01.11.17 OSBT PacketOPEN SPACE BOARD OF TRUSTEES
Wednesday, January 11, 2017
Council Chambers, 1777 Broadway
MEETING AGENDA
(Please note that times are approximate.)
6:00 I. Approval of Minutes
6:05 II. *Public Participation for Items Not Identified for Public Hearing
6:15 III. Matters from the Department
A. Prairie Dog Working Group Update
B. Boulder Creek Restoration Update
6:35 IV. Matters from the Board
6:55 V. Adjournment
* Public Hearing
STUDY SESSION
7:00 **Boulder Valley Comprehensive Plan – Open Space – Other Designation Changes
I. Land Use Designation Change 311 Mapleton Avenue: Academy on
Mapleton Hill
II. CU South Land Use Designation
9:00 Study Sessions Ends
**The study session is open to the public but there will be no public hearing.
Open Space Board of Trustees
2017 Tentative Board Items Calendar
(updated Jan. 5, 2017)
February 8 March 8 April 12
Action Items:
none
Matters from the Department:
Review of draft Ag Plan
Community Ranger
Program Update
Matters from Board:
CAMP Update
Note: Possible joint boards
meeting for Chautauqua access
plan, date TBD.
Action Items:
Ag Plan
recommendation to
City Council (Council
consideration in Apr)
NCWCD pipeline
easement (disposal)
BVCP-CU South (or
April)
Matters from the Department:
Prairie Dog Working
Group
Resident Survey
Matters from Board:
50th Anniversary
Action Items:
Pending acquisition
Volunteer Services
summary &
proclamation
Matters from the Department:
Budget - CIP
Background info
Disposal Procedures
Confluence Area trail
projects
Prairie Dog Working
Group status
Matters from Board:
CAMP Update
Possible written report:
MP Portfolio
Note: Ag Plan to council Ap. 18
May 10 June 14 July 12
Action Items:
Confluence Area Trail
projects
Pending acquisition
Matters from the Department:
Draft CIP
Matters from the Board:
50th Anniversary
Action Items:
Pending acquisition
Matters from the Department:
Boulder Creek
Restoration Update
Matters from the Board:
CAMP Update
Action Items:
none
Matters from the Department:
none
Matters from the Board:
50th Anniversary
AGENDA ITEM 1 PAGE 1
OPEN SPACE BOARD OF TRUSTEES
Action Minutes
Meeting Date December 14, 2016
Video recording of this meeting can be found on the City of Boulder's Channel 8 Website. (Video start
times are listed below next to each agenda item.)
BOARD MEMBERS PRESENT
Frances Hartogh Molly Davis Kevin Bracy Knight Tom Isaacson Curt Brown
STAFF MEMBERS PRESENT
Tracy Winfree John Potter Mark Davison Jim Reeder Brian Anacker
Steve Armstead Mark Gershman Leah Case Alyssa Frideres
GUESTS
Lesli Ellis, Comprehensive Planning Manager
Rella Abernathy, Integrated Pest Management Coordinator
Jean Gatzka, Senior Planner
CALL TO ORDER
The meeting was called to order at 6:02 p.m.
AGENDA ITEM 1 – Approval of the Minutes (17:24)
Frances asked for Lesli Ellis’ response during public comment to state, “these will be minimally updated
by December, however staff is working to collect the data necessary to update these maps in the master
plan.”
Curt Brown moved that the Open Space Board of Trustees approve the minutes from Nov 9, 2016 as
amended. Tom Isaacson seconded. This motion passed unanimously.
AGENDA ITEM 2 – Public Participation for Items not Identified for Public Hearing (18:40)
None.
AGENDA ITEM 3 – Boulder Valley Comprehensive Plan Update – Proposed Revisions to Trails
policy in Sec. 8 and the Trails Map; Sec. 3 (Natural Environment); Sec. 9 (Agriculture and Food),
and Updates to the Land Use and Planning Area maps to reflect changes to city Open Space and
Mountain Parks lands. (18:55)
Mark Gershman, Environmental Planning Supervisor, and Lesli Ellis, Comprehensive Planning Manager,
presented this item.
Public Comment (55:00)
Ray Bridge, Boulder County Audubon Society, said in section three, the deletion of the word
“unfragmented” is not appropriate. He said several of the sentences in the new section on climate change
do not make sense; they are too reminiscent of past ecological errors.
Steven Watts, Boulder Mountainbike Alliance (BMA), noted that the trails section does not seem to hold
as much weight as the Natural Environment section. Trails are how people interact with the environment.
Different trails should have different goals and descriptions about what they provide.
AGENDA ITEM 1 PAGE 2
Karen Hollweg, Boulder, said the new policy on climate change is based on the climate commitment
document. She said the document on the website is a draft from last year. If the document has not yet had
a full public hearing and been approved, it is premature to base the new climate policy on it.
Dick Harris, PLAN-Boulder County, said in Sec. 3 of the plan, the word “unfragmented” should not be
deleted. He said there should be a statement indicating the city will seek to minimize impacts to other
jurisdictions.
Motion
Tom Isaacson moved the Open Space Board of Trustees recommend to Planning Board and City
Council approval of the proposed:
BVCP Trails Map changes relating to city Open Space and Mountain Parks lands as shown
in Attachment A-4,
BVCP Trails Map Description as shown in Attachment A-7, and
Trails-related policy changes as shown in Attachment A-9 as amended.
Curt Brown seconded. This motion passed unanimously.
Frances Hartogh moved the Open Space Board of Trustees recommend to Planning Board and City
Council approval of the proposed policy changes set forth in Chapter 1, Sec. 3 Natural
Environment described in Attachment B-2 as amended. Curt Brown seconded. This motion passed
unanimously.
Molly Davis moved the Open Space Board of Trustees recommend to Planning Board and City
Council approval of the proposed policy changes set forth in Chapter 1, Sec. 9 Agriculture and
Food as shown in Attachment C-2 as amended. Frances Hartogh seconded. This motion passed
unanimously.
Frances Hartogh moved the Open Space Board of Trustees recommend to Planning Board and City
Council approval of the proposed changes to the BVCP:
Land Use Map as shown in Attachments D-2 and D-3 and
Planning Area map as shown in Attachment D-5.
Molly Davis seconded. This motion passed unanimously.
AGENDA ITEM 4 – Matters from the Department
None.
AGENDA ITEM 5 – Matters from the Board (4:51:00)
The Board finalized their responses for the City Council retreat.
Molly Davis gave an update on the 50th anniversary.
ADJOURNMENT – The meeting adjourned at 10:57 p.m.
These draft minutes were prepared by Leah Case.
MEMORANDUM
TO: Open Space Board of Trustees
FROM: Tracy Winfree, Director, Open Space and Mountain Parks (OSMP)
Keri Konold Davies, Community Relations Officer and Prairie Dog Working
Group Project Manager, OSMP
DATE: January 11, 2017
SUBJECT: Prairie Dog Working Group Update – Formation Process
________________________________________________________________________
Background:
At the Aug. 16, 2016 City Council meeting, council members expressed an interest in having
the city manager form a working group to help examine the city’s approach to prairie dog
management.
The City of Boulder's current prairie dog management practices affect numerous stakeholders
who have expressed concerns about impacts to prairie dogs, to ecosystems, and to private and
public lands. City Council members suggested the city manager form a working group of
people who can suggest, based on a broad understanding of the full range of community
perspectives, ideas for adaptive management practices implementable under existing policy as
well as for possible longer-term policy changes.
Objective:
The purpose of the project is to create and support a short-term working group that will help
city staff come up with ideas about more effectively meeting city and stakeholder goals
regarding prairie dogs within existing policy; identify areas to explore on a longer-term basis
that might require a change to existing policy; and report findings to the city manager. Part of
the purpose of the project is to address citizen concerns about the current approach to prairie
dog management, concern over availability of receiving sites for relocation, and generate
better understanding and trust in how the city implements policy.
Formation Process:
A press release announcing the request for statements of interest from potential working
group members will be released Jan. 12. The application process for appointment to the
working group will be open through Jan. 23, 2017 at 5 p.m. The City of Boulder seeks
participants for the 12-15 person working group who will work collaboratively in accordance
with city values to offer ideas to the city manager. To form the working group, a small
committee has been created, including a contracted facilitator and several city staff members.
This group will review applications and bring recommendations to the city manager for final
selection based on participants' ability and willingness to meet certain criteria, expectations
expressed, and representation of broad interests and community perspectives.
AGENDA ITEM 3A PAGE 1
Working group meetings will be facilitated by Peak Facilitation Group. Meetings will be
open to the public with a portion of each meeting reserved for public comment. Working
group members will be expected to:
• Understand the city's broad range of management goals and constraints for prairie
dog management,
• Develop holistic adaptive management recommendations that provide a community-
wide benefit rather than a singular benefit,
• Suggest pilot ideas and practices that are implementable under existing policy and
consider the context of the grassland ecosystem,
• Recommend longer-term ideas that may need further exploration or more substantial
changes to policy, and
• Serve as a model for the city in terms of collaboration, innovation and respect.
Interested community members will be invited to submit a statement of interest to Keri
Davies at daviesk@bouldercolorado.gov or by completing an online interest form by Jan. 23,
2017 at 5 p.m. Additional information about the prairie dog working group, its meetings, and
the application process will be available online.
AGENDA ITEM 3A PAGE 2
MEMORANDUM
TO: Open Space Board of Trustees
FROM: Tracy Winfree, Director, Open Space and Mountain Parks
John Potter, Resource and Stewardship Manager
Don D’Amico, Ecological Stewardship Supervisor
Marianne Giolitto, Wetlands and Riparian Ecologist
DATE: January 11, 2017
SUBJECT: Boulder Creek Restoration Update
________________________________________________________________________
Open Space and Mountain Parks (OSMP) and its partners (the Green Ditch Company, Colorado
Water Conservation Board, U.S. Fish and Wildlife Service, and Colorado Parks and Wildlife)
continue to make progress on the Boulder Creek Restoration project described in an Oct. 26,
2016 memo to the OSBT.
Given the technical and stakeholder differences between the stretch of creek upstream of 61st
Street and the stretch of creek downstream of 61st Street, the restoration work was divided into
two reaches at 61st Street. OSMP let the bid for the upstream section in mid-December. Bids are
due in mid-January and construction on the upstream section is expected to begin in February.
OSMP contracted the downstream section of the project as a design-build. Construction on the
downstream section is expected to begin in late February/early March. Substantial completion
(i.e. earthwork) of both sections is scheduled for early May to avoid higher flows associated with
spring runoff. Some planting and site clean-up will occur after substantial completion.
While construction activity associated with large scale restoration can be initially concerning to
passersby, OSMP has worked closely with our consultants and regulators to minimize visual and
ecological impacts and ensure the project will result in improved ecological and morphological
condition and functioning of Boulder Creek. The work will include removal of mature, non-
native crack willows. However, hundreds of native riparian shrubs and trees will be planted to
establish a healthy, functioning riparian community. The restoration work will also repair flood
damage, ensure the Green Ditch Company receives its adjudicated water, protect the city’s sewer
and water infrastructure currently threatened by post-flood conditions, and reduce the risk of
future breaches.
AGENDA ITEM 3B PAGE 1
STUDY SESSION MEMORANDUM
TO: Open Space Board of Trustees
FROM: Tracy Winfree, Director, Open Space and Mountain Parks (OSMP)
John Potter, Resource & Stewardship Manager (OSMP)
Mark Davison, Community Connections & Partnerships Manager (OSMP)
Mark Gershman, Environmental Planning Supervisor (OSMP)
Susan Richstone, Interim Executive Director, Planning, Housing and
Sustainability (PH&S)
Lesli Ellis, Comprehensive Planning Manager (PH&S)
Elaine McLaughlin, Senior Planner (PH&S)
DATE: January 11, 2017
SUBJECT: Boulder Valley Comprehensive Plan (BVCP)
Land Use Designation Change 311 Mapleton Avenue: Academy on
Mapleton Hill
EXECUTIVE SUMMARY
Study sessions are an opportunity for the Open Space Board of Trustees (OSBT) to have
more in-depth discussions with staff and provide the board a time for exploratory
conversation. The purpose of this study session item is to discuss the Boulder Valley
Comprehensive Plan (BVCP) land use designation of “Open Space – Other” (OS-O) on a
portion of the 311 Mapleton property and to discuss removing that designation and
replacing it with one more consistent with zoning.
This topic arose at the time of a site review application submitted for the redevelopment
of the former Boulder Community Hospital site into a congregate care residential use.
The “Open Space – Other” designation was found to be inconsistent with the “Public”
zoning on the site or the historic, long-term use of this area of the site as a nurses’
dormitory for the former Boulder Community Hospital (previously Sanitarium), and the
associated roadway and parking area for that facility.
STUDY SESSION - ITEM I - PAGE 1
QUESTIONS FOR THE BOARD
1. Do OSBT members have questions about the proposal to remove the OS-O land
use designation from a portion of the property at 311 Mapleton so that it can be
replaced by a land use designation that is consistent with the zoning and use of
the property?
2. Are there additional factors that the Board believes should be considered or
weighted differently?
3. Is there additional information that the Board would need to make a
recommendation to City Council?
BACKGROUND
The 15.77-acre property at 311 Mapleton lies completely within the City of Boulder and
is privately owned. The site is located at the northwest corner of the intersection of
Mapleton and Fourth Street, east of the Mount Sanitas Trailhead. The Mapleton Medical
Center operates there and is the most recent of a long history of medical-related facilities
on the property. Such uses date back to 1895 when the Boulder Sanitarium was
established on the site and continued with the establishment of the Boulder Memorial
Hospital there in 1957. In 1989, the Boulder Memorial Hospital was sold to Boulder
Community Hospital and renamed the Mapleton Medical Center. The Mapleton Medical
Center currently provides medical office space and provides outpatient rehabilitation and
therapy services.
A site review application is in process for the property. The applicant proposes to
redevelop the site as a congregate care facility similar to the “Academy on University
Hill” with 147 dwelling units, 63 assisted living rooming units and a post-operative
rehabilitation facility.
The Land Use Designation of the majority of the hospital site is “Public” (Figure 1). That
designation is consistent with the “P” (Public) zoning which permits a variety of uses
including residential uses. Congregate care uses are allowed in the Public zoning
designation through a Use Review.
The subject of the study session item is an approximately four-acre area within the 311
Mapleton property that has a land use designation of OS-O. OS-O is defined in the
Boulder Valley Comprehensive Plan as,
“Public and private land designated prior to 1981 that the city and county would
like to preserve through various preservation methods including but not limited to
intergovernmental agreements, dedications or acquisitions.”
There are no development restrictions associated with this designation; rather, the BVCP
states:
STUDY SESSION - ITEM I - PAGE 2
“…that the long-term use of the land is planned to serve one or more open space
functions. However, Open Space designations may not reflect the current use of
the land while in private ownership.”
During the site review process, staff noted that the OS-O designation did not correspond
to either the existing or historic use of that portion of the property which contains a
nurses’ dormitory building built in the 1930s or the roadway and parking areas serving
that building. The original open space designations in the BVCP go back to the 1970s
when open space mapping was not parcel-based or rectified to the underlying zoning of
parcels within the city. Figure 1 illustrates the BVCP Land Use Map for the property.
Figure 2 shows an aerial view of the site with the OS-O land use designation
superimposed. Figure 3 shows the city zoning of the property.
The applicant does not intend extensive redevelopment in the area encompassed by the
OS-O land use designation, but intends to apply for a landmark designation for the
nurses’ dormitory building and surroundings. That building is proposed for use as
residences in the congregate care facility. The applicant has also illustrated two
additional units in the four-acre area that would be stand along single family
“independent units”—also part of the congregate care use.
Prior to the site review application, a concept plan was reviewed and discussed on Nov.
5, 2015 by the Planning Board. The Land Use Code (section 9-2-13, B.R.C. 1981) sets
forth the purpose of concept plan review to
“…solicit comments from the reviewing authority early in the development
process as to whether the concept plan addresses the requirements of the city as
set forth in its adopted ordinances, plans, and policies.”
The Planning Board’s comments on a concept plan are not binding and no approval or
denial decision is made at the time of concept plan review. The feedback is intended to
be used in refining a concept plan prior to submittal of a site review application. The
OS-O designation was not a focus of Planning Board’s discussion of the concept plan for
311 Mapleton.
STUDY SESSION - ITEM I - PAGE 3
Figure 2:
Aerial view of Site
with Open Space
Designation
(gEncircled
Figure 1:
BVCP Land Use
Designations
Figure 3:
City Zoning
Nurses
Dormitory
Building
and
Parking
within the
OS-O land
use
designation
STUDY SESSION - ITEM I - PAGE 4
The four-acre area at 311 Mapleton designated “Open Space – Other” was part of more
extensive open space mapping in this area in BVCP maps dating from the 1970s. That
mapping appears to have been derived from early open space plans that indicated, at a
very coarse level, the areas where the city was interested in preserving open space. The
fact that the open space polygon boundaries on this mapping did not coincide with parcel
boundaries or natural features in many places is likely a reflection of both the objectives
of the map (to show the general areas of interest) and the challenges of map-making in
the pre-geographic information system (GIS) era.
Much of the area mapped as open space around Mt. Sanitas and Dakota Ridge, especially
west of the city limits, was acquired by the city as open space after the establishment of
the open space tax in 1967. Those acquisitions include lands purchased from the Seventh
Day Adventist Church, Boulder Memorial Hospital and other entities associated with the
previous owners of the subject property. As these lands were acquired, the land use
mapping was updated from OS-O to Open Space – Acquired (OS-A) or Open Space –
Development Restrictions (OS-DR) as appropriate.
Of note is the fact that the remaining OS-O designated area at 311 Mapleton is located
within the city limits. The site that would become the Boulder Memorial Hospital
Campus and some surrounding parcels were annexed to the city in 1955. The OS-O area
is, as described above, a developed portion of the medical campus—with a large building,
a roadway and utility service. It seems likely that the previous landowners recognized
the value associated with portions of their property that were both annexed and
developed—and that the open space program was more focused upon properties outside
the city limits without roads or buildings where the purchasing power of open space tax
revenues was greater.
In many cases, the city is able to acquire open space of properties with OS-O
designations at the time of annexation by requiring dedication of the open space as a
condition of the annexation agreement. Even if this option were considered in 1955,
which seems unlikely as this predates both the development of the BVCP and the open
space program, no lands were dedicated to the city for open space purposes at the time of
annexation.
The proposed project and current update to the BVCP presents an opportunity to evaluate
whether there is any value in maintaining the existing land use designation, whether the
designation should be changed in whole or in part and what other actions, if any, would
be appropriate.
ANALYSIS
The “Open Space – Other” designation is inconsistent with the “Public” zoning on the
site, the future planned use of the site, or the historic, long-term use of this area of the site
as a nurses’ dormitory and the associated roadway and parking area for that facility.
Consistency of the BVCP and zoning is good practice and provides clarity about the city
and county’s intent for the land use in the area.
STUDY SESSION - ITEM I - PAGE 5
OSMP Factors
As with any development with the potential to affect city open space, OSMP staff has
reviewed the development plans for 311 Mapleton and commented on both the concept
plan and site review applications. Staff identified the following open space-related
concerns based on experience managing the lands adjacent to the subject property,
comments and meetings with community members and participation in the development
review process:
Open space access from and across the site;
Changes to parking availability for open space visitors and the related potential
for neighborhood parking issues;
Potential effects on city open space resulting from proposed groundwater
dewatering;
Potential effects on the viewshed currently provided/protected by open space from
requested height variances; and
Management of the areas on the subject property adjacent to city open space for
which no facility development is shown on the plan.
In response to these concerns, city staff continues to work through the development
review process with PH&S staff and the applicant to encourage community benefits from
the development consistent with the appropriate policies and regulations. These may
include: access to city open space across the property consistent with the West Trail
Study Area Plan, public parking, and, at this point, more information about other
potential effects.
Currently the most challenging of the open space-related issues is the effect that the
development may have upon parking availability for open space visitors. For at least the
past 20 years, the businesses at 311 Mapleton were most active from Monday through
Friday during work hours—generally 9 a.m. until 5 p.m. The result was that most
parking on the site, and almost all of the parking nearest to city open space was vacant
after five and on the weekends. This generally corresponds with peak times for open
space visits. Given the small number of spaces in nearby trailheads relative to demand,
open space visitors began to park at the medical campus during weekends and evenings.
The congregate care facility proposal under review for the site includes 147 dwelling
units and services that require round-the-clock staffing. Taking into consideration
changes to the site configuration that will eliminate some above ground parking, the
parking needs for employees, residents and their guests; it seems reasonable to conclude
that parking availability for open space visitor during evenings and weekends will
decrease. Some nearby residents have expressed concern that open space visitors looking
for parking will increase traffic and vehicle congestion on the city streets in their
neighborhoods. Conditions elsewhere in the city (e.g., Chautauqua) have resulted in the
city taking special action to develop and test solutions where insufficient parking for
popular destinations adversely affect neighborhoods.
STUDY SESSION - ITEM I - PAGE 6
Some members of the community are concerned that removing the OS-O designation at
311 Mapleton would represent the loss or abandonment of the value this area has for
delivering open space services. There is a particular sense among some community
members that the designation provides the city with the authority and/or responsibility to
investigate the use of the property to help head off the potential neighborhood impacts
described above.
With regards to 311 Mapleton, the OS-O land use designation does not impact the types
of development allowed; and the site review process does not afford the city with the
ability to require dedication of open space. With regards to the delivery of open space
services, there appears to be little effective difference between retaining or removing the
OS-O designation.
Consistent with the direction in the OSMP Acquisition Plan and the BVCP and similar to
how staff has addressed other development proposals elsewhere within city limits, staff’s
focus is not on acquisition, but rather working through the development review process to
address open space-related issues such as trail access, parking and protection of scenic
and natural resources.
NEXT STEPS
1. Staff will continue to develop a proposal on the future of the land use designation and
will bring a recommendation for OSBT on this topic at an upcoming meeting to
review and take to City Council.
2. The OSBT’s recommendation to City Council will be shared with the other approval
bodies as part of the BVCP update process.
STUDY SESSION - ITEM I - PAGE 7
STUDY SESSION MEMORANDUM
TO: Open Space Board of Trustees
FROM: Tracy Winfree, Director, Open Space and Mountain Parks (OSMP)
Susan Richstone, Interim Executive Director, Planning, Housing and
Sustainability (PH&S)
Lesli Ellis, Comprehensive Planning Manager (PH&S)
John Potter, Resource & Stewardship Manager (OSMP)
Mark Davison, Community Connections & Partnerships Manager (OSMP)
Don D'Amico, Ecological Stewardship Supervisor (OSMP)
Mark Gershman, Environmental Planning Supervisor (OSMP)
Phil Kleisler, Planner II (PH&S)
DATE: January 11, 2017
SUBJECT: Study Session for Boulder Valley Comprehensive Plan (BVCP), CU
South Land Use Designation
EXECUTIVE SUMMARY
The purpose of this study session is to seek feedback on potential changes to the "Open
Space - Other" land use designation for the University of Colorado Boulder’s (CU
Boulder) CU South property (henceforth, “CU South”). As part of the 2015 Boulder
Valley Comprehensive Plan (BVCP) Major Update, city staff is evaluating potential
changes to the BVCP land use map for CU South. In the coming months PH&S staff
will:
1.Provide a recommendation to the four BVCP approval bodies regarding potential
changes to the BVCP land use designations for CU South (Boulder City Council,
City of Boulder Planning Board, Boulder County Board of Commissioners, and
Boulder County Planning Commission); and
2.Develop a list of potential topics to be addressed in future agreements between the
city and CU Boulder for conservation and development on the site.
The study session will focus on how and where the CU South property is best suited for
ecological conservation, passive recreation, land uses to prevent encroachment of
STUDY SESSION - ITEM II - PAGE 1
development on floodplains and preservation of land for its aesthetic value—and to
identify areas suitable for removal of the Open Space - Other (OS-O) to a Public/Semi-
Public (P) land use designation. A Site Suitability Analysis (available here1) summarizes
recent studies of ecological conservation values, viewsheds, utility capacity and factors
related to multi-modal transportation and trails.
Staff presented brief updates about the public process and site suitability analysis at the
August and September Open Space Board of Trustees (OSBT) meetings. The study
session discussion is the first request for specific guidance concerning the OS-O land use
designation at CU South. A follow up Board meeting in March will ask for OSBT
recommendations to be carried to the four decision-making bodies who ultimately
approve the BVCP.
KEY ISSUES IDENTIFIED
Pursuant to Section 175(e) of the Charter of the City of Boulder, the OSBT reviews open
space elements of the BVCP and makes recommendations concerning any open space-
related changes to the plan. Later this year, city staff will request that the OSBT provide a
recommendation for potential changes to the OS-O land use designation. As described
more fully below, over half of the CU South site is so designated.
QUESTIONS FOR THE BOARD
Staff requests feedback about the questions below relating to the OS-O designation on the
CU South site. Staff also recommends using the City Charter’s description of open space
services as a guide for the study session.
1.Considering the open space provisions of the City of Boulder Charter:
a.Does the Board have feedback about portions of the site that are most
suitable for delivering open space services to the community?
b.Are there areas suitable for changes to the OS-O designation?
2.What open space-related topics should be addressed in the city’s response to any
future annexation petitions by CU Boulder?
3.What, if any, additional information is needed by the OSBT prior to providing a
recommendation in March on these issues?
DISCUSSION GUIDE
Staff recommends using the following provisions of the City of Boulder Charter as a
guide to the discussion and for providing a recommendation for potential changes to the
OS-O designation on CU South:
1 https://www-static.bouldercolorado.gov/docs/Site_Suitability_Analysis-1-
201701051152.pdf?_ga=1.179178278.360616595.1483642685
STUDY SESSION - ITEM II - PAGE 2
a.Preservation or restoration of natural areas characterized by or including terrain,
geologic formations, flora, or fauna that are unusual, spectacular, historically
important, scientifically valuable, or unique, or that represent outstanding or rare
examples of native species;
b.Preservation of water resources in their natural or traditional state, scenic areas or
vistas, wildlife habitats, or fragile ecosystems;
c.Preservation of land for passive recreational use, such as hiking, photography or
nature studies, and, if specifically designated, bicycling, horseback riding, or
fishing;
d.Preservation of agricultural uses and land suitable for agricultural production;
e.Utilization of land for shaping the development of the city, limiting urban sprawl,
and disciplining growth;
f.Utilization of non-urban land for spatial definition of urban areas;
g.Utilization of land to prevent encroachment on floodplains; and
h.Preservation of land for its aesthetic or passive recreational value and its
contribution to the quality of life of the community.
BACKGROUND
Current Land Use Designations
CU South is comprised of six parcels totaling 308 acres, all owned in fee by CU Boulder.
Located south of Table Mesa Drive west of Highway 36 (US 36), the site is an important
gateway into the City of Boulder. CU South is entirely in Boulder County and in BVCP
planning Area II, which makes it eligible for annexation.
The city’s only current open space property interest in CU South is a revocable license
agreement granted by CU Boulder for the South Boulder Creek Trail at the southern end
of the site. City-owned open space lands border CU South to the east, south and
southwest.
CU South currently has three BVCP land use designations on portions of the property as
described in the table below and shown in the map contained in Attachment A.
BVCP Land Use Designation Area
Low Density Residential (LR) 49.36 acres
Medium Density Residential
(MR)
66.75 acres
Open Space-Other (OS-O) 193.25 acres
The OS-O designation is defined in the BVCP as “Other public or private land designated
prior to 1981 that the city and county would like to preserve through various preservation
methods including but not limited to intergovernmental agreements, dedications or
acquisitions.”
During the 2000 and 2005 BVCP updates, CU Boulder requested changes to the land use
designations at CU South to include Public/Semi-Public (P) designations over
STUDY SESSION - ITEM II - PAGE 3
unspecified portions of the site. Those land use changes were tabled pending the
completion of the South Boulder Creek Flood Mitigation Study. With the flood
mitigation study approved by City Council in 2015, city staff reinitiated discussions with
CU Boulder and the community about CU South as a part of the 2015 BVCP update. A
summary of various actions taken by the city and CU Boulder related to changes in
ownership and use at CU South can be found in the Site Suitability Analysis referenced
above.
Current and Proposed Uses
CU Boulder uses CU South as a training site for cross-country track and tennis teams.
The site is undeveloped except for a handful of tennis courts, an unpaved parking lot and
a network of recreational trails open for public use. While CU Boulder has indicated it
does not have immediate plans to develop the site, it has expressed interest in continuing
the current uses by athletic teams and, at some point in the future, exploring additional
athletic and academic facilities. Short- and longer-term activities on the site that have
been mentioned include:
Floodwater mitigation through implementation of the South Boulder Creek Flood
Mitigation Study;
Recreational and athletic fields;
Adding restrooms and showers for athletes and restrooms and drinking fountains
for spectators at sporting events;
Affordable, workforce housing for faculty and staff;
Graduate student housing and/or upper division undergraduate housing
incorporated into academic villages;
Academic, instructional and research facilities; and
Outdoor research.
CU Boulder has also stated that the following uses will not be pursued:
A football stadium;
Towers like Williams Village;
A full build out of all 308 acres (More than half of CU South is wetlands, natural
areas, ponds or potential floodwater mitigation areas which will not be developed
for building sites.);
First-year freshman housing; and
A bypass public roadway connecting US 93 and US 36.
Intergovernmental Cooperation
The City of Boulder and CU Boulder have a long history of intergovernmental
cooperation to achieve shared community goals (as encouraged from BVCP Policy 1.11
Regional and Statewide Cooperation). Development projects by CU Boulder are
STUDY SESSION - ITEM II - PAGE 4
reviewed through numerous state-
mandated processes in addition to local
review. After annexation to the city, future
development of CU South, as with other
campus locations, would be controlled
through an agreement between the city
and CU Boulder that outlines specific
development and land use requirements.
These agreements may also
geographically define areas for
development, conservation and other uses
(e.g., open space, research facilities and
ball fields).
ANALYSIS
City staff has completed the previously
referenced Site Suitability Analysis to
summarize work recently completed for
CU South, including conservation
suitability, multi-modal transportation,
floodwater mitigation, public utilities and
community input. The following sections
briefly summarize some of the key
findings of those analyses.
Conservation Suitability Analysis
Biohabitats, Inc. was hired to conduct a conservation suitability analysis of the CU South
property. The goal of this analysis was to provide a framework for maintaining a
landscape capable of integrating multiple land use objectives including flood control,
protection of ecological values, and identification of areas more suitable for development.
A conservation suitability map was created to display areas with the greatest number of
sensitive ecological features. The analysis suggests that the eastern perimeter and the
southern wetlands have the highest sensitivity to disturbance or development. The central
portion of the property and the western edge have lower rankings for conservation values
making them less sensitive to disturbance or development (Figure 1).
Habitat
OSMP land next to CU South in the South Boulder Creek floodplain and adjacent
uplands provide a habitat mosaic that supports a rich diversity of native plants and
wildlife. Much of the habitat connectivity is driven by surface and groundwater
hydrology that creates a number of ecologically significant habitat types including
riparian forest, floodplain wetlands, and mesic and tallgrass prairie. These habitat types
in turn support species of high conservation value such as Ute ladies’-tresses orchid,
Preble’s meadow jumping mouse, northern leopard frog and others.
Figure 1: Ecological Conservation Suitability Analysis.
STUDY SESSION - ITEM II - PAGE 5
Biohabitats identified the connectivity between the CU South and nearby areas
containing native plant associations and Preble’s meadow jumping mouse habitat as an
important consideration for determining the conservation value of the site. The highest
potential areas for conservation and connectivity are in the south and east—adjacent to
the city-owned land managed as open space in the South Boulder Creek floodplain.
Viewshed
Biohabitats also conducted a preliminary
viewshed analysis that considered aesthetics
and experience from within the site. View-
points with a high viewshed score were
generally located in the central and southern
portions of the site around wetlands or lakes
(Figure 2).
CU South is situated where the nature of
development could significantly affect the
most visually striking of the gateways to the
Boulder Valley—specifically the view
westward from Davidson Mesa. The US 36
roadway, bikeway and Davidson Mesa
scenic overlook provide first time and
returning visitors, as well as neighbors and
residents, a dramatic experience. For many,
this view characterizes the Boulder Valley.
The view from the South Boulder Creek
terrace to the west is also of importance to
residents and people who work in the area.
Recognizing the importance and value of this
experience, city staff conducted a viewshed
survey from areas outside and around the
perimeter of the site. This survey located
higher value views along westbound US 36
and along the southwestern border of the site (Attachment B).
Flood Mitigation
Extensive flooding occurs near CU South because South Boulder Creek flows north and
west to a low spot located near Table Mesa Drive (Attachment C). When water flow is
large enough, as it was in September 2013, this pond spills and overtops US 36, flooding
the west valley area. The city conducted the South Boulder Creek Flood Mitigation
Study to develop and evaluate alternatives that may reduce flooding along South Boulder
Creek and areas impacted, but not directly adjacent to the creek. Seven flood detention
options were presented to City Council on Aug. 4, 2015.
Figure 1: CU South Preliminary Viewshed Analysis Map
(Internal to site)
STUDY SESSION - ITEM II - PAGE 6
The Water Resources Advisory
Board and the OSBT both
unanimously recommended City
Council accept the plan. The
OSBT did include in the motion
that staff return to the Board of
Trustees should the design or
construction of the berm result in
non-trivial impacts to Open Space
lands. City Council ultimately
approved the full mitigation plan
with Option D for US 36
Regional Detention. Option D
would create a flood control berm
on the northern and eastern
portions of the CU South site
adjacent to US 36 (Figure 3). This
option includes the use of about
80 acres of the CU South site for
flood detention (blue area on
Figure 3) and about 30 acres for
an adjacent fill area (yellow area).
The city is currently negotiating a
scope of work for preliminary
engineering design of the US 36
regional detention facility. Flood mitigation work cannot commence until an agreement
with CU Boulder and Colorado Department of Transportation (CDOT) is executed for
use of the site
Passive Recreation
Work by Fox Tuttle Hernandez Inc., public comments, site visits and observations by city
staff were used to develop a picture of current patterns of community use of the site for
passive recreation. Dominant activities are walking, dog-walking and running. Under an
agreement with CU Boulder and when conditions are appropriate, the Boulder Nordic
Club grooms trails for cross-country skiing. Most visitor activities take place on dirt
roads and social trails.
Although CU Boulder requests that dogs be leashed on the site, most dogs are not
leashed, and enforcement is currently minimal. Casual observations indicate that
unleashed dogs are typically either on or near the trails; however, it is not uncommon to
see dogs ranging through the open areas or swimming in the ponds.
Two designated trails currently serve CU South (Attachment D). A portion (0.12 mile)
of the South Boulder Creek Trail, constructed and maintained by OSMP, crosses the
south end of the CU South property under the provisions of a revocable license
Figure 2: CU South and South Boulder Creek Flood
Mitigation Option D Flood
Flood Detention
Fill Area
STUDY SESSION - ITEM II - PAGE 7
agreement granted by CU Boulder to the city. CU South is also accessible from the US
36 Bikeway. The US 36 Bikeway connects with the South Boulder Creek Trail where the
highway/bikeway crosses South Boulder Creek. If the South Boulder Creek Flood
Hazard Mitigation Study’s Option D is constructed as currently conceived, the US 36
Bikeway will be reconstructed on the top of the proposed flood berm. The city has not
identified any social trails on OSMP between the South Boulder Creek Trail and CU
South.
Agriculture
In its historic state, CU South would have supported similar opportunities for livestock
grazing and hay production as the open space lands to the east. However, with the
significant disturbances associated with past sand and gravel mining, the site’s
agricultural quality was reduced. Infrastructure necessary to irrigate the land efficiently
is not present and post-mining re-vegetation was not done with optimal forage species in
mind.
Livestock grazing and hay production do not appear to be consistent with the anticipated
future land uses described by CU Boulder. The best opportunities associated with on-site
agriculture uses might be the integration of community vegetable gardens and orchards
with the landscaping of the site to support any planned residences. There may also be
research opportunities related to urban agriculture business models and practices to
integrate food production as a feature of urban design. CU Boulder owns water rights in
the Dry Creek #2 Ditch. These rights are associated with CU South and could enhance
opportunities for such agricultural land uses.
Urban Shaping
Open Space plays a key role in helping shape the urban environment. Well-defined edges
and entryways for the city are important because they support an understanding and
appreciation of the city's image, emphasize and preserve its natural setting, and create a
clear sense of arrival and departure (BVCP Policy 2.04, 2.05). The definition of
community edge is a design priority and natural features, such as open space, often play a
critical role in those decisions.
At over 300 acres, CU South is the largest single undeveloped parcel in Area II. It lies
adjacent to developed portions of the city and next to open floodplain grasslands that are
part of a century old agricultural operation. The balance of development and open space
described in the current BVCP land use designations recognize the importance placed by
the city and county on integrating open space as part of the site to maintain a strong urban
edge.
Based on recent studies referenced above, there are both specific areas that deliver open
space services, as well as open space services that are being delivered at CU South that
are less dependent on specific locations. This study session provides an opportunity for
staff and the OSBT to discuss both conditions of an agreement that would guide the
development of the site but provide flexibility with regard to site planning, and
recommendations about where existing resources exist that should be conserved in situ.
STUDY SESSION - ITEM II - PAGE 8
For example, some portions of CU South were identified as having higher ecological
conservation values. These are being contemplated for limited development and may
warrant discussion by the Board. Each number below corresponds with Attachment E:
Key Considerations Map.
1.The southern area and eastern edge of the property were found to be more sensitive
to disturbance or development;
2.Areas for floodwater detention and associated fill material are planned for the north
and northeast portions of the site. This may also present an opportunity for limited
development such as ball fields;
3.Much of the western hillside was found to be less sensitive to disturbance and
development. However, the area is visible from off-site and used for passive
recreational use; and
4.Wetlands in the center of the site were found to be more sensitive to disturbance or
development.
PUBLIC PROCESS
The community has shown a high degree of interest in the future of the CU South
property. The city held two community meetings to share information and request
feedback. Over 200 residents attended a neighborhood meeting on Sept. 26, 2016. A
second meeting was held on the CU Boulder east campus on Dec. 5, 2016, and
approximately 125 participants attended. This second meeting consisted of small group
sessions convened around interests and considerations for the property’s future. In
December, city staff also participated in a panel discussion on the topic, hosted by PLAN
Boulder.
A summary and compilation of public comments are available on the project webpage.
Staff will present a more complete overview of community input during the study
session. Several key issues related to open space have surfaced throughout this project,
including:
Flood Mitigation
Flood mitigation appears to be a top priority for many residents, particularly those
impacted by the 2013 flood.
Many comments focused solely on flood mitigation on the CU South site, primarily
concerning the public safety risks of future flooding in the West Valley area.
STUDY SESSION - ITEM II - PAGE 9
Open Space, Views and Wildlife Habitat
There were many comments that CU Boulder should protect and conserve land for open
space on the site.
Viewsheds and wildlife emerged as important considerations.
Many residents commented that sensitive environmental areas and portions of the site
critical to wildlife habitat should remain undisturbed by future development.
Timing
Some people are concerned about changing land use designations prior to CU’s having
completed a master plan for the site because of unknown development impacts.
Community members concerned about the potential impacts of future floods have urged
that the city and CU Boulder take action on flood mitigation as a priority.
Access and Passive Recreation
Many commenters prefer that existing trails remain available to the public regardless of
how or whether the site is developed.
It was mentioned that the CU South site offers one of the only flat hiking opportunities
in Boulder, which is particularly helpful for children and elderly residents.
It was mentioned that CU South is one of the few cross-country skiing sites in Boulder.
Many people indicated that they enjoy allowing their dogs off leash and the lack of
enforcement of leash requirements.
NEXT STEPS
The table below lists some of the key meetings for the CU South portion of the BVCP
scheduled to occur prior to the adoption hearings currently planned for this summer.
Some dates may be adjusted depending on feedback or additional analysis requested at
these meetings.
Date Description
Jan. 19 Planning Board discussion about initial land uses and issues to be
addressed at annexation
Jan. 24 Joint Study Session of Planning Board and City Council to review
and discuss analysis. Initial discussion of land use designations
and issues to be addressed at annexation
Feb. 15 County Planning Commission discussion about CU South
February/March Boulder County Board of Commissioners discussion about CU
South
March OSBT recommendation for open space issues
March Land use recommendation as part of draft plan.
Public event to receive input on recommendation.
May BVCP Adoption Hearings begin
STUDY SESSION - ITEM II - PAGE 10
ATTACHMENTS
A. CU South Existing Land Use Designations Map
B. CU South Landscape Character Viewsheds (Survey)
C. Existing Floodplain & Open Space Map
D. Passive Recreation Map
E. Key Consideration Map
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SOUTHBOULDERCREEKExisting Land Use Designations
BVCP Land Use
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High Density Residential (HR)
Business
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Transitional Business (TB)
Open Space and Mountain Parks
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Open Space, Other (OS-O)
Other
Park, Urban and Other (PK-U/O)
Public (PUB)
Environmental Preservation (EP)
0 1,000500 Feet\F
CU South Boundary
Hiking Trail
Multi-Use Trail
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South Boulder Creek
SouthBoulderCreekTrailATTACHMENT A
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CU South
Landscape character viewsheds
High Value
Mid Value
Low Value
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ATTACHMENT B
STUDY SESSION - ITEM II - PAGE 15
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CU South
Landscape character viewsheds
Viewpoints from US 36
Viewpoint from the western edge
1.
5.
2.
4.
Majority of the foreground that's visible from US 36 is city-owned open
space. The CU South property is located behind the tree line which
outlines the property boundary. The residential neighborhood directly
west of the site is partially visible from US 36, and is located
approximately .6 miles away and elevated 100 ft. higher. Currently, the
view of CU South is screened by the existing tree line, as shown in the
picture above.
The quality of the views from the western edge of the site are consistent
with one another. Wider views and exposure to open space is found on
the most elevated parts of the site, located on the south-east of Tantra Park.k.
ATTACHMENT B
STUDY SESSION - ITEM II - PAGE 16
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ATTACHMENT C
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ATTACHMENT D
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Trails
Conservation
Sensitive Areas
Tantra Dr.
Discussion Areas
1. Buffer
2. Wetlands
3. Flood Levee
Fill Area Detention
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ATTACHMENT E
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