ratio (FAR) of 1.5 and require a minimum of 20% of the lot area to be provided as open space for residential uses exceeding 35 feet in height. Form and bulk standards in RH-5 require a 25’ foot front yard setback, a 12.5’ foot side yard setback adjacent to a street, a 10’ foot interior side yard setback and a 25’ foot rear yard setback. Buildings are limited to 3 stories. Building height is limited to 35 feet.

Application Description As discussed in further detail below, the applicant is requesting a rezoning from P to RH-5 (Residential – High 5), which is defined in the Land Use Code as “High density residential areas primarily used for a variety of types of attached residential units, including without limitation, apartment buildings, and where complementary uses may be allowed.” The requested rezoning is to bring the zoning of the site into consistency with the Neighborhood 2 BVCP land use designation and allow for redevelopment consistent with Neighborhood 2 land use characteristics. Note that the rezoning is proposed concurrently with a Site Review application to redevelop the site under Application #LUR2026-00003 (The site review application was approved by the Planning Board on September 15, 2026. That decision is provided for call-up consideration under a separate agenda item). Rezoning the site from P to RH-5, will also allow for attached residential uses by-right whereas the P zone requires a Use Review to allow for

attached residential uses. The requested zoning also allows for a 1.5 FAR with no limit on the number of dwelling units, whereas the P zone district has a minimum required lot size per dwelling unit of 7,000 square feet (a maximum allowable density of approximately 6.2 DU/ acre). Note that, if the rezoning is not approved, an amendment to the Site Review approval and/or additional review processes would be required to construct the redevelopment project as proposed through the Site Review application to meet P land use code standards (LUR2026-00003).

Application History At the public hearing on September 15, 2026 the Planning Board held a quasi-judicial hearing to review the proposed Rezoning and concurrent Site Review applications described above. Following a public hearing, the board voted unanimously (7-0) to recommend approval of the requested rezoning application #LUR2025-00034 with the following motion: On a motion by K. Nordback and seconded by M. McIntyre, the Planning Board voted 7-0 to recommend to City Council approval of the application to rezone approximately 3.72 acres of land located at 2106 And 2130 Arapahoe Ave., an adjacent 0.03-acre portion of Marine Street, and a portion of adjacent Arapahoe Avenue right-of-way from the Public (P) to the Residential – High 5 (RH-5) Zoning District; a portion of adjacent Arapahoe Avenue right-of-way from the Residential – High 2 (RH-2) to the Residential – High 5 (RH-5) Zoning District; and a portion of adjacent Arapahoe Avenue right-ofway from the Residential - Mixed 1 (RMX-1) to the Residential High – 5 (RH-5) Zoning District. As described in the call-up memo for the Site Review application, the board also voted 7-0 to approve the Site Review application. A summary of the board’s discussion and recommendation on the rezoning can be found in the draft meeting minutes from the September 15, 2026 Planning Board Hearing included as Attachment C. The staff memorandum to Planning Board, meeting audio, and other related background materials are available on the Records Archive for Planning Board. A video of the hearing can be found at the following link: September 15, 2026 Planning Board Meeting (item starts 2 hours 51 minutes into the video).

Public Comment Consistent with Section 9-4-3, “Public Notice Requirements,” B.R.C. 1981, staff provided written notifications to property owners and all addresses within 600 feet of the subject property. In addition, a public notice sign was posted on the property and therefore, all public notice requirements of section 9-4-3, “Public Notice Requirements,” B.R.C. 1981 were met. Staff has received several written comments pertaining to the Site Review application for the property but no comments specifically related to the rezoning request.

Criteria for Review Applicable Boulder Revised Code Sections Section 9-2-19(e), Rezoning Criteria, B.R.C. 1981

Applicable Plans and Guidelines Boulder Valley Comprehensive Plan Chapter 4, Future Land Use

Analysis 1.

Is the rezoning request consistent with the Rezoning criteria in Section 9-2-19(e), B.R.C. 1981?

Land Use Code Section 9-2-19(e), B.R.C. 1981 states: The city's zoning is the result of a detailed and comprehensive appraisal of the city's present and future land use allocation needs. In order to establish and maintain sound, stable, and desirable development within the city, rezoning of land is to be discouraged and allowed only under the limited circumstances herein described. Therefore, the city council shall grant a rezoning application only if the proposed rezoning is consistent with the policies and goals of the Boulder Valley Comprehensive Plan, and, for an application not incidental to a general revision of the zoning map, meets one of the following criteria: The proposed rezoning is consistent with the policies and goals of the BVCP. Chapter 3 of the 2026 BVCP states: [t]he policies are not prioritized and no one policy or set of policies must be satisfied by any one action, ordinance, regulation, development application or program. There are inherent competing values among the policies that require careful analysis and consideration of tradeoffs when implementing the plan in various ways. The following Policies and Goals from the current BVCP Update support the proposed rezoning to RH-5: Policy 24. Community Character and Evolution The city works with the community to shape how different areas evolve over time in varying ways and degrees. Change across the community will contribute to the unique and authentic character of different areas while supporting citywide goals. The new Land Use Map identifies the project site and adjacent properties to the west along the south side of Arapahoe Avenue as Neighborhood 2. This designation was

applied between the University Land Use to the south and the Neighborhood 1 area to the north (the Goss-Grove neighborhood). The presumed intent is to use the Neighborhood 2 designated areas as a Transitional Area between the University, which is planned for much more intensive development than would otherwise be allowed by city zoning, and Goss-Grove Neighborhood 1 areas, thus protecting Neighborhood 1 areas while clearly making a distinction between them with higher density housing south of Arapahoe Avenue. The proposed rezoning would accomplish the goal of allowing for higher density housing south of Arapahoe Avenue. 26. Compact Urban Form The city and county work together to ensure urban development is focused within Area 1-Urban Lands to utilize existing urban services, maintain a clear boundary between urban and rural areas and avoid patterns of leapfrog, noncontiguous, scattered development within the Boulder Valley. The city encourages redevelopment and infill within municipal boundaries alongside consideration of managed expansion of the Service Area, as allowed by Area 2-Urban Edge and the Area 3-Planning Reserve, to create a compact city and prevent the negative consequences of urban sprawl. The proposed rezoning would allow for a high-density infill project to be constructed within Area 1 in an area with existing urban services, close to the university and in close proximity to a variety of multimodal transportation options. 27. Integrated Land Use and Transportation The city aligns land use and transportation planning to integrate a variety of neighborhoods with a range of uses into a well-connected, safe, local and regional network of mobility choices. The city supports higher activity near multimodal corridors and transit centers that provide enhanced mobility choices and facilities. The city and county collaborate on transit investments and improvements so that local and regional transit systems are well integrated. The proposed rezoning would allow for a high-density housing project to be constructed in a location that is already tied to the CU campus via an existing multi-use path. 82. Housing Diversity and Supply The city supports increasing the housing supply by promoting 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. The proposed rezoning would increase the allowable intensity on the site, thereby allowing for a project that increases the city's housing supply beyond what would be allowed under the current zoning.

The applicant demonstrates by clear and convincing evidence that the proposed rezoning is necessary to come into compliance with the Boulder Valley Comprehensive Plan map; The proposed rezoning would bring the project site into compliance with the underlying BVCP land use designation, which is Neighborhood 2. Per the recently adopted 2025 Boulder Valley Comprehensive Plan Major Update, “Neighborhood 2 areas are primarily residential neighborhoods that feature a mix of denser housing types and larger buildings. Thoughtfully integrated commercial and other non-residential uses are generally concentrated near transit services. Neighborhood 2 provides opportunities for more people to live close to jobs, schools, parks, shops and mobility options. The additional density in these neighborhoods supports vibrant businesses and community spaces, supports the development of a robust transit network and fosters walkable urban neighborhoods.” Primary uses include Residential - Attached Unit; Multi-Unit; and Group Living. In terms of urban design, the BVCP lists the following characteristics: 

Residential and mixed-use buildings are generally medium or high in intensity and scale.



Building forms accommodate up to 5 stories and create a high-quality urban street frontage.



Overall site design emphasizes efficient land use while maintaining a comfortable, pedestrian scale through thoughtful building design, gathering spaces, natural infrastructure and streetscape amenities.



Structures may occupy larger portions of their lots, with limited setbacks, and shared open spaces such as courtyards, playgrounds, plazas or green spaces.

In terms of mobility, the BVCP lists the following characteristics: 

Neighborhood 2 offers a more urban mobility experience where sidewalks, bicycle facilities, and transit-supportive infrastructure are integral to the street network.



These neighborhoods prioritize safe multimodal access to homes, jobs and other local destinations, making it easy to connect without relying on a car.



Curbsides may be actively managed, balancing parking with space for transit, bicycle facilities, micromobility, and deliveries to support the higher density and mix of uses.



If off-street parking is provided, unbundled, structured, underground and shared parking is preferred.

The existing zoning for the site is Public (P), which is defined in Section 9-5-2 of the Land Use Code as “[p]ublic areas in which public and semi-public facilities and uses are located, including without limitation, governmental and educational uses.” The existing zoning was put in place following the 2015 BVCP Update consistent with a public land use designation and the site’s University use at that time . Naropa is now looking to vacate and sell the 2130 Arapahoe Ave. Campus. The land use for the site under the 2025 BVCP future land use map is Neighborhood 2. Naropa is seeking to change the zoning to Residential – High 5 (RH-5), which is defined as “[h]igh density residential areas primarily used for a variety of types of attached residential units, including without limitation, apartment buildings, and where complementary uses may be allowed,” per Section 9-5-2, B.R.C. 1981. The P zoning district is not consistent with the new underlying Neighborhood 2 land use designation, as the use and intensity standards for the zone do not support residential and mixed-use buildings that are generally medium or high in intensity and scale as envisioned for Neighborhood 2. The RH-5 zone district would allow for redevelopment of the site in a manner consistent with the Neighborhood

2 land use designation, as a primarily residential neighborhood that features a mix of denser housing types and larger buildings, with the additional density supporting vibrant businesses and community spaces, the development of a robust transit network and walkable urban neighborhoods. The existing zoning of the land was the result of a clerical error; Not applicable. The existing zoning of the land was based on a mistake of fact; Not applicable. The existing zoning of the land failed to take into account the constraints on development created by the natural characteristics of the land, including but not limited to, steep slopes, floodplain, unstable soils, and inadequate drainage; Not applicable. The land or its surrounding environs has changed or is changing to such a degree that it is in the public interest to encourage a redevelopment of the area or to recognize the changed character of the area; or Not applicable. The proposed rezoning is necessary in order to provide land for a community need that was not anticipated at the time of adoption of the Boulder Valley Comprehensive Plan. Not applicable.

Fiscal Note Review of this project is part of the P&DS team’s standard workplan and its impacts are incorporated into the annual revenue forecasting as part of the Budget office’s annual budget development. Therefore, review of the project will not have a meaningful fiscal impact past what has already been included in the approved budget.

Current Year Estimated Fiscal Impact Fund(s): 2120FD Department(s): Planning & Development Services

Program(s): All P&DS programs

Item Beginning Fund Balance Total Forecasted Revenue Total Estimated Expenses Ending Fund Balance(s) After Reserves FTE

FY 2026 Budget

FY 2026 Estimated Impact

FY 2026 Net Change

$18,200,885

$0

$18,200,885

$15,179,491

$0

$15,179,491

$17,735,173

$0

$17,735,173

$12,646,701

$0

$12,646,701

122.65

0

122.65

Three-Year Estimated Fiscal Impact

Item

FY 2026

FY 2027

FY 2028

Total Forecasted Revenue Total Estimated Expenses Net Estimated Impact

$0

$0

$0

$0

$0

$0

$0

$0

$0

Findings Staff finds that the proposed rezoning meets the applicable criteria in Section 9-2-19(e), B.R.C. 1981, and recommends that council introduce and order published by title only Ordinance 8774.

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Attachments Attachment A:

Applicant’s Written Statement – Rezoning

Attachment B:

Draft Rezoning Ordinance 8774

Attachment C:

Draft 09/15/26 Planning Board Minutes