HomeMy WebLinkAboutItem VII A and B Matters from the Department
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
TO: Parks and Recreation Advisory Board
FROM: Yvette Bowden, Director, Parks and Recreation Department
Alison Rhodes, Deputy Director
SUBJECT: Matters from the Department
DATE: June 26, 2017
A. Thunderbird Lake 2017 Status
Background:
Thunderbird Lake is located in Admiral Arleigh Burke Park in southeast Boulder. The water in
the lake is supplied predominantly by groundwater that infiltrates directly through the subsurface
and minimally via a tile drain that collects groundwater from the area to the west.
During the 2002 drought, water levels in the lake dropped noticeably and have remained lower
ever since. The lower water levels are believed to have resulted from a combination of factors
including drought, reduced irrigation on surrounding lands and increased usage of sump pumps
on neighboring properties that lowered groundwater in the area around the site. The lower water
levels resulted in a 2002 fish die-off in the lake and a simultaneous increase in wetland
vegetation along the shoreline. The wetland types also shifted, with riparian woody vegetation
establishing in areas that were formerly covered by water.
To address impacts caused by lower water levels, in 2009, the department implemented a
three‐year pilot adaptive management project. This project included the addition of potable water
to the existing water body as an interim measure to try to increase the water level and improve
water quality. In addition, a lake gauge and monitoring wells were installed to collect surface
water and groundwater monitoring data. A shrub wetland area was also planted to mitigate for
any potential impacts to existing wetlands that could result from the adaptive management
process. Throughout the initial adaptive management pilot project, the city’s water quality staff
collected and analyzed lake water samples and determined that the water quality of the lake
improved dramatically between the beginning and the end of the pilot.
The annual use of water during the pilot was 4-6 million gallons of water which exceeded the
allocated water budget in each year between 2009-2011. At the end of the pilot it was determined
that the continued addition of water to maintain the water level at that artificial level was not
feasible because the increased lake surface area could not be maintained within the allocated
water budget and therefore was contrary to the city and the department’s long-term sustainability
goals. Additionally, the PRAB questioned the service level of the park site to the
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
community and whether the continued approach was sustainable in practice. The pilot was
extended for a year to allow staff time to further evaluate other options. Staff recommended
additional analysis of alternatives that would reduce water demands and improve long-term
sustainability.
Following the initial pilot project, the department engaged a consultant team to evaluate
available data and vegetation information to help the city anticipate future conditions and trends
and assist the city in developing future management options. The findings were integrated into a
report that provided a conceptualized view of possible future conditions compared to current
conditions. The observed minimum groundwater elevations were expected to sustain a nearly
one‐acre lake (without potable water additions) while allowing shifts in vegetation around the
lake.
Evaluation efforts were briefly interrupted in September 2013 when Boulder experienced
significant rainfall and associated flooding. Groundwater elevations rose as the rainwater
infiltrated and contributed to flood conditions. For about a month, the lake reached levels similar
to its historical extent of 5316 ft. and then receded back to 5314 ft. by April 2014. No post‐flood
management actions were required and as of 2015, the flooding did not appear to have any
significant impacts on the lake or vegetation. In Spring 2015, staff resumed the water level
monitoring program in the lake and wells.
2016-2019 Adaptive Management Plan
To ensure the long-term sustainability of the lake, staff hired a consultant team to develop an
adaptive management plan to respond to the findings of lake monitoring efforts. In addition to
providing goals and recommendations, the 2016-2019 Adaptive Management Plan outlines
inspection, monitoring and response actions in line with an adaptive management approach. The
framework for the report also responds to and supports themes established in the department’s
Master Plan (2014) including taking care of existing assets, financial sustainability and building
community and relationships.
Given the multiple benefits provided by the city’s network of urban lakes, the Adaptive
Management Plan aimed to balance the following key overarching goals:
Manage the physical characteristics of Thunderbird Lake to achieve desired conditions
for water quality, biodiversity and access;
Control pollutant loading and in-lake sources to manage water quality to standards and
accepted, practical levels;
Restore and maintain wildlife habitat to benefit an array of appropriate animal groups;
and
Provide appropriate educational and recreational opportunities for a range of visitor
experiences.
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
The Adaptive Management Plan framework was targeted to address priority issues that are
expected to arise over the next three years including:
Potential loss of more open water habitat due to vegetation encroachment and limited
water sources;
Phosphorus release from accumulated sediments and resulting algae blows; and
Reduced native habitat values due to terrestrial and aquatic invasive species including
koi/goldfish.
Four specific action items were identified to address the overarching goals and priority issues
including:
1) Maintaining the lake surface area of 0.9-1.0 acres;
2) Managing the water quality of Thunderbird Lake to achieve acceptable aesthetic
conditions;
3) Minimizing negative changes in diverse wetland functions by improving aquatic habitat
and mitigating changes in wetland types; and
4) Providing opportunities for education and passive recreation.
Response to the 2016-2019 Adaptive Management Plan
Following the issuance of the Adaptive Management Plan, staff and consultant teams have
worked to implement the action items set forth by the plan. Action items and preliminary
outcomes of such actions are outlined below.
Action Item 1:
Maintain the lake surface area of 0.9-1.0 acres that equates to an elevation of ~5312 ft.
Steps taken:
Ongoing water level monitoring including annual management of the ground water
monitoring wells and automatic data loggers.
Data downloads were completed twice per year. An annual report on conditions and
management recommendations was prepared.
Preliminary outcomes/findings:
For several months, the open water area had dropped to 0.8 acres but this was at the end
of the 2016 growing season and into winter of 2016-2017. While the lake is currently at
an acceptable level, continued low precipitation and high temperatures factors that may
contributed to continued low water levels and low open water areas. Longer term trends
will be evaluated after Biohabitats performs their next bi-annual round of data analysis in
June/July 2017.
Unless 2017 precipitation is above normal it is likely the lake will stay at a low water
level. This could have implications for autumn/winter 2017. Lower water levels allow the
encroachment of wetland vegetation into the open water area.
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
Monitoring of these conditions, discussions on the addition of water versus the feasibility
of maintaining the lake elevation, and evaluation of proactive options need to continually
occur. The Adaptive Management Plan stated that should low water levels (below our
target 0.9 acres) persist for more than one month in the growing season, short-term water
management options (such as adding water) and or target lake elevations should be
revisited.
Action Item 2:
Manage the water quality of Thunderbird Lake to achieve acceptable aesthetic conditions
Steps taken:
Staff have engaged Ottertail Environmental to perform ongoing water quality monitoring from
May to September including:
Conducting visual inspections of lake conditions and documenting findings;
Monitoring water depth;
Periodic collection of water quality data every few years; and
Adding of microbes to minimize vegetation such as duckweed and algae.
Staff also maintains the aeration system that increases oxygen in the system in an effort to keep
the lake habitable by fish.
Preliminary outcomes/findings:
Water samples collected on October 4, 2016 for laboratory analyses indicated that
nutrients (nitrogen and phosphorous) were within the acceptable water quality criteria
(based on CDPHE guidance for South Boulder Creek area).
2016 was warmer earlier than expected. There was increased aquatic vegetation as a
result. In 2017 when conditions looked similar, Ottertail was contacted earlier and at an
increased cost. Ottertail began microbe additions earlier in the year in hopes of reducing
the likelihood of similar vegetation growth.
Though the lake was known to include the growth of duckweed, a blue-green algae was
also identified at the lake in 2017. It was determined that the algae were not of a toxic
variety.
There was a fish die off in the winter of 2016/2017 likely due to low water levels.
Action Item 3:
Minimize negative changes in diverse wetland functions by improving aquatic habitat and
mitigating changes in wetland types.
Steps taken:
Performed a wetland analysis, mapped current plant communities and conducted an assessment
to establish metrics for monitoring wetland condition and stresses in future years.
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
Preliminary outcomes/findings:
The extent of emergent wetlands (cattails and the native bulrush) has nearly doubled from
0.51 acres in 2009 to 0.94 acres in 2016 while woody and riparian areas cover
approximately the same area. This means that the open water area is being impacted as
predicted by earlier studies.
The assessment determined that the wetland currently has a functional score of 0.78
which means that the capacity of some or all of the site’s functions has been markedly
altered, but that the wetland still provides the types of functions associated with its
habitat type. Maintaining or enhancing this wetland would be beneficial.
Low water levels threaten water quality by increasing temperatures and contributing to
algae blooms and fish die off.
Mudflats such as those exposed this winter do not provide as high of quality of habitat
and can be a water quality concern. Biohabitats has recommended excavating the
mudflat. More information is below in the Future Management section.
Action Item 4:
Provide opportunities for education and passive recreation
Steps taken:
In the years between the pilot and the current Adaptive Management Plan, staff conducted
community outreach with local residents and leveraged partnerships with the University of
Colorado Department of Environmental Design, the Horizon School and Growing Up Boulder.
Preliminary outcomes/findings:
An outdoor classroom was built and access to the wetland was created in order to better
allow study of the environment.
Staff will continue to look for ways to engage the community.
Additional Operational Management Activities:
Removal of undesirable vegetation growth.
o Three maintenance corridors (gazebo, inlet and outlet) were identified for work.
o Continued noxious weed control per state weed laws.
Coordination with Colorado Parks and Wildlife
o Removal of undesirable fish species.
o Stocking of desirable fish species as predators for goldfish/koi and for fishing.
Participation in the city’s mosquito management programs
o Minimization of Culex species mosquitoes which may carry West Nile Virus.
Perform general maintenance activities
o Mowing, irrigation, turf care, safety, trash and signage.
3198 Broadway, Boulder, CO 80304 | www.boulderparks-rec.org | O: 303-413-7200
Future Management:
The purpose of the 2016-2019 Adaptive Management Plan was to provide the department with a
practical, adaptive management approach for Thunderbird Lake and the adjoining natural areas.
Staff will continue to implement the recommendations and practices outlined by the plan for this
site and will continue to monitor and evaluate the success of these efforts.
Though staff is at the early stages of implementation of adaptive management strategies,
monitoring and assessment of conditions is starting to indicate that just continuing current
management actions may not be enough to reach the goals for the site. Rather, more significant
management actions may be required in the future to meet the desired overarching goals for
Thunderbird Lake as outlined above.
One such option being explored is dredging. Dredging could aid in managing the physical
characteristics of the lake by helping to increase the area of open water and improve overall
water quality. Another option being explored is a cooperative effort with the Public Works
Department staff to utilize stormwater as a source of water to supplement natural lake levels,
thereby increasing the area of open water. In meetings with Public Works stormwater engineers,
projects have been identified that may have the mutual benefit of aiding in stormwater control as
well as improving conditions at Thunderbird Lake.
Both of these management concepts have potential, but also have budgetary implications that
will need to be evaluated through the CIP process as well as through more in depth study of
logistics and feasibility. Staff will continue to implement the recommendations and action items
of the 2016-2019 Adaptive Management Plan in combination with an in-depth evaluation of
more significant measures if adaptive management practices do not produce the desired results.
Staff continues to be dedicated to this issue and will provide the PRAB with updates as options
are explored.
B. 0.3% Sales Tax Renewal – Community Culture and Safety Tax
Memorandum
To: City of Boulder Advisory Boards and Commissions
From: Capital Improvements Tax Renewal Team
Date: June 16, 2017
Re: 0.3% Sales Tax Renewal – Advisory Committee Recommendation
Boards and Commissions:
Arts Commission
Environmental Advisory Board
Downtown Management Commission
Greenways Advisory Committee
Landmarks Board
Library Commission
Parks and Recreation Advisory Board
Planning Board
Transportation Advisory Board
University Hill Commercial Area
Management Commission
Background
The purpose of the 2017 Capital Investment Tax Renewal Project is to develop a draft funding package
for possible inclusion in the 2017 ballot that:
Extends revenues to invest in high priority new or expanded community facilities;
Funds other important deficiencies not addressed in the 2014 initiative; and
Is understandable and has broad community support.
The background information for this topic can be found in the Information Packet dated June 15, 2017.
Stakeholder Committee Process
At the request of City Council, the City Manager formed an advisory committee to make
recommendations about the specific projects and other details of the potential 2017 renewal. The
advisory committee met a total of six times over the course of its work. They received presentations on
city and community projects, developed guiding principles, and prioritized projects to develop a
recommended package.
The committee recommends extending the tax for 5 years to fund a diverse package of city and
community‐based projects based on guiding principles. The committee provided an additional list of
projects that could be considered if council prefers to extend the tax for 7 years or if revenues are higher
than projected. The committee’s recommendations and a summary of their work is included in the
information packet.
Requested Feedback from Advisory Boards
City boards and commissions play an important role in planning and advising for capital infrastructure
and projects, and in some cases, an active role reviewing the annual Capital Improvement Program (CIP),
including unfunded needs. Considering these roles, feedback is encouraged regarding the advisory
committee’s recommended renewal of the 0.3% sales tax and proposed package of projects. Boards are
invited to share feedback to the City Council. If received before July 10 it will be included with the
study session materials.
Schedule and Process
The City Council will discuss the tax renewal and committee recommendations at the July 25 Study
Session. It is anticipated that draft ballot language will be presented on Aug. 1, with second and third
reading (if needed) on Aug. 15 and Aug. 29, respectively.
Staff Contacts
Jean Gatza, gatzaj@bouldercolorado.gov, 303‐441‐4907
Joel Wagner, wagnerj@bouldercolorado.gov, 303‐441‐3871
INFORMATION PACKET
MEMORANDUM
TO: Mayor and Members of City Council
FROM: Jane S. Brautigam, City Manager
Mary Ann Weideman, Deputy City Manager
Cheryl Pattelli, Chief Financial Officer
Maureen Rait, Executive Director of Public Works
Tracy Winfree, Director of Open Space and Mountain Parks
Jean Gatza, Senior Planner
Joel Wagner, Special Assistant to Finance and City Manager’s Office
DATE: June 15, 2017
SUBJECT: Update on Potential Extension of 0.3 Percent Capital Improvements
Tax for 2017 Ballot - Advisory Committee Recommendations
EXECUTIVE SUMMARY
The City Manager-appointed advisory committee for renewal of the 0.3 percent capital
improvements tax concluded their work and provided a recommendation to the City
Council. The committee recommends extending the tax for 5 years to fund a diverse
package of city and community-based projects based on guiding principles. The
committee prioritized an additional list of projects that could be considered if council
prefers to extend the tax for 7 years or if revenues are higher than projected. The
committee’s recommendations are presented in Attachment A, and their prioritization
process is included in Attachment B. The committee also recommended that the city
consider allocating ongoing funds from an established source to fund capital needs for
ongoing maintenance and replacement of capital assets.
BACKGROUND
The background information for this topic can be found in the study session
memorandum and presentation, both dated Jan. 10, 2017, in the study session summary,
dated Feb. 7, 2017, and in the May 9, 2017 study session memorandum and summary.
At the request of city council, the City Manager formed an advisory committee to make
recommendations about the specific projects and other details of the potential 2017
Information Item
Capital Tax Renewal Update
1A Page 1
renewal. Through collaborative efforts, the advisory group was asked to deliver
recommendations including:
• Providing feedback to city staff about how to communicate the issues and options
to the public and the quality of the information.
• Analyzing scenarios for potential renewal of the tax.
• Providing recommendations on projects and funding packages most likely to
garner community support.
• Community outreach materials and process.
The committee includes 12 members representing broad interests and community
perspectives. The City Manager appointed the following participants - Tyler Adams,
Greg Brown, Leslie Durgin, Barbara Gutmann, Davis Hart, Diane Jones, Deborah
Malden, Jim Mapes, Chris Miller, Ann Moss, Manuela Sifuentes, and Tara Winer.
The advisory committee met a total of six times over the course of its work. Following
the May 9, 2017 presentation to Council, the committee finalized guiding principles,
received project presentations from community groups, and prioritized projects to
develop a recommended package. A summary of the committee’s work is included
below.
UPDATE ON ADVISORY COMMITTEE RECOMMENDATIONS
Guiding Principles
The advisory committee established a sub-committee to determine the process to arrive at
a recommended package that maintained consensus throughout the committee. The
subcommittee drafted a set of five guiding principles and recommended that the
committee score all projects based upon the guiding principles.
Final Guiding Principles:
• Benefits a broad cross-section of the city, including various geographies and
underrepresented groups;
• Aligns well with multiple city master plans or furthers more than one of the city’s key
goals: sustainability, livability, addressing infrastructure deficiencies, and health &
safety;
• Does not create significant additional operating and maintenance expenses or future
capital investments that are not already addressed in the project plan;
• Represents good return on investment in terms of the impact to the community
compared to dollars invested; and
• Has minimized risk by including low risk projects and/or by using funding milestones
and other means to mitigate completion and operating risks.
Information Item
Capital Tax Renewal Update
1A Page 2
Prioritization Process
Using the guiding principles discussed above, the advisory committee followed a
prioritization process that enabled informed decision-making and encouraged
collaboration. See Attachment B for an overview of the committee’s prioritization
process.
Project Refinement and Final Questions:
During the prioritization meetings, the committee asked staff to follow up with the city
departments and community groups to “sharpen the pencil” on projects. In addition to
several project-specific questions staff was asked to:
• Determine whether projects could be scaled or phased to reduce the amount of
funding needed.
• Review budget assumptions for accuracy.
• Ask community groups to accept a dollar for dollar match requirement.
• Provide staff analysis on community projects affecting city facilities and planning
processes.
Key Considerations:
As a result of the prioritization process and additional staff due diligence, the committee
discussed the following key considerations:
• Community Group Matching Requirement: The committee expressed interest in
ensuring that community groups were equally invested in their projects.
Subsequently, staff discussed a dollar-for-dollar match requirement with
community groups that had been prioritized for capital tax funding.
• Value of Land Donations: Two organizations’ proposals included the value of
land committed by a private developer in their proposed matching funds. City
staff as well as some members of the committee questioned whether the value of
the land should be counted as a match. Correspondingly, staff presented a “scaled
amount” for Meals on Wheels and Studio Arts that reduced the city contribution
to 50% of building value (excluding land). Representatives of Meals on Wheels
responded that they would be open to the reduced match. Representatives of
Studio Arts believed that the value of the land donation should be included.
• Impacts on City Facilities: Several community projects are located on, or are
proposing expansion to city property. Staff provided the committee with analysis
and considerations for the community projects that affected city property or
operations. This analysis is provided in Attachment C.
Draft Package Development:
Utilizing the committee’s input from the first working session, city staff developed three
strawman packages for the committee to consider at its final meeting.
Information Item
Capital Tax Renewal Update
1A Page 3
Option 1 addressed essential deficiencies and key city goals. Projects selected were
chosen because they were taking care of existing assets, repaired critical infrastructure, or
helped achieve key city goals and objectives.
Option 2 represented a “Capital Enhancements” package and included projects that
fulfilled key action or vision plan goals.
7-Year Considerations for Options 1 & 2: – based on the committee’s interest to consider
a 7-year option, projects that were prioritized by the committee but required a longer
planning horizon were included in this package option.
Option 3 consisted of a slightly different mix of projects demonstrating an option that
would approximate the percentage of community projects represented in the 2011
Community Culture and Safety tax.
“Round-Out” Projects – the committee was also interested in small-value projects and
scalable projects that could “round out” a package at the appropriate projection and
potentially add support for a wider range of interests.
Final Package Recommendation:
The committee members did not choose any of the draft options as presented. With the
goal to develop consensus between all committee members, the team arrived at a set of
projects that they all agreed to include, then focused on understanding each other’s
thoughts to fund other projects based on the guiding principles. There was a high level of
agreement on most projects in included in the recommendation. Committee members
expect due diligence in planning and coordination of city and community projects as
outlined in their letter.
Several committee members expressed concern about funding Boulder Museum of
Contemporary Art (BMoCA) in this round of funding. They questioned whether this
project is ready to move forward in light of the on-going discussions regarding the
evolving East Bookend Civic Area Planning, the need to displace city facilities, and the
perceived benefit provided to the full community, but agreed to include it in the final
recommendation.
Committee members briefly discussed an option that would reduce the funding amount or
shorten the time period of the tax, including only the projects with the most committee
support. They settled on a 5-year recommendation that included these projects, adding a
group of projects that could be included if the council supports extending the tax to 7
years or if there is additional revenue. The recommendation for a 5-year extension has the
benefit of including a wide range of projects. There was sentiment to let future voters
decide longer-term priorities.
The committee expressed concern that several of the projects propos ed for the renewal
appeared to be a result of insufficient funding for maintenance or capital replacement
Information Item
Capital Tax Renewal Update
1A Page 4
reserves. Starting with the Blue Ribbon Commission work in 2008, the city has made
several improvements in its processes for capital planning (which is described in
Attachment D). Staff agrees that the city should continue to improve its capital asset
planning with respect to capital maintenance and replacement and will continue to look at
this in its annual Capital Improvement Plan process.
The letter from the committee outlining the draft package and their rationale is included
in Attachment A.
Recommended 5-year sales tax extension to include the following projects ($52.5M)1:
Radio Infrastructure - $6 million
Capital costs for a new radio system and the support systems for the radio infrastructure,
including site improvements and backup systems to support peak functionality.
Growing Gardens - $87,000
Funding to complete its Pollinator Pavilion, which is currently under construction. Funds
will help build a kitchen facility and install solar panels.
Community Cycles - $822,500
Funding will help purchase permanent office space, with increased space for operations
and programming.
Library – North Boulder Branch - $6 million
Build a new full-service branch library with community meeting space, room for partner
organizations, and connections to draw the community together.
Relocate Fire Station #3 - $13 million
Current Fire Station 3 is outdated, inefficient, undersized and located in the 100-year
flood plain. Relocation would allow for better service delivery to a significant part of the
city that is not currently within a four-minute drive time of any of our fire stations.
Includes land purchase and new facility.
Scott Carpenter Pool - $6.2 million
This project provides enhanced amenities for the already planned lap pool replacement,
such as: a new bathhouse, family leisure pool, water slides, shade structures and various
park and access improvements.
Studio Arts Boulder - $1.75 million
Funding will help build a new Studio Art Center which will house expanded
programming and administrative space.
Facilities Maintenance Backlog - $3.2 million
1 More detailed project descriptions, including complete community group applications can be viewed at
the project website: https://bouldercolorado.gov/planning/capital-tax-renewal
Information Item
Capital Tax Renewal Update
1A Page 5
Maintenance backlog of 164 items identified in facilities assessments: including:
Roof Maintenance, Fire Protection systems, Building Envelope Repairs, and Interior
Finishes.
Fourmile Canyon Creek Greenways Improvements - $4.25 million
Develop multi-use path connection from 19th Street to Violet Crossing. In conjunction
with flood mitigation, the project also provides safer access to Crest View Elementary
School, recreational opportunities, and replacement of high priority transportation bridges
on Upland Ave and Violet Ave.
Meals on Wheels - $1.6 million
Funding will help build a new facility to house the organization’s operations and provide
for additional meeting space and space for partner organizations.
Center for Resource Conservation - $1.4 million
Funding will help with improvements to the current facility, including more covered yard
space, a new warehouse, office space, and a lumber reuse building.
Public Art - $1.5 million
Develop and install a series of art projects throughout the city, including installations
associated with some projects funded by this tax, as appropriate.
KGNU – $1.25 million
Funding will help expand the current facility, including additional studio, training, and
community spaces.
Boulder Museum of Contemporary Art - $6 million
Funding will help with renovation and expansion of the current museum, including
education spaces, a library, expanded gallery space, community spaces, and an outdoor
event/exhibit space.
Projects for additional 2-year extension (estimated at $28M) or as potential to fund
if revenues exceed projections.
These are not in priority order. The committee views the decision to extend beyond 5
years as a prerogative of the City Council. Regardless of the decision to pursue a five-
year or seven-year renewal, the committee recommended identifying additional projects
from this list that could be funded in a five-year tax if revenues exceed projections. In the
event the city council proposes a seven-year tax, the most shovel ready projects would be
funded first, regardless of which “list” they appear on here.
Fleet Facility Repairs and Upgrades - $1.4 million
Information Item
Capital Tax Renewal Update
1A Page 6
Includes addressing critical maintenance backlog at the city's 28-year old facility as well
as upgrades to promote the use of alternative fuels, prolong the life of fleet vehicles and
share costs with external agencies.
Hill Pedestrian Lighting - $225,000
Replacement of deteriorating 20-year old fixtures to improve the night-time safety and
the attractiveness of the commercial district.
Valmont City Park, Phase 2 - $4.45 million
This phase includes sites for local food opportunities, innovative adventure play features,
family amenities, access improvements, multi-purpose fields, disc golf and flexible
recreation areas.
Railroad Quiet Zones - $1.5 million
The objective is to address train horn noise impacting communities in and around
Boulder. This is for crossings located within the City jurisdiction.
Violet Park - $2.4 million
Develop Violet Park in north Boulder to provide park amenities to the neighborhoods
near Violet and Upland in conjunction with floodplain improvements.
Boulder Reservoir South Shore - $7.6 million
Address the backlog of maintenance that exists within the south shore recreation area
related to docks, lawns, parking areas and visitor amenities. Provide a new visitor
services center, beach improvements, play areas and concession area. Also include key
path connections for recreation and commuters.
Downtown Boulder Partnership - $2 million
Funding will help build out a four-screen art cinema with an attached restaurant and bar.
HOP Conversion - $750,000 (scalable up to $8 million)
Replace aging HOP vehicles with electric or other clean fuel technology vehicles as the
fleet reaches the end of its useful life.
Civic Area Phase 2, Central Park and East Bookend - $8 million
This next phase of Civic Area implementation would develop the community-supported,
public market by renovating the existing Atrium building at 13th and Canyon. To
compliment this phase, the adjacent Central Park would be renovated and improved to
better support an active market, events and programs within the East Bookend.
Additionally, this phase would provide a public restroom, enhancements to 13th Street
and opportunities for a variety of public/private partnerships.
UPDATE ON THE PUBLIC ENGAGEMENT PROCESS AND WORK PLAN
Information Item
Capital Tax Renewal Update
1A Page 7
Community engagement to date includes:
• Convening of advisory committee comprised of twelve community members.
• Call for community-based projects to be considered for funding from a renewed
sales tax.
• Initial information sharing and feedback requested from city advisory boards and
commissions on criteria for prioritization and recommended mix of projects.
• Information sharing about the project on the city’s website.
• Note: per City Council feedback at the May 9, 2017 Study Session, staff and the
committee elected not to conduct a phone poll.
NEXT STEPS
Community Groups:
In the coming weeks, staff will be performing financial due diligence and meeting with
community groups whose projects have been recommended for inclusion in the ballot
initiative. Agenda items will include, among other things:
• Confirmation of the group’s continued interest in participation in the ballot
initiative at the committee’s recommended amounts.
• Discuss results of financial due diligence.
• Draft terms of funding agreements and significant milestones (as informed by
financial due diligence).
• Discuss/refine project description for August council memo.
City Council:
Project staff will be working with board liaisons to share this information packet with
affected boards and commissions, asking for board and commission feedback, and will
share the results with City Council at the July 25 Study Session.
Staff will present additional information and results of its continued due diligence at the
July 25 Study Session. It is anticipated that draft ballot language will be presented on
Aug. 1, with second and third reading (if needed) on Aug. 15 and Aug. 29, respectively.
Community Engagement:
Staff will work with the communications team to develop a plan to inform community
members and groups about the sales tax renewal and the proposed investments.
STAFF CONTACTS
Jean Gatza, gatzaj@bouldercolorado.gov, 303-441-4907
Joel Wagner, wagnerj@bouldercolorado.gov, 303-441-3871 ATTACHMENTS:
Information Item
Capital Tax Renewal Update
1A Page 8
Attachment A: Committee letter and prioritization materials Attachment B: Committee prioritization process Attachment C: Staff analysis of impacts to city facilities Attachment D: History of capital planning
Information Item
Capital Tax Renewal Update
1A Page 9
ATTACHMENT A – Committee Letter
June 8, 2017
Mayor Jones
Members of the Boulder City Council
P.O. Box 791
Boulder, CO 80306
Re: Capital Improvement Sales Tax Renewal Recommendation for 2017
Dear Mayor Jones and Members of the Boulder City Council:
The Capital Improvement Tax Renewal Committee appreciates the opportunity to provide City Council
with its recommendations for a capital investment ballot item. The committee has been working since
March to evaluate projects, timing and voter appeal of a potential renewal of the 0.3% sales tax that
funded the Community, Culture and Safety package of community investment. The 2015 Community,
Culture, and Safety Capital Investment Tax included a range of projects that provide significant benefit
to the community. This Committee’s recommendation aims to ensure that a tax renewal in 2017
provides similar, if not more benefit, and is a proposal that voters will support.
The committee also wishes to express deep appreciation to staff for their expertise, incredibly hard
work, consistent professionalism, and ability to facilitate vigorous yet respectful discussion. They helped
drive our diverse group toward a consensus recommendation that we believe provides a strong
foundation for Council’s deliberations.
The committee recommends putting a 5-year extension on the 2017 ballot that includes the city and
community projects listed below. We also provide a list of projects we would prioritize to be funded
either with an extension to 7 years or if the revenue from the tax is higher than estimated. This
recommendation is based on the guiding principles and considerations listed below.
Information with the list of projects and committee work around ranking is attached. In several cases,
some of the guiding principles and considerations have not yet been met and additional due diligence is
recommended. Nevertheless, we believe that staff has the skills and expertise to appropriately structure
the funding to mitigate tax payer risk and ensure close alignment with the overarching principles and
considerations.
Recommended 5-year sales tax extension to include the following projects ($53M):
Radio Infrastructure - $6 million
Growing Gardens - $87,000
Community Cycles - $822,500
Library – North Boulder Branch - $6 million
Relocate Fire Station #3 - $13 million
Scott Carpenter Pool - $6.2 million
Studio Arts Boulder - $1.75 million
Facilities Maintenance Backlog - $3.2 million
Information Item
Capital Tax Renewal Update
1A Page 10
ATTACHMENT A – Committee Letter
Meals on Wheels - $1.6 million
KGNU – $1.25 million
Center for Resource Conservation - $1.4 million
Fourmile Canyon Creek Greenways Improvements - $4.25 million
Boulder Museum of Contemporary Art - $6 million
Public Art - $1.5 million
Projects for additional 2-year extension (estimated at $28M) or as potential to fund if revenues exceed
projections.
These are not in priority order. The committee views the decision to extend beyond 5 years as a
prerogative of the City Council.
Fleet Facility Repairs and Upgrades - $1.5 million
Hill Pedestrian Lighting - $225,000
Valmont City Park, Phase 2 - $4.45 million
Railroad Quiet Zones - $1.5 million
Violet Park piece of Fourmile Creek - $2.4 million
Boulder Reservoir South Shore - $7.6 million
Downtown Boulder Partnership - $2 million
HOP Conversion - $750,000
Civic Area Phase 2, Central Park and East Bookend - $8 million
Guiding Principles
The committee developed guiding principles to guide our recommendation; working to develop a
package of projects that:
1.Benefits a broad cross-section of the city, including various geographies and underrepresented
groups;
2.Aligns well with multiple city master plans or furthers more than one of the city’s key goals:
sustainability, livability, addressing infrastructure deficiencies, and health & safety;
3.Does not create significant additional operating and maintenance expenses or future capital
investments that are not already addressed in the project plan;
4.Represents good return on investment in terms of the impact to the community compared to
dollars invested; and
5.Has minimized risk by including low risk projects and/or by using funding milestones and other
means to mitigate completion and operating risks.
The committee recognizes the importance of including seven community-based projects in the 5-year
package, with 23.6% of the funding ear-marked for these needs. We considered the following factors in
selecting these projects:
1.Does the project address a need that can’t be met through the private sector alone and without
a new facility/capital investment?
Information Item
Capital Tax Renewal Update
1A Page 11
ATTACHMENT A – Committee Letter
2.Does the new facility/expansion build upon the organization’s mission and core competencies?
3.Does the organization appear to have the organizational and financial ability to build and
operate the facility?
4.Would this investment improve the likelihood of voter support for the tax extension?
5.Does this investment adequately and optimally leverage public dollars?
6.What matching funds are available or needed to proceed? Is there demonstrated community
financial support?
7.What is the project readiness? Many community projects not recommended for funding have
merit but the timing, completeness of public process and planning and design were not
appropriate for this time and funding source.
Other considerations that informed the recommended package include:
A high degree of committee agreement on including a rich mixture of projects that address
critical deficiencies, improve infrastructure, enhance Boulder being “Boulder”, support active-
living, improve community spaces and support community groups.
Funding facility maintenance backlog is funding well-spent now since these necessary
improvements will likely cost more down the line.
The need to balance maintaining and enhancing infrastructure of existing city or community
facilities with expanding the scope of what’s available in the city.
Some terms we suggest for describing the recommended package include: safe, diverse, culture,
active, unique, invigorating, well-rounded, responsible, and FUN.
Bond Considerations
At the beginning of the project, staff discussed the pros and cons of using debt financing to construct
capital projects. If staff determines that it is in the best interest of the city, the committee supports
asking the voters for the ability to bond in order to fund projects sooner rather than waiting to allow
funds to accumulate over time. Should the ballot items pass, considerations of project-readiness,
increasing construction costs, and ability to construct should inform the use of bonding.
Looking Forward
Regardless of any ballot initiative approved by Council, the Committee wants to express its concern
about the fact that several seemingly critical infrastructure maintenance projects have been deferred by
the City. Committee members were shocked when we learned of shortfalls in funding for facilities
maintenance, police and fire radio infrastructure, and fire station relocation. This put the committee in
an awkward position of deciding whether to recommend inclusion of these projects in the Capital
Investment Tax Renewal, because either (A) doing so could send the message and set a precedent that
we are comfortable using this short-term, expiring tax to fund such critical projects, or (B) not including
them could lead to continued shortfalls and lack of investment. We note that Appendix A: Unfunded
Projects of the 2017-2023 CIP describes a lack of continuous process for renewal of all city capital assets
and believe that the City and Council needs to rapidly address this situation.
Information Item
Capital Tax Renewal Update
1A Page 12
ATTACHMENT A – Committee Letter
Sincerely,
The Capital Improvement Sales Tax Renewal Committee
Tyler Adams
Greg Brown
Leslie Durgin
Barbara Gutmann
Davis Hart
Diane Jones
Deborah Malden
Jim Mapes
Chris Miller
Ann Moss
Manuela Sifuentes
Tara Winer
Information Item
Capital Tax Renewal Update
1A Page 13
ATTACHMENT B – Committee Prioritization Process
Overview of Committee Prioritization Process
Over the course of two working sessions, the committee prioritized all 46 projects (city and community
projects). In an effort to develop consensus in the first working session, the committee:
1. Scored all projects on a scale of zero to ten, with zero meaning “not a fit” and ten meaning “a
great fit”. The results of the committee’s scoring process are presented in Table 1 as “Survey
Results”.
2. Discussed the results of the scoring process and had the opportunity to “call up” projects that
individual members felt deserved additional conversation. Each project was presented on a white
board, and committee members directed staff whether projects should be considered for five-
year funding, seven-year funding, or no funding. An image of the whiteboard exercise is
presented in the following pages.
3. Discussed projects in groups of two (six groups total) with the goal of reaching agreement with a
committee partner on the top-ten projects to be funded. This effort represented the committee’s
ability to collaborate and understand other views. Each pair then placed dots on a chart beside
each project that they agreed was on their top-ten list. An image of the dot voting exercise is
presented in the following pages.
4. Prioritized projects in groups of six (two groups total) to create more consensus on a set of
projects that they strongly believed should be funded and that they would like to know more
about. Teams were given eight dots (one team assigned yellow and one team assigned green)
and each team placed dots on a chart beside each project they agreed upon. Each team was also
given four orange dots to identify projects they wanted to know more about or thought were “on
the cusp” for funding. This led to a series of projects that had clear committee-wide support and
enabled staff to gather outlying questions to answer. An image of the dot voting exercise is
presented in the following pages.
Using the results of the committee discussions and ranking described above, staff developed three
strawman options for the committee’s consideration. These options are presented in the following
pages.
Information Item
Capital Tax Renewal Update
1A Page 14
ATTACHMENT B – Committee Prioritization Process
Table 1: Survey Results
Project Name Score Amount
Growing Gardens 9.58 86,691
Radio Infrastructure - radio system 9.17 6,000,000
Library-North Boulder Branch 7.83 6,000,000
Scott Carpenter Pool Replacement, New Family Aquatics Features and Park
Upgrades 7.67 6,223,220
Community Cycles 7.58 822,500
Relocate Fire Station #3 7.50 12,000,000
Meals on Wheels 6.83 3,200,000
Studio Arts Boulder 6.75 2,500,000
Public Art 6.42 1,500,000
Boulder Reservoir South Shore Enhancements and Multi-Use Path Connections 6.17 7,600,000
Civic Area Phase 2 - Central Park and East Bookend Development 6.08 8,000,000
Fourmile Canyon Creek Improvements: 19th Street to Broadway 5.92 8,500,000
Center for ReSource Conservation 5.83 4,900,000
Facilities Maintenance Backlog 5.58 3,240,000
Valmont City Park Development Phase 2 (South of Valmont Road) 5.58 4,450,000
Boulder Museum of Contemporary Art 5.42 6,000,000
Incident Command Vehicle (ICV) Replacement 5.42 570,000
Relocate Fire Station 4. Remodel/relocate Fire Station 2 5.33 14,200,000
Fleet Facility Repairs and Upgrades 5.25 1,405,000
Boulder's Recreation Centers and Indoor Pools Capital Maintenance
Improvements 5.17 8,600,000
Multi-use pathway connections 5.08 6,000,000
Neighborhood and Community Park Capital Enhancements 4.92 12,000,000
Hill Commercial Area Pedestrian Lighting Replacement 4.50 222,250
Terradyne Gurkha MPV Light Armored Rescue Vehicle 4.42 330,280
KGNU 4.42 2,000,000
HOP Conversion to Clean Vehicles 4.25 8,250,000
Develop New Neighborhood Parks In Boulder 4.17 7,200,000
Railroad Quiet Zone Improvements 4.08 1,500,000
Large Vehicle Washrack 4.08 950,000
Downtown Boulder Partnership 3.83 2,435,000
Kittredge Underpass (Baseline and Broadway) 3.75 2,000,000
Warehouse Facility - Fire 3.50 2,000,000
Library Renovations – All inclusive restrooms 3.50 650,000
Mobility Hubs/Transit Stop Enhancements 3.42 2,100,000
eTown - Solar Studio 3.33 317,000
Hill 'Connector' Alley Project 3.08 840,000
US-36 MUP 4-Mile to Violet 3.00 4,200,000
Information Item
Capital Tax Renewal Update
1A Page 15
ATTACHMENT B – Committee Prioritization Process
Project Name Score Amount
Boulder Slough MUP/ Tea House to Goss-Grove 3.00 1,400,000
eTown - Mortgage Repayment 2.92 1,900,000
Outdoor Lighting Compliance 2.83 6,915,000
Canyon Boulevard Corridor 2.58 15,000,000
Boulder Center for Perfomring Arts 2.42 3,500,000
Junction Place Bridge/Underpass at Boulder Slough – Connection to Prairie 2.33 3,250,000
Municipal Building Community Spaces 2.00 2,425,000
Barrio E- Multicultural Center 1.67 4,576,455
Science Galaxy 1.58 5,000,000
Grand Total 202,758,396
Information Item
Capital Tax Renewal Update
1A Page 16
ATTACHMENT B – Committee Prioritization Process
Option 1: Address Essential Deficiencies and Key City Goals
Project Name Category Amount
Center for ReSource Conservation Community Groups 3,000,000
Community Cycles Community Groups 822,500
Growing Gardens Community Groups 86,691
Library-North Boulder Branch Library 6,000,000
Meals on Wheels Community Groups 2,400,000
Public Art Arts and Culture 1,500,000
Radio Infrastructure - radio system Public Safety-Police 6,000,000
Relocate Fire Station #3 Public Safety - Fire 13,000,000
Scott Carpenter Pool Replacement, New Family Aquatics Features and Park Upgrades Parks and Recreation 6,223,220
Studio Arts Boulder Community Groups 2,500,000
Facilities Maintenance Backlog City Service Facilities 3,240,000
Fourmile Canyon Creek Improvements: 19th Street to Broadway
Transportation, Greenways &
Violet Park 8,500,000
Five-Year Total 53,272,411
Boulder Museum of Contemporary Art Community Groups 6,000,000
Civic Area Phase 2 - Central Park and East Bookend Development Civic Area 8,000,000
Valmont City Park Development Phase 2 (South of Valmont Road) Parks and Recreation 4,450,000
Seven-Year Total 71,722,411
Information Item
Capital Tax Renewal Update
1A Page 17
ATTACHMENT B – Committee Prioritization Process
Option 2: Capital Enhancements
Project Name Category Amount
Center for ReSource Conservation Community Groups 3,000,000
Community Cycles Community Groups 822,500
Growing Gardens Community Groups 86,691
Library-North Boulder Branch Library 6,000,000
Meals on Wheels Community Groups 2,400,000
Public Art Arts and Culture 1,500,000
Radio Infrastructure - radio system Public Safety-Police 6,000,000
Relocate Fire Station #3 Public Safety - Fire 13,000,000
Scott Carpenter Pool Replacement, New Family Aquatics Features and Park Upgrades Parks and Recreation 6,223,220
Studio Arts Boulder Community Groups 2,500,000
Boulder Reservoir South Shore Enhancements and Multi-Use Path Connections. Parks and Recreation 7,600,000
Hill Commercial Area Pedestrian Lighting Replacement Community Vitality 222,250
KGNU Community Groups 1,250,000
Library Renovations – All inclusive restrooms Library 650,000
Five-Year Total 51,254,661
Boulder Museum of Contemporary Art Community Groups 6,000,000
Civic Area Phase 2 - Central Park and East Bookend Development Civic Area 8,000,000
Valmont City Park Development Phase 2 (South of Valmont Road) Parks and Recreation 4,450,000
Seven-Year Total 71,722,411
Information Item
Capital Tax Renewal Update
1A Page 18
ATTACHMENT B – Committee Prioritization Process
Option 3: Enhanced Community Project Participation
Project Name Category Amount
Boulder Museum of Contemporary Art Community Groups 6,000,000
Boulder Reservoir South Shore Enhancements and Multi-Use Path Connections. Parks and Recreation 7,600,000
Community Cycles Community Groups 822,500
Growing Gardens Community Groups 86,691
KGNU Community Groups 1,250,000
Library-North Boulder Branch Library 6,000,000
Meals on Wheels Community Groups 1,600,000
Public Art Arts and Culture 500,000
Radio Infrastructure - radio system Public Safety-Police 6,000,000
Relocate Fire Station #3 Public Safety - Fire 13,000,000
Studio Arts Boulder Community Groups 1,750,000
Scott Carpenter Pool Replacement, New Family Aquatics Features and Park Upgrades Parks and Recreation 4,223,220
Five-Year Total 48,832,411
Railroad Quiet Zone Improvements Transportation 1,500,000
Center for ReSource Conservation Community Groups 1,400,000
Civic Area Phase 2 - Central Park and East Bookend Development Civic Area 8,000,000
Downtown Boulder Partnership Community Groups 2,000,000
Fourmile Canyon Creek Improvements: 19th Street to Broadway
Transportation, Greenways &
Violet Park 4,250,000
Seven-Year Total 65,982,411
Information Item
Capital Tax Renewal Update
1A Page 19
ATTACHMENT B – Committee Prioritization Process
White Board Exercise
Dot Voting Exercise
Information Item
Capital Tax Renewal Update
1A Page 20
ATTACHMENT B – Committee Prioritization Process
Information Item
Capital Tax Renewal Update
1A Page 21
ATTACHMENT C – Staff Analysis of Impacts to City Facilities
Staff Analysis of Community Group Impacts to City Facilities
Note: The capital improvements tax advisory committee asked staff for analysis of impacts of
community group proposals on buildings and property currently owned by the city. Staff prepared an
initial response on May 25, and provided additional detail in early June in advance of the committee’s
final meeting. These responses are consolidated in this attachment.
Considerations Regarding Projects in/on City Facilities
May 25, 2017
Civic Area:
o The Civic Area Master Plan (adopted by City Council in 2015) divided the Civic Area into
three sections, and generally identified the “character of each:
“Park at the Core”
“The East End: Food and Innovation” (now known as the East Bookend)
“The West End: Arts and Culture” (now known as the West Bookend)
The Master Plan provides policy guidance, but is flexible in terms of the direction it sets.
o East Bo okend (BMo CA, Barrio E’):
One of the priority Civic Area efforts following adoption of the Master Plan has been
to bring to life the idea of a “year round public market hall.” The most promising
location for a possible public market hall is the city-owned Atrium Building because of
its proximity to the twice weekly Farmers Market and the fact that it is City-owned.
There are several planning considerations at play at the East Bookend, including the
potential need for 60,000 to 80,000 square feet of new city facilities, parking
requirements, and floodplain development requirements.
The Atrium building is currently permitted for office space. Code requirements for a
use change would trigger significant upgrades to the building and systems. The Atrium
also has a pending landmarks application, which could further complicate renovations.
Because of these many unresolved questions, Civic Area staff did not recommend a
market hall on the list for city projects for this tax renewal. Staff has not eliminated
the possibility of a market hall in the Atrium, but did not recommend a $3 million
investment in the building given the number of planning variables at play.
The BMoCA expansion would require the relocation of Facilities and Parks Operations
staff, and a plan has currently not been developed for relocation.
o West Bookend (BCPA):
The East Bookend planning process is the current focus of the Civic Area team.
Planning for the West Bookend is not planned to begin in earnest until 2019 or 2020,
and will likely take several years.
BCPA highlighted the significant flood design challenges in their proposal.
Development of the north Library building would also displace Library and Arts staff
and office space.
The Library master plan is currently being updated, and the Library Commission has
asked that no projects “implicating the Civic Area “North Bookend” or the library’s
north side be included in this ballot measure.”
Information Item
Capital Tax Renewal Update
1A Page 22
ATTACHMENT C – Staff Analysis of Impacts on City Facilities
6400 Arapahoe (Center for ReSource Conservation):
o CRC’s proposed development is in alignment with the deed restrictions on the site.
o However, a minor modification of the approved site plans would be required for Phase II
(est. at 1-2 months). Full site review would be required for development of the Phase III
plans (etc. at 6-18 months, depending upon complexity).
o In addition to the Boulder County Sustainability Tax, funding may be available through
the City of Boulder Trash Tax beginning in 2019.
Considerations Regarding BMoCA Expansion in East Bookend of Civic Area:
5 June 2017
This document consolidates considerations previously provided to the CITR Advisory Committee with
some additional considerations.
Note: The “considerations” described in this document might appear to cast BMoCA’s proposed
expansion in a negative light. That is not the intent of this document at all. This document is simply
intended to identify factors that could be considered in evaluating BMoCA’s proposed expansion.
BMoCA has been, and hopefully will continue to be, a key contributor to the richness and vitality of
Boulder’s Civic Area.
Civic Area Master Plan: The Civic Area Master Plan (adopted by City Council in 2015) divided the Civic
Area into three sections, and generally identified the character of each:
“Park at the Core.”
“The East End: Food and Innovation” (now known as the East Bookend). The East Bookend (for
re-development purposes) consists of the area bound by Canyon Boulevard on the north,
Arapahoe Avenue on the south, Broadway on the west, and 14th Street on the east. BMoCA’s
current facilities are in the East Bookend.
“The West End: Arts and Culture” (now known as the West Bookend).
The City of Boulder’s current construction, design, and planning efforts are all part of implementation of
the Master Plan. The Master Plan provides policy guidance, but is flexible in terms of the direction it
sets.
Public Market Hall: To further the “Food and Innovation” character of the East Bookend, one of the
priority Civic Area efforts following adoption of the Master Plan has been to bring to life the idea of a
year-round Public Market Hall oriented around food. The most promising location for a possible Public
Market Hall is the city-owned Atrium Building (located at the SE corner of Canyon Boulevard and 13th
Street) because of its proximity to the twice weekly Farmers Market and the fact that it is city-owned.
This effort is ongoing, and thus the Atrium building/site remains in consideration for that purpose.
City Facilities: The Civic Area Master Plan also identified “city services and civic functions” as a potential
desirable use in the East Bookend. The ongoing City Facilities Assessment (a comprehensive
examination of city facilities with the possible consolidation of many facilities at the Civic Area and the
Alpine-Balsam site) has identified the likelihood of locating 50,000 to 80,000 square feet of new city
facilities in the East Bookend.
Parking: The Civic Area Master Plan also called for the East Bookend to provide adequate parking the
serve the facilities located there, which may include: BMoCA; the Dushanbe Teahouse; the Farmers
Market; the Public Market Hall; and the 50,000 - 80,000 square feet of city facilities. This will likely
require a quite substantial parking facility at a yet-to-be determined location in the East Bookend.
BMoCA currently relies on parking provided by the City, and an expanded BMoCA presumably would
require even more parking. Information Item
Capital Tax Renewal Update
1A Page 23
ATTACHMENT C – Staff Analysis of Impacts on City Facilities
Flood Issues: The East Bookend currently is in the Boulder Creek 100-year floodplain. The entire block
(13th to 14th, Arapahoe to Canyon) is also surrounded by both the High Hazard and Conveyance Zones,
which also extend into part of the block. The Boulder Creek re-mapping study is currently under final
FEMA review (which is expected to be completed late this year) and is expected to remove portions of
the block from the High Hazard and Conveyance Zones (the zones will continue to surround the block),
but the entire block will remain in the 100-year flood plain, and thus all public and private
development and redevelopment will be subject to the city’s floodplain regulations. These regulations
include requirements for elevating and/or floodproofing of structures.
Relocation of City Staff and Facilities: The proposed BMoCA expansion would require the relocation of
city Facilities and Parks Operations staffs (about 30 people) and functions from the building (1720 13th
Street) located in the site of BMoCA’s expansion. Facilities and Asset Management provides
maintenance, repair, design, and construction services for mainly general fund facilities. Park
Operations staff at this location provide ground maintenance services to the Civic Area, Eben G. Fine
Park, other downtown parks and the Boulder Creek multi-use path. The building is 5,750 square feet
with over half the space being workshops and storage. While the relocation of the Facilities and Parks
Operations functions from their current location is contemplated by the City Facilities Assessment, that
relocation likely would not occur until 2022 or later – at a time when the City has constructed alternate
buildings to house those functions. If BMoCA’s expansion occurred prior to when those alternate
facilities were available, it would likely require the City to lease temporary space for those
facilities. Using current lease rates in central Boulder, the cost of 5,750 square feet of space would be
approximately $230,000 per year. Constructing offices, workshop, and storage space for the same
would cost approximately $2.8 million (based on $400/square foot + 20% contingency), not including
the cost of land. Neither lease nor construction is funded.
Opportunity Costs: In addition to the actual costs associated with relocating the operations currently
located at 1720 13th Street, BMoCA’s expansion likely would exact an “opportunity cost” as that site
would be removed as a possible site for other elements that could contribute to implementation of the
Civic Area Master Plan. It should be noted that BMoCA currently pays the City $1 per year for the land
and building of its current facility. BMoCA and the city would need to negotiate the terms of BMoCA’s
use of additional city land.
East Bookend Planning: City staff is currently unable to provide a quantitative estimate of the
“opportunity cost” of a possible BMoCA expansion because the spatial planning of the East Bookend has
not advanced to a point that would enable definitive statements such as, “As a consequence of
BMoCA’s expansion, ‘X’ will not be accomplished in the East Bookend.” City staff anticipates continuing
East Bookend planning through at least the remainder of 2017, which may enable more definitive
assessments of “opportunity cost” in the early portion of 2018. As noted in BMoCA’s May 10th response
to the CITR advisory committee’s questions, “the East Bookend is still in a master planning phase,” and
the city will certainly want BMoCA to continue its productive participation in that planning to arrive at
optimal solutions.
Information Item
Capital Tax Renewal Update
1A Page 24
ATTACHMENT C – Staff Analysis of Impacts on City Facilities
City of Boulder
Planning, Housing + Sustainability
Climate and Sustainability
To: Capital Improvement Tax Renewal Stakeholder Committee:
From: Kara Mertz, Environmental Manager
June 6, 2017
It has come to my attention that you are considering a community project submitted by the Center for
Resource Conservation to expand the recycling and reuse activities at 6400 Arapahoe Ave. I would like
to submit the following additional information about the proposal:
The city Trash Tax will be available beginning in 2019 to contribute additional funds for
future development at 6400 Arapahoe.
o Trash tax will also pay all “soft costs” for land use processes
o Site Review has already been approved for Phase II; Concept planning has begun for
Phase III development at the site
The Sustainability Tax from the county will also be available to contribute additional (“matching”)
funds
The property is owned by the City of Boulder, so the investment is permanent regardless of the
future of the nonprofits on site
o There is no connection between the viability of Eco-Cycle who operates the
(independent) Center for Hard-to-Recycle Materials at 6400 Arapahoe and the
outcome of Boulder County’s bid for the Recycling Center operations
The ultimate vision is to broaden the impact of the current site to serve a diverse cross-
section of the community:
o Artists
o Entrepreneurs testing new businesses made from scrap materials
o Students of Arapahoe Ridge High School Boulder Career Technical Ed programs
o Children who attend after school and summer camps through ArtParts
o Adults with autism spectrum disorders who work at Blue Star Recyclers
o Low-income families and nonprofits who purchase low-cost upgraded computers
o Residents choosing to repair broken electronics, tools, clothes, appliances and toys
through expanded fix-it clinics
Information Item
Capital Tax Renewal Update
1A Page 25
ATTACHMENT C – Staff Analysis of Impacts on City Facilities
The build-out and vision for the site can be met through a combination of Capital Improvement Tax, City
Trash Tax and County Sustainability Tax funds; as well as funds from the following nonprofits who have
expressed an intent to seek and provide private investments in the final site:
Center for Resource Conservation
Eco-Cycle
ArtParts
Blue Star Recyclers
It should also be noted that the proposed site vision addresses many community vision and values, as
expressed in the following adopted plans:
City of Boulder Zero Waste Strategic Plan (increase waste diversion, give preference to source
reduction, decrease greenhouse gas emissions, increase the number and diversity of
participation in zero waste programs and services)
City of Boulder Art and Culture Master Plan strategies (create & enhance venues; enhance
vitality of the creative economy; new public art; engage youth; advance civic dialogue and
awareness)
City of Boulder Social Sustainability Strategic Plan (promote community and city engagement,
address the needs of children and youth, partner with schools, improve neighborhood and
community livability)
Boulder Valley Comprehensive Plan (eastern gateway and East Arapahoe Plan)
Economic Sustainability Strategy (start-ups based on recycled materials; jobs creation with zero
turnover, 100% satisfaction, etc. through Blue Star Recyclers)
Serves intergovernmental relations with BVSD and Boulder County
Information Item
Capital Tax Renewal Update
1A Page 26
ATTACHMENT D: History of capital planning
City Actions for Sustainable Capital Planning
Strategic actions have been implemented over the past decade following the significant reduction (18%)
of sales tax revenue Boulder experienced in the early 2000s. These are described in more detail below:
2008 Revenue stabilization measures to reduce annual shortfall (renewed expiring taxes,
removed TABOR limits, diversified revenues)
2010 Policy for one-time revenue to be spent on one-time expenses (capital)
2010 Policy for expanding reserves for emergencies or economic downturns
2011 Capital Investment Strategy and passage of Capital Improvement Bond to fund $50M in
necessary capital improvements without raising taxes
2011 Adopted Capital Improvement Program (CIP) guiding principles
2012 Comprehensive Financial Strategy policy direction including:
o efficient allocation of resources consistent with master and strategic plans
o limited use of dedicated funds, ensuring corresponding incremental operating and
maintenance costs
o proactive asset management, including land, facilities, vehicles and equipment to
prevent more costly future expenses by completing an inventory of needs, and ensure
less deferred maintenance
2015 Community, Culture and Safety Tax for unfunded capital needs
Ongoing identification and study of unfunded capital needs (identified in master plans) in the
annual CIP
BACKGROUND
From 2000 through 2011, the City of Boulder did not have the resources to fully fund its capital needs.
There was a limited capital improvement program (CIP) for the general fund departments and an
inadequate CIP for some other tax-supported funds, due to limited revenues. Major maintenance and
capital needs for much of the city were underfunded. This resulted in higher ongoing operating costs, for
which there were also inadequate resources. The two recessions that occurred, from 2001 to 2005 and
from 2008 to 2010, exacerbated the situation.
The city’s first long-range fiscal sustainability and resilience work to address these resource
shortcomings began with the Blue Ribbon Commission I (BRC I) and continued with BRC II. BRC I’s
primary recommendations centered around revenue stabilization, renewing expiring taxes, removing
Taxpayer Bill of Rights (TABOR) limits, and policy changes to diversify revenues and address capital
needs. The city has made progress in implementing many of these recommendations.
BRC II studied expenditures, recognizing that sustained fiscal health would only be achieved through a
balance of revenue stabilization and appropriate expenditure control. The BRC II report to council in
2010 identified strategies to address rising costs and methods to provide efficient and effective use of
public funds. These strategies included policy recommendations around financial operations, budgeting
and compensation. Taken together, the recommended and implemented policies have had significant
Information Item
Capital Tax Renewal Update
1A Page 27
ATTACHMENT D: History of capital planning
positive impacts on the financial stability of the city. The adherence to these policies has changed the
way projects have been funded for the general fund and for the funds that receive significant revenues
from sales and use tax. Policies that have contributed to this turnaround include the following:
1. On an annual basis, ongoing revenues will be matched to ongoing expenditures, and one-time
revenues will be used only for one-time expenses.
2. Adequate reserves shall be maintained to offset unexpected downturns in the economy or
natural disasters (each fund is analyzed individually to determine the appropriate level of
reserves that should be maintained).
3. Different capital financing methods are appropriate for different situations (the city has been
able to use PAYG financing, bonding, certificates of participation, and is currently working on a
public-private partnership on University Hill).
4. Earmark funds only for capital purchases and construction, if possible.
In 2011, the City Council initiated a Capital Investment Strategy (CIS) to begin addressing more than
$700 million in unfunded capital needs. As part of the process, a City Manager-appointed committee
recommended projects to council that resulted in Ballot Item 2A being placed on the ballot in 2011. The
ballot item, which Boulder voters supported by a 3-to-1 margin, gave the city the authority to leverage
existing revenues to issue a bond for up to $49 million to pay for necessary capital investments without
raising taxes. The $49 million bond package has a 20-year final maturity, or payback period. Additional
information on the bond fund and related projects can be found at: Capital Improvement Bond Projects.
As follow up to the work of BRC I and BRC II, the city developed a Comprehensive Financial Strategy
(CFS). The purpose of the project was to (a) review and update BRC I and BRC II findings and
implementation efforts, and (b) develop a financial plan to meet the city’s strategic needs over the next
five years. The CFS reflected current and projected economic and budgetary conditions, identified
challenges and issues, and evaluated many different areas affecting the city’s ability to meet the short-
and long-term needs of the community.
During the first phase of the CFS, city staff compiled and prioritized an inventory of the city’s unfunded
capital needs at that time. City Council examined the feasibility of a ballot initiative for a second phase
of new capital funding. This CFS work resulted in 2014 ballot item 2A, which gave the city the authority
to implement a 0.3 percent sales tax increase effective Jan. 1, 2015 through Dec. 31, 2017. Due to the
significant community and stakeholder committee input that was received during the work on the
capital bond initiative in 2011, and because much of the work done by the committee remained
relevant, a community committee was not used for the 0.3 percent tax ballot initiative.
The revenue from this tax increase was designated to be used for capital improvements for specific
projects enhancing the community, culture and safety. The ballot language projected that the new tax
would yield approximately $27 million for the projects and indicated that the use of the funds should
adhere to the guiding principles of CFS (capital phase). No set percentage amount was designated to
each category of community, culture or safety.
Information Item
Capital Tax Renewal Update
1A Page 28
ATTACHMENT D: History of capital planning
Projects were identified and chosen based on priority needs and desires of the community. Additional
information on the Community, Culture and Safety program and projects can be found at: Community,
Culture & Safety.
As a result of recommendations from BRC I and II, during the second phase of the CFS (operating), city
staff began to explore ongoing strategies for revenue diversification and expenditure control, with an
emphasis on providing high-priority programs and services, and ensuring the long-term vitality and
sustainability of the community. The primary outcome was council implementation of some powerful
strategies and guiding principles (including budgeting and capital budgeting) that have brought stability
to the financial situation of the city including funding for operating needs. These strategies and guiding
principles include:
Adopting a budget process based on prioritizing services in order to allocate limited resources in
a way that most effectively meets the city’s goals or top priorities.
Full costing of services and programs to inform budget decisions.
Looking for ways to end duplication of services through centralization of administrative
functions within the city or partnering with outside organizations (efficient delivery of city
services).
Using dedicated funds sparingly, and when they are used, ensuring a full understanding of their
impact on the city’s finances, including any corresponding incremental operating and
maintenance costs.
Adopting of financial/management policies regarding; compensation, asset management, and
transfers from the General Fund.
The city maintains several internal service funds for the purposes of financing and accounting for the
costs of maintaining and replacing assets. These funds include:
Fleet Fund - to account for the costs of operating, acquiring and maintaining automotive
equipment used by other City departments. Such costs are billed to the other departments.
Computer Replacement Fund - to account for the costs of acquiring and maintaining computer
equipment used by other City departments. Such costs are billed to the other departments.
Equipment Replacement Fund - to account for the costs of acquiring equipment used by other City
departments. Such costs are billed to the other departments.
Facility Renovation and Replacement Fund - to account for the costs of maintaining, renovating and
replacing facilities within the City. Such costs are billed to the other departments.
During the capital bond planning work, city staff identified a list of unfunded capital projects totaling
$700 million. The work completed on the bond-funded projects and the projects funded by the
temporary 0.3 percent sales and use tax has addressed approximately $77 million of the original $700
million in unfunded capital projects. Since the time when the original estimated $700 million gap was
identified, numerous changes have occurred that have impacted the estimated amount of unfunded
capital needs. Anticipated costs have risen on the projects that were not funded, new projects have
Information Item
Capital Tax Renewal Update
1A Page 29
ATTACHMENT D: History of capital planning
been added to the list as new master plans have been brought forward, and additional major capital
needs have been identified as a result of additional assessments, and emerging needs and opportunities.
These unfunded needs become part of the annual CIP process, and are discussed in the context of
prioritization during the budgeting process.
Information Item
Capital Tax Renewal Update
1A Page 30