ATTACHMENT A - Improvement District Analysis Report

Study Session, March 12, 2026 · item Study Session Items2: Downtown Development Authority (DDA) Formation Analysis and Initial Recommendations Staff Time: 30 Min Council Time: 60 Min · 78 pages

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BOULDER IMPROVEMENT DISTRICT ANALYSIS REPORT July 2025

CONTENTS 01. Executive Summary ......................................................................... 3 Overview ..................................................................................................................................3 Existing Conditions ...................................................................................................................3 Recommendations ...................................................................................................................5

02. Introduction .................................................................................... 7 Project Background ..................................................................................................................7 Improvement District Analysis Process....................................................................................11

03. Existing Conditions ........................................................................ 12 Central Area General Improvement District (CAGID) ................................................................13 University Hill General Improvement District (UHGID) ..............................................................18 Boulder Junction Access Districts (BJAD) .................................................................................22 55th & Arapahoe Station Area ...................................................................................................25

04. Recommendations ........................................................................ 29 Immediate Actions (6-12 Months) ............................................................................................29 Short-Term Actions (12-24 Months) .........................................................................................35 Long-Term Actions (Beyond 24 Months) ...................................................................................38 Recommendations Summary .................................................................................................42

Appendix A: District Proﬁles ................................................................ 43 Central Area GID (CAGID) District Proﬁle .................................................................................43 University Hill GID (UHGID) District Proﬁle...............................................................................52 Boulder Junction Access Districts (BJAD) Proﬁle ......................................................................61 55th & Arapahoe Proﬁle............................................................................................................74

01. EXECUTIVE SUMMARY OVERVIEW The City of Boulder’s commercial areas play a critical role in the community’s economic, cultural, and civic life. Building off City Council’s priority “Commercial Area Connections and Quality of Life Improvements,” the City commissioned this Improvement District Analysis to evaluate how existing and potential special district tools could be used to support the evolving needs of Boulder’s commercial districts. The analysis focuses on four existing General Improvement Districts (GIDs)— the Central Area General Improvement District (CAGID), the University Hill General Improvement District (UHGID), and the Boulder Junction Access Districts (BJAD-Parking and BJAD-Transportation Demand Management)—as well as future opportunities in areas such as the Civic Area and the 55th & Arapahoe Station Area. The improvement district analysis process included an in-depth review of each district’s structure, services, ﬁnancial trends, and challenges, and offers a series of recommendations to optimize district management and ﬁnancing mechanisms moving forward.

EXISTING CONDITIONS

RECOMMENDATIONS Existing city funding sources, including GIDs, are not sufficient to fully implement the community’s vision for Boulder’s commercial areas. This Improvement District Analysis offers ﬁnancial and structural recommendations—aligned with the City’s Long-Term Financial Strategy—to optimize current district functions and explore new tools to sustainably support these areas. Organized by Immediate Actions (6-12 months), Short-Term Actions (12-24 months), and Long-Term Actions (Beyond 24 months), these recommendations aim to close funding gaps, strengthen district management, and ensure Boulder’s commercial areas remain vibrant and resilient into the future.

DOWNTOWN DEVELOPMENT AUTHORITY (DDA) OPPORTUNITY Boulder’s core commercial districts are at a pivotal moment. Exploring the creation of a Downtown Development Authority (DDA) provides an exciting opportunity to support revitalization and reinvestment across CAGID, UHGID, and adjacent areas like the Civic Area and Western City Campus. DDAs are state-enabled, quasi-governmental entities designed to support revitalization efforts in a city’s central business district. A DDA would provide sustainable, long-term funding through Tax Increment Financing (TIF) and a voter-approved mill levy, helping to address capital needs, operational gaps, and economic stagnation in Downtown and on the Hill. Immediate next steps include conducting a ﬁnancial analysis, deﬁning a potential district boundary, developing a preliminary Plan of Development, and engaging stakeholders. Over the next year, this process could culminate in a TABOR election and DDA formation, if deemed feasible.

DISTRICT-SPECIFIC RECOMMENDATIONS For CAGID, one immediate action in addition to exploring the feasibility of a DDA is to clarify services with the Downtown Boulder BID to eliminate duplication and improve transparency. Additional short- and long-term actions—such as exploring expansion to the Civic Area, pursuing a TABOR de-Brucing vote, or establishing a Public Improvement Fee (PIF)—would be considered as alternatives if a DDA is ultimately found to be infeasible. Together, these recommendations help position CAGID to better support future capital investments and evolving district needs. For UHGID, if a DDA is ultimately found to be infeasible, a range of short- and long-term strategies could be pursued to strengthen UHGID’s ﬁnancial sustainability and impact. Short-term actions include increasing revenue self-sufficiency by reassessing permit fees, expanding paid parking, and exploring partnerships with hotel operators through the new Lodging Business Assessment Area (LBAA) to improve connectivity between the Hill and Downtown. In the long term, UHGID may also consider de-Brucing its mill levy to expand service delivery and better support safety, activation, and maintenance. For BJAD, immediate actions center on evaluating the feasibility of removing the overlapping districts and establishing a single district to streamline governance and reduce administrative burden. In the short term, the City could begin the inclusion/exclusion process to align boundaries and consider a temporary mill levy reduction, particularly in BJAD-P where revenues exceed current

needs. Over the long term, clarifying BJAD’s role in Boulder Junction Phase II and identifying future infrastructure and placemaking investments will ensure that the district remains effective and responsive as the area matures. As part of this planning, the City should also explore alternative district tools—such as Urban Renewal or Metropolitan Districts—that may offer more ﬂexible ﬁnancing mechanisms to support large-scale infrastructure investments in the Phase II area.

RECOMMENDATIONS SUMMARY The graphic below provides a visual summary of all recommendations outlined in the Improvement District Analysis report, organized by district and implementation timeline. It illustrates which actions apply to each district—CAGID, UHGID, BJAD-P, and BJAD-TDM—and categorizes them into immediate (6–12 months), short-term (12–24 months), and long-term (24+ months) actions.

02. INTRODUCTION PROJECT BACKGROUND As Boulder continues to evolve, so must the strategies that sustain the vitality of its commercial districts. In support of the Boulder City Council’s 2024–2025 priority, “Commercial Area Connections and Quality of Life Improvements”, the City of Boulder Community Vitality Department, working in collaboration with several city departments, launched a comprehensive initiative aimed at strengthening the vibrancy, connectivity, and long-term resilience of Boulder’s commercial areas. This work is further informed by guiding documents such as the city’s Economic Vitality Strategy, Long-Term Financial Strategy, and other related planning efforts. A key component of this initiative is the Improvement District Analysis. This analysis, which was initiated in early 2025, explores how Boulder’s existing and prospective district management tools can address near term challenges and opportunities for reinvestment. To facilitate this process, the City of Boulder issued a formal Request for Proposal (RFP) and retained Progressive Urban Management Associates (P.U.M.A.).

WHAT IS A GENERAL IMPROVEMENT DISTRICT (GID)? A GID is a type of special taxing district authorized by Colorado statute to ﬁnance capital improvements, support the maintenance of public facilities, and provide focused management and funding within a deﬁned area. Per Boulder municipal code, a GID is legally established when a petition is submitted to the city council of the municipality. City council must then provide public notice, hold a hearing, and adopt an ordinance to create the district. GIDs must also be approved by affected electors in a TABOR election. Once formed, a GID may levy property taxes, impose special assessments, and issue bonds to fund districtspeciﬁc improvements and services. Management and oversight of a GID are handled by the governing body of the municipality— typically the city council, which serves as the board of directors for the district, which is the case in Boulder. Each district also has a dedicated advisory commission made up of local stakeholders These commissions provide input and recommendations to City Council on the use of GID funds and the prioritization of projects within their respective districts.

Boulder’s commercial districts play a central role in the city’s economic, social, and cultural life. Over time, these areas have evolved in response to shifting community needs, and the city’s General Improvement District (GIDs) have evolved along with them. Originally established to support speciﬁc priorities—such as parking infrastructure, asset management and maintenance, and transportation demand management—Boulder’s GIDs have taken on broader roles over the years. Today, new opportunities, including the retirement of district debt and development in these commercial areas, present new avenues for reinvestment. At the same time, emerging challenges

such as safety concerns and increased office vacancies underscore the need for coordinated, forward-looking strategies. While GIDs provide critical funding, they are not the only tool available for urban place management. This analysis not only evaluates Boulder’s existing GIDs, but also explores the beneﬁts and tradeoffs of potential new tools that could enhance the city’s capacity to manage and invest in its commercial areas. The ﬁndings of this analysis provide a strategic lens for considering how ﬁnancial mechanisms and governance models might be adapted or expanded to better support infrastructure improvements, daily operations, and broader place-based goals. This analysis primarily focused on the city’s four existing GIDs, illustrated in the maps on the following page, and include: •

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Central Area General Improvement District (CAGID): CAGID was established in 1970 to provide centralized parking infrastructure in Downtown Boulder, allowing for more efficient land use, and helping preserve the area’s historic character. While it began as a parking-focused district, CAGID now plays a broader role in supporting mobility, economic activity, and placemaking in Downtown. University Hill General Improvement District (UHGID): Established in 1970 to support commercial activity on the Hill through shared parking and maintenance services, UHGID has since expanded its role to include placemaking, mobility improvements, and the Hill Ambassador Program. Despite ongoing ﬁnancial challenges and reliance on General Fund support, the Hill remains a strategic focus for the city due to its location at a key gateway to Downtown, its proximity to the University of Colorado Boulder, and increased activity driven by two new hotels and a convention center opening in 2025. Boulder Junction Access Districts (BJAD): Established in 2010 to support Boulder’s ﬁrst transit-oriented redevelopment, BJAD was created to advance the vision outlined in the city’s 2007 Transit Village Area Plan. The district includes two overlapping components—BJAD-Parking (BJAD-P) and BJAD-Transportation Demand Management (BJAD-TDM)—that work together to promote sustainable, multimodal development. BJAD-P manages parking infrastructure, including shared ownership of a parking garage, while BJAD-TDM invests in transit incentives and active transportation programs to reduce single-occupancy vehicle use. Together, the districts have helped shape Boulder Junction into a walkable, transit-rich neighborhood that supports a more sustainable and livable urban environment.

Insights from the Improvement District Analysis will subsequently inform the development of the Boulder Commercial Areas Blueprint—a long-range planning document that will guide future investment and district management strategies. As part of the Boulder Valley Comprehensive Plan update, this Blueprint will help ensure that Boulder’s commercial areas remain dynamic, inclusive, and economically resilient for years to come.

BOULDER GID BOUNDARIES

LEGEND: Central Area General Improvement District (CAGID or Downtown) University Hill General Improvement District (UHGID or The Hill) Boulder Junction Access District – Transportation Demand Management (BJAD – TDM) Boulder Junction Access District – Parking (BJAD – P)

EMERGING OPPORTUNITIES FOR NEW DISTRICTS As Boulder plans for future growth and development, several commercial areas that are currently not within a special taxing district have emerged as promising opportunities for reinvestment and revitalization. While these areas will be explored further in the upcoming Commercial Areas Blueprint, a few of them present near-term potential for new district structures or targeted improvements that could strengthen their role in the city’s commercial ecosystem and align with the city’s broader goals of enhancing infrastructure and connectivity, supporting economic vitality, and fostering inclusive community spaces. Together, these areas illustrate the value of strategic reinvestment and the potential role of new or expanded district structures in supporting Boulder’s evolving commercial landscape. These commercial areas include: •

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Civic Area: The Civic Area, which is currently outside of both CAGID and the Downtown Boulder Business Improvement District (BID), remains underutilized and lacks consistent activation, amenities, and year-round engagement despite its location within Boulder’s core. With many of the city’s customer service functions and staff offices that are currently located in this area set to relocate in 2027, new development and investment in the area’s infrastructure present the opportunity to transform Civic Area into a vibrant central gathering place for the community. The process to reenvision this area is currently underway through the city’s Civic Area Phase 2 project. Western City Campus at Alpine-Balsam: The relocation of city staff and services from the Civic Area to the new Western City Campus at Alpine-Balsam presents a signiﬁcant opportunity to support broader revitalization efforts in this area. Situated just north of Downtown along the Broadway corridor, this newly activated civic hub is poised to bring a substantial boost of daily activity the surrounding area, creating the opportunity to enhance physical and economic connectivity between the Western City Campus and Downtown Boulder through multimodal infrastructure and attracting complementary commercial uses. 55th & Arapahoe Station Area: The 55th & Arapahoe Station Area, located in East Boulder, is well-positioned for long-term, transit-oriented, mixed-use development that can support current businesses while accommodating future growth. This area is a large employment center, and is set to become home to a future State Highway 7 Bus Rapid Transit (BRT) regional station, as recommended in the 2022 East Boulder Subcommunity Plan. This major investment will introduce high-frequency transit service connecting Boulder to I-25 and beyond, along with signiﬁcant streetscape and multimodal infrastructure upgrades. Together, these improvements establish the Station Area as a prime opportunity for transitoriented development within East Boulder’s growing commercial and employment district.

IMPROVEMENT DISTRICT ANALYSIS PROCESS The Improvement District Analysis began with a thorough review of past studies, plans, and engagement efforts. Each of Boulder’s GIDs has been the subject of extensive planning and community input over time. Building on this strong foundation helped ensure that the analysis was aligned with previous work and avoided duplicating efforts that have already captured community priorities and needs. To identify information gaps and ensure input from key stakeholders, focused community engagement was also conducted. This included direct collaboration with the commissions representing each existing GID, outreach to engaged constituents, and coordination with other entities operating within the same geographic areas, such as the Downtown Boulder Partnership. These conversations provided valuable insights and helped round out the understanding of each district’s context. A comprehensive analysis of existing conditions in each GID was then compiled. This included reviewing each district’s origin and the purpose of its establishment, governance structure, the services and programs it funds, and its assessment methodology. Financial data from 2019 to 2024 was also analyzed to understand how GID funds are sourced and used, and alongside key market indicators, relevant plans and projects, and partnerships with organizations and institutions active in each area, a proﬁle was developed highlighting key characteristics of each GID. The time horizon was also chosen to compare pre-pandemic economic performance metrics to current conditions. A summary of each district proﬁle is provided in this report, while additional detail on the existing conditions proﬁles can be found in Appendix A. From this foundation, a set of strategic recommendations was developed. Recommendations include both immediate actions (intended for implementation within the next 6–12 months) and short-term actions (to be pursued beyond that timeframe). Recommendations were tailored to the needs and opportunities speciﬁc to each district while maintaining alignment with citywide goals. Finally, to ensure shared ownership and feasibility, all recommendations were reviewed and vetted through a collaborative process involving City of Boulder staff, GID commissions, and ultimately Boulder City Council. This approach helped build consensus and lays the groundwork for implementation of the recommendations provided in this report.

03. EXISTING CONDITIONS Understanding existing conditions in each GID was a critical step in laying the groundwork for thoughtful, informed recommendations. The analysis of existing conditions included a review of each district’s context and structure; relevant past plans and studies; key characteristics such as assessment methodology and sources and uses of funds; market indicators including office and retail vacancy and property value and sales tax trends; investments, services, and programs provided by each district; and key partnerships with other nonproﬁt, civic, and institutional organizations operating in a shared geography. This comprehensive snapshot of where each district stands today was essential to identifying challenges, opportunities, and community priorities, and ensuring that the recommendations outlined in the subsequent chapter of this report are both context-sensitive and forward-looking. A summary of existing conditions ﬁndings is provided on the following pages, while the full existing conditions proﬁle for each district can be found in Appendix A: District Proﬁles.

^CAGID

^UHGID

^BJAD

CENTRAL AREA GENERAL IMPROVEMENT DISTRICT (CAGID) BACKGROUND CAGID was originally established in 1970 to provide shared parking infrastructure that would support Downtown Boulder’s economic vitality while preserving its historic character. In response to state parking minimums at the time, CAGID allowed Downtown buildings to forgo individual parking lots by creating centralized facilities. This model enabled more efficient land use, improved streetscapes, created a more walkable, vibrant urban core, and is considered a national best practice for Downtown parking management. Since its formation, CAGID has developed and now oversees ﬁve parking garages totaling 2,209 spaces, four surface lots, and 165 on-street pay stations. The bonds used to ﬁnance CAGID’s parking garage infrastructure have been retired as of 2023. Over the past ﬁve decades, CAGID’s mission has broadened signiﬁcantly beyond its parking-focused origin. Its funding now supports a range of complementary programs and services, including: •

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CAGID SNAPSHOT YEAR ESTABLISHED 1970

ASSESSMENT METHODOLOGY 3.526 Mill Levy

TOTAL ANNUAL DISTRICT REVENUE (2024) $9,324,519

TOP SOURCES OF FUNDS (2024) 1. Parking Revenue – 66% 2. Property Tax – 15% 3. Transfers In – 10%

TOP USES OF FUNDS (2024) 1. Capital Improvement Plan – 42% 2. District Management – 20% 3. Administration – 14%

Mobility Enhancements: Initiatives such as EcoPasses for downtown employees, the Boulder Clean Commute program, the HOP circulator, the Lime E-Scooter Expansion Plan, and updated parking and access signage aimed at expanding transportation options and reducing car dependency. Economic Vitality Support: CAGID contributes to Downtown’s economic vibrancy by funding outdoor dining infrastructure, mobile vending opportunities for small businesses, affordable retail space programs, and special event support. Beautiﬁcation and Placemaking: CAGID has helped to fund place enhancements including public art, murals, creative crosswalk designs, tree planting, and powerline undergrounding, all of which enhance Downtown’s visual identity and sense of place. Ambassador Program: In partnership with Downtown Boulder Partnership, CAGID helps fund services that improve cleanliness, safety, and visitor experience through outreach, maintenance, and public engagement.

Governance CAGID is overseen by an advisory body, the Downtown Management Commission (DMC), that manages and advises on the business affairs of the GID. The DMC includes ﬁve Council-appointed members with ﬁve-year terms. Three of those members must own real property or represent real property owners in Downtown and two members are residents representing the community-atlarge.

partnerships Key CAGID partnerships include: •

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Downtown Boulder Partnership (DBP): DBP is a 501(c)6 membership organization that receives revenue from business and individuals to promote the civic, economic, and commercial vitality of downtown Boulder. Under the DBP umbrella, there are two affiliated organizations: o Downtown Boulder Business Improvement District (BID): The BID is an assessment-based district that was formed in 1999 to cultivate a cleaner, safer, and more vibrant Downtown Boulder. BID services include maintenance, events, the Downtown Boulder Ambassador program, marketing, and communications. o Downtown Boulder Community Initiatives (DBCI): DBCI is a 501(c)(3) nonproﬁt formed in 2016 to engage visitors and locals alike through arts, culture, innovation, and inclusive, community-driven experiences in Downtown Boulder. Boulder Convention and Visitors Bureau (CVB): Visit Boulder, the city’s official Convention and Visitors Bureau (CVB), leads marketing, visitor services, and partnership development to attract tourism and support the local economy. In March 2025, the City Council approved the new Boulder Lodging Business Assessment Area—a 2% levy on gross short-term lodging revenue—to sustainably fund the CVB’s marketing, sales, and infrastructure initiatives.

KEY MARKET INDICATORS Analysis of several key market indicators has revealed signs of post-pandemic economic stagnation in Downtown Boulder. Since 2020, both property and sales tax growth have largely plateaued. While much of the area’s property value appreciation over the last ten years occurred prior to 2020, values increased by only 6.5% between 2019 and 2024—signiﬁcantly lagging the 23% rise in the Consumer Price Index (CPI), suggesting a real decline in value. Additionally, sales tax revenues in Downtown only returned to pre-pandemic (2019) levels in 2024, underscoring slow economic recovery. Office vacancy has also steadily climbed since 2020, contributing to reduced daytime activity and ongoing pressure on the commercial real estate market in Downtown Boulder. While these challenges are not unique to Boulder, as downtowns across the country continue to face similar struggles in the aftermath of the COVID-19 pandemic, they do point to a need for strategic reinvestment and targeted stimulus to help restore economic vitality and reverse the effects of stagnation.

DISTRICT CHALLENGES As Downtown Boulder has evolved over time, CAGID’s roles and responsibilities have evolved as well. Originally created to fund parking-related infrastructure and services, CAGID now faces a set of challenges that reﬂect both the district’s expanded role and the changing needs of the area. The following issues emerged through this process and highlight key considerations for future management, funding, and strategic direction: •

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Mission Expanded Beyond Parking: CAGID was originally established to ﬁnance and manage parking infrastructure, operations, and maintenance in Downtown Boulder. Over time, however, the district has taken on responsibilities that extend beyond this initial mission, including support for downtown vitality and broader public realm improvements. This expansion has created a misalignment between the district’s purpose, expectations, and its current funding and governance structures. Lack of Clarity Between CAGID and BID Services: CAGID and the Downtown Boulder Business Improvement District (BID) share overlapping geographies. While this has certain advantages, and the partnership between CAGID and the BID is effective, it has led to confusion among property and business owners and the general public about which organization provides which services. This lack of clarity complicates stakeholder engagement and limits accountability and transparency in service delivery. Fund and Revenue Reporting and Administration: There are administrative challenges in how CAGID’s funds are managed and reported, particularly due to the complexity of handling multiple revenue sources. Non-assessment revenues require detailed tracking, coordination across city departments, and ongoing staff effort, which has resulted in a signiﬁcant administrative burden. These complexities not only strain internal city resources, but can also make ﬁnancial oversight more difficult and obscure a clear understanding of how funds are being allocated to support district priorities. Capital Maintenance Liability: CAGID is responsible for maintaining key public assets such as parking structures. As this infrastructure ages, capital maintenance needs have grown, but current funding levels are not sufficient to keep pace. This creates a growing liability that could impact the district’s ability to sustain essential services over time. Downtown Maintenance Needs Exceed CAGID Funding Capacity: Beyond parking, Downtown Boulder’s streetscape, lighting, signage, and public spaces require ongoing upkeep. However, CAGID’s existing budget is increasingly stretched thin, leaving limited capacity to address these broader maintenance needs. Broader Underfunded Capital Needs: Looking ahead, CAGID’s current funding structure and governance mechanisms are not equipped to meet the district’s future infrastructure and capital improvement needs. Economic Stagnation in Downtown Boulder: In addition to structural and administrative challenges, as evidenced by the key market indicators above, Downtown Boulder is experiencing signs of economic stagnation. Shifts in work and retail patterns,

changing consumer behavior, and new demands on public infrastructure resulting from the pandemic are a key challenge to Downtown’s vitality moving forward.

PRIORITIES FOR THE FUTURE In reviewing recent and relevant plans—including the Boulder Valley Comprehensive Plan (2020 Mid-Term Update), Transportation Master Plan (2019), Parks and Recreation Master Plan Update (2022), Downtown Boulder Vision Plan (2022), and the Central Broadway Corridor Design Framework (2017)— strong alignment between district priorities and the community’s long-term vision for Downtown Boulder was revealed. As CAGID’s parking garage construction debt is now retired, there is an opportunity to realign its ﬁnancial priorities to meet evolving community and district needs moving forward. While staff and community partners have made substantial investments in beautiﬁcation, quality of life, and connections across Downtown and the Hill since April 2024, there are several recurring themes from prior plans that remain priorities for future investments within the CAGID area: •

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Pearl Street Improvements: The Pearl Street Mall, a vital contributor to Downtown Boulder’s economic and cultural vibrancy, is celebrating its 50th anniversary in 2027. As a result, several recent planning efforts have called for renewed investment in the Mall’s appearance, including a refresh of the streetscape, activation of key blocks like the 1300 and 1400 blocks with new amenities, art, and gathering spaces, and other place enhancements that reﬂect evolving community expectations. There are also infrastructure and utilities maintenance needs that must be addressed. These improvements aim to ensure that the Pearl Street Mall remains a welcoming and dynamic destination for residents and visitors alike. Civic Area Redevelopment: With the upcoming relocation of city services to the Western City Campus in 2027, several publicly owned properties in the Civic Area— between Canyon Blvd and Arapahoe Ave from 9th to 14th Street—will become available for redevelopment. This transition presents a once-in-a-generation opportunity to activate the Civic Area with a mix of civic and commercial uses that support activation and vitality, further strengthening Downtown’s role as a central gathering place. While the Civic Area lies outside of CAGID’s boundaries, recent downtown planning efforts have identiﬁed it as a signiﬁcant opportunity area and the future of this area should be considered as part of CAGID’s future role. Safety: Ensuring Downtown consistently feels and is safe remains a top priority for maintaining its appeal, functionality, and overall vitality. Perceptions of safety have the most direct impact of any factor on vibrancy, tourism, and, by extension, Downtown’s economic conditions and social wellbeing. To address this concern, planned upgrades to CAGID parking garages include security enhancements that support a safe and accessible environment for all users. These efforts are complemented by broader goals to improve pedestrian and cyclist safety through better lighting, visibility, and infrastructure design.

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Connectivity to the Hill: Improving the physical and experiential connection between Downtown and University Hill is a recurring theme across multiple recent city plans. While this has not always been a community priority, the new hotel and convention center investments along the Broadway corridor, in addition to planned improvements to the public realm, have helped to bridge the longstanding gap between these two activity centers. Looking forward, additional opportunities exist to enhance multimodal access, particularly through improved bike and pedestrian routes, to strengthen the link between these districts. This will be critical to fostering not only physical connectivity, but economic vitality along the Broadway corridor. The Future of Downtown Office Space: Downtown Boulder, like many urban centers, is reevaluating the role and future of office space in a post-pandemic landscape. As work patterns shift, there is growing momentum to reimagine vacant or underutilized office spaces for ﬂexible, innovative, or mixed uses that respond to evolving workforce needs and support Downtown’s long-term vitality. Capital Improvements: In addition to Pearl Street Mall improvements, there are a series of infrastructure upgrades that have been recommended in recent planning efforts. Key capital projects include parking garage renovations, undergrounding power lines for aesthetic and safety beneﬁts, and implementation of the Affordable Commercial Capital Program to support small businesses. These investments address aging infrastructure while aligning with Boulder's broader goals for sustainability and economic inclusion. Downtown Maintenance and Operations: Ongoing maintenance is essential to preserving the quality and functionality of Downtown Boulder’s public assets. However, the growing scope of maintenance needs, particularly for parking structures, streetscapes, and public spaces, in addition to high inﬂation and other exogenous challenges, exceeds CAGID’s current funding capacity. As Downtown evolves, securing sustainable resources for operations and upkeep will be critical to maintaining the area’s attractiveness and supporting the needs of businesses, property owners, and the broader community.

UNIVERSITY HILL GENERAL IMPROVEMENT DISTRICT (UHGID) BACKGROUND UHGID was established in 1970 to support commercial activity in the University Hill, or “the Hill,” area by acquiring land for public parking and providing needed maintenance services. UHGID currently owns and manages the 42-space off-street parking lot at 14th Street and College Avenue, known as the “14th Street Lot.” It previously owned a lot at Broadway and Pleasant Street, which was sold in 2021 and redeveloped into the Boulder Moxy hotel. Like CAGID, UHGID was created to bolster commercial vitality through parking infrastructure, management, and maintenance; however, the district has historically struggled to generate sufficient revenue to meet its operational needs and now relies on additional city subsidies to fund its services. In 1985, UHGID’s original scope was expanded to include a broader range of services that support the functionality and appeal of the district. Today, UHGID supports programs such as: •

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UHGID SNAPSHOT YEAR ESTABLISHED 1970

ASSESSMENT METHODOLOGY 1.691 Mill Levy

TOTAL ANNUAL DISTRICT REVENUE (2024) $434,670

TOP SOURCES OF FUNDS (2024) 1. Transfers in – 62% 2. Parking revenue – 18% 3. Interest & investment earnings – 11%

TOP USES OF FUNDS (2024)

1. Parking & access maintenance – Pedestrian, bicycle, and transit amenities 39% and incentives: UHGID has aided in 2. Administration – 21% enhancing multimodal infrastructure on the 3. Customer Service – 12% Hill. Placemaking and aesthetic enhancements: UHGID supports placemaking efforts through services and initiatives landscaping, art, enhanced public realm design elements, and maintenance of streetscape amenities. Hill Ambassador Program: In partnership with the Downtown Boulder Partnership and the University of Colorado Boulder, UHGID supports the Hill’s Ambassador Program, which improves safety and cleanliness through services like trash removal, graffiti abatement, and visitor assistance.

Today, the Hill remains a strategic focus for the city due to its location as a major gateway into Downtown Boulder, its proximity to the University of Colorado Boulder, as a neighborhood commercial area, and the addition of two new hotels and a convention center set to open in August 2025—all of which are increasing visibility and visitor traffic to the area.

Governance The business affairs of UHGID are administered by the University Hill Commercial Area Management Commission, which is composed of ﬁve City Council-appointed members with ﬁveyear terms. Three of those members must own real or personal property, reside in the district, or represent a real or property owner in the district and two members are for citizens-at-large.

partnerships Key UHGID partnerships include: •

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The Hill Merchant Association (“The Hill Boulder”): The Hill Boulder is a 501(c)3 nonproﬁt “committed to renewing vibrancy of arts and culture, producing community events, and promoting year-round business in the University Hill district.” Hill Reinvestment Working Group (HRWG): The Hill Reinvestment Working Group is a neighborhood committee of members that represent city departments, the University Hill Neighborhood Association (UHNA), the Boulder Area Rental Housing Association (BARHA), several University of Colorado departments, the Inter-Fraternity Council (IFC) and Panhellenic. The group collaborates monthly to share information, build relationships, design programs, evaluate processes and recommend changes and improvements around ongoing issues on the Hill. University of Colorado Boulder: The University of Colorado’s ﬂagship campus is located across Broadway from UHGID. Students, faculty, and visitors of the university frequently visit the district.

KEY MARKET INDICATORS Key market indicators for UHGID point to clear signs of economic stagnation. Since 2020, growth in both property and sales tax revenues have either plateaued or declined. While most of the Hill’s property value appreciation over the last ten years occurred prior to 2020, values rose 15.9% between 2019 and 2024. This growth is below the 23% increase in the CPI, indicating a real decline in value. Notably, 14% of that growth occurred in a single year (2023–2024) with the addition of the Moxy Boulder hotel, suggesting that the overall 2019-2024 increase may overstate the district’s underlying economic performance. In 2024, sales tax revenues remained 11.5% below 2019 levels, and although retail vacancy has held under 10%, anecdotal evidence indicates ongoing storefront turnover that predates the pandemic. Like Downtown, the Hill continues to face challenges related to recovery, stability, and long-term vitality—underscoring the need for strategic reinvestment and focused support to help reinvigorate the district’s economic base.

DISTRICT CHALLENGES UHGID faces a range of ﬁnancial and operational challenges that impact its ability to meet the community’s evolving needs. While there is strong alignment around the priorities for University Hill—such as public realm improvements, safety enhancements, and greater economic vitality— the district lacks the ﬁnancial capacity to implement many of these goals without additional support. Speciﬁc challenges identiﬁed in the Improvement District Analysis include:

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Revenue Limitations and Reliance on Subsidies: UHGID was originally designed to fund parking and maintenance needs through self-imposed property taxes. However, current assessment rates, which comprise just 9% of UHGID’s overall revenue, are insufficient to cover the scope of today’s services. As a result, the district relies on subsidies from the city’s General Fund to maintain even baseline operations, which limits its ability to expand services or make strategic investments. Misalignment Between Priorities and Funding Capacity: Community priorities for improving the Hill, which are well documented and consistently supported, include improved streetscapes, enhanced safety measures, and support for local businesses. Despite this clarity, the district does not generate enough revenue to meaningfully advance these goals. This funding gap restricts UHGID’s ability to respond to both long-standing and emerging challenges in the area. Economic Stagnation: In addition to administrative and ﬁnancial challenges, as evidenced by the key market indicators above, UHGID is and has long been experiencing signs of economic stagnation. High business turnover, a lack of diversity in offerings beyond undergraduate-serving uses, safety concerns, limited activation, and lagging postpandemic economic recovery present ongoing challenges for the district.

PRIORITIES FOR THE FUTURE A range of past planning efforts by the City of Boulder directly relate to and inﬂuence the UHGID area. These efforts reﬂect a consistent focus on enhancing the public realm, improving multimodal connections to the University of Colorado Boulder and Downtown, and strengthening the Hill’s role as a vibrant commercial and cultural destination. Plans reviewed include the Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), ULI TAP Report for the 14th Street Lot (2023), Downtown Boulder Vision Plan (2022), University Hill Alley Enhancement Plan (2018), and the Central Broadway Corridor Design Framework (2017). Recognizing the importance of the Hill as a city priority, Boulder has taken active steps to invest in the district’s beautiﬁcation, livability, and connectivity. Since April 2024, city staff and community partners have implemented a range of improvements, including new wayﬁnding signage, creative crosswalks, enhanced landscaping, sidewalk upgrades, expanded Downtown Ambassador services, and better multimodal links between the Hill and Downtown. Looking ahead, the 2025 City budget includes $1.4 million dedicated to further investments in the area—most notably, upgrades to the Broadway medians adjacent to the Hill. These enhancements will include irrigation repairs, new plantings, and potential art installations. In addition to these ongoing efforts, past planning processes have identiﬁed several key community priorities for the Hill, including: •

Streetscape and Public Realm Improvements: Enhancing the Hill’s public realm is a top priority to support a more welcoming, comfortable, and active environment for residents, visitors, and businesses. Planned near-term investments include a streetscape renovation along Broadway aimed at improving lighting, landscaping, crosswalks, and furnishings,

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which will be informed by public engagement later in 2025. Additional near-term improvements include a painted crosswalk at 13th and Pennsylvania, and sidewalk upgrades on 11th Street to strengthen pedestrian connections to Downtown and the Civic Area. Together, these improvements will elevate the character and functionality of the Hill as a pedestrian-friendly district. Safety: Cleanliness and safety have emerged as key concerns from both community members and businesses on the Hill. While the Hill Ambassador Program provides valuable support, infrastructure and operational gaps, particularly in alleys and lower-visibility areas, limit the district’s ability to feel consistently safe and inviting. Upcoming projects and ongoing conversations are focused on addressing these issues through environmental design, activation strategies, and enhanced maintenance to create a safer and more enjoyable district for all. Connectivity to Downtown: Strengthening the link between the Hill and Downtown Boulder is a recurring goal across city plans, particularly with the new hotel and convention center development along the Broadway corridor. Improvements to pedestrian and bike infrastructure, including upcoming work along 11th Street and planning for a cultural corridor on 13th Street, are intended to help close key gaps and foster more seamless multimodal movement between districts. Diversifying Beyond an Undergraduate Destination: As the Hill evolves, there is growing interest in broadening its identity beyond an undergraduate-focused commercial area. Supporting a more diverse mix of retail, services, and cultural amenities can help the district better reﬂect the surrounding neighborhoods and broader Boulder community. Strengthening Overall Economic Vitality: The Hill has experienced high rates of business turnover and overall economic stagnation compared to other areas of the city. Recent developments, such as the new Moxy Boulder and Limelight Hotels and upcoming conference center, signal momentum. However, sustained investment in public realm improvements, activation, and safety will be essential to supporting long-term economic vibrancy in this area. Redevelopment of the 14th Street Lot: The UHGID-owned lot at 14th & College represents a signiﬁcant redevelopment opportunity for the district. In the short-term, activation strategies such as pop-up markets, food trucks, and micromobility hubs can bring immediate energy to the space. Over the long-term, the site holds potential for mixed-use development, with concepts ranging from retail and housing to artist studios or incubator spaces. As a centrally located property under public ownership, this site could play a catalytic role in the Hill’s revitalization.

BOULDER JUNCTION ACCESS DISTRICTS (BJAD) BJAD was established in 2010 to support Boulder’s ﬁrst transit-oriented redevelopment, following the vision outlined in the City’s 2007 Transit Village Area Plan. Comprised of two overlapping GIDs—BJADParking (BJAD-P) and BJAD-Transportation Demand Management (BJAD-TDM)—the district was created to promote sustainable development by supporting parking infrastructure and encouraging multimodal transportation options. BJAD-P oversees parking management in the area, including shared ownership of the parking garage at Depot Square, while BJAD-TDM focuses on reducing reliance on single-occupancy vehicles through investments in transit incentives and active transportation. Together, the districts have supported a walkable, transit-rich neighborhood by funding programs such as: •

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Pedestrian, bicycle, and transit amenities and incentives: Providing Boulder Clean Commute incentives and RTD EcoPasses, Boulder B-Cycle Memberships, and CarShare vouchers for residents and employees of the district Education & Community-Building: Hosting events to inform residents and employees of the beneﬁts they may receive from living and/or working in the district and educate the public about the growth and development of the area Sustainability initiatives: Promoting sustainable transportation and eco-friendly development to create a healthier and more livable environment

Governance BJAD is managed by a joint commission that represents both BJAD-Parking and BJAD-TDM. Each

BJAD-TDM SNAPSHOT YEAR ESTABLISHED 2010

ASSESSMENT METHODOLOGY 5 Mill Levy

TOTAL ANNUAL DISTRICT REVENUE (2024) $570,470

TOP SOURCES OF FUNDS (2024) 1. Property Tax – 96%

TOP USES OF FUNDS (2024) 1. District management – 73% 2. Administration – 15%

BJAD-P SNAPSHOT YEAR ESTABLISHED 2010

ASSESSMENT METHODOLOGY 10 Mill Levy

TOTAL ANNUAL DISTRICT REVENUE (2024) $631,370

TOP SOURCES OF FUNDS (2024) 4. Property tax – 69% 5. Parking revenue – 27%

TOP USES OF FUNDS (2024) 1. Cost allocation & transfers – 45% 2. Administration – 23% 3. Capital Improvement Plan – 21%

ﬁve-member commission is composed of ﬁve Council-appointed members with ﬁve-year terms. Three of those members must own real property or represent a real property owner in the district and two members are city electors who may live inside or outside of the district.

partnerships Key BJAD partnerships include: •

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Regional Transportation District (RTD): RTD operates public transit services in the Denver Metro area, including in Boulder at Boulder Junction. While RTD has not been operating bus service to and from Boulder Junction due to pandemic disruptions, RTD is committed to reopening the transit station later this year, which will connect the district to other parts of Boulder and the region. Boulder Chamber Transportation Connections (BCTC): BCTC is 501(c)(3) nonproﬁt that is one of eight Transportation Management Organizations (TMOs) in the Boulder-Denver metro region. BCTC services include sustainable transportation planning, employee commute options surveys, education and consulting, commute logistics, outreach events, advocacy, and local and regional leadership. In Boulder Junction, BCTC administers the BJAD EcoPass Program and helps promote micro mobility options. Additionally, BCTC has partnered with Community Vitality to host events related to raising awareness of Boulder Junction as a district and the transportation beneﬁts it has to offer.

KEY MARKET INDICATORS In contrast to the more established, yet challenged contexts of CAGID and UHGID, BJAD shows relatively healthy market indicators. Although BJAD has limited office inventory, vacancy rates remain very low (approximately 3%), indicating strong demand. Multifamily and retail vacancies are currently around 10%, which is relatively stable for an emerging mixed-use district. Property values within BJAD have seen signiﬁcant increases between 2019 and 2024 (268%), driven by ongoing new development and investment in the area. These trends suggest that BJAD’s economic fundamentals are strong and well-positioned for continued growth through Boulder Junction Phase II redevelopment.

CHALLENGES As Boulder Junction transitions from early-stage development into a more mature, mixed-use district, BJAD must navigate a set of emerging challenges that reﬂect its evolving context. Originally designed to support parking and multimodal transportation infrastructure, BJAD now operates in a more complex environment—marked by overlapping governance structures, shifting development patterns including Boulder Junction Phase II development, and infrastructure needs that differ from those envisioned at the district’s inception. The following challenges highlight key areas where BJAD must adapt to remain effective, responsive, and aligned with the district’s long-term vision and goals:

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Funding Levels Exceed Current Planned Program and Capital Needs: BJAD currently collects more revenue than is required to support its planned programming and capital projects, raising important questions about ﬁnancial efficiency and responsible stewardship of taxpayer funds. Without a clear pipeline of new projects or services, the district risks accumulating unused reserves or deploying resources inefficiently. This dynamic has drawn scrutiny from the BJAD Commission, particularly regarding the existing mill levies—most notably in BJAD-P—as stakeholders debate whether current rates are justiﬁed. Given that revenues exceed planned expenditures, there is an opportunity to reevaluate the mill levies and consider adjustments that better reﬂect the district’s actual needs, potentially reducing the tax burden on property owners while preserving the district’s ability to fund essential services. Overlapping Districts and Resulting Administrative Burden: BJAD is composed of two overlapping general improvement districts, BJAD-P and BJAD-TDM, which creates signiﬁcant administrative complexity. Each district has its own taxation structure, reporting requirements, and budgetary process, despite serving a largely uniﬁed purpose. This structure has led to inefficiencies in governance, confusion among stakeholders, and difficulty in recruiting stakeholders to serve on the joint advisory commission. Role of the District in Boulder Junction Phase II Is Unclear: As planning begins for Boulder Junction Phase II—located west of the existing rail tracks—the role of BJAD within this expansion area remains undeﬁned. New development presents opportunities to extend the district’s transportation demand management and parking programs, but it also requires thoughtful integration to avoid duplicative or misaligned efforts.

PRIORITIES FOR THE FUTURE •

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Walkable, Transit-Rich District: Boulder Junction was intentionally designed as a transitoriented development due to its strategic location near the railroad tracks, with long-term aspirations for rail service to Denver and regional destinations via Front Range Passenger Rail. Moving forward, prior planning efforts have envisioned that high-density, mixed-use development that supports walking, biking, and transit use will continue. RTD is expected to reopen the Boulder Junction transit station and bus terminal in 2025, further reinforcing the transit-oriented nature of this area with improved multimodal regional accessibility. Boulder Junction Phase II: Boulder Junction Phase II represents the next step in the area’s evolution, and is envisioned as an expansion of Phase I’s mixed-use redevelopment and neighborhood character. Though currently outside the BJAD boundary, there is potential to expand the district to include this area, enabling consistent infrastructure, funding, and programming strategies across the full Boulder Junction footprint. Clarifying BJAD’s role in Phase II will be critical to ensuring cohesive planning, equitable investment, and consistent service delivery across the Boulder Junction area. Parking and Transportation Demand Management (TDM): Boulder Junction is a model for multi-modal planning, with dedicated funding structures for both parking (BJAD-P) and TDM programs (BJAD-TDM). These programs support mobility options that reduce reliance on

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single-occupancy vehicles, and are anticipated to continue doing so regardless of potential BJAD-P and BJAD-TDM consolidation. First- and last-mile connections remain a focus to ensure that residents, employees, and visitors can access the district easily and sustainably. Capital Improvements: Several near-term capital projects are set to enhance infrastructure and support the Boulder Junction’s multimodal goals. A branding and wayﬁnding signage project is underway to improve navigation and district identity. The Core Arterial Network (CAN) update for 30th Street will add protected bike lanes, intersection improvements, and upgrades for pedestrians and transit users. Additionally, a new two-acre pocket park near the historic depot is planned, with construction potentially beginning by 2026. Increasing Vibrancy: Boulder Junction’s vision includes fostering a vibrant, inclusive commercial environment. A commercial covenant at Boulder Commons ensures that a portion of ground-ﬂoor retail space is leased below market rates to nonproﬁt or local and independent businesses, supporting a diverse business mix. Future investments in public space, amenities, and cultural programming and events are envisioned to further enhance the area’s identity and appeal for a wide range of users.

55TH & ARAPAHOE STATION AREA The 55th & Arapahoe Station Area, located in the larger East Boulder subcommunity area, and pictured in the map below, is one of the city’s employment hubs. Anchored by institutions such as the Boulder Community Health Foothills Medical Campus, Boulder Municipal Airport, Flatirons Business Park, Valmont City Park, and the University of Colorado Boulder’s East Campus, the East Boulder area supports a mix of employment sectors, including research and development, healthcare, arts and culture, aerospace, and technology. Despite the robust employment base, the area currently lacks residential options, meaning that nearly all workers commute in daily. While there are some multifamily residential units on the south side of Arapahoe Ave, existing housing supply within the Station Area boundary is limited. The nearby San Lazaro Mobile Home Park, just outside Boulder City limits, is near the Station Area and home to approximately 460 residents. Additionally, the recently completed Weathervane Apartments, a mixed-income community located just east of the Station Area boundary on Arapahoe Ave, has added 317 more housing units to the area.

LEGEND: 55TH & ARAPAHOE STATION AREA

The physical layout of the area reﬂects a legacy of auto-oriented planning. Wide roads, large blocks, and limited pedestrian infrastructure deﬁne much of the environment. Arapahoe Avenue, designated as State Highway 7, runs through the area and is one of the city’s busiest arterials. East Boulder, as described by many community members, feels like a series of disconnected “islands” that are active during the workday but largely quiet during evenings and weekends. Land use patterns consist primarily of older commercial and industrial buildings, many of which are aging but still in active use. Though reinvestment has occurred in some properties, new construction has been relatively limited, and the area lacks the pedestrian-friendly street grid and public amenities found in other parts of Boulder. The 55th & Arapahoe area is now poised for signiﬁcant transformation. The area surrounding the intersection of 55th Street and Arapahoe Avenue is the planned location of a future State Highway 7 Bus Rapid Transit (BRT) regional station. This major mobility investment will bring high-frequency transit service connecting Boulder to I-25 and beyond, and will be accompanied by streetscape and multimodal infrastructure improvements. Together, these enhancements position the Station Area as a key opportunity site for transit-oriented development (TOD) within East Boulder’s evolving commercial and employment core. The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan, both completed in 2022, envision this area evolving into a more dynamic, mixed-use district with enhanced transportation infrastructure, improved amenities, and new housing opportunities. Implementing new governance mechanisms and investment strategies will be essential to support long-term economic growth and ensure alignment with these plans’ broader vision.

KEY MARKET INDICATORS The 55th & Arapahoe Station Area has seen a substantial increase in property values over the past decade, with total assessed value growing by 134% since 2014 (not adjusted for inﬂation). The area is primarily characterized by light industrial and ﬂex space, encompassing more than 700,000 square feet. Industrial vacancy rates, which spiked during the pandemic, have begun to stabilize. Office space is the second largest real estate category by inventory, comprising 11 buildings and just over 230,000 square feet. However, this sector has been signiﬁcantly underutilized in recent years, with vacancy rates climbing to nearly 19% since the pandemic. Retail is limited in the area, with only about 75,000 square feet of space, which also experienced elevated vacancies due to pandemic-related impacts.

CHALLENGES Several key challenges were identiﬁed through the 55th and Arapahoe Station Area Master Plan process, including: •

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Disconnected Street Network and Limited Mobility Options: The northwest portion of the Station Area has large blocks and lacks a connected street grid, resulting in limited pedestrian and bike connectivity. This auto-oriented layout restricts access, safety, and comfort for those walking or biking, particularly in the absence of north–south bicycle infrastructure. Growing Economic Demand Without New Construction: The area has experienced notable job growth—particularly in healthcare, industrial, and ﬂex uses—despite limited new development. While this reﬂects market strength and efficient reuse of existing spaces, it also signals potential pressure on aging building stock, with growing needs for modern infrastructure and space conﬁgurations as businesses grow and evolve. Involuntary Displacement: As interest in redevelopment grows, so do concerns about the displacement of existing businesses. Without thoughtful planning, future investment may inadvertently push out the very people and uses that have shaped the district’s character to-date. Energy Demand and Decarbonization Challenges: Some of the area’s major employers, including medical and manufacturing facilities, have signiﬁcant energy demands. The existing built environment lacks renewable infrastructure and contributes to urban heat island effects. Addressing these challenges will be critical to achieving Boulder’s decarbonization goals. Infrastructure Gaps and Governance Needs: There is currently no coordinated governance model in place to manage infrastructure, parking, or forthcoming transitoriented investments in the Station Area. Prior planning efforts have recommended exploring tools such as a special taxing district (GID, BID, URA, or similar) that help deliver long-term investment, branding, and operations support aligned with community priorities.

PRIORITIES FOR THE FUTURE The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan include several key priorities, informed by extensive community engagement, for the future of the 55th & Arapahoe Station Area: •

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A Mix of Uses: The Station Area’s existing light industrial, medical, and office base provides a strong foundation for mixed-use redevelopment. Recent zoning code updates to this area will allow for a broader range of uses, including a range of housing types, neighborhoodserving retail, and active ground-ﬂoor uses to support a community where people can live, work, and shop. Multimodal Investment: The planned BRT station at 55th and Arapahoe offers a rare opportunity to anchor compact, high-intensity transit-oriented development. Increased density, paired with reimagined parking strategies and investments in shared mobility options, can support regional transit access while reducing single-vehicle dependence. Public Realm Enhancements: As larger scale redevelopment opportunities occur, there is an opportunity to complete the street grid and introduce pedestrian-scale infrastructure. Investments in sidewalks, bicycle facilities, and green/open space could also help create a safer and more comfortable public realm while building a distinct neighborhood identity. TDM Strategies: The area’s concentration of employment could support pilot programs to support micromobility and commuter-focused TDM programs. These strategies, including shared parking and curbside management, will be critical to reducing congestion and making the most of limited public space. Climate Goals: Future development can support Boulder’s climate goals through initiatives like rooftop solar, energy-efficient building materials, and urban greening to reduce emissions and mitigate urban heat island effects. Where possible, redevelopment or reuse of existing high use facilities could also focus on improving the energy performance. Prevent Involuntary Displacement: A strong emphasis on equity will be essential to preventing involuntary displacement and gentriﬁcation as the area grows and changes. Policies that support affordable commercial space, retain essential services, and protect vulnerable tenants can help ensure the beneﬁts of growth are widely shared by both existing and new community members. Partnerships and incentive programs can help align private development with long-term community goals.

04. RECOMMENDATIONS As documented in the existing conditions summaries, existing city funding sources, including GIDs, are not adequate to implement the community’s vision for Boulder’s commercial areas. Complementary to the city’s long-term ﬁnancial strategy work, this Improvement District Analysis provides ﬁnancial and structural options and recommendations to sustainably support the vibrancy of Boulder’s commercial areas for the next several decades. Below are recommendations designed to optimize the structures, responsibilities, and ﬁnancial resources of current districts, while also exploring new tools and areas for potential district creation. These recommendations are sorted into Immediate Actions (6-12 months), Short-Term Actions (12-24 months), and Long-Term Actions (Beyond 24 months). The goal of these recommendations is to address existing funding gaps for planned projects and needed services, and to ensure that Boulder’s commercial areas remain vibrant, well-supported, efficiently managed, and prepared for future growth.

IMMEDIATE ACTIONS (6-12 MONTHS) EXPLORE A DOWNTOWN DEVELOPMENT AUTHORITY (DDA) FOR BOULDER’S CORE DISTRICTS While Boulder’s existing core GIDs (CAGID and UHGID) provide RECOMMENDATION FOR: critical infrastructure and operational support to each district, CAGID UHGID there is growing recognition that additional tools are needed to support future growth, connectivity, and economic vibrancy throughout Boulder’s core districts. A Downtown Development Authority (DDA) is one compelling option, and offers the opportunity to not only provide additional support to the CAGID and UHGID areas, but to enhance focus on the areas in Downtown Boulder that are undergoing signiﬁcant change, including the Civic Area, the Western City Campus, and the connections in between. What is a DDA? A Downtown Development Authority is a state-enabled, quasi-governmental entity designed to support revitalization efforts in a city’s central business district. A DDA brings together property owners, businesses, residents, and local government to establish a long-term, self-sustaining organization that ﬁnances and manages projects aimed at improving the area’s attractiveness, functionality, and economic health. A central requirement of a new DDA is the adoption of a Plan of Development, which outlines the district’s vision, priorities, and strategy for investments. DDAs are funded through two main mechanisms:

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Tax Increment Financing (TIF): Captures future increases in sales and property tax revenue within the district without raising current tax rates. These funds are then reinvested into the area to ﬁnance capital projects, maintenance, and ongoing services. Mill Levy Assessment (up to 5 mills): Subject to voter approval, a property assessment of up to 5 mills can be leveraged to fund DDA administration and operations.

TIF is activated by setting a “base” property valuation at the time the DDA’s Plan of Development is adopted. Any property or sales tax revenue growth above this base—referred to as the increment— is directed to the DDA for a 30-year term, with the option to renew for two additional 20-year periods. DDAs have bonding authority, but do not have taxing power beyond the voter-approved 5 mills and cannot exercise eminent domain. Additionally, unlike Urban Renewal, DDAs do not require ﬁndings of blight in order to utilize TIF. DDAs are governed by a board of 5 to 11 members, made up of stakeholders from within the district—business and property owners, residents, and often a City representative—who are appointed by City Council. City Council must also approve any bonds issued by the DDA.

Why Now? A DDA is a proven tool to reinvigorate economic activity—particularly in areas like Downtown and The Hill, which face lingering challenges recovering from the impacts of the pandemic and diminishment of property value as a result. As Boulder considers how best to support its central business district, the city is also approaching a pivotal moment in its evolution. Several areas in and around Downtown are poised for transformation, and a DDA could provide long-term, sustainable funding to address challenges and unlock opportunities: •

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The Civic Area, centrally located in Downtown Boulder, is a cornerstone of the city’s identity. However, its full potential as a vibrant public space and community gathering point remains unrealized. Despite its central location, the Civic Area lacks consistent activation, amenities, and public safety infrastructure. Phase II of its redevelopment presents an opportunity to revitalize the space with improved programming, recreation facilities, yearround cultural activities, and stronger connections to Boulder Creek. A DDA could help close existing operational and funding gaps, such as expanding the Ambassador Program to this area and upgrading infrastructure to support regular public events. The Western City Campus in the Alpine-Balsam area is another major, upcoming investment into Boulder’s civic infrastructure. Once completed, the site will house various city services and is expected to attract signiﬁcant daily foot traffic from staff and visitors. However, the surrounding infrastructure—especially in terms of mobility and access— requires upgrades to support this growth. Improvements in walkability, bike and transit access, and better integration with nearby commercial zones will be critical. A DDA could help fund these enhancements and create a seamless connection between the Hill, the Civic Area, Downtown Boulder, and Western City Campus.

As City Council recently noted in their review of the Civic Area Phase II, signiﬁcant investment is needed to fully realize Boulder’s goals for vibrant, inclusive, and well-connected public spaces.

However, no current funding mechanism exists to comprehensively support these improvements across the city’s core districts. A DDA could ﬁll that gap by providing dedicated, ﬂexible resources for capital projects, operations, maintenance, and economic development across Boulder’s core districts. It would also position Boulder to meet increasing expectations tied to events like the arrival of the Sundance Film Festival in 2027, which will bring major attention, visitors, and pressure on downtown infrastructure and services.

Why a DDA? While there are other district ﬁnancing tools that could be used in this area, including Urban Renewal and expansion of the existing GIDs, further exploration of a DDA is recommended for several key reasons: • • • •

The geographic area has diverse and complex needs, including infrastructure upgrades, operational support, maintenance, and programming. The economic and social beneﬁts of improvements in Downtown’s core would extend well beyond a single commercial area or stakeholder group. A DDA offers a robust governance model that can support long-term investment and coordination. Peer cities across the region have successfully implemented DDAs over the last 40+ years, demonstrating replicable models for Boulder.

Overall, the DDA tool is well-suited to the goals at hand, particularly when paired with strategic engagement, ﬁnancial planning, and phased implementation. A prospective DDA would need to be closely coordinated with existing entities such as the City of Boulder, CAGID, UHGID, and the Downtown Boulder BID to minimize duplication, limit tax burdens, and ensure effective management across overlapping areas.

Timing Considerations The timing of a potential DDA is critical. TIF revenues are calculated based on the tax base at the time the Plan of Development is adopted. For maximum beneﬁt, this plan should be adopted between the November 2026 DDA formation vote and December 31, 2026, just ahead of Sundance 2027, which is expected to signiﬁcantly boost sales tax revenue. Another important consideration is the impact of TIF on overlapping taxing entities, including Boulder County, the Boulder Valley School District, and the Boulder Public Library District. TIF would divert a portion of future tax revenue increases from these entities to the DDA, making early and ongoing collaboration with these stakeholders essential.

Action Steps To explore the feasibility of forming a DDA, a phased approach over the next 12–15 months is recommended: •

Phase 1: DDA Framework & Priority Setting o Deﬁne a study area for the DDA formation effort that includes Downtown, University Hill, and the Alpine Balsam district

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Compile a property database and work with the City and Assessor to determine property values and sales o Conduct periodic creative workshops with the DDA Planning Group o Develop educational materials that provide a concise overview of how a DDA works o Conduct interviews and small group meetings with organizations and key stakeholders from each affected area to inform them on DDA options and seek priorities (i.e. Downtown Management Commission, UHGID, Downtown Boulder, etc.) o Conduct best practice research and orchestrate a tour of comparable DDAs along the Front Range (i.e. Fort Collins, Longmont, Colorado Springs, others to be considered) o Evaluate the pros, cons, and ﬁnancial implications of wrapping the central business district’s existing GIDs (i.e. CAGID and UHGID) into a new DDA o Develop a plan framework, including recommended boundaries and sequencing for moving forward to create a DDA for Boulder o Conduct a study session with Boulder City Council to offer ﬁndings from initial research and seek policy guidance. Phase 2: Plan of Development o Evaluate revenue options, including projections for tax increment ﬁnancing and/or assessments, and help city staff facilitate meetings with taxing partners o Conduct periodic creative workshops with the DDA Planning Group o Broad outreach efforts to seek improvement priorities from all affected stakeholders within the DDA boundaries in a variety of formats. Meeting formats could include small groups, Open Houses, and participation in existing community events and venues. The City’s Racial Equity Instrument would be utilized to make sure that engagement is inclusive and responsive to city goals. o Design and interpret an online survey to seek downtown improvement priorities from all Boulder residents. o Draft and design a Plan of Development document that identiﬁes a menu of service and improvement options and supporting graphics to illustrate potential improvements o Review draft plan concepts with the DDA Planning Group and Downtown stakeholders at-large o Conduct a study session with the Boulder City Council to lay out the draft Plan of Development and path forward. Phase 3: Legal Process to Form DDA o Database development and management to identify qualiﬁed electors and associated assessment costs (if any) o Draft and design educational materials to inform stakeholders of the beneﬁts and costs associated with the DDA

o o o

Graphic summary of the Plan of Development to visually convey improvement and project opportunities Legal work to prepare for and advance district formation, including draft ordinance, and management of the TABOR election Coaching to help district proponents inform stakeholders on the beneﬁts of the DDA and clarify TABOR ballot options.

A prospective DDA presents the opportunity to secure a long-term, sustainable funding mechanism to support Boulder’s core districts, and could help create a more vibrant, accessible, and resilient city center for decades to come.

CLARIFY CAGID VERSUS BID SERVICES The current overlap between the services provided by CAGID and RECOMMENDATION FOR: the BID creates inefficiencies and confusion among stakeholders CAGID in Downtown Boulder. By clearly deﬁning and aligning the responsibilities of each district, the city can eliminate redundancies, improve service delivery, and provide clarity to businesses about where to seek support. This clariﬁcation will also help streamline operations, making the districts more effective and responsive. A comprehensive inventory of services will be needed, along with input from key stakeholders such as the Downtown Boulder Partnership and city staff.

Action Steps: • •

Conduct a service inventory to assess overlap and gaps. Engage with stakeholders, including Downtown Boulder Partnership, to draft an implementation plan.

ANALYZE DISTRICT FEASIBILITY FOR 55TH & ARAPAHOE Although the 55th & Arapahoe area is on the cusp of major RECOMMENDATION FOR: transformation, driven by planned infrastructure investments and 55th & ARAPAHOE recent zoning changes in the Station Area, there is currently no dedicated governance structure in place to coordinate place management, sustain future improvements, or address parking and transportation demand beyond existing city services. Exploring the feasibility of Boulder’s GID model—which has proven effective in areas such as CAGID, UHGID, and BJAD—is a logical next step. A GID could provide the longterm investment, branding, and operational support needed to align with and advance community priorities. If there is not sufficient stakeholder support for forming a GID or another type of assessment-based district (like a BID), the city could consider alternative district management tools—such as Urban Renewal—that offer different funding and governance mechanisms. While Urban Renewal typically focuses on addressing blight and catalyzing redevelopment through use of TIF, it can also be tailored to support infrastructure investment, public realm enhancements, and economic revitalization in areas where an assessment-based improvement district may not be viable.

Exploring a range of tools ensures ﬂexibility in aligning the right approach with community needs and stakeholder readiness.

Action Steps: To from a new GID in the Station Area, a phased approach is recommended. The following approach typically takes from 6-12 months, working backwards from a November TABOR election: •

•

Step 1: Feasibility Study o To explore the feasibility of creating a GID, an initial analysis is recommended that includes:  Financial modeling to assess revenue potential and costs, and  Outreach to property owners and community members to identify priorities for the district and gauge support o Following feasibility analysis, provide a recommendation on whether or not to move forward with the legal process to form the district, which may include the creation of an work plan that describes district characteristics and anticipated services and investments. Step 2: Work Plan o While not required by state law, it is recommended that a Work Plan that details district purpose and vision, boundaries, services and projects, ﬁnancing, mill levy caps, debt limits, and other district characteristics be created as part of the GID formation process. Requiring GIDs to prepare an annual work plan for approval by the City Council (acting as the GID Board of Directors) has become a common practice in many cities. Step 3: Legal Process to form the GID o Petition – proponents submit a petition of formation to the City of Boulder signed by at least 30% of the electors of the proposed district, or by 200 electors, whichever number is less. The petition must include:  A description and map of the proposed boundaries  A general outline of proposed improvements and service  Estimated costs and funding methods (including revenue and debt)  A request for the City to form the district o City Council review and public hearing – Council considers formation of the GID o Adoption of ordinance forming the district – Council approves the creation of the GID and ordinance is passed o TABOR election (November or regular City election date) – voters within the proposed district vote on district formation and authorize taxation and debt  Note that if the petition is signed by 100% of the GID electors, the GID may be created by City Ordinance without an organizational election (but an election would still be needed to authorize tax, revenue, spending and debt authority)

LODGING BUSINESS ASSESSMENT AREA (LBAA) PARTNERSHIP With the addition of new hotels such as Moxy Boulder and RECOMMENDATION FOR: Limelight Hotel & Conference Center, the recently established LBAA could be encouraged to allocate funding to improve the CAGID UHGID visitor experience between Downtown and the Hill through wayﬁnding, streetscape enhancements, and connectivity improvements. This funding could be used in the near-term to improve connectivity between Downtown and the Hill while the feasibility of a DDA is explored. The city will need to establish an effective partnership model with hotel operators and ensure sustainable funding for improvements.

Action Steps: • •

Begin a conversation with the board of the LBAA and Visit Boulder, with a focus on identifying potential revenue from new and existing hotels to establish a dedicated funding stream speciﬁcally for projects between University Hill and Downtown. Develop a partnership model with hotel operators to ensure alignment with visitor experience goals.

SHORT-TERM ACTIONS (12-24 MONTHS) If a DDA is not feasible, other structures need to be explored to address the needs within Boulder’s core commercial areas. Below are several potential alternatives in lieu of DDA creation, plus several short-term recommendations for exploring BJAD efficiencies.

EXPLORE CAGID EXPANSION TO SUPPORT CIVIC AREA REDEVELOPMENT If the DDA does not come to fruition, the city could explore RECOMMENDATION FOR: expanding existing GIDs as an alternative tool to help fund and CAGID manage public realm improvements in strategic areas. One such opportunity is the Civic Area Redevelopment, which will be catalyzed by the relocation of city services to the Western City Campus in 2027. This transition will open several publicly owned parcels between Canyon Boulevard and Arapahoe Avenue from 9th to 14th Street for redevelopment. Although the Civic Area currently lies outside of CAGID’s boundaries, recent planning efforts have identiﬁed it as a key area of opportunity, and its future should be considered in the context of CAGID’s evolving role. While the area is currently publicly owned and exempt from GID assessments, the City could authorize participation through a payment in lieu of taxes (PILOT) or other voluntary contribution if GID services are desired. If future redevelopment results in private ownership of property in the area, CAGID could be formally expanded to include those parcels. This would require several steps: (1) a petition signed by a majority of electors or property owners within the proposed expansion area, (2) public notice and a hearing, and (3) approval by City Council.

Action Steps: •

Explore the feasibility and implications of CAGID expansion (including PILOT or assessment structure, services, and governance) as speciﬁc redevelopment plans for the Civic Area take shape.

ANALYZE COST RECOVERY FOR PARKING & UHGID SERVICES UHGID services are currently heavily subsidized by the General Fund, but there are opportunities to increase district-generated revenue to cover operating costs. By reevaluating parking-related fees and other revenue sources, the city can reduce dependence on the General Fund while ensuring the ﬁnancial sustainability of UHGID.

RECOMMENDATION FOR: UHGID

Action Steps: • • •

Reevaluate permit parking costs to ensure they reﬂect market conditions and district service expenses. Explore expanding paid parking zones in high-demand areas to generate additional revenue. Analyze alternative revenue sources such as special event parking fees, loading zone permits, or other partnerships with private operators.

EXPLORE ESTABLISHING A SINGLE DISTRICT IN BJAD Currently, BJAD-P and BJAD-TDM operate as separate entities, leading to inefficiencies in funding allocation and governance. Creating a single district would streamline the approach to managing transportation and mobility in Boulder Junction, allowing for greater ﬂexibility and better resource allocation.

RECOMMENDATION FOR: BJAD-P

BJAD-TDM

While Section 31-25-601, et seq., of the Colorado Revised Statutes (the GID Act) does not prevent a municipality from creating more than one GID, the GID Act also does not include any process for the consolidation of GIDs. The Special District Act, which governs metropolitan districts, for example, does provide a very speciﬁc process for the consolidation of metro districts. Thus, the consolidation of GIDs, in the technical sense, is not possible. However, the GID Act does provide a process by which property can be included and excluded from GID boundaries, and the process is rather simple. The process for including property into a GID is the same as for excluding property from a GID, and is generally as follows: 1. 2.

Owner(s) of property proposed to be included or excluded ﬁle a written petition with City Council, requesting that such property be included in or excluded from the GID City Council publishes notice and holds a public hearing on the petition to include or exclude.

Thereafter, City Council may grant the petition by adopting an ordinance including or excluding the property and ﬁle it with the County Clerk and Recorder. The property is then officially included or excluded.

The GID inclusion/exclusion process could be utilized to rearrange the boundaries of two GIDs to, in effect, combine them under one GID. For example, all the property in one GID could be included into a second GID, the ﬁrst GID could transfer any agreements or services to the second GID by agreement, then the ﬁrst GID could either exclude all the property or simply be dissolved. A GID may be dissolved at any time by city ordinance following a public hearing, if all the GID’s outstanding indebtedness, obligations, and liabilities are satisﬁed ﬁrst. One challenge with combining two GIDs by an inclusion/exclusion process is that each GID must impose a uniform property tax levy across all property in its boundaries. So, if the two combining GIDs have different mill levies before including/excluding property and dissolving, after inclusion all the property will pay the same property tax mill levy of the remaining GID. A GID can utilize assessments or some other kind of fee to impose different rates on different properties, but to do so, the properties must receive different beneﬁts commensurate with the different rates imposed. This can be difficult to demonstrate for general GID operations. If a consolidated district is pursued, the ongoing distinction between the use of funds for TDM versus parking activities could be established through annual budget and work program allocations. Further legal and ﬁnancial analysis will be needed to evaluate the viability and implications for governance and funding of creating a single district.

Action Steps: • • •

Conduct a detailed legal and ﬁnancial feasibility analysis to assess the beneﬁts and challenges of establishing a single district in BJAD. Engage with property owners, businesses, and stakeholders to evaluate potential concerns and gauge support. The timing to consolidate the two districts is not mandated or restricted by city or state deadlines. The following legal steps could be completed within several months if a single district is desired: o Owner(s) of property proposed to be included or excluded ﬁle a written petition with City Council, requesting that such property be included in or excluded from the GID. o City Council publishes notice of public hearing on the petition to include or exclude. o City Council Meeting #1: Public Hearing and First Reading of Ordinance to approve petition to include or exclude. o City Council Meeting #2: Second Reading and ﬁnal passage of Ordinance to approve petition to include or exclude. o Ordinance ﬁled with the County Clerk and Recorder. The property is then officially included or excluded.

ANALYZE IMPACTS AND STEPS TO TEMPORARILY REDUCE BJADP MILL LEVY Property owners within BJAD-P currently face dual mill levies – one RECOMMENDATION FOR: for parking and one for TDM. With the parking garage debt paid off and reserve funds growing, it may be ﬁnancially viable to reduce BJAD-P the mill levy. However, any decision regarding the mill levy reductions should be considered within the context of consolidating the BJAD-P and BJAD-TDM districts, as outlined above. A detailed ﬁnancial analysis, including the impacts of merging the districts as outlined below, will be needed to assess the viability of a mill levy reduction and its impact on the district’s ability to maintain infrastructure and evolving needs.

Action Steps: • • •

Conduct a legal and ﬁnancial feasibility analysis to determine the implications of reducing the mill levy in the context of creating a single district in Boulder Junction. Engage with BJAD businesses and property owners to discuss potential levy reductions and the merger process. Develop a phased strategy for mill levy adjustments, aligned with the broader analysis of creating a single district, based on ﬁnancial modeling and stakeholder input.

IDENTIFY GID’S ROLE IN BOULDER JUNCTION PHASE II As Phase II of planned Boulder Junction revitalization and redevelopment rolls out, additional stakeholders may enter the district, creating an opportunity to reassess the role of BJAD and ensure its structure aligns with future mobility and economic development goals. • •

RECOMMENDATION FOR: BJAD-P

BJAD-TDM

Identify and evaluate the role of the BJAD and other potential public ﬁnancing tools in Phase II infrastructure, mobility, and parking needs. Develop a plan for a transition and Phase II work if deemed viable.

LONG-TERM ACTIONS (BEYOND 24 MONTHS) DE-BRUCE GID MILL LEVY If the DDA initiative is not pursued, CAGID and UHGID may require RECOMMENDATION FOR: additional revenue to support critical infrastructure and services. CAGID UHGID However, the current mill levies are limited by Taxpayer Bill of Rights (TABOR) restrictions and would require voter approval to increase. As an example, for the 2025 budget year, CAGID’s current 3.743 mills produced $1,534,231, but without TABOR limitations, a 9.990 mill levy would have generated $4,094,835.

Similarly, UHGID’s 1.726 mills produced $38,957, while an unrestricted 4.984 mill levy would have generated $112,493. The act of ‘de-Brucing’ eliminates the spending limit established by TABOR, allows the city to retain and spend all its revenue collected under current taxing rates, and creates the opportunity for future mill levy increases. The city will need to gauge voter support and ensure transparency in the process to avoid concerns about increased taxes, while assessing if a TABOR de-Brucing vote could be a viable funding solution. Additional revenue generated through “de-Brucing” would be limited to expenditures aligned with the original purpose of the districts unless also changed by voter action.

Action Steps: • • •

Evaluate funding needs for CAGID and UHGID based on long-term infrastructure and service priorities. Conduct community engagement to gauge support for a TABOR de-Brucing vote. Develop a ballot measure to increase mill levies if deemed necessary.

EXPLORE A PEARL STREET PUBLIC IMPROVEMENT FEE (PIF) A Public Improvement Fee (PIF) could provide a dedicated funding RECOMMENDATION FOR: stream for improvements along Pearl Street, such as infrastructure, maintenance, and programming. This fee would be CAGID added to sales tax rates in the affected area, and would require property owner, business, and resident consent through a TABOR election. The city will need to ensure that the PIF model is transparent, equitable, and accepted by all stakeholders to be effective.

Action Steps: • • •

Assess the feasibility of implementing a PIF along Pearl Street. Work with business owners and property managers to gauge willingness to participate and community goals for use of the potential funds. Explore legal and administrative mechanisms for implementing a transparent and equitable PIF model.

CITYWIDE BOND ISSUE OR TAX INCREASE FOR DOWNTOWN IMPROVEMENTS As described earlier, the needs within Downtown Boulder, RECOMMENDATION FOR: including the Civic Area, Western City Campus, and connections CAGID in-between, require ongoing investments in infrastructure, public spaces, and mobility improvements to support economic vitality and long-term sustainability. If a DDA is not pursued, some of these unfunded needs could be explored as a part of the city’s broader Long-Term Financial Strategy work, including the 2026 ballot strategy based on planned community input.

Action Steps: • • • •

Assess capital improvement priorities that require new funding. Analyze potential funding mechanisms such as a bond issue, dedicated sales tax, or property tax increase within the city’s long-term ﬁnancial strategy. Evaluate opportunities to incorporate Downtown improvements into larger citywide infrastructure ballot measures to maximize funding efficiency. Engage with voters to assess support for a potential ballot measure.

URBAN RENEWAL (SITE-SPECIFIC OR DISTRICT SCALE)

RECOMMENDATION FOR: CAGID

UHGID

For properties or underutilized areas that meet “blight” criteria, urban renewal could be utilized to fund redevelopment, BJAD-P BJAD-TDM infrastructure, and improvements. Urban renewal utilizes Tax Increment Financing (TIF) to address areas that meet the state’s 55th & ARAPAHOE deﬁnition of blight, which includes factors such as deteriorating infrastructure, underutilized properties, or economic stagnation. TIF dollars can be used on a sitespeciﬁc or district scale to ﬁnance the issuance of bonds; reimburse developers for a portion of their development costs; acquire property; and make public improvements to support redevelopment efforts. To utilize urban renewal, the city will need to identify suitable properties and ensure the redevelopment aligns with sustainable development goals and community beneﬁt. The Boulder Urban Renewal Authority (BURA) could facilitate redevelopment of these properties. It is important to note that TIF-based tools cannot overlap. Therefore, urban renewal cannot be utilized within the boundaries of a potential DDA. The city would need to assess the feasibility of urban renewal based on site conditions, ﬁnancial feasibility, and alignment with community goals.

Action Steps: • • • •

Identify underutilized properties or redevelopment sites that meet urban renewal eligibility. Assess potential for TIF to support infrastructure and economic development projects. Identify the steps required to expand the use of BURA in targeted areas or implement alternative site-speciﬁc tools. Work with stakeholders to create redevelopment plans that align with community goals.

METROPOLITAN DISTRICT In areas where urban renewal may not be the best ﬁt, other siteRECOMMENDATION FOR: speciﬁc tools – such as a Metropolitan District – could provide BJAD-P BJAD-TDM alternative funding mechanisms to support infrastructure and redevelopment. A Metropolitan District is a type of special district 55th & ARAPAHOE authorized under Colorado state statute to provide infrastructure and public services within a deﬁned geographic area. These districts are commonly used to ﬁnance, construct, operate, and maintain infrastructure

investments such as streets, water and sewer systems, parks and recreation facilities, transportation infrastructure, and in some cases, public safety services. Metropolitan Districts are typically funded through property taxes, fees, and debt instruments such as bonds, and must be approved by the local jurisdiction and, in most cases, by voters residing within the district. The process for creating a Metropolitan District typically takes approximately 6-12 months due to local approval steps and alignment with Colorado’s May/November special district election timetable. While the process to form a Metropolitan District is initiated at the city level, all metropolitan districts in Colorado are formally created by a Colorado District Court per state statute. To explore the creation of a Metropolitan District, the process begins with a feasibility study that includes ﬁnancial modeling to assess potential revenues and costs, along with outreach to property owners and community members to gauge support and identify priorities. If the analysis supports moving forward, the next step is to draft a Service Plan—as required by Colorado statute— detailing the proposed district's boundaries, services, ﬁnancing strategy, mill levy caps, and debt limits. The legal formation process then involves submitting the Service Plan to Boulder City Council for review and holding a public hearing, after which the Council may approve it by resolution. Once approved, proponents must ﬁle a petition with Boulder County District Court, secure signatures from at least 30% of eligible electors (or 200, whichever is fewer), and participate in a court hearing. If the court ﬁnds the petition valid, it orders an organizational election where voters within the proposed district decide on board members, spending authority, taxation, and ﬁnal formation. If successful, the court issues a decree officially establishing the district.

Action Steps: • • •

Identify underutilized properties and redevelopment areas that could be eligible for a Metropolitan District and assess feasibility. Work with property owners to gauge willingness to participate and community goals for use of the potential funds. Explore legal and administrative mechanisms for implementing a transparent and equitable Metropolitan District.

RECOMMENDATIONS SUMMARY

APPENDIX A: DISTRICT PROFILES CENTRAL AREA GID (CAGID) DISTRICT PROFILE BACKGROUND/CONTEXT

CAGID was created in 1970 to provide parking infrastructure and related services to the downtown area in order to more easily attract employees and visitors. To accomplish this, the district built six mixed use parking garages, one surface parking lot, and on-street paid parking facilities eliminating the need for each building downtown to have their own parking lot and allowing improved streetscapes and other infrastructure. CAGID oversees ﬁve parking garages with a total of 2,209 spaces, four surface parking lots, and 165 on-street pay stations. In the 50+ years since CAGID’s genesis, its funding scope has expanded beyond just parking maintenance to include complementary programs such as: •

•

• •

Increasing mobility options in the form of EcoPasses for downtown employees, the Boulder Clean Commute program, the HOP high frequency circulator, the Lime E-Scooter Expansion Plan, and the Parking & Access Signage Refresh Project. Supporting economic vibrancy by expanding options for outdoor dining, mobile vending carts for small business operators, an affordable retail program, and supporting special events. Leading and assisting in beautiﬁcation and aesthetic-driven projects such as tree planting, murals and crosswalk designs, public art, and powerline undergrounding. Ambassador program – in collaboration with Downtown Boulder Partnership, providing services to make the area cleaner and safer, including trash collection, graffiti removal, providing information to residents and visitors, giving directions and recommendations, and addressing unfavorable activities.

Governance Structure CAGID, along with the Department of Community Vitality, manages parking operations and related services, while the Downtown Management Commission (DMC) manages and advises the business affairs of the GID. The DMC includes ﬁve Council-appointed members with ﬁve-year terms. Three of those members must own real property or represent real property owners in Downtown and two members are residents representing the community-at-large.

Assessment Methodology 3.743 mill levy

KEY MARKET INDICATORS Key market indicators are being provided to look at existing economic conditions and changes since 2019, considered the pre-pandemic base year. Commercial Real Estate Trends Retail Vacancy (2024) Inventory (buildings)

CAGID Retail Vacancy

15.0% 89

Inventory (sf)

768,752

Net absorption (sf)

(14,258)

Market sale price per sf

$462.00

NNN rent overall

$40.32

Vacancy (2024)

19.0%

Inventory (buildings)

102

2016 2017 2018 2019 2020 2021 2022 2023 2024

16% 14% 12% 10% 8% 6% 4% 2% 0%

Office

CAGID Office Vacancy 25%

Inventory (sf) 2,496,980

20%

Net absorption (sf)

(18,553)

15%

Base rent overall

$27.43

10%

Multi-family

Inventory (buildings)

Inventory (units)

253

Vacancy

32.0%

Asking rent per unit

$4,020

Data source: Costar

2016 2017 2018 2019 2020 2021 2022 2023 2024

Sales Tax Revenue 2019

$8,800,961

2020

$5,253,717

2021

$7,162,667

2022

$8,584,441

2023

$8,831,332

Change

0.3%

Data source: DMC January 2024 report

CAGID Total Property Values

Property Values Total GID Value (Fiscal Year)

$420,000,000

2019

$384,680,015

2020

$382,681,446

2021

$385,031,888

2022

$384,352,498

$390,000,000

2023

$411,637,845

$380,000,000

2024

$409,893,360

Change

6.6%

Data source: Boulder County Assessor

$410,000,000 $400,000,000

$370,000,000 $360,000,000

2019

2020

2021

2022

2023

2024

SOURCES & USES OF FUNDS CAGID Sources of Funds 2019-2025 The following table and charts show trends in the sources of revenue CAGID received from 20192025, using 2019 as the pre-pandemic base year. While total revenue has largely recovered since 2020, the GID continues to receive a smaller percentage of its funds from transfers in. This indicates that CAGID is able to rely more on internal streams of revenue such as leases, rents and royalties and interest and investment earnings.

2019 (Actual) 2020 (Actual) 2021 (Actual) 2022 (Actual) 2023 (Actual) 2024 (Adopted) 2025 (Approved)

Parking Revenue

Property Tax

Leases, Rents and Royalties

Interest & Investment Earnings

Speciﬁc Ownership & Tobacco Tax

Other Revenues

Transfers In

TOTAL (sources)

$7,141,719

$1,284,714

$208,581

$70,050

$63,773

$1,613,285

$10,382,122

69%

12%

0.7%

0.6%

16%

$4,345,338

$1,357,621

$221,845

$84,141

$1,146,104

61%

19%

16%

$6,018,037

$1,333,187

$343,000

$205,387

$67,969

$70,419

$971,104

67%

15%

0.8%

11%

$6,055,246

$1,381,857

$482,540

$221,112

$62,894

$64,588

$968,819

66%

15%

0.7%

10%

$4,514,795

$1,493,258

$156,000

$487,662

$69,767

$94,142

$968,819

58%

19%

0.9%

12%

$6,062,159

$1,440,980

$497,010

$226,811

$64,150

$64,590

$968,819

65%

15%

0.7%

10%

$6,299,894

$1,469,800

$504,465

$502,976

$65,433

$65,559

$723,753

65%

15%

0.7%

$7,155,049

$9,009,103

$9,237,056

$7,784,443

$9,324,519

$9,631,800

CAGID Sources of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

60%

70%

80%

Parking Revenue

Property Tax

Leases, Rents and Royalties

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Other Revenues

90%

100%

Transfers In

CAGID Sources of Funds (Amounts) $8,000,000

$12,000,000

$7,000,000

$10,000,000

$6,000,000 $8,000,000

$5,000,000 $4,000,000

$6,000,000

$3,000,000

$4,000,000

$2,000,000 $2,000,000

$1,000,000 $0

2019

2020

2021

2022

2023

2024

2025

TOTAL (sources):

Parking Revenue

Property Tax

Leases, Rents and Royalties

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Other Revenues

Transfers In

This chart visualizes the total amount of funds gained with a bar chart that corresponds to the right axis labels and the amount of each source with a line chart that corresponds to the left axis labels.

CAGID Uses of Funds 2019-2025 The following table and charts show trends in the uses of CAGID funds from 2019-2025, using 2019 as the pre-pandemic base year. Uses have shifted since 2019, with a higher proportion of spending going towards the Capital Improvement Program (CIP) and a lower proportion going to customer service and administration, with debt service completely eliminated following 2023. Projects that used CIP funds over the past year include building freeze recover at 1500 Pearl, a facility assessment of the Spruce Garage, installing parking garage capacity display signs, replacing stormwater pipes behind the 1500 Pearl garage, and stump removal and weed control on Broadway medians.

2019 (Actual)

2020 (Actual)

2021 (Actual)

2022 (Actual)

2023 (Actual)

2024 (Adopted)

2025 (Approved)

Admin

Customer Service

District Mgmt

Parking & Access

Debt Service

Cost Allocation & Transfers

Capital Improvement Plan

$1,452,711

$788,025

$1,454,198

$1,258,827

$827,193

$330,541

$314,824

23%

12%

24%

20%

13%

$1,010,163

$938,268

$1,327,915

$863,836

$836,839

$335,218

$2,086,900

14%

13%

18%

12%

11%

28%

$1,183,390

$826,632

$749,635

$752,943

$827,883

$335,218

$1,625,685

19%

13%

12%

14%

26%

$1,178,849

$789,584

$1,077,928

$817,491

$829,682

$324,155

$795,712

20%

14%

19%

14%

$1,163,470

$728,906

$1,393,584

$942,127

$835,307

$420,471

$2,104,038

15%

10%

18%

12%

11%

28%

$1,657,043

$750,412

$2,372,322

$1,129,624

$787,082

$4,930,000

14%

20%

10%

42%

$1,496,934

$618,542

$2,206,043

$1,630,834

$1,061,882

$5,550,000

12%

18%

13%

44%

TOTAL (uses) $6,426,319

$7,399,139

$6,301,387

$5,813,401

$7,587,903

$11,626,483

$12,564,235

CAGID Uses of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

Administration (Economically Vital)

60%

70%

80%

90%

100%

Community Vitality Customer Service

Economic Vitality & District Management Parking & Access Debt Service

Cost Allocation & Transfers

Capital Improvement Program

CAGID Uses of Funds (Amounts): $14,000,000

$6,000,000

$12,000,000

$5,000,000

$10,000,000

$4,000,000

$8,000,000 $3,000,000 $6,000,000 $2,000,000

$4,000,000

$1,000,000 $0

$2,000,000

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Administration (Economically Vital)

Community Vitality Customer Service

Economic Vitality & District Management

Parking & Access

Debt Service

Cost Allocation & Transfers

Capital Improvement Program

This chart visualizes the total amount of funds used with a bar chart that corresponds to the right axis labels and the amount of each use with a line chart that corresponds to the left axis labels.

FUTURE – PLANS, PROJECTS, & PARTNERSHIPS Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping the evolution of CAGID.

Summary of Planning Efforts/Past Plans Related to the District Many of the City of Boulder’s past planning efforts relate to, and will impact, the CAGID area. Below is a summary of common themes found in plans that apply to downtown. The reviewed plans include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), Downtown Boulder Vision Plan (2022), and Central Broadway Corridor Design Framework (2017). 1. Connect to other districts and destinations a. CAGID is a key activity center along Broadway and has the opportunity to seamlessly connect to other activity centers on the corridor, such as University Hill and the future Western City Campus (expected to open in 2027). b. Improve multi-use path connections to the University of Colorado and University Hill. 2. Expand mobility options a. Vision to develop an intermodal mobility hub Downtown that connects with the University of Colorado, Boulder junction, and the region as a whole. b. Proposed bike and pedestrian enhancements in Downtown and on the surrounding streets. 3. Continue activating the Pearl Street Mall and surrounding areas a. Reimagine the 1300 block as a space for events, enhanced public amenities, and an expanded visitor center. b. Activate the 1400 block with artwork, seating and shade structures, and interactive and temporary play equipment. 4. Enhance streetscaping, placemaking, branding, and identity a. Opportunity to designate a historic district in some parts of Downtown. b. Increase tree canopy and shade structures, adaptable signage and wayﬁnding, outdoor seating, and temporary events. c. Activate surface parking lots and alleys.

Key Projects Likely in the Near-Term •

Capital Improvement Projects: o Garage repairs and improvements, including security enhancements o Garage Mobility Hub Project – converting CAGID parking garages into multifunctional mobility hubs o Powerline undergrounding – working with Xcel to move powerlines underground to mitigate risks and enhance Downtown’s sense of place o Streetscaping enhancements, including the Pearl Street Mall Refresh o Increasing public art through the 1% for Public Art program o Affordable Commercial Capital Program – support for small businesses impacted by the pandemic and increasing rents

•

o HVAC replacement at the 1500 Pearl building Other Projects: o When the Western City Campus opens at the Alpine-Balsam site (projected to occur in 2027), the City-owned buildings between Canyon Blvd and Arapahoe Ave from 9th Street to 14th Street will be vacated. The City plans to ﬁll those spaces Downtown with civic and commercial development that fosters activity, collaboration, and innovation.

CAGID Key Partnerships •

•

Downtown Boulder Partnership (DBP) o DBP is a 501(c)6 organization that receives revenue from business and individual memberships to “promote the civic, economic and commercial vitality of downtown Boulder.” Downtown Boulder Business Improvement District (BID) o The Downtown Boulder BID is a taxing district that was formed in 1999 “to cultivate a cleaner, safer and more vibrant downtown community.” BID services include maintenance services and marketing and communication programs. Downtown Boulder Community Initiatives (DBCI) o DBCI is a 501(c)(3) nonproﬁt formed in 2016 “to engage visitors and locals alike through arts, culture, innovation and inclusive, community-driven experiences in downtown Boulder.”

DBP, Downtown Boulder BID, and DBCI are all housed under the umbrella Downtown Boulder organization.

UNIVERSITY HILL GID (UHGID) DISTRICT PROFILE BACKGROUND/CONTEXT

UHGID was created in 1970 as property owners wanted to tax themselves in order to purchase land to increase available parking options for customers of the area, as well as provide other maintenance services. UHGID owns and manages a 42-space off-street public parking lot at 14th Street & College Avenue, referred to as the “14th Street Lot”. UHGID also owned a public parking lot on the corner of Broadway and Pleasant Street before it was sold in 2021 and redeveloped as the Moxy hotel. The funding scope expanded in 1985 to include additional services for the district. Today, UHGID funds programs such as: • • • • •

Pedestrian, bicycle, and transit amenities and incentives Placemaking and aesthetic enhancements Maintenance and improvements of the right-of-way and facilities Other revitalization strategies on The Hill Hill Ambassador program – in collaboration with Downtown Boulder Partnership and the University of Colorado Boulder, providing services to make the area cleaner and safer, including trash collection, graffiti removal, providing information to residents and visitors, giving directions and recommendations, and addressing unfavorable activities.

Governance Structure The business affairs of UHGID are administered by the University Hill Commercial Area Management Commission, which is composed of ﬁve Council-appointed members with ﬁve-year terms. Three of those members must own real or personal property, reside in the district, or represent a real or property owner in the district and two members are for citizens-at-large.

Assessment Methodology (2025) 1.691 mill levy

KEY MARKET INDICATORS Key market indicators are being provided to look at existing economic conditions and changes since 2019, considered the pre-pandemic base year. Commercial Real Estate Trends

UHGID Retail Vacancy

Retail

10%

Vacancy (2024)

9.1%

Inventory (buildings)

Inventory (sf) Net absorption (sf)

191,428

557

Market sale price per sf

$422.00

NNN rent overall

$32.72

Vacancy (2024)

20.7%

2% 2016 2017 2018 2019 2020 2021 2022 2023 2024

Office

UHGID Office Vacancy

25%

31,240

20%

Net absorption (sf)

15%

Base rent overall

$16.54

10%

Inventory (buildings) Inventory (sf)

Multi-family Inventory (buildings)

Inventory (units)

Vacancy

1.5%

Asking rent per unit

$3,468

Data source: Costar

2021

2022

2023

2024

Sales Tax Revenue 2019

$1,560,362

2020

$1,141,856

2021

$1,354,331

2022

$1,318,763

2023

$1,380,202

Change

-11.5%

Data source: DMC January 2024 report Property Values Total GID Value (Fiscal Year)

UHGID Total Property Values $23,000,000

2019

$19,478,837

$22,000,000

2020

$19,362,624

$21,000,000

2021

$19,424,402

2022

$20,243,961

2023

$19,676,630

$19,000,000

2024

$22,570,729

$18,000,000

Change

15.9%

Data source: Boulder County Assessor

$20,000,000

$17,000,000

2019

2020

2021

2022

2023

2024

SOURCES & USES OF FUNDS UHGID Sources of Funds 2019-2025 The following table and charts show trends in the sources of revenue UHGID received from 20192025, using 2019 as the pre-pandemic base year. Since 2019, the proportion and total amount of parking revenue has steadily decreased, while the proportion and total amount of interest and investment earnings has steadily increased. 2021 was an outlier year, with a much larger total source of funding, corresponding with the $2.7M sale of the Pleasant Street parking lot where the Moxy hotel is now located.

2019 (Actual) 2020 (Actual) 2021 (Actual) 2022 (Actual) 2023 (Actual) 2024 (Adopted) 2025 (Approved)

Parking Revenue

Property Tax

Interest & Investment Earnings

Speciﬁc Ownership & Tobacco Tax

$111,339

$32,282

$16,826

22%

$122,573

Real Estate Sales

Transfers In

TOTAL (sources)

$1,622

$350,000

$512,069

0.3%

68%

$32,763

$17,303

$1,621

$325,000

25%

0.3%

65%

$71,618

$32,559

$15,840

$1,648

$2,734,117

$250,000

0.5%

0.1%

88%

$71,875

$32,415

$47,201

$1,409

$270,000

17%

11%

0.3%

64%

$58,219

$35,093

$84,413

$1,695

$270,000

13%

19%

0.4%

60%

$79,060

$35,880

$48,320

$1,410

$270,000

18%

11%

0.3%

62%

$59,979

$39,481

$89,797

$1,438

$271,034

13%

19%

0.3%

59%

$499,260

$3,105,782

$422,900

$449,420

$434,670

$461,729

UHGID Sources of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

Parking Revenue

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Real Estate Sales

Transfers In

100%

UHGID Sources of Funds (Amounts) $400,000

$4,000,000

$350,000

$3,500,000

$300,000

$3,000,000

$250,000

$2,500,000

$200,000

$2,000,000

$150,000

$1,500,000

$100,000

$1,000,000

$50,000

$500,000

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Parking Revenue

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Transfers In

UHGID Uses of Funds 2019-2025 The following table and charts show trends in the uses of UHGID funds from 2019-2025, using 2019 as the pre-pandemic base year. The amounts and proportion of each use category have stayed relatively steady since 2019, though the proportion of spending on administration, customer service, and parking and access maintenance is planned to decrease in 2025. Total uses of funds is expected to increase substantially in 2025, with 58% of that spending going towards the Capital Improvement Program. Projects that may use those funds include streetscape renovations, public art/mural installations, and wayﬁnding signage between The Hill and Downtown.

2019 (Actual) 2020 (Actual) 2021 (Actual) 2022 (Actual) 2023 (Actual) 2024 (Adopted) 2025 (Approved)

Admin

Customer Service

District Mgmt

Parking & Access

Cost Allocation & Transfers

Capital Improvement Plan

TOTAL (uses)

$143,820

$39,927

$17,578

$275,556

$48,012

$524,893

27%

52%

$67,078

$44,387

$70,185

$121,450

$48,732

$185,536

12%

13%

23%

35%

$72,493

$41,953

$27,851

$115,709

$48,732

$23,358

22%

13%

35%

15%

$68,691

$38,163

$33,717

$139,619

$47,124

$184,258

13%

27%

36%

$60,293

$38,345

$28,900

$168,934

$52,913

$37,118

16%

10%

44%

14%

10%

$109,899

$79,007

$55,261

$203,350

$64,220

$15,000

21%

15%

10%

39%

12%

$103,173

$40,240

$65,600

$249,741

$73,100

$727,500

20%

58%

$537,368

$330,096

$511,572

$386,503

$526,737

$1,259,354

UHGID Uses of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

Administration (Economically Vital)

60%

70%

80%

90%

100%

Community Vitality Customer Service

Economic Vitality & District Management Parking & Access Maintenance Cost Allocation & Transfers

Capital Improvement Program

UHGID Uses of Funds (Amounts): $800,000

$1,400,000

$700,000

$1,200,000

$600,000

$1,000,000

$500,000

$800,000

$400,000 $600,000

$300,000

$400,000

$200,000

$100,000 $0

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Administration (Economically Vital)

Community Vitality Customer Service

Economic Vitality & District Management

Parking & Access Maintenance

Cost Allocation & Transfers

Capital Improvement Program

This chart visualizes the total amount of funds used with a bar chart that corresponds to the right axis labels and the amount of each use with a line chart that corresponds to the left axis labels.

FUTURE – PLANS, PROJECTS, & PARTNERSHIPS Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping the evolution of UHGID.

Summary of Planning Efforts/Past Plans Related to the District Many of the City of Boulder’s past planning efforts relate to, and will impact, the UHGID area. Below is a summary of common themes found in plans that apply to the UHGID area. The reviewed plans include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), ULI TAP Report for the 14th Street Lot (2023), Downtown Boulder Vision Plan (2022), University Hill Alley Enhancement Plan (2018) and Central Broadway Corridor Design Framework (2017). 1. Improve the pedestrian/visitor experience a. Improve cleanliness, safety, and activation of alleys b. Enhance streets with better lighting, drainage, furnishings, and vegetation. 2. Connect to other districts and destinations a. UHGID is a key activity center along Broadway and has the opportunity to seamlessly connect to other activity centers on the corridor, such as Downtown. b. Improve multi-use path connections to Downtown. 3. Develop key opportunity sites a. The main site in question is the UHGID-owned 14th Street Lot. The redevelopment of this site has the potential to catalyze further development in the district. 4. Maintain the unique character of The Hill within the district a. Balance needs and wants between the student/CU population and the broader neighborhood b. Utilize public art to showcase and celebrate the district's character

Key Projects Likely in the Near-Term •

Capital Improvement Projects: o Streetscape Renovations – A capital project to improve the medians in Broadway along The Hill district and complimented by enhancements to the pedestrian experience. This may include improvements to trees, landscaping, crosswalks, lighting, or other ideas which will be the subject of public engagement later this year.  $1.4M – ½ from general fund transfer, ½ fund balance from UHGID o Painted crosswalk at 13th & Pennsylvania (anticipated in April 2025) o Mural installation on Everyday Gas Station (April/May 2025) o Cultural Corridor Planning & Design – link cultural destinations along 13th Street to connect the Hill with Downtown Boulder o 20 new Bigbelly trash cans increase waste management efficiency o Planned sidewalk enhancements that will close the gaps along 11th Street on University Hill, a critical pedestrian corridor that connects to the Civic Area and Downtown. This improvement follows the path of the pedestrian scale lighting that

•

was complete on the Hill a few years ago and will improve the walking experience along 11th Street. This work is expected to be complete this summer. Other Projects: o 14th Street Lot redevelopment  The ULI TAP Report recommended short-term activation opportunities such a micromobility hub, food truck area, and pop-up market, as well as longterm development programs with parking, retail/grocery, faculty housing, artist-in-residence or business incubator spaces, and/or a boutique hotel o Limelight Hotel and Conference Center, expected to open in Fall 2025

UHGID Key Partnerships •

•

The Hill Merchant Association (“The Hill Boulder”) o The Hill Boulder is a 501(c)3 nonproﬁt “committed to renewing vibrancy of arts and culture, producing community events, and promoting year-round business in the University Hill district.” Hill Reinvestment Working Group (HRWG) o The Hill Reinvestment Working Group is a neighborhood committee of members that represent City departments, the University Hill Neighborhood Association (UHNA), the Boulder Area Rental Housing Association (BARHA), several University of Colorado departments, the Inter-Fraternity Council (IFC) and Panhellenic. The group “collaborates monthly to share information, build relationships, design programs, evaluate processes and recommend changes and improvements around ongoing issues” on The Hill. o https://bouldercolorado.gov/hill-revitalization-working-group-hrwg CU Boulder o The University of Colorado’s ﬂagship campus is located across Broadway from UHGID. Students, faculty, and visitors of the university frequently visit the district.

BOULDER JUNCTION ACCESS DISTRICTS (BJAD) PROFILE BJAD includes Boulder Junction Access District – Parking (BJAD-P) and Boulder Junction Access District – Transportation Demand Management (BJAD-TDM).

BACKGROUND/CONTEXT

BJAD Parking

BJAD TDM

The Boulder Junction Access Districts (BJAD) were created in 2010 as a result of the Transit Village Area Plan’s Phase 1 efforts to create Boulder’s ﬁrst Transit-Oriented Development (TOD). BJAD – Parking (BJAD-P) manages parking within the district, such as the parking garage that is jointly owned with the Depot Square Owners Association. BJAD – Transportation Demand Management (BJAD-TDM) supports TDM measures with additional revenue paid by properties in the district. Today BJAD funds programs such as: • •

•

Providing Boulder Clean Commute incentives and RTD EcoPasses, Boulder B-Cycle Memberships, and CarShare vouchers for residents and employees of the district Hosting events to inform residents and employees of the beneﬁts they may receive from living and/or working in the district and educate the public about the growth and development of the area Promoting sustainable transportation and eco-friendly development to create a healthier and more livable environment

Governance Structure BJAD is managed by a joint commission that represents both BJAD-Parking and BJAD-TDM. Each ﬁve-member commission is composed of ﬁve Council-appointed members with ﬁve-year terms. Three of those members must own real property or represent a real property owner in the district and two members are city electors who may live inside or outside of the district.

Assessment Methodology 10 mill levy for BJAD-P and 5 mill levy for BJAD-TDM. Developers also pay Payment in Lieu of Taxes (PILOT) fees for two years before property taxes are used for funding.

KEY MARKET INDICATORS Key market indicators are being provided to look at existing economic conditions and changes since 2019, considered the pre-pandemic base year. Commercial Real Estate Trends

BJAD Retail Vacancy

Retail

12%

Vacancy (2024) Inventory (buildings)

Inventory (sf)

60,527

Net absorption (sf)

(825)

Market sale price per sf

$467.00

NNN rent overall

$34.00

Vacancy (2024)

2.9%

Office Inventory (buildings)

10%

8.3%

6% 4% 2% 2019

2020

2021

2022

2023

2024

BJAD Office Vacancy 60%

Inventory (sf)

707,788

Net absorption (sf)

3,345

Base rent overall

$47.38

50% 40% 30% 20% 10%

Multi-family Inventory (buildings)

Inventory (units)

1,200

Vacancy

10.4%

Asking rent per unit

$2,655

Data source: Costar

2016 2017 2018 2019 2020 2021 2022 2023 2024

Property Values (BJAD-TDM)

BJAD-TDM Total Property Values

Total GID Value (Fiscal Year) 2019

$31,962,052

2020

$59,286,286

2021

$78,334,084

2022

$101,609,964

2023

$118,002,570

2024

$117,556,834

Change

267.8%

Data source: Boulder County Assessor

$140,000,000 $120,000,000 $100,000,000 $80,000,000 $60,000,000 $40,000,000 $20,000,000 $0

2019

2020

2021

2022

2023

2024

SOURCES & USES OF FUNDS BJAD – Parking Sources of Funds 2019-2025 The following table and charts show trends in the sources of revenue BJAD-P received from 20192025, using 2019 as the pre-pandemic base year. Since 2019, the proportion and total amount of most funding sources has stayed relatively steady, though parking revenue tends to oscillate year to year. Additionally, the amount of property tax and total sources have increased overall.

2019 (Actual)

2020 (Actual)

2021 (Actual)

2022 (Actual)

2023 (Actual)

2024 (Adopted) 2025 (Approved)

Parking Revenue

Property Tax

Interest & Investment Earnings

Speciﬁc Ownership & Tobacco Tax

Other Revenues

$41,648

$273,306

$5,377

$14,836

12%

82%

$190,001

$337,703

$1,213

$15,028

$175,000

26%

47%

0.2%

24%

$68,550

$489,650

$1,966

$20,008

12%

84%

0.3%

$162,665

$422,661

$5,596

$19,061

$20,316

26%

67%

0.9%

$88,111

$459,177

$12,287

$19,070

15%

79%

$173,510

$433,680

$5,120

$19,060

27%

69%

0.8%

$89,402

$442,354

$13,071

$19,840

16%

78%

Transfers In

TOTAL (sources)

$25

$335,192

0.01%

$718,945

$580,174

$630,299

$578,645

$631,370

$564,667

BJAD Parking Sources of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

Parking Revenue

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Other Revenues

Transfers In

100%

BJAD Parking Sources of Funds (Amounts) $600,000

$800,000 $700,000

$500,000

$600,000 $400,000

$500,000

$300,000

$400,000 $300,000

$200,000

$200,000 $100,000 $0

$100,000 2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Parking Revenue

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Other Revenues

Transfers In

BJAD – Parking Uses of Funds 2019-2025 The following table and charts show trends in the uses of BJAD-P funds from 2019-2025, using 2019 as the pre-pandemic base year. Since 2019 the share of uses has ﬂuctuated greatly. The overall trend is that total spending, as well as uses for the capital improvement program and cost allocation and transfers, peaked in 2023 before steadily declining in 2024 and 2025.

2019 (Actual) 2020 (Actual) 2021 (Actual) 2022 (Actual) 2023 (Actual) 2024 (Adopted) 2025 (Approved)

Capital Improvement Plan

TOTAL (uses)

$30,822

$127,232

50%

24%

$14,102

$31,250

18%

$2,500

$12,075

$131,250

0.9%

47%

$109,072

$18,200

$590

$14,950

$228,009

$1,140

29%

0.2%

61%

0.3%

$105,785

$19,664

$1,053

$17,838

$485,835

$282,276

12%

0.1%

53%

31%

$125,223

$22,092

$3,822

$34,601

$248,374

$115,000

23%

0.7%

45%

21%

$125,755

$23,089

$2,900

$35,393

$21,635

$100,000

41%

0.9%

11%

32%

Admin

Customer Service

$25,604

$4,978

20%

$103,818

$19,854

61%

12%

$115,374

$18,694

41%

Parking & Access

Cost Allocation & Transfers

$2,600

$63,228

District Mgmt

$169,024

$279,893

$371,961

$912,451

$549,112

$308,772

BJAD Parking Uses of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

Administration (Economically Vital)

60%

70%

80%

90%

100%

Community Vitality Customer Service

Economic Vitality & District Management Parking & Access Maintenance Cost Allocation & Transfers

Capital Improvement Program

BJAD Parking Uses of Funds (Amounts): $500,000

$1,000,000 $900,000

$400,000

$800,000 $700,000

$300,000

$600,000 $500,000

$200,000

$400,000 $300,000

$100,000

$200,000 $100,000

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Administration (Economically Vital)

Community Vitality Customer Service

Economic Vitality & District Management

Parking & Access Maintenance

Cost Allocation & Transfers

Capital Improvement Program

This chart visualizes the total amount of funds used with a bar chart that corresponds to the right axis labels and the amount of each use with a line chart that corresponds to the left axis labels.

BJAD – TDM Sources of Funds 2019-2025 The following table and charts show trends in the sources of revenue BJAD-TDM received from 2019-2025, using 2019 as the pre-pandemic base year. Since 2019, the proportion of funding sources has stayed relatively constant, with a high percentage coming from property tax. Outliers include 2019 and 2023 where the district received a higher proportion of funds from PILOT and transfers in, respectively. Overall, funding sources have increased signiﬁcantly since 2019, with total funds peaking in 2023 and property tax funds peaking in 2022.

2019 (Actual) 2020 (Actual) 2021 (Actual) 2022 (Actual) 2023 (Actual) 2024 (Adopted) 2025 (Approved)

Property Tax

Speciﬁc Ownership & Tobacco Tax

Interest & Investment Earnings

$156,969

$8,517

93%

Payments in Lieu of Taxes

Transfers In

$3,094

$289,906

$14,346

$1,999

$42,882

83%

0.6%

12%

$249,789

$17,937

$2,829

92%

$681,054

$17,509

$6,271

97%

0.9%

$524,200

$23,341

$14,962

$175,000

71%

24%

$546,510

$17,860

$6,100

96%

$557,440

$18,217

$15,623

94%

TOTAL (sources) $168,580

$349,133

$270,555

$704,834

$737,503

$570,470

$591,280

BJAD TDM Sources of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

50%

60%

70%

80%

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Payments in Lieu of Taxes

90%

100%

Transfers In

BJAD TDM Sources of Funds (Amounts) $700,000

$800,000

$600,000

$700,000 $600,000

$500,000

$400,000

$400,000 $300,000

$300,000

$200,000

$100,000 $0

$100,000

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Property Tax

Interest & Investment Earnings

Specific Ownership & Tobacco Tax

Payments in Lieu of Taxes

Transfers In

BJAD – TDM Uses of Funds 2019-2025 The following table and charts show trends in the uses of BJAD-TDM funds from 2019-2025, using 2019 as the pre-pandemic base year. Generally, total uses of funds have increased steadily since 2019, with economic vitality and district management using a greater share and total amount of funds. Meanwhile, the share of administration uses has decreased.

2019 (Actual)

2020 (Actual)

2021 (Actual)

2022 (Actual)

2023 (Actual)

2024 (Adopted)

2025 (Approved)

Capital Improvement Plan

Customer Service

TOTAL (uses)

$5,364

$4,940

$132,123

$13,685

39%

$38,220

$73,823

$13,309

30%

59%

11%

$36,599

$75,051

$34,401

$18,779

22%

46%

21%

11%

$30,571

$170,180

$12,388

$26,983

$8,078

12%

69%

11%

$53,480

$266,767

$12,760

$15,000

$15,901

15%

73%

$51,854

$275,840

$28,342

$16,150

14%

74%

Admin

District Mgmt

$50,392

$71,427

38%

54%

$210,867

$144,983

57%

Cost Allocation & Transfers

$369,535

$125,352

$164,830

$248,200

$363,908

$372,186

BJAD TDM Uses of Funds (% of Total) 2019 2020 2021 2022 2023 2024 2025 0%

10%

20%

30%

40%

Administration (Economically Vital)

50%

60%

70%

80%

90%

100%

Community Vitality Customer Service

Economic Vitality & District Management Cost Allocation & Transfers Capital Improvement Program

BJAD TDM Uses of Funds (Amounts): $400,000

$400,000 $350,000

$300,000

$300,000 $250,000

$200,000

$200,000 $150,000 $100,000

$100,000

$50,000 $0

2019

2020

2021

2022

2023

2024

2025

TOTAL (right axis)

Administration (Economically Vital)

Community Vitality Customer Service

Economic Vitality & District Management

Cost Allocation & Transfers

Capital Improvement Program

This chart visualizes the total amount of funds used with a bar chart that corresponds to the right axis labels and the amount of each use with a line chart that corresponds to the left axis labels.

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FUTURE – PLANS, PROJECTS, & PARTNERSHIPS Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping the evolution of BJAD.

Summary of Planning Efforts/Past Plans Related to the District Many of the City of Boulder’s past planning efforts relate to, and will impact, the BJAD areas. Below is a summary of common themes found in plans that apply to Boulder Junction. The reviewed plans include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), and the Transit Village Area Plan (2007, amended 2023). 1. Transit-Oriented Development a. This location was chosen for development due to its proximity to the railroad tracks, with the vision that one day there will be rail connection to Denver with RTD service, as well as the greater region through the Front Range Passenger Rail. b. As such, land uses and densities will be reﬂective of the high potential of the area to be both a neighborhood and a destination. 2. Connectivity a. This includes building out a complete, ﬁne-grain street network, as well as connecting to other districts and parts of the city/region by transit. 3. Multi-modal transportation options a. Boulder Junction will be a pedestrian-oriented multi-modal hub, with options for connecting to and from the district for those walking, rolling, and using public transit. b. An especially important point here is establishing ﬁrst- and last-mile connections to provide mobility choices for residents, employees, and visitors once they arrive in the district.

Key Projects Likely in the Near-Term • •

Capital Improvement Projects: o Branding & Wayﬁnding Signage Project Other Projects: o Boulder Junction Phase 2  The Phase 2 area is west of the rail tracks and currently outside of the BJAD area, but there is an opportunity to expand BJAD to include the Phase 2 area. o RTD reopening Boulder Junction transit station/bus terminal (expected in 2025) o New 2-acre pocket park across from the depot (construction possible by 2026) o Potential to consolidate BJAD-P and BJAD-TDM into a single district o Core Arterial Network (CAN) update for 30th Street  Updating the street with protected bike lanes, intersection enhancements, and pedestrian and transit facility upgrades

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Commercial covenant at Boulder Commons – developer is required to rent a portion of the ground-ﬂoor retail space below market rates to non-proﬁt entities or local and independent business owners.

BJAD Key Partnerships •

•

Regional Transportation District (RTD) o RTD operates public transit services in the Denver metro area, including in Boulder. RTD is committed to reopening the transit station at Boulder Junction later this year, which will connect the district to other parts of Boulder and the region. Boulder Chamber Transportation Connections (BCTC) o A 501(c)(3) nonproﬁt and is one of eight Transportation Management Organizations (TMOs) in the Boulder-Denver metro region o Services include sustainable transportation planning, employee commute options surveys, education and consulting, commute logistics, outreach events, advocacy, and local and regional leadership o Administers the BJAD EcoPass Program and helps promote micro mobility options in Boulder Junction

Has partnered with Community Vitality in the past to host events related to raising awareness of Boulder Junction as a district and all the transportation beneﬁts it has to offer

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55TH & ARAPAHOE PROFILE BACKGROUND/CONTEXT

The 55th & Arapahoe Station Area, located in the larger East Boulder subcommunity area, and pictured in the map above, is one of the city’s employment hubs. Anchored by institutions such as the Boulder Community Health Foothills Medical Campus, Boulder Municipal Airport, Flatirons Business Park, Valmont City Park, and the University of Colorado Boulder’s East Campus, the East Boulder area supports a mix of employment sectors, including research and development, healthcare, arts and culture, aerospace, and technology. Despite the robust employment base, the area currently lacks residential options, meaning that nearly all workers commute in daily. While there are some multifamily residential units on the south side of Arapahoe Ave, existing housing supply within the Station Area boundary is limited. The nearby San Lazaro Mobile Home Park, just outside Boulder City limits, is near the Station Area and home to approximately 460 residents. Additionally, the recently completed Weathervane Apartments, a mixed-income community located just east of the Station Area boundary on Arapahoe Ave, has added 317 more housing units to the area.

Boulder Improvement District Analysis Report

Page 75 of 78 The physical layout of the area reﬂects a legacy of auto-oriented planning. Wide roads, large blocks, and limited pedestrian infrastructure deﬁne much of the environment. Arapahoe Avenue, designated as State Highway 7, runs through the area and is one of the city’s busiest arterials. East Boulder, as described by many community members, feels like a series of disconnected “islands” that are active during the workday but largely quiet during evenings and weekends. Land use patterns consist primarily of older commercial and industrial buildings, many of which are aging but still in active use. Though reinvestment has occurred in some properties, new construction has been relatively limited, and the area lacks the pedestrian-friendly street grid and public amenities found in other parts of Boulder. The 55th & Arapahoe area is now poised for signiﬁcant transformation. The area surrounding the intersection of 55th Street and Arapahoe Avenue is the planned location of a future State Highway 7 Bus Rapid Transit (BRT) regional station. This major mobility investment will bring high-frequency transit service connecting Boulder to I-25 and beyond, and will be accompanied by streetscape and multimodal infrastructure improvements. Together, these enhancements position the Station Area as a key opportunity site for transit-oriented development (TOD) within East Boulder’s evolving commercial and employment core. The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan, both completed in 2022, envision this area evolving into a more dynamic, mixed-use district with enhanced transportation infrastructure, improved amenities, and new housing opportunities. Implementing new governance mechanisms and investment strategies will be essential to support long-term economic growth and ensure alignment with these plans’ broader vision.

Boulder Improvement District Analysis Report

Page 76 of 78 Key market indicators are being provided to look at existing economic conditions and changes since 2019, considered the pre-pandemic base year. Commercial Real Estate Trends Retail Vacancy (2024) 20.7% Inventory (buildings) 8 Inventory (sf) 75,866 Net absorption (sf) 1,696 Market sale price per sf $280.00 NNN rent overall $16.41 Office Vacancy (2024) 18.7% Inventory (buildings) 11 Inventory (sf) 232,554 Net absorption (sf) (5,781) Base rent overall $15.22 Multi-family Inventory (buildings) 1 Inventory (units) 70 Vacancy 1.4% Asking rent per unit $1,113 Industrial & Flex Inventory (buildings) 34 Inventory (sf) 703,733 Net absorption (sf) 55,511 Vacancy 10.0% NNN rent overall $14.76 Data source: Costar

Retail Vacancy - 55th & Arapahoe STAMP 40% 30% 20% 10% 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024

Office Vacancy - 55th & Arapahoe STAMP 20% 15% 10% 5%

2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024

Industrial & Flex Vacancy - 55th & Arapahoe STAMP 20% 15% 10% 5% 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024

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Property Values Total GID Value (Fiscal Year) 2019 $173,830,800 2020 $173,830,800 2021 $186,697,700 2022 $185,881,700 2023 $236,696,006 2024 $230,515,831 Change 134.0% Data source: Boulder County Assessor

Total Property Value - 55th & Arapahoe STAMP $250,000,000 $200,000,000 $150,000,000 $100,000,000 $50,000,000 $0

FUTURE – PLANS, PROJECTS, & PARTNERSHIPS The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan include several key priorities, informed by extensive community engagement, for the future of the 55th & Arapahoe Station Area: •

•

A Mix of Uses: The Station Area’s existing light industrial, medical, and office base provides a strong foundation for mixed-use redevelopment. Recent zoning code updates to this area will allow for a broader range of uses, including a range of housing types, neighborhoodserving retail, and active ground-ﬂoor uses to support a community where people can live, work, and shop. Multimodal Investment: The planned BRT station at 55th and Arapahoe offers a rare opportunity to anchor compact, high-intensity transit-oriented development. Increased density, paired with reimagined parking strategies and investments in shared mobility options, can support regional transit access while reducing single-vehicle dependence. Public Realm Enhancements: As larger scale redevelopment opportunities occur, there is an opportunity to complete the street grid and introduce pedestrian-scale infrastructure. Investments in sidewalks, bicycle facilities, and green/open space could also help create a safer and more comfortable public realm while building a distinct neighborhood identity. TDM Strategies: The area’s concentration of employment could support pilot programs to support micromobility and commuter-focused Transportation Demand Management (TDM) programs. These strategies, including shared parking and curbside management, will be critical to reducing congestion and making the most of limited public space. Climate Goals: Future development can support Boulder’s climate goals through initiatives like rooftop solar, energy-efficient building materials, and urban greening to reduce emissions and mitigate urban heat island effects. Where possible, redevelopment or reuse of existing high use facilities could also focus on improving the energy performance.

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Prevent Involuntary Displacement: A strong emphasis on equity will be essential to preventing involuntary displacement and gentriﬁcation as the area grows and changes. Policies that support affordable commercial space, retain essential services, and protect vulnerable tenants can help ensure the beneﬁts of growth are widely shared by both existing and new community members. Partnerships and incentive programs can help align private development with long-term community goals.

Boulder Improvement District Analysis Report