Matters Memo

City of Boulder City Council Agenda Item Meeting Date: August 13, 2026 Agenda Title Civic Area East Bookend Development Partnership RFP

Staff Contact • • •

Shihomi Kuriyagawa, Senior Landscape Architect, Parks and Recreation Mark Woulf, Assistant City Manager, City Manager’s Office Alison Rhodes, Director, Parks and Recreation

Executive Summary The purpose of this item is to provide an overview of the upcoming Civic Area East Bookend Development Partnership process and highlight considerations related to site planning efforts within the project area. Staff seeks to inform council about the forthcoming Request for Proposals (RFP) planned to be released later this summer and about the role council will have in the future for this development partnership. This update is informational only; while no formal action is requested at this time, staff seeks input and feedback on the development partnership process.

Questions for Council 1. Does council have any questions or feedback on the Civic Area Development Partnership RFP process? 2. Does council support the goals of the partnership and staff’s recommendation to move forward with the release of the RFP?

Alignment with City Plans and City Council History Sustainability, Equity and Resilience (SER) Framework and Citywide Strategic Plan Alignment SER Framework Goal Area • Safe: 1, 5 • Healthy and Socially Thriving: 1, 2, 3 • Accessible and Connected: 3 • Environmentally Sustainable: 3 • Responsibly Governed: 1, 2, 3, • Economically Vital: 6 Citywide Strategic Plan 2024-2026 • Healthy and Socially Thriving: 4d • Livable: 6b, 6c • Accessible and Connected: 7b, 7c • Responsibly Governed: 12a • Economically Vital: 14a, 14e

Alignment with Additional City Plans As part of a city-wide effort to rethink Boulder’s urban core, the 2015 Civic Area Plan envisions this block and its surroundings as a hub of urban living connected to active park amenities, lively commercial spaces, and iconic views of the Flatirons. This development partnership opportunity was crafted to align its values and goals with several city efforts by creating an inclusive, resilient, and vibrant urban center. The Civic Area East Bookend Development Partnership process is integrated with these city plans and strategic frameworks: • • • • • • • • • •

Downtown Urban Design Guidelines, 2002 Civic Area Plan, 2015 Community Cultural Plan, 2015 City of Boulder Engagement Strategic Framework, 2018 Transportation Master Plan, 2019 Racial Equity Plan, 2021 Boulder Valley Comprehensive Plan, 2021 City of Boulder Facilities Plan, 2021 Parks and Recreation Department Plan, 2022 Historic Places Plan, 2023

As well as these relevant studies: • Andrews Arboretum Promenade Study, 2018 • Cable Transit Study, 2020 • Downtown Boulder Vision Plan (Downtown Boulder Partnership), 2022 • Boulder Social Streets on 13th pop-ups evaluation, 2023 • Central Park Cultural Landscape Assessment, 2023 • Boulder Downtown Station Expansion Plan, 2023 • Boulder Civic Area East Bookend Existing Conditions (draft)

City Council History In 2023, the project team launched the Civic Area Phase 2 Project, including updating City Council on the overall project process, scope and goals at the December 14, 2023 study session. At that meeting, City Council confirmed the continued relevance of the Guiding Principles in the 2015 Civic Area Plan. In 2024, the project moved through a planning and analysis phase which included engaging the community in imagining the future of the Civic Area during Engagement Window 1. The first engagement window asked community members to dream big and share all ideas that could be in this space. A summary of the findings can be found here in the August 23, 2024 council IP. At the April 17, 2025 council meeting, the project team reviewed a separate process within the Civic Area for the East Bookend with council. Council supported the process to seek potential Partnerships for the development of the East Bookend. At the November 13, 2025 council meeting, council discussed the Civic Area East Bookend Development Partnership in relation to the Civic Area park improvement project. In addition to Council, the following boards and commissions have been involved in the recent process to seek a development partnership through an RFP: • • • • • • •

Parks and Recreation Advisory Board (PRAB) – 06/22/26 (Page 20) Landmarks Board – 06/03/26 Planning Board – 06/23/26 Transportation Advisory Board (TAB) – 07/13/26 Downtown Management Commission (DMC) – 07/14/26 (Page 72) University Hill Commercial Area Management Commission (UHCAMC) – 07/07/26 Arts Commission – 07/29/26

Analysis The Civic Area’s East Bookend includes city-owned properties generally located between 13th and 14th Streets, Canyon Boulevard, and Arapahoe Avenue. It encompasses one of the most prominent areas of downtown Boulder, connecting key public spaces and city uses. With three properties designated as local historic landmarks and other city buildings becoming available for sale or reprogramming in the future, this development represents a key opportunity to revitalize and activate this part of downtown Boulder. Three themes guide the development priorities for the East Bookend: • • •

Food – strengthening and celebrating the relationship with Boulder County Farmer’s Market and the region’s agriculture; Recreation – connecting to adjacent park features and Boulder Creek; and Arts and culture – amplifying art, performance, cultural events, and welcoming Sundance to downtown Boulder.

Investments into downtown spaces such as the East Bookend will support the economic health, community vibrancy and success of a connected urban center. New development in the East Bookend will help implement the community vision and goals set forth in the Civic Area Plan as well as city-wide goals, including opportunities for adaptive reuse, cultural programming, economic activity, and enhanced safe public spaces. Development and Partnership Goals A development partnership offers a strategic opportunity to achieve the community’s vision for the Civic Area by combining public goals with private-sector investment, design creativity, and operational expertise. The development process will focus on the East Bookend and include the option of incorporating properties on the West Bookend, as shown in the attached site plan diagram. Through a development partnership, the city can leverage its assets to catalyze development that delivers community benefits, activates the site through programming and public use, and attracts new sources of capital and investment. This approach can also reduce the city’s long-term role in facility management while generating revenue through mechanisms such as property sales, land leases and increased tax revenues, helping support both near- and long-term community priorities. This process will also strengthen the longstanding partnership between the City of Boulder and the Boulder County Farmers Market (BCFM) by creating an opportunity for BCFM to work with a development partner to expand the market’s role as a year-round food hub, economic driver and preserving its long-term presence in the Civic Area.

Overall, this opportunity will introduce a mix of uses on the East Bookend, and potentially the West Bookend, that will support activation of the area, facilitate investment, and ensure economic viability within this downtown area. Development of the city-owned properties in the Civic Area’s East Bookend seeks to: • Create a vibrant, food-oriented destination in the heart of Boulder, including support for the growth and continued success of the Boulder County Farmers Market through creation of a year-round “market hall” and related support spaces, including classroom space and offices. • Activate the area as a year-round destination and community gathering space, integrating new uses and activities, including spaces for diverse cultural events that reflect and support Boulder’s thriving arts and culture community. • Celebrate Boulder's history and the properties' iconic heritage buildings. • Connect Downtown Boulder with University Hill and the CU Boulder campus. • Provide an active anchor for the reinvigorated Boulder Creek Park. • Provide the opportunity to sell or lease city-owned properties. Additionally, development of the city-owned properties on the West End of the Civic Area seeks to: • Introduce higher density housing, mixed use, and/or other uses and activities that support activation of the area, facilitate investment, and ensure an economically feasible and viable long-term plan in conjunction with the redeveloped East Bookend. • Phase development with the planned relocation of the West Age Well Center. • Ensure continued public connections to and along the Boulder Creek. • Support long-term success of the adjacent Boulder Public Library. • Support revenue generation for other city investments. A development partnership is seen as an effective way to achieve the above goals for both bookends as the city seeks to find a partner who brings: • Creativity and Innovation: Tapping the creative ideas and innovative thinking of private sector and nonprofit partners to detail and refine the proposed development program and design concept, including support for year-round operations of the Boulder County Farmers Market and integration of arts and culture activities. • Expertise: Bringing in experienced development partners with a track record of delivering complex mixed-use projects that integrate private, semi-private, and dynamic public spaces serving community needs. • Investment, Revenue Generation, and Economic Sustainability: Selling surplus properties where feasible to generate revenue for other City priorities; entering into long-term lease agreements to generate ongoing revenue; leveraging

•

•

City land and investment to attract private and philanthropic capital; and integrating uses that generate revenue for ongoing programming and maintenance of adjacent parks and public spaces. Ongoing Programming and Activation: Creating long-term partnerships with groups skilled and experienced in the programming and operation of public and semi-public spaces to achieve the community's vision. Property Management: Engaging a partner with expertise in managing mixed-use projects with multiple tenancies, high levels of use, and ongoing maintenance needs, relieving the City of long-term property management responsibilities.

Request for Interest (RFI) Earlier this year, the city issued a Request for Interest (RFI) to better understand market interest and gather ideas from potential development and programming partners. Nine teams responded to the RFI, representing a mix of development firms, cultural organizations, design teams, and local partners. The RFI was an informal process, and no development concepts or partnerships will be selected from the responses. The responses were intended to inform next steps, which the city team is now taking. RFI respondents provided input in response to a core set of questions posed by the city, including thoughts on the potential mix of uses (civic, housing, cultural, commercial, hospitality, recreation, community-oriented etc.), as well as possible partnership and financing structures. The RFI listed the historic landmarks and resources on the block and provided an overview of the city’s historic preservation regulations. Ideas for repurposing the landmark buildings included reprogramming spaces for a food hall, arts and cultural spaces, and other commercial uses. Below is a summary of themes from the RFI responses: •

•

•

Mixed Civic, Cultural, and Commercial Uses Most respondents suggested a mix of uses to create an active civic destination. Common ideas included cultural venues, food and hospitality spaces, event infrastructure, and flexible indoor and outdoor gathering areas. Respondents suggested that the site should function as a year-round civic and cultural hub. Partnerships to Deliver Public Benefits Many responses proposed some form of public-private partnership, where private investment delivers public amenities such as cultural venues, open space improvements, or community programming. Several teams suggested long-term ground leases or shared property structures that would allow the city to retain ownership while enabling private investment. Opportunities for Cultural Programming Many teams highlighted opportunities for the site to host arts, music, and festival programming that could attract both residents and visitors. Several responses

•

•

discussed the potential for partnerships with cultural organizations to support events and performances while maintaining everyday public access to the Civic Area. Integration within Downtown Boulder Respondents highlighted the importance of maintaining strong connections to the Civic Area park space, Boulder Creek, and Pearl Street Mall. Many proposals focused on enhancing pedestrian activity, public spaces, and connections between existing civic destinations. Historic Preservation Several responses addressed the landmarked buildings on the site and suggested strategies for adaptive reuse, such as incorporating cultural, hospitality, or community uses within existing structures.

For more project details and updates, please refer to the project page on the city’s website. Request for Proposals (RFP) Process Based on insights gathered through the RFI, staff is developing a formal Request for Proposals (RFP) that it expects to release in August 2026. The RFP will solicit formal partnership proposals and is intended to identify a qualified development partner capable of advancing a comprehensive concept planning effort to integrate historic resources, Civic Area Park Plan priorities, and long-term operations objectives. Decisions regarding future ownership of city properties and future uses will be evaluated during the concept planning phase following selection of a development partner through the RFP process. The city anticipates launching the concept planning process with the selected partner in early 2027.

Anticipated Fiscal and Workplan Impacts The city will experience minimal fiscal impact, as partnership with the private developer will provide design and planning work for the East Bookend development. Overall, the long-term vision for the Civic Area East Bookend and optional West Bookend identifies increased economic revenue through sale of land, while providing increased public amenities and programming to revitalize and activate downtown Boulder. The RFP process is on the workplan for 2026 and future development partnership processes, including predevelopment agreement negotiations and concept planning, is on the workplan for 2027. The collaboration will continue into 2028 with an anticipated development review process and a finalized Development Agreement (or sales document with covenants) between the city and development partner. The City Manager’s Office (CMO) will lead the partnership effort with support from Planning and Development

Services, Parks and Recreation, Facilities and Fleet, and the City Attorney’s Office from 2026-2028.

Climate, Resilience, and Sustainability Considerations The project supports the city’s Climate, Resilience and Sustainability goals by prioritizing climate-conscious development and long-lasting design that is guided by the SER Framework and 2015 Civic Area Park Plan. The development team that will be selected for partnership will be responsible for complying with development codes and climate goals through Concept Planning, Site Plan Review and Technical Document processes.

Community Engagement Earlier engagement windows associated with the Civic Area Park project sought community visions for the Civic Area East and West Bookend. Engagement Window 1 yielded valuable community input advocating for an activated civic heart of Boulder, a place for community activities, arts and cultural programming, and outdoor natural amenities. Stakeholder engagement was also gathered through the Civic Area Market Study for both bookends. The city anticipates launching the concept planning process with the selected partner in early 2027.

Next Steps for City Council Project next steps include: •

Release of the East Bookend RFP: Summer 2026 • Evaluation and selection of a development partner: Late 2026 • Council review of development partnership and Predevelopment Agreement: Early 2027 • Concept Plan process and Conditions Assessment in coordination with Downtown Development Authority (if district is approved): 2027 • Council review and input for final Concept Plan: Late 2027 • Development Review process: Tentatively 2028 • Construction: Tentatively 2029/2030 based on entitlements, permitting, and market conditions *All dates are subject to change pending the outcomes of key project milestones

Digital Accessibility The City of Boulder is committed to digital accessibility. Some content may not be fully accessible due to technical limitations or issues. For alternate formats or accommodations, please visit Accessibility | City of Boulder or contact accessibility@bouldercolorado.gov.

Attachments Attachment A – Civic Area East Bookend Development Partnership Site Plan