Item 5B CAHD Designation Memo 02.07.24
MEMORANDUM TO THE LANDMARKS BOARD
February 7, 2024
STAFF
Brad Mueller, Director of Planning and Development Services
Kristofer Johnson, Comprehensive Planning Senior Manager
Chris Reynolds, Deputy City Attorney, City Attorney’s Office
Marcy Gerwing, Principal Historic Preservation Planner
Clare Brandt, Historic Preservation Planner
AGENDA TITLE
Public hearing and consideration of an application to designate a historic district encompassing a
portion of the area from 1777 Broadway to 14th Street and between Canyon Boulevard and
Arapahoe Avenue, pursuant to Section 9-11-5 of the Boulder Revised Code 1981, and under the
procedures prescribed by chapter 1-3, “Quasi-Judicial Hearings,” B.R.C. 1981.
Address: 1236 Canyon Blvd., 0 13th St., 1300 Canyon Blvd., 1770 13th St., 1750
13th St., and a portion of 1777 Broadway
Owner: City of Boulder
Applicant: Historic Boulder, Inc., Friends of the Bandshell, Friends of the Teahouse
Case Type/Number: Landmark Designation (HIS2023-00081)
Code Section: 9-11-5, B.R.C., 1981
EXECUTIVE SUMMARY
The Landmarks Board will make a recommendation to the City Council on the proposed Civic Area
Historic District at this hearing. The criteria for the board’s review is whether the designation meets
the purposes and intent of Section 9-11-1 and 9-11-2, B.R.C. Staff requests the Landmarks Board’s
feedback on the following:
• Does the board recommend designation of the historic district to City Council?
• Does the board have comments on the Draft Design Guideline Framework?
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• Does the board have comments on the proposed ordinance language, including the boundary,
district name, character-defining features and alterations that could have a significant impact
on the character of the district?
CONTENTS
MEMORANDUM TO THE LANDMARKS BOARD ............................................................................................................... 1
Staff ..................................................................................................................................................................................................... 1
Agenda Title ...................................................................................................................................................................................... 1
Executive Summary .......................................................................................................................................................................... 1
Contents .............................................................................................................................................................................................. 2
Staff Recommendation ..................................................................................................................................................................... 3
Recommended Motion Language ................................................................................................................................................... 3
Background ........................................................................................................................................................................................ 3
Effect of Local Designation ............................................................................................................................................................. 4
Board and Commission Feedback .................................................................................................................................................. 6
Public Process and Engagement Summary ................................................................................................................................... 6
Public Comment ................................................................................................................................................................................ 9
Description of the Proposed Historic District ............................................................................................................................. 11
History of Proposed District .......................................................................................................................................................... 12
Purpose and Criteria for the Board’s Decision ........................................................................................................................... 15
Staff Analysis of Criteria ............................................................................................................................................................... 15
Staff Analysis of Code Criteria – Sections 9-11-1 and 9-11-2, B.R.C. 1981 ................................................................. 15
Staff Analysis of Relevant BVCP Policies ........................................................................................................................... 19
Staff Analysis of Significance Criteria for District Landmarks ...................................................................................... 20
Cultural Landscape Assessment for Central Park ..................................................................................................................... 36
Significance – Cultural Landscape Assessment ................................................................................................................ 37
Integrity - Cultural Landscape Assessment ....................................................................................................................... 37
Integrity Findings – CLA ...................................................................................................................................................... 38
Staff Analysis of Integrity ............................................................................................................................................................. 39
Designation Ordinance ............................................................................................................................................................. 46
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Preliminary Period of Significance and Character-Defining Features ................................................................................... 46
Preliminary District Name and Boundary .................................................................................................................................. 48
Draft Design Guideline Framework ............................................................................................................................................ 52
Proposed Findings .......................................................................................................................................................................... 52
Next Steps ....................................................................................................................................................................................... 53
Attachments .................................................................................................................................................................................... 53
STAFF RECOMMENDATION
Staff recommends the Landmarks Board forward the application to the City Council with a
recommendation to designate the area, with a recommended boundary as shown in Figure 7), as a
local historic district to be known as the Civic Area Historic District.
RECOMMENDED MOTION LANGUAGE
The Landmarks Board recommends to the City Council that it designate the area encompassing a
portion of the area between 1777 Broadway to 14th Street and between Canyon Boulevard and
Arapahoe Avenue, as shown in Figure 7, to be known as the Civic Area Historic District, finding
that it meets the standards for historic district designation in Sections 9-11-1 and 9-11-2, B.R.C.
1981, and adopt the staff memorandum dated February 7, 2024, as the findings of the board.
BACKGROUND
• On August 27, 2021, the Landmarks Board received a letter from the Friends of the Bandshell
(link) requesting Landmarks Board consider an expansion of the landmark boundary of the Glen
Huntington Bandshell, an individual local landmark (Ordinance 5751), to include the entirety of
Block 13 (1236 Canyon Blvd.).
• In November 2021, the Landmarks Board initiated the process to expand the boundary and in
April 2022, the Landmarks Board voted to recommend expansion of the boundary. The Parks
and Recreation Advisory Board (PRAB) requested that the decision be postponed in order to
allow time for additional review and coordination with the forthcoming Civic Area Phase 2
planning and design process.
• On June 14, 2022, City Council held a public hearing to consider expanding the designation
boundary of the Glen Huntington Bandshell. The City Council gave a Nod of Five to “have
Landmarks staff investigate and explore the creation of a downtown area historic district that
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would include this area, saying they would work with the Landmarks Board and Parks Board
moving forward.” See City Council 06.14.2022 recording (link).
• Following Council’s direction at the June 14, 2022 meeting (item 4B, page 70), Historic
Preservation and Parks and Recreation staff jointly established an approach to evaluate a Historic
District in the Civic Area that included developing a Cultural Landscape Assessment, which will
be integrated into the Civic Area Phase 2 process and timeline, and inform the next phase of park
design for the Civic Area. See the April 24, 2023 PRAB Packet (link), the April 12, 2023
Landmarks Board Meeting (link) and the City Council 05.18.2023 information packet item
(link).
• On May 30, 2023, the Planning & Development Services Department accepted a complete
application for a proposed historic district in the Civic Area from Historic Boulder Inc., Friends
of the Teahouse and Friends of the Bandshell.
• On July 12, 2023 the Landmarks Board voted (3-1, C. Castellano dissenting) to initiate the
historic district process with the understanding that the applicants would extend the timeline
defined in sections 9-11-4 and 9-11-5, BRC 1981. See Landmarks Board 07.12.23 Minutes
(link).
• On August 23, 2023, the applicant group and city signed an agreement to extend the public
process and hold the designation hearing on February 7, 2024. See Attachment A: Tolling
Agreement.
• On December 18, 2023, the Landmarks Board and Parks & Recreation Advisory Board held a
joint study session and reviewed the process to date, provided feedback on the draft design
guidelines, and reviewed the draft CLA findings. See December 18, 2023 LB-PRAB Joint Study
Session memo (link).
• On January 22, 2024, staff attended a Parks & Recreation Advisory Board (PRAB) meeting to
provide an update on process and give an opportunity for PRAB members to provide comments.
The final CLA report was included in the 01.22.2024 packet to the PRAB (link).
• Prior to the public hearing, staff completed the public process outlined in Section 9-11-4, Public
Process for Historic Districts, B.R.C. 1981, including meeting with members of city departments
to explain the responsibilities and benefits of designation, community engagement efforts, and
development of a draft design guideline framework. See “Public Process” section below for more
information.
EFFECT OF LOCAL DESIGNATION
Local historic designation recognizes and protects areas significant to Boulder’s history, “to enhance
property values, stabilize neighborhoods, promote tourist trade and interest and foster knowledge of
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the city's living heritage” (Subsection 9-11-1(a), B.R.C. 1981). Historic district signs and landmark
plaques identify designated areas recognized for their historic, architectural or environmental
significance. The program shares the history of these places through its website and walking tours.
Benefits of local designation include:
• Qualification for a 20% Federal Tax Credit for income-producing properties listed on the
National Register of Historic Places.
• Qualification for a 20% Colorado State Income Tax credit for individually landmarked
properties and those in a historic district.
• Exemption from city sales tax on construction materials when applying for a building
permit, as long as at least 30% of the material value is for the building's exterior.
• Access to grants through the State Historical Fund, with projects needing to show a public
benefit to be eligible.
• Possible exceptions or variances to certain building, energy and zoning standards, like
floodplain, height, solar, and residential growth management requirements in specific
circumstances, allowances for historic buildings related to floodplain, height, solar, energy
requirements.
• Newly-designated landmarks receive a bronze plaque in a public ceremony.
• Staff assistance for applicants going through development review, Landmark Alteration
Certificate, and building permit processes.
Physical changes within historic districts and on individually landmarked properties require design
review by the historic preservation program to ensure the changes are compatible with the site’s
historic character and designation. In 2023, 88% of Landmark Alteration Certificate (LAC)
applications were approved, 11% are still in review, and only 1% were denied. Of the approved
LAC applications, 90% were approved within two weeks. (Note, that very few applications are
‘denied,’ but rather applicants work with staff to resolve conflicts with the design guidelines, or the
application is withdrawn and resubmitted with changes.) In the rare case the Landmarks Board
denies an application, the decision is subject to review by City Council. There is no application fee,
and there are three levels of review:
• Administrative: Small-scale changes are reviewed by Historic Preservation staff on an
ongoing basis (average review time and approval rate in 2023: 12 days, 99%).
• Landmarks Design Review Committee (LDRC): A committee consisting of two
Landmarks Board members and a historic preservation staff member meets weekly to
review the majority of applications (average review time and approval rate in 2023: 3
weeks, 92%).
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• Landmarks Board: The five-member board meets monthly to review applications for
demolition, new construction over 340 sq. ft., and applications referred by the LDRC
(average review time and approval rate in 2023: 3 months, 8 applications approved, 1
withdrawn).
BOARD AND COMMISSION FEEDBACK
The Landmarks Board and the Parks & Recreation Advisory Board held a joint study session on
Dec. 18, 2023, to hear an update on the designation process, provide feedback on the draft design
guideline framework, and review the preliminary Cultural Landscape Assessment (CLA) findings
for Central Park. The Dec. 18, 2023 memo, minutes, and audio recording are available in the Central
Records archive (link) and the video recording (link) is available online.
On Jan. 22, 2024, PRAB board members had a robust conversation to understand the potential
benefits and impacts of the proposed Civic Area Historic District designation. At the end of the
discussion, a board member requested an informal straw poll: The four members present all agreed
that they do not support designation of a historic district. Their concerns can be summarized as thus:
o Lack of understanding of a unifying element or overarching theme that would explain
creating a district.
o Lack of support for additional protection and outsized input by one city board, given that the
buildings, bandshell and some areas of the park are already protected by designation.
o Disagreement that potential benefits of designation outweigh the added process, time and
thus expense of a district.
The staff memo (link to Jan. 22, 2024 PRAB Packet, page 13-62) and video recording (link) are
available in the Central Records archive. The board chair’s statement begins at 1:06:30 and the
closing board remarks for the PRAB meeting begin at 1:18:35 of the video recording. See
Attachment B: Jan. 22, 2024, PRAB Meeting Summary.
PUBLIC PROCESS AND ENGAGEMENT SUMMARY
The historic district designation process is outlined in Section 9-11-4 Public Process for Historic
Districts, B.R.C. 1981. The following is a summary of efforts between July 2023 through January
2024.
Department and Agency Coordination
In August, Planning & Development Services (P&DS) staff met individually with representatives
from Transportation and Mobility, Parks & Recreation (BPR), Planning & Development Services,
Public Works - Utilities, Community Vitality, Facilities & Fleet, City Manager’s Office, City
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Attorney’s Office and Communications and Engagement. The purpose of the meetings was to
provide information about the process, discuss the effects of historic designation, answer questions
and listen to concerns. P&DS staff also solicited interest from departments to participate in the
Technical Advisory Group to develop draft design guidelines (see additional information below).
P&DS and BPR staff met bi-weekly to coordinate efforts on the development of the Cultural
Landscape Assessment (CLA) and the overall project management of the historic district
application.
Public Works – Utilities staff facilitated coordination with the Boulder and White Rock Ditch, North
Boulder Farmers Ditch and Boulder Left Hand Ditch companies, as the proposed boundary includes
a reach of the Boulder Slough and Smith & Goss Ditch. Staff proposed utilizing the same approach
as the landmark designation of the Boulder-Dushanbe Teahouse, which includes language in the
designation ordinance that acknowledges that use of the respective ditch easements will not require
Landmark Alteration Certificate review.
P&DS staff spoke with representatives of the Colorado Department of Transportation (CDOT), as a
portion of Broadway (Highway 93) is included in the proposed historic district boundary. Similar to
the ditch companies, management of Broadway will not require Landmark Alteration Certificate
Review if the area is designated.
Racial Equity Instrument
This designation process is the first Historic Preservation project to use the Racial Equity
Instrument. The process included elevating the voices of historically excluded peoples and
amplifying the message that the historic narrative of the area has been dehumanizing and used to
perpetuate dominant social structures.
Research
The designation process provided an opportunity to fill research gaps in the history of the area, in
particular the history of residents and businesses that were displaced. Historic Preservation staff
were able to access recently digitized information from the Library of Congress and National Park
Service, and other state and local sources. Staff focused on primary sources (first-hand accounts,
period newspaper articles, maps and photographs) for research, but additionally consulted local
experts and contemporary secondary sources.
Engagement Strategy
The engagement levels for this project are consult for the general public; and involve for the key
stakeholders, which include property owners and the applicants.
To date, the project team has used different methods to:
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• share information about the area’s historical significance,
• raise awareness and understanding of the designation proposal,
• gather feedback from historically excluded communities,
• facilitate discussions from key stakeholders on draft design guidelines, and
• solicit feedback on whether the proposed area should be designated a historic district.
1. Consultation with Community Connectors-in-Residence (CC-in-R): The city’s CC-in-R
represent historically excluded communities. The project team met online with four CC-
in-Rs representing Black, Latine, Indigenous and people living with a disability to answer
questions about the designation process and to discuss the racial equity strategies for the
project, including engagement. Following on these consultations, the main opportunity
identified by the project team to advance racial equity is to explore and build more
comprehensive narratives of our city’s development by researching, elevating and telling
the stories of historically excluded populations. The CC-in-R agreed to participate in a
‘dry run’ of the walking tour to provide feedback on the script through a racial equity lens.
2. Walking Tours: The project team and applicants collaborated over the course of six weeks
to refine a walking tour script for the public. The project team’s goal was to continue to
tell the stories of Central Park and the five landmarked properties within the proposed
district – while also telling a more complete and multi-dimensional history of the area.
This included researching and telling the stories of people that once lived here. It included
amplifying the message that the narrative about the area adjacent to the Boulder Creek,
referred to as “The Jungle” from the 1920s, is dehumanizing and used to perpetuate
dominant social structures.
- The three tours were advertised on the city’s social media, the city calendar and website
and by the applicant groups.
- Twenty-three people signed up in advance and only eight people attended. The tours were
held on Saturday, Oct. 14 at 10 A.M., Wednesday, Oct. 18 at 12 P.M. and 5 P.M.
- The project team led a walking tour for city staff on Oct. 12 (about 20 attendees).
- The project team also led a walking tour with Community Connectors-in-Residence (CC-
in-R) (5) on Sept. 21 to help identify white, privileged bias in the script that could be
exclusionary and hurtful. The applicants participated in this walking tour with CC-in-R as
observers. CC-in-R feedback was used to update the script.
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3. Webpage, StoryMap 1 & online questionnaire: The project team developed a webpage,
that has been available online since August 28. The webpage provides an overview of the
project, background information, details of upcoming engagement opportunities and latest
news, and an explanation of the timeline and process. Additionally, the webpage includes
a StoryMap of the area’s history that seeks to tell a more inclusive history of the area. It
has been available online since Nov. 28 and viewed by 1,404 people as of Jan. 28, 2024.
The webpage also includes a questionnaire asking whether people support or do not
support the designation. The questionnaire will be available until Jan. 15, 2024. It also
provides the opportunity for people to share their own historic photos of the area.
4. Communications and Media Coverage: Media coverage of the project includes an update
in the Winter 2023 issue of the Boulder Community Newsletter (p10); a press release
announcing the publication of the StoryMap was issued on Nov. 29 and project manager
Marcy Gerwing was interviewed for a Channel 8 segment that aired Dec. 1, and Dec. 8,
2024. Social media posts include Nextdoor on Dec. 5 and Facebook on Dec. 7.
5. What’s Up Boulder: The project team participated in the What’s Up Boulder event at
Foothills Community Park on Sept. 10. The project team was available to share
information about the project and answer questions. The project team handed out coloring
postcards of the landmarked buildings within the proposed district, along with an aerial
view of the park and surrounding buildings.
6. Carnegie Library for Local History “Boulder Rewind” event. The project team
participated in a celebration of 40 years of local history at the Carnegie Library on Oct. 1,
2023, with a presentation on some of the research completed on the history of the
proposed district.
PUBLIC COMMENT
The project team delivered walking tours and an online Storymap (link) to raise awareness and
understanding of the layered history of the area, including stories of historically excluded persons
and communities that have not been part of the dominant narrative to date. The goal was to provide
1 ArcGIS StoryMaps is a story authoring web-based application that allows you to share your maps in the context of narrative text and other
multimedia content.
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the public with background information that could help people make a more informed decision on
whether they support the proposed historic district designation.
Staff provided two main channels for feedback from the community, in addition to mandatory
hearings: (i) an online questionnaire and (ii) consultations with the Community Connectors-in-
Residence (CC-in-R) as part of the project’s deliberate racial equity strategies.
Online form
The online form was added to the project website in mid-October. Thirty-six responses were
received between Oct. 15 and Jan. 25, with 44% of respondents in opposition, 36% in support and
19% unsure of whether they support this historic designation. Staff recognizes that this is not a
statistically valid survey and that the number of responses is relatively small, but that a diversity of
viewpoints has been shared.
Out of those respondents who support the designation, the justifications included: (i) it would be
good for tourism and business; (ii) preservation is generally a valuable goal, (iii) this area represents
the best of Boulder (besides the mountain backdrop), (iv) the designation could help improve public
safety in this area; and (v) the history being told acknowledges impacts on historically excluded
communities and supports the city’s equity aspirations.
Out of those respondents who do not support the designation, the justifications included: (i) that the
district is not aligned with the city’s equity and climate goals, (ii) a preference to focus on
redevelopment and programming here instead of further restrictions; (iii) parking lots are not historic
and should not be included; (iv) hope that parking lots could be used for community benefit such as
affordable housing; (v) the need to ensure that our civic spaces meet the needs of our community
today; (vi) insufficient benefit of a district, (vii) a desire for the city to focus on other priorities; and
(viii) a need to effectively addresses issues related to public safety and the unhoused here before
pursuing a district.
Out of those who are unsure if they support the designation, the justifications include: (i) needing
more information and understanding of the impacts, (ii) concerns that public resources would be
spent with little return, (iii) skeptical that the collection of disjointed buildings warrants a historic
district designation, (iv) likely to be more supportive if the use of current buildings can be
reimagined; (v) concerns that the designation glosses over the presence of unhoused in the area; and
(vi) a desire for the city to focus on public safety first and foremost.
A more detailed overview and list of all feedback received through the online questionnaire is
included as Attachment C: Public Input Received between October 16, 2023, and January 25, 2024.
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Letters to the Landmarks Board
Between July 12, 2023, and January 29, 2024, the Landmarks Board received twelve letters from
members of the public. All of the letters received within this time period were in support of the
designation. See Attachment D: Letters Received between July 12, 2023, and January 29, 2024.
Consultations with Community Connectors in Residence (CC-in-R)
Staff consulted with CC-in-R twice. The first meeting focused on asking for input on the
engagement plan from an equity perspective. The second meeting focused on gathering feedback on
the walking tour script and the general narrative of the area’s history.
Main feedback received by CC-in-R include: (i) concerns that written history is ‘white’ history; (ii)
that any educational materials should be developed with or at least reviewed by people from diverse
background to ensure it is inclusive and not offensive or hurtful; (iii) that preservation should
expand beyond the traditional purview of buildings; and (iv) that negative impacts should be
acknowledged. CC-in-R also had questions about how the proposed district benefits all members of
our community and how it can help the unhoused in Boulder.
Based on this feedback, staff undertook additional research to elevate the stories of historically
excluded or marginalized peoples in this process. Although not directly related to this project, the
feedback of CC-in-R has influenced the content of Landmark Board memos, which as of November
2023 now recognizes the pre-settler history when describing the area. Staff is also committed to
further deepening the partnership with local people of color for the upcoming update of the Historic
Preservation’s 10-year Strategy in 2024.
DESCRIPTION OF THE PROPOSED HISTORIC DISTRICT
The proposed boundary of the historic district as submitted in the application (Figures 1. and 5.)
includes Central Park, the 13th Street and Sister Cities plazas, five individually designated
landmarks, and portions of Broadway, 13th Street, the Boulder Slough and Smith and Goss Ditch,
and Boulder Creek. The boundary extends from the west side of the Penfield Tate II Municipal
Building (1777 Broadway) to 14th Street, and from Canyon Boulevard to Arapahoe Avenue. The
privately owned parcels on the northeast corner of Arapahoe and Broadway (1201 Arapahoe Ave.
and 1724 Broadway) are not included in the proposed boundary.
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Figure 1. Map of proposed historic district area. Shaded areas indicate currently designated
individual landmarks. The solid blue line indicates existing property lines that form the proposed
boundary; dashed line indicates the proposed boundary that does not follow the property line.
HISTORY OF PROPOSED DISTRICT
The following section summarizes the area’s history. Explore the interactive StoryMap (link) to
learn more.
The history of the area extends much beyond the earliest constructed feature that remains today, the
1871 Boulder Slough. The creek side land is a sacred and essential part of the ancestral homelands
of Indigenous Peoples who have lived on and travelled through them since time immemorial.
Boulder has an archival silence, or gap, in its historical record, for the Native American/Indigenous
perspective of history. Staff acknowledges that a majority of archival materials focus on the
perspective of the white and European settlers of the Boulder Valley. The City of Boulder has
recently embarked on an ethnographic study in collaboration with tribal nations to better document
the history of indigenous peoples in this area.
From the arrival of the train in about 1873, early industry in the area was predominately rail-based.
Residences (no longer extant) were clustered within a two-block area between 10th and Broadway
with a few scattered outside that area. The City Storage and Transfer Building (1906) was
constructed during this period as a warehouse for moving goods in and out of the city.
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Land acquisition and development of Central Park was guided by the Boulder City Improvement
Association (BCIA), a community group whose state purpose was “the improvements of Boulder in
health, growth, cleanliness, prosperity and attractiveness through individual effort as well as through
cooperation with other organizations engaged in similar work” and the Park Commission Board
(later the Boulder Parks and Planning Commission), a City Council committee formed in 1918. The
BCIA received advice from Frederick Law Olmsted, Jr., in particular on flood control measures in
the area, but also on plantings and general design. The establishment of Boulder’s municipal center
included the removal of two blocks of buildings by 1928, leading to the displacement of people and
businesses.
The design for parkland along Boulder Creek was refined in plans developed by the Olmsted
Brothers firm between 1917-1923 and published in 1923 2 in The Improvement of Boulder Creek in
Boulder, Colorado.3 A number of failed attempts at municipal funding resulted in reducing the
scope of the “Improvements of Boulder Creek” to grading of the area between Broadway (12th
Street) and 13th Street from Boulder Creek to Canyon Blvd. (Water Street), completed by 1925.
BCIA volunteers attempted to complete additional improvements suggested by Olmsted, including
planting trees and perimeter vegetation, and grading paths through the park. The park was used
informally by city residents with a few formal events planned, including an annual picnic held by the
Girl Reserves from 1934 to 1937 for incoming students to the Preparatory School.4
A second phase of municipal area and park planning began in 1938, influenced by Saco DeBoer.
DeBoer suggested Central Park as “the only suitable location for a bandshell” (Glen Huntington
Bandshell, constructed in 1938) and a new city hall (Penfield Tate II Municipal Building,
constructed in 1951) as part of a “city building group with flood protection, parking areas and
farmer’s market.” The intent was to create a focal point for municipal activity. The Boulder Lions
2 Olmsted Plans and Drawings Collection “Olmsted Job #3300 Boulder, Colorado Improvement Association Boulder, CO Plan
#3300-63 City of Boulder Preliminary Plan of Proposed Park Improvements Along Boulder Creek OBLA, October 1923.”
National Park Service, Frederick Law Olmsted National Historic Site.
https://www.flickr.com/photos/olmsted_archives/35378272173/in/album-72157683458369472/
3 Olmsted Brothers. The Improvement of Boulder Creek in Boulder, Colorado. Brookline, Mass., 1923. Files; 3302; Boulder
Creek; Boulder, Colo., 1917-1924. Olmsted Associates Records: Job Files, 1863-1971. Library of Congress, Washington, DC.
Page 76-86: https://www.loc.gov/resource/mss52571.mss52571-02-186_0383_0484/?sp=76&st=image
4 “One Hundred Girls At G.R. Big-Sister Picnic.” September 20, 1935. The Prep Owl - BHS, Volume 23.
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Club funded the construction of the bandshell and gifted it to the city as the first permanent place for
outdoor band concerts in Boulder. The bandshell was “dedicated to the enjoyment of citizens of
Boulder and to the advancement of music.” 5 Between 1938 and 1974, the Municipal Building and
Central Park were the site of a variety of political events, musical concerts, cultural programs,
educational presentations, and civic gatherings. Events in the park were organized by different
Boulder clubs, including the Optimists, Elks, Woman’s Club, American Legion, Pow Wow and
Rodeo, Soroptimists, Lions, Rotary and Kiwanas Club.6 The Archuleta Family History recorded as
part of the Boulder County Latino History Project provides an account of the daily use of the park:
“A popular place to hang out was the band shell at Central Park. A group of kids would get together
and put on shows and plays for each other. Exploring Mackey Auditory and Chautauqua Park were
always options. Although off limits, per Mom, playing in Boulder Creek always seemed to happen.
A chewing out by Mom was guaranteed after a day at the creek, but that didn’t stop the fun.” 7
From 1961, the area was the center of municipal government with the construction of the public
library near 9th Street (Boulder Public Library, 1961), an expansion of the Municipal Building and a
“mall” designed to connect them. The construction of the Midland Federal Savings and Loan bank
branch (Atrium Building, 1969) utilized a pavilion design compatible with its setting across from
Central Park. As the downtown area “decayed” and counterculture advocates confronted “the
establishment,” the municipal area was the site of political protests and civic discourse. In 1969, the
large gatherings of people led the City to ban “Rock Concerts” in the park, which the police
enforced as the use of any instrument. When that failed to disperse the groups of people, the City
Manager closed Central Park for two weeks due to sanitary concerns and passed laws to prevent
camping and gathering in Central Park. The same year, Boulder Tomorrow hosted a design
competition for the Civic Area.8
5 Front Range Research Associates, Inc. Boulder Bandshell Historical Study, p.6-9. 1995.
6 Front Range Research Associates, Inc. Boulder Bandshell Historical Study, p.11. 1995.
7 The Archuleta Family History, 1932-2012, p.5. https://bocolatinohistory.colorado.edu/document/the-archuleta-family-history-
1932-2012-p5. Boulder County Latino History.
8 Taylor, Carol. “Design Competition in 1969 envisioned a Boulder Civic Center.” Oct. 12, 2014.
https://www.dailycamera.com/2014/10/12/design-competition-in-1969-envisioned-a-boulder-civic-center/. Daily Camera.
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The connection between the public spaces and surrounding buildings continued into the 1970s with
the adaptive reuse of the Larson Brother’s warehouse building (City Storage and Transfer Building,
1906) into a public arts center and future museum. In 1987, the city was gifted the Dushanbe
Teahouse, which was constructed in Tajikistan and shipped in crates overseas. After a decade of
deliberation, the Boulder–Dushanbe Teahouse was reconstructed south of the Civic Park Plaza and
alongside the 13th Street Community Plaza. A public plaza dedicated to Boulder’s six sister cities
was added east of the Penfield Tate II Municipal Building in 2007. The area continues its public
function as the site of the farmers’ market, festivals, concerts, and other planned community
activities, and spontaneous gatherings in response to local, state, and national events throughout the
year.
PURPOSE AND CRITERIA FOR THE BOARD’S DECISION
Section 9-11-5(c), Criteria For Review, B.R.C. 1981, specifies that Landmarks Board shall
determine whether the proposed designation conforms with the purposes and standards in Section 9-
11-1, Purpose and Legislative Intent, and Section 9-11-2, City Council May Designate or Amend
Landmarks and Historic Districts. The Significance Criteria for Historic Districts (link) was adopted
by the Landmarks Board on Oct. 29, 1975.
City Council will consider whether the proposed designation meets the criteria above, and also
whether it is in balance with the goals and policies of the Boulder Valley Comprehensive Plan
(BVCP). Additionally, staff utilized the National Park Service guidance, including National Register
Bulletin 16: Defining Boundaries for National Register Properties (link) and National Register
Bulletin 15: How to Apply the National Register Criteria for Evaluation (link) to assess the area’s
integrity and boundaries. As the proposed district includes Central Park, staff also utilized the
research and analysis from the Cultural Landscape Assessment.
STAFF ANALYSIS OF CRITERIA
Staff Analysis of Code Criteria – Sections 9-11-1 and 9-11-2, B.R.C. 1981
A. Would the designation protect, enhance, and perpetuate a property reminiscent of a past
era(s), event(s), and person(s) important in local, state, or national history in Boulder or
provide a significant example of architecture of the past?
Historic district designation of this area would protect an area historically, architecturally and
environmentally significant to Boulder’s history. The proposed district includes an area with a
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history that precedes the 1871 founding 9 of Boulder; had documented residential and commercial
uses from the 1870s until the 1920s; includes Central Park, an urban park formally established in
1924; and includes five surrounding municipal buildings constructed between 1906 and 1998
that represent a progression of architectural styles. Furthermore, as described in the analysis
below, the area retains integrity to a 1938-1974 period of significance, extending from the
DeBoer/Huntington period of park design and the construction of the Glen Huntington
Bandshell, to a point 50 years in the past to recognize the historic significance of the area’s
social, cultural and political use.
The proposed district is historically significant for its continued public function as the symbolic,
political and municipal center of Boulder’s local government; as the site of numerous social,
cultural and political events; for its significance in the history of Boulder’s park system
development; and its contribution to the social and cultural life of the city for over a century.
The proposed district possesses architectural significance for its notable examples of
architectural styles of the past, including a 19th century commercial building, Art Deco
bandshell, International style municipal building, a Rustic Modern bank building adaptively
reused for city offices, and the Central Asian/Tajik teahouse. The district includes significant
works by notable architects, landscape designers, builders, and urban planners representing a
progression of styles.
The proposed district is environmentally significant for its location at the historic center of
Boulder, as an established and prominent visual feature of the community at the intersection of
major transportation routes and adjacent to Boulder Creek, and for its planned and natural site
characteristics that have resulted in its distinct character as an open central urban park space
surrounded by municipal buildings.
As a whole, this area represents an eclectic municipal character that is unique to Boulder’s
history, location and climate.
9 Boulder City Town Company was formed on Feb. 10 1859 with sixty men as shareholders. Between 1861
and 1871, the area was governed by the County Commissioners. In November 1871, the first trustees were
appointed to govern the municipality of Boulder. Source: Frink, Maurice. The Boulder Story: Historical
Portrait of a Colorado Town. 1965. Pruett Press, Inc. Boulder, Colorado.
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B. Does the proposed application develop and maintain appropriate settings and environments
for such buildings, sites, and areas to enhance property values, stabilize neighborhoods,
promote tourist trade and interest, and foster knowledge of the City’s living heritage?
Designation of the area will maintain an appropriate setting and environment for the historic
area, enhance property values, stabilize the neighborhood, promote tourist trade and interest, and
foster knowledge of the city’s living heritage.
Furthermore, if the proposed boundary is modified as recommended below to exclude the non-
historic parking lots along 14th Street and expanded to include the length of 13th Street between
Canyon Boulevard and Arapahoe Avenue, and the area between the Atrium Building and Canyon
Boulevard, the district will maintain an appropriate setting and environment for the historic area.
See Boundary Analysis section below.
Colorado Preservation, Inc.’s report, “Economic Benefits of Preservation 2017” (link) studies the
direct and indirect economic impacts of historic designation. Key findings related to this
proposed designation include:
• Heritage tourism accounted for approximately half of tourist spending ($7.2 billion of a
total $14.1 billion) spent in 2015.
• The report provides five case studies on the impact of local historic district designation
on property values, summarizing “the results of the analysis show that, for the most part,
the values of properties located within a local historic district increased a similar or
higher rate than in the comparison areas. Moreover, there is no evidence that local
historic district designation has had a negative effect on either property values or sales
prices within the five case study areas. In all cases, property values increased following
designation mirroring the results of similar studies from other states.”10
• In a chapter on Effective Placemaking, the report states, “From small towns to big cities,
preserving historic buildings provides a foundation for creating and sustaining
memorable places.”
10 Colorado Preservation, Inc. Economic Benefits of Preservation 2017. https://issuu.com/coloradopreservation/docs/final_-
_econ_study_preservation.
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Boulder Valley Comprehensive Plan (BVCP) policy 5.09 Role of Tourism in the Economy states
that, “the city recognizes the importance of tourism (e.g. heritage, cultural, sports and open
space) to the Boulder economy.” While less than 3% of properties in Boulder are locally
designated, they are among the most iconic in the community. Seven out of the nine activities
featured in the Boulder Convention & Visitors Bureau’s current list of must-see things to do in
Boulder (link) are in and around historic places, a majority of which are either in or near the
proposed civic area historic district:
• Pearl Street Mall (located in the Downtown Historic District designated as a National
Register historic district in 1980 and as a local historic district in 1999)
• The Flatirons from Chautauqua (designated as a local historic district in 1976, as a
National Register historic district in 1978, and as a National Historic Landmark in 2006)
• Boulder-Dushanbe Teahouse (designated as a local landmark in 2020)
• Boulder Theater (designated as a local landmark in 1980 and as part of the Downtown
Historic District in 1980 and 1999)
• University of Colorado (Norlin Quadrangle designated as a National Register historic
district in 1980)
• The Museum of Boulder (designed as a local landmark in 2013)
The list also includes the Boulder County Farmers’ Market, which is located on 13th Street
adjacent to four locally designated landmarks and within the proposed historic district.
The design review process stabilizes neighborhoods as physical changes are reviewed to ensure
compatibility with the area’s historic character. Historic district designation anticipates change
over time, and if designated, an effort will be undertaken to further develop district-specific
design guidelines that recognize the unique character and features of the area and facilitate the
review of proposed improvements, as well as to support and guide future changes to the area.
Use and function of a site is not regulated through historic district designation; only the physical,
exterior changes related to use are reviewed. The proposed historic district highlights the value of
urban parkland at the heart of the city, and its contribution to the social, environmental, and
economic activity in the area. If designated, the district design guidelines will anticipate changes
to the immediately surrounding land uses over time to yield new opportunities for the district to
serve the community in novel ways, while still maintaining its historic value and role in the on-
going story of Boulder’s heritage.
Historic designation fosters knowledge of the city’s living history through research and sharing
stories of Boulder’s history through virtual and in-person activities. This designation application
process provided an opportunity to fill research gaps in the history of the area, in particular the
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history of displaced residents. Staff accessed recently digitized information from the Library of
Congress and National Park Service, and other state and local sources. The research was shared
with community members through in-person walking tours, events, and an interactive StoryMap
(link). Historic Boulder, Inc. translated the walking tour script into a free app-based tour on
PocketSights: Proposed Civic Area Historic District - Boulder (link). Community members and
visitors learn about history of designated sites through the wayfinding signs and plaques,
interpretive panels (e.g. Pearl Street Mall, Chautauqua and the Penfield Tate II Municipal
Building), the city’s website and engagement events, such as walking tours during Historic
Preservation and Archeology Month in May.
Staff Analysis of Relevant BVCP Policies
City Council will also be required to evaluate and consider whether local historic district
designations are “in balance with the goals and policies of the Boulder Valley Comprehensive
Plan” (Subsection 9-11-6 (b), B.R.C. 1981). The Boulder Valley Comprehensive Plan (BVCP)
provides a general statement of the community’s desires for future development and preservation
of the Boulder Valley. BVCP policies guide decisions about growth, development, preservation,
environmental protection, economic development, affordable housing, culture and arts, urban
design, neighborhood character and transportation. The following BVCP policies related to
historic preservation are relevant to this application (emphasis added):
• 2.27 Preservation of Historic & Cultural Resources – The city and county will identify,
evaluate and protect buildings, structures, objects, districts, sites and natural features of
historic, architectural, archaeological or cultural significance with input from the
community. The city and county will seek protection of significant historic and cultural
resources through local designation when a proposal by the private sector is subject to
discretionary development review.
• 2.30 Eligible Historic Districts & Landmarks – The city has identified areas that may have the
potential to be designated as historic districts. The Designated and Identified Potentially
Eligible Historic Districts map shows areas with designation potential as well as areas that are
already designated as historic districts (see BVCP Figure 6-1 on page 136). These potential
historic areas and historic survey information will continue to be assessed and updated. There
are also many individual resources of landmark quality both within and outside of these
eligible areas. Additional historic district and landmark designations will be encouraged
in accordance with the Plan for Boulder’s Historic Preservation Program. Such
resources may contribute to cultural and heritage tourism values.
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• 2.28 Leadership in Preservation: City-& County Owned Resources – The city and county
will evaluate their publicly owned properties to determine their historic, architectural,
archaeological or cultural significance. Eligible resources will be protected through local
designation, including secondary buildings or elements that are part of and convey the
cultural significance of a site, such as a farm complex and alley buildings.
• 2.32 Preservation of Archaeological Sites & Cultural Landscapes – The city will develop a
plan and processes for identification, designation and protection of archaeological and
cultural landscape resources, such as open ditches (where practicable and in
coordination with the irrigation ditch company), street and alley-scapes, railroad rights-of-
way and designed landscapes.
Additionally, the following BVCP policies are relevant to the proposed designation of this
specific area of Boulder. Further analysis will be completed prior to Council’s review of the
application to address its balance with the goals and policies of the BVCP.
o 2.14 Mix of Complementary Land Uses
o 2.15 Compatibility of Adjacent Land Uses
o 2.20 Role of the Central Area
o 2.33 Sensitive Infill & Redevelopment
o 2.41 Enhanced Design for All Projects
o 5.09 Role of Tourism in the Economy5.10 Role of Arts, Cultural, Historic & Parks &
Recreation Amenities
Staff Analysis of Significance Criteria for District Landmarks
Significance – Local Criteria
The Landmarks Board adopted the Significance Criteria for District Landmarks (link) in 1975 as
additional specific criteria to be used in the review of historic district applications. This
Significance Criteria should be used as an aid in applying the standards found in Sections 9-11-1 and
9-11-2, B.R.C. 1981. Three potential areas of significance are established by the Significance
Criteria including (emphasis added):
1) Historical Significance: The district, as an entity, should show character, interest or value
as part of the development, heritage, or cultural characteristics of the community, state,
or nation; be the site of historic or prehistoric event(s) that had an effect upon society; or
exemplify the cultural, political, economic, or social heritage of the community.
2) Architectural Significance: The district should portray an environment in an era of history
characterized by distinctive architectural period(s)/style(s); embody those distinguishing
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characteristics of an architectural type specimen, a good example of the common; include the
work of an architect or master builder, known nationally, state-wide, or locally, and
perhaps whose work has materials or craftsmanship which represent a significant innovation;
or include a fine example of the uncommon.
3) Environmental Significance: The district should enhance the variety, interest, and sense of
identity of the community by the protection of the unique natural and man-made
environments.
The following provides staff’s analysis of the proposed district in relation to the Significance Criteria.
HISTORICAL SIGNIFICANCE:
The district, as an entity, should show character, interest or value as part of the development, heritage,
or cultural characteristics of the community, state, or nation; be the site of historic or prehistoric
event(s) that had an effect upon society; or exemplify the cultural, political, economic, or social
heritage of the community.
Summary: The proposed historic district is historically significance for the public function of
the area as the symbolic, political and municipal center of Boulder’s local government, and as the
site of numerous social, cultural and political events, for its significance in the history of
Boulder’s park system development and its contribution to the social and cultural life of the city
for more than a century.
1. Association with Historical Persons or Events:
This association could be national, state or local.
Summary: The proposed historic district is associated with numerous individuals and events
that are locally significant, including multiple individuals (both protagonists and antagonists)
and organizations involved in the formation of the area. The early uses of the park area
matched the religious and “moral” views of these individuals and organizations, which
focused events on self-improvement. The general type of events changed over time,
becoming more nostalgic of “pioneer” times during the 1950s. The late 1960s and early
1970s saw an overall decline in maintenance of the park, and events held during that time
period reflected the political and social change of the era, culminating in rallies,
demonstrations and protests.
Elaboration: The proposed historic district is associated with historical individuals and
events.
Individuals that were instrumental in the early formation of the area include:
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• Maryette Kinglsey (c.1860-1902) owned four different properties in the area as early
as the 1890s, and from which she ran thriving businesses.11 Her brothels were viewed
by “civic improvers” including members of the BCIA as unsightly for tourists and
visitors arriving or departing by train.
• Jennie Johnson (c. 1866-unknown) owned two different properties in the area from
1900 until 1928. She owned a cleaning business, which she ran from her house near
11th Street north of Boulder Creek.12 Johnson was the last owner to sell her residence
to the city for “park improvements,” refusing for many years to leave.13
• “Rocky Mountain” Joe Sturtevant (1851-1910) owned a studio at the approximate
location of the Municipal Building from 1900 until Sturtevant’s death.14 Sturtevant
made many photographs of the area, some of which were used to promote
“improvements.”15
The Boulder City Improvement Association (BCIA) was a volunteer organization originally
established in 1898 by Ira M. DeLong, H. O. Dodge, Fred L. Williamson and Neil D.
McKenzie, with the purpose of “encouraging the culture of lawns and trees; improving and
ornamenting the public highways; opening public parks and drives; maintaining a high
standard of public neatness; and cooperating with every available agency to increase the
beauty and healthfulness of our city.”16 They reincorporated in 1903 with a focus on “the
11 “Flood in Boulder.” Boulder Daily Camera, May 31, 1894.
12 “Cleaning Done.” May 8, 1906. Boulder Daily Camera, Volume 16, Number 37.
13 “City of Boulder Buys Property In Jungles To Clean Up and Beautify.” April 11, 1921. Boulder Daily Camera, Number 22.
14 “View of the buildings on the west side of Broadway between numbers 1763 and 1777. In the foreground is Joseph Sturtevant's
photography studio with his wife, Anna Lyckman Sturtevant, standing in the doorway. A streetcar is visible in the distance (S-
673).” 1900. BHS 207-3-54. Boulder Historical Society/Museum of Boulder.
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A37675
15 “Views of what was known as Cigarette Park and is now Central Park.” 1870-1920. Call No. 207-3-48. Carnegie Library for
Local History, Boulder, CO. https://localhistory.boulderlibrary.org/islandora/object/islandora%3A40011
16 “Constitution of the Public Improvement Association of Boulder.” 1898. BHS 328-193-(7-8). Boulder Historical
Society/Museum of Boulder. Carnegie Library for Local History, Boulder, CO.
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A50763
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improvements of Boulder in health, growth, cleanliness, prosperity and attractiveness through
individual effort as well as through cooperation with other organizations engaged in similar
work.”17 The BCIA acted as a de facto planning commission, strongly focused on the
downtown creek area, until 1934 when they dissolved, noting that “the Boulder Parks and
Planning Commission has almost identically the same purpose for which our Association
exists.”18 Between 1903 and 1934, many business and civic leaders served as officers of the
BCIA, including Junius Henderson, Eben G. Fine, Fred White, Herbert A. Shattuck, D. M.
Andrews, Maud Gardiner O’Dell, and William J. Baird. Many of these members were
particularly key to the development of the area as public space:
• Ira M. DeLong (1855-1942) was professor of mathematics at the University of
Colorado - Boulder from 1888 to 1925. DeLong was one of the founders of the BCIA
in 1898 and drew connections between aesthetics and morality.19
• Junius Henderson (1865-1937) Practiced law and was a county judge until 1902 when
he became curator of the University Museum. He became a professor of natural history
in 1908. He was president of the BCIA in 1910, when the organization commissioned
Frederick Law Olmsted, Jr. to propose improvements for the city.
• Herbert A. Shattuck was a civil engineer who briefly worked for Thomas Edison. He
studied landscape design and designed “Shattuck’s Hillside Park” (now the Hillside
17 “Records of Boulder City Improvement Association.” 1903-1914. BHS 300-1-10. Boulder Historical Society/Museum of
Boulder. Carnegie Library for Local History, Boulder, CO.https://localhistory.boulderlibrary.org/islandora/object/islandora:50763
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A7574
18 White, Fred. “Letter preceding Minutes of Meeting of Boulder Improvement Association.” Feb. 27th 1934. Carnegie Library for
Local History, Boulder Colo.
19 DeLong, Ira B. “Aim of the Association - Public Improvement Association Papers.” 1898. BHS 328-193-(7-8). Boulder
Historical Society/Museum of Boulder. Carnegie Library for Local History, Boulder, CO.
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A50763
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Historic District). Shattuck was instrumental in promoting Frederick Law Olmsted,
Jr.’s “plan for the city.”20
• William J. Baird (1861-1934) was a physician and surgeon. He corresponded with
Frederick Law Olmsted, Jr. between 1907 and 1934, mainly on the details for a creek-
side park.21 Baird additionally organized volunteers 22 and donations 23 for Central
Park.
Penfield Tate II (1931-1993): The municipal building was named in honor of the former mayor in
2020, for his work advocating for civil rights and equality. Tate was the first, and to date, only,
Black mayor of Boulder (1974-1976). He served on Boulder’s City Council from 1972-1976. Tate
“sponsored an amendment to Boulder’s human rights ordinance that would ban discrimination based
on sexual orientation. … due to a backlash from conservative elements in Boulder, Tate and fellow
Councilman Tim Fuller were targeted for a recall effort.”24 While the recall of Tate failed, he did not
win in the next election.
Following the construction of the bandshell in 1938, Central Park became a focal point for
social activities, typically based around musical or religious activities that were seen by the
organizers as morally appropriate. In 1939, Central Park hosted a “Flander’s Field” memorial
that involved filling the park with memorial crucifix grave markers. During the 1930s and
1940s, the Boulder Rotary Club sponsored events like dance exhibitions, educational talks and
musical performances. The Boulder Lions Club was chartered in 1918 as a volunteer
organization. By mid-1938, the Lions Club had spent more than $20,000 on the improvement
of local parks, including the construction of shelter houses in Blue Bell Canyon and at the top
20 Carrigan, Beverly Halpin. “Frederick Law Olmsted, Jr. Maker of Parks-Planner of Cities: Visits-Plans-Suggestions-Goals for
Boulder, Colorado 1907-1927.” Carnegie Library for Local History. Call Number 998-11-9.
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A100249
21 Files; 3300; City of Boulder Improvement Association; Boulder, Colo.; 1907-1909. Olmsted Associates Records: Job Files,
1863-1971. Library of Congress, Washington, DC.: https://www.loc.gov/resource/mss52571.mss52571-02-
185_0146_0316/?sp=6&st=image&r=0.014,0.392,0.684,0.336,0
22 “Local Personal News.” May 10, 1924. Boulder Daily Camera, Number 48.
23 “DR. O. M. GILBERT GIVES $100 FOR NEW PARK” May 22, 1924. Boulder Daily Camera, Number 58.
24 Museum of Boulder. “Proclaiming Colorado’s Black History.” 2023.
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of Flagstaff Mountain. In 1938, they donated the money to build the bandshell, and sponsored
religious and musical events. The Lions Club donated picnic tables and a drinking fountain to
Central Park in 1942.
During the 1950s and early 1960s, the events became more nostalgic. “Singalong” concerts
where “citizens of Boulder with any music ability” were invited to participate were popular.25
In 1952, the community raised $5,095 in 1952 to purchase an engine, passenger car, and
caboose as a “monument to the pioneers of Boulder” and the Daughters of the American
Revolution sponsored a commemorative plaque. In 1953, members of the Veterans of Foreign
Wars (VFW) sponsored the first “Huck Finn Day” fishing contest and pageant that included a
march between the fishing pond and the bandshell. The annual event continued for most of the
1950s. “Santa Claus” events for children included crowning a “yule queen” or “Miss Noel”26
and the “lots” west of the Municipal Building were used for community bonfires celebrating
Twelfth Night.27
The late 1960s and early 1970s saw a decline in the maintenance of the park, and multiple
areas were fenced off, and the park closed for periods of time due to clashes between park
users and the police. During the summer of 1969, Sunday concerts in Central Park welcomed
“straights, hippies and unclassified” to “truck on down to the park.”28 Theatre in the Park
formed in the 1970s specifically to present live performances in the bandshell that
incorporated ambient and spontaneous noises of Central Park and surrounding streets.29 The
1970s also saw rallies and protests including a Chicano rally protesting police brutality and
25 “Boulder Summer Recreation Plans Include Swimming, Tennis Lessons.” May 14, 1948. The Owl - BHS, Volume 34, Number
26.
26 “Jingle Bell Miss Merry Christmas To Maintain Festive Tradition of Yuletide Season.” November 30, 1962. The Owl - BHS,
Volume 49, Number 10.
27 “Tonight's Rally Features Bonfire and Snake Dance Cheerleaders to Lead Yells This Evening Directly West of the Municipal
Building.” March 5, 1954. The Owl - BHS, Volume 40, Number 21.
28 “Sunday In The Park.” March 26, 1969. Colorado Daily - University of Colorado Boulder, Volume 17, Number 108.
29 Kaiser, Kathy. “Free plays held in Central Park.” June 17, 1974. Colorado Daily - University of Colorado Boulder, Volume 23,
Number 8.
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racism in 1969;30 Martin Luther King Memorial Vigil in 1971;31 a candle-lit march
commemorating the 17th Anniversary of the atomic bombing of Nagasaki, Japan in 1972;32
and bicycle rallies to demand safer bicycling.33 In 1972, Mahatma Krishnasukanand used
“inspiring words” to “raise the vibration of Central Park.”34 A few months later, The World
Family Church sponsored a community fair that spanned the length of the creek park from the
public library to Central Park.35
2. Distinction in the Development of the Community of Boulder:
This is the most applicable to institutions (religious, educational, civic, etc.) or business area,
though in some cases residential areas might qualify. It stresses the importance of preserving
those places which demonstrate the growth during different time spans in the history of
Boulder, in order to maintain an awareness of our cultural, economic, social or political
heritage.
Summary: The proposed district has significance as the geographic focus of the community-
led movement to eliminate the mining-centric industry and direct Boulder toward a health,
education and tourist-based economy. Through the 1950s, Central Park was the location for
events that civic leaders of the time considered physically and “morally” healthful and would
develop a desirable community. The placement of the municipal resources after 1951
demonstrates the growth of the municipal identity of Boulder. A boom in population created
conflict between those nostalgic for the “pioneer days” and counterculture advocates wanting
to confront “the establishment” embodied in the municipal area.
30 “Chicanos Rally at Fountain March to Police Station.” September 8, 1969. Colorado Daily - University of Colorado Boulder,
Volume 18, Number 6.
31 “Storm chills King vigil, cuts turnout.” April 5, 1971. Colorado Daily - University of Colorado Boulder, Volume 19, Number
124.
32 “Nagasaki memorial plans” August 9, 1972. Colorado Daily - University of Colorado Boulder, Volume 20, Number 172.
33 Ham, Richard G. “Bikeways.” April 23, 1971. Colorado Daily - University of Colorado Boulder, Volume 19, Number 138.
34 “Go Beyond Your Mind.” September 6, 1972. Colorado Daily - University of Colorado Boulder, Volume 21, Number 4.
35 Photo caption. September 26, 1972. Colorado Daily - University of Colorado Boulder, Volume 21, Number 18.
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Elaboration: Prior to the formation of Boulder, Colorado’s First Peoples relied on the natural
environment of the creek and creek-side land. Indigenous knowledge, oral histories, and
languages handed down through generations shaped profound cultural and spiritual
connections. These connections are sustained and celebrated to this day. Land within the
proposed district is considered sacred to the First Peoples and is associated with cultural
beliefs, customs, and practices rooted in the community’s history and collective historic
identity.
After the formation of Boulder in 1859, distinct areas of residences and commercial interests
developed adjacent to Boulder Creek. As the city grew, this area was the focus of the
community-led movement to eliminate the mining-centric industry and direct Boulder toward
a health, education and tourist-based economy: It uniquely demonstrates the growth of the
municipal identity of Boulder.
The working-class residents that lived in the area and much of the industry were considered
counter to the health, education and tourist-based image that the “civic improvers,” including
the Boulder City Improvement Association (BCIA), promoted. The BCIA hired Frederick
Law Olmsted, Jr. in 1910 to write a report on The Improvement of Boulder.36 The report
proposed a park along Boulder Creek and to “group together main public buildings of a city.”
Using the Olmsted report to validate and justify the displacement, residences and commercial
interests were systematically removed by the city.
The proposal for parkland along Boulder Creek was refined in Olmsted Brothers plans
developed 1917-1923 and published in 1923 37 in The Improvement of Boulder Creek in
36 Olmsted, Jr. Frederick Law. The Improvement of Boulder, Colorado. Brookline, Mass., 1910. Google Books:
https://www.google.com/books/edition/The_Improvement_of_Boulder_Colorado/Qx4UMxP33pUC?hl=en&gbpv=1&pg=PP9&pr
intsec=frontcover
37 Olmsted Plans and Drawings Collection “Olmsted Job #3300 Boulder, Colorado Improvement Association Boulder, CO Plan
#3300-63 City of Boulder Preliminary Plan of Proposed Park Improvements Along Boulder Creek OBLA, October 1923.”
National Park Service, Frederick Law Olmsted National Historic Site.
https://www.flickr.com/photos/olmsted_archives/35378272173/in/album-72157683458369472/
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Boulder, Colorado.38 By 1925 much of the land to create the park had been purchased by the
city, but when a funding proposal failed to win community support the park itself was never
formally created. Instead, BCIA volunteers, led by William Baird, planted trees and shrubs
and graded the paths to create the park they considered worthy of Boulder’s new health,
education and tourist-based image.
The area was modified by 1932, and the “improvements” identified on a map created by
George Hubbard (city surveyor and building inspector) for a Daily Camera article on Dec. 31,
1937. These amenities illustrate the slight shift in public sentiment and community needs: in
addition to open lawns and gardens around which to promenade, the park included active
recreation spaces like tennis courts and a softball field.39 Through the 1950s, the area was used
for recreation to keep both mind and body healthful.
The post WWII years in Boulder saw huge population growth. The general shift in the type of
events held in the park and the proposed addition of monuments and memorials show a
community nostalgic for “pioneer days” and simpler times. The construction of municipal
resources including the “city hall” in 1952, which housed the police station and jail, newly
centered the municipal identity of Boulder in the area. Through the 1950s and 1960s,
counterculture advocates wanting to confront “the establishment” clashed with the nostalgia of
the area, culminating in the vandalism of Central Park’s train “Memorial to Boulder’s Railroad
and Mining Pioneers” in 1958.
By the late 1960s, the area was firmly established as the municipal center of Boulder. As
downtown was termed “decaying” and complaints about “hippies” living in Central Park rose,
Boulder’s voters were asked to decide whether to redevelop Central Park with a second
municipal building, exhibition hall, conference center, auditorium, science museum, and
38 Olmsted Brothers. The Improvement of Boulder Creek in Boulder, Colorado. Brookline, Mass., 1923. Files; 3302; Boulder
Creek; Boulder, Colo., 1917-1924. Olmsted Associates Records: Job Files, 1863-1971. Library of Congress, Washington, DC.
Page 76-86: https://www.loc.gov/resource/mss52571.mss52571-02-186_0383_0484/?sp=76&st=image
39 “Photo 4 - Boulder from Flagstaff Mountain taken 1937 or early 1938. 1933 courthouse at left center, Valmont Power Plant
visible in the distance. Identified buildings are listed on the reverse of the photo.” C. 1937. Boulder Historical Society/Museum of
Boulder. https://localhistory.boulderlibrary.org/islandora/object/islandora%3A67946
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theater. The bond issue failed and Boulder retained the institution of a public gathering space
anchored by municipal buildings.
3. Recognition by Authorities:
If a number of structures are recognized by Historic Boulder, Inc., the Boulder Historical
Society, local historians (Barker, Crossen, Frink, Gladden, Paddock, Schoolland, etc.) F.L.
Olmsted, or others in published form, as having historical interest or value.
The proposed district includes five structures that have been previously designated as
individual landmarks, recognizing their historic, architectural and environmental significance.
In addition, the area has previously been considered potentially eligible for designation as a
historic district.
Previous determinations include: Glen Huntington Bandshell (eligible for listing in the
National Register of Historic Places (1995, 2016, 2022); Atrium Building (Eligible for the
State Register, 2000), Penfield Tate II Municipal Building (eligible for the State Register,
2000; recognized in the December 1953 issue of Progressive Architecture), the Boulder–
Dushanbe Teahouse (eligible for the National Register, 2005).
Additionally, the Greenways Plan (2011) identifies Central Park as eligible for listing in the
State and National Registers with comment “possibly eligible as component of a historic
district”40 and a 2001 Historic Resources Survey Report prepared for the State Historic
Preservation Office identified Central Park as a “cultural landscape.”41
4. Date of Construction:
This area of consideration places particular importance on the age of the structure.
40 City of Boulder. Greenways Plan, 2011. https://bouldercolorado.gov/media/407/download?inline. Pg 116.
41 Hermsen Consultants. “Historic Resources Survey Report: Broadway Reconstruction, Boulder, Colorado.” October 2001.
Prepared for State Historic Preservation Office.
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Summary: While the history of the site extends beyond the late 19th century, key dates
within the proposed district include 1871 (construction of the Boulder Slough), 1906
(construction of the Storage & Transfer Building), 1925 (design and initial grading of Central
Park), 1938 (construction of the Bandshell), 1950 (Amphitheater seating), 1951 (construction
of the Municipal Building), 1969 (construction of the Atrium Building) and 1998 (placement
and dedication of the Dushanbe Teahouse).
Elaboration: Grading of Central Park began in late summer, 1924 42 and the park’s paths
creating diagonal circulation patterns laid down by 1925.43 Between 1925 and 1938 the area
developed informally as the city acquired additional land. Volunteers planted trees that
included elm, oak, mountain ash, hawthorn, crab-apple, and pine.44 William Baird donated a
white oak, and Mrs. Cheney and Eben G. Fine each donated red oaks.45
The bandshell was added to Central Park in 1938, and the area re-landscaped the following
year, removing the perimeter hedges and adding a small lawn for seating in front of the
bandshell. By 1940, 13th St. and the northeast side of Broadway included a sidewalk and
boulevard of trees. Volunteers continued to modify Central Park, adding picnic benches and a
water fountain in 1942 (no longer extant).
A multi-year plan for relocating the municipal seat to the area was developed by Saco R.
DeBoer and adopted by City Council in 1945. Implementation of the plan began in 1950 with
the installation of an amphitheater seating at the bandshell. Construction on the new city hall
(called the Municipal Building after 1952) began the following year after delays due to costs.
The “master plan” included new circulation paths from the recreation areas west of the
Municipal Building through Central Park. The City placed the train car monument next to the
Boulder Slough in 1953. A honey locust tree was donated by Boulder High Students to
42 “Local News.” July 28, 1924. Boulder Daily Camera, Number 114.
43 “Boulder City Park from 12th Street bridge.” 1925. Call number BHS 141-2-48. Boulder Historical Society/Museum of Boulder.
https://localhistory.boulderlibrary.org/islandora/object/islandora%3A30084
44 “Field Trip Is Made By Geography Class.” April 5, 1937. The Prep Owl - BHS, Volume 24.
45 “Local Personal News.” May 10, 1924. Boulder Daily Camera, Number 48.
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commemorate the tenth anniversary of the United Nations and planted in the lawn in front of
the Municipal Building in 1955.46 The lawn area was re-landscaped in 1958.47
In 1961, the tennis courts, softball lots, and remaining building to the west of the Municipal
Building were removed to create the municipal mall (no longer extant) and parking lot to
connect the Municipal Building to the public library (constructed 1961). The City broke
ground on an addition to the west side of the municipal building in 1962.
The construction of the Midland Federal Savings and Loan bank branch (Atrium Building) in
1969 further established the streetscape character along 13th Street.
ARCHITECTURAL SIGNIFICANCE:
The district should portray an environment in an era of history characterized by distinctive
architectural periods or styles; embody those distinguishing characteristics of an architectural type
specimen, a good example of the common; include the work of an architect or master builder, known
nationally, state-wide, or locally, and perhaps whose work has materials or craftsmanship which
represent a significant innovation; or include a fine example of the uncommon.
Summary: The proposed historic district’s architectural significance includes multiple
significant works by notable architects, landscape designers, builders, and urban planners
representing a progression of styles.
1. Architectural Identity:
The area should display common characteristics or continuity, and represent a distinguished
entity that possesses integrity of appearance, and/or feeling (mood).
The area is unique for its inclusion of a variety of distinct architectural styles spanning the
twentieth century. The district’s architectural identity is unified by its setting, mass, scale and
use of simplified geometric forms. The five individually landmarked buildings retain a high
degree of integrity.
46 “BHS Students Give Donations for Tree.” December 9, 1955. The Owl - BHS, Volume 42, Number 12.
47 Photo caption. Aug. 1, 1958. Daily Camera, Boulder.
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Its character is defined by an urban park along the banks of Boulder Creek and bounded by
major throughfares, with municipal buildings situated along the park edge. The Atrium
Building, completed in 1969 and used as city offices for nearly 40 years, and the construction
of the Boulder–Dushanbe Teahouse in 1998 contribute to the area’s historic character.
2. Recognized Period(s)/Style(s):
It should exemplify specific elements of an architectural period/style, or contain good
examples of more than one period/style, thereby preserving a progression of styles; i.e.:
Victorian Revival styles, such as described by Historic American Building Survey Criteria,
Gingerbread Age (Maass), 76 Boulder Homes (Barker), The History of Architectural Style
(Marcus/Tiffin), Architecture in San Francisco (Gebhard et al), History of Architecture
(Fletcher), Architecture/Colorado (Thorsen et al) and any other published source of
universal or local analysis of “style”.
The district uniquely exemplifies distinct architectural and landscape styles spanning the
twentieth century.
• The Storage & Transfer Building, constructed in 1906, is an example of the 19th
century commercial style.
• Central Park, designed by Frederick Law Olmsted Jr. in 1924 and modified by Saco
DeBoer’s 1938 design, including the construction of the Bandshell, reflects planned
and natural site characteristics representative of the 1938-1974 era.
• The Bandshell, designed by Glen Huntington and completed in 1938, is a rare example
of the Art Deco style in Boulder.
• The Penfield Tate II Municipal Building, designed by James Hunter and completed in
1952, is an example of the International Style. Hobart Wagener’s 1962 addition was
designed in the Formalist style.
• The Atrium Building, designed by Hobart Wagener in 1969, is an example of the
Rustic Modern style.
• The Boulder–Dushanbe Teahouse is an exceptional example of a Central Asian (Tajik)
Teahouse and reflects the political climate at the time.
The Bandshell, Municipal Building, and Atrium Building reflect progressive and forward-
looking styles and are significant for their association with the development of the
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Modern movement in architecture in Boulder. As a whole, this area represents an eclectic
municipal character that is unique to Boulder’s history, location and climate.
3. Architect(s) or Builder(s) of Prominence:
A good example of the work of architect(s) or builder(s) recognized for expertise nationally,
state-wide or locally.
The district includes works by the following notable architects and designers:
• Frederick Law Olmsted, Jr., considered the forefather of the procession of landscape
architecture in the United States,48 authored the 1910 report, “Improvement of the
Boulder, Colorado,” which shaped not only this area in Central Boulder, but also
influenced the broader development of the community related to flood mitigation, city
planning and zoning. In 1924, his firm, Olmsted Brothers, designed plans for Central
Park, followed by a grading plan and planting plan.
• Saco R. DeBoer, Denver landscape architect and city planner, was commissioned in
1937 to select a site for the bandshell and design the landscaping around it. His designs
for the amphitheater seating were realized in 1950.
• Glen Huntington, locally prominent architect responsible for numerous historic
buildings, including the Boulder County Courthouse and the Huntington Arms.
• James Hunter, locally prominent architect who worked in Boulder between 1940 and
1973 and designed the Municipal Building (1777 Broadway; 1951), the Boulder Public
Library (1001 Canyon; 1961) and the Masonic Lodge (2205 Broadway, 1948);
• Hobart Wagener, locally prominent architect active in Boulder in the 1950s to the
1980s. Notable works include the Atrium Building (1300 Canyon; 1969), Fire Station
No. 2 (2225 Baseline Rd; 1958); the Green Shield Office Building (900 28th St.; 1959),
the Labrot House (816 6th St.; 1954) and the Methodist Student Center (1290 Folsom;
1957).
48 Kluas, Susan. Frederick Law Olmsted, Jr. https://olmsted.org/colleagues-firm/frederick-law-olmsted-jr/
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• Teahouse architect Lado Shanidze, master woodcarvers Manon Khaidarov and
Mirpulat Mirakhmatov along with plaster carver and painter Abdoukodir (Kodir)
Rakhimov and a team of artisans, including five woodworkers and seven painters,
worked for nearly four years to create the Boulder–Dushanbe Teahouse (1770 13th
St.), which was gifted to the City of Boulder in 1987; local architect Vern Seieroe
designed the rear addition to the Teahouse, and worked with Lado Shanidze to enclose
the building and design the site (1988-1999).
4. Artistic Merit:
A skillful integration of design, detail, material, and color which is of excellent visual quality
and/or demonstrates superior craftsmanship.
Central Park, including the Bandshell and its amphitheater seating, the Dushanbe Teahouse
displays high artistic value as seen in its intricately hand-carved and brilliantly painted wood
trim and decorative exterior “faïence” tile panels. The Atrium and the Municipal Building are
significant for the high quality of stone work.
5. Example of the Uncommon:
Elements of architectural design, detail, material, or craftsmanship that are representation of
a significance innovation.
Dushanbe Teahouse: The Teahouse ceiling was constructed using only traditional hand tools
and without any electric tools. The Teahouse is significant as the only “chaikhona” (Central
Asian/Tajik Teahouse) in the Western Hemisphere. The Bandshell is a rare example of the
Art Deco style in Boulder and one of only two in Colorado.
6. Indigenous Qualities:
A style or material that is particularly associated with the Boulder area.
Local stone is utilized in the design of the Penfield Tate II Municipal Building, Atrium
Building, and landscaping walls within Central Park.
ENVIRONMENTAL SIGNIFICANCE:
The district should enhance the variety, interest, and sense of identity of the community by the
protection of the unique natural and man-made environments.
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Summary: Its environmental significance for its planned and natural site characteristics, its
distinct character, and its prominence as an established and visual feature of the community.
1. Site Characteristics:
The site should be of high quality in terms of planned or natural vegetation, and streetscape
objects, i.e.: lighting, fences, sidewalks, etc.
The proposed district has environmental significance for its planned and natural site
characteristics, including:
• Spatial relationship of the civic buildings and Central Park
• Boulder Creek and the Boulder Slough
• Circulation Paths with the park creating a relatively flat central green
• Mature trees planted in groves and lining the perimeter of the park
• Views toward the Flatirons
• The Teahouse was sited as part of the City of Boulder’s 1993 Civic Park Master Plan, a
comprehensive plan of the civic use and public buildings in the downtown campus area.
Plans for the area placed the Teahouse at the center of the Civic Park Plaza which
included the Civic Plaza (north of the Teahouse site) used for Farmers Market exhibits
and performances and the 13th Street Community Plaza (the street west of the Teahouse
site) used for public events such as the Boulder Creek Festival and the Farmers Market.
Changes within the proposed boundary, including the replacement of the Broadway Bridge
(c. 2002), the addition of the Boulder Creek Path (1980s), tree and vegetation planting and
removal, removal of commemorative train cars, the establishment of the Sister Cities and
13th Street plazas, and the addition of small scale features including decorative boulders,
artwork and light fixtures, do not detract from the overall historic character of the area.
2. Compatibility with Site:
Consideration will be given to scale, massing, placement, or other qualities design with
respect to its site.
The scale, massing and placement of structures in the proposed district is generally defined
by one and two-story buildings surrounding a central urban park with mature trees and a
green lawn. The Municipal Building is a prominent visual feature, sited appropriately for an
important civic structure. The park surroundings provide an appropriate setting for the public
use of the buildings, and area complementary to their functions.
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3. Geographic Importance:
As an entity it represents an established and familiar visual feature of the community, having
unique and irreplaceable assets to the city or neighborhood.
The area is an established, familiar and prominent visual feature of the community, its
location near major thoroughfares. Situated prominently along Broadway, Canyon and
Arapahoe, major thoroughfares in Boulder, as well as 13th Street, a dedicated bike route
(named for advocate Al Bartlett).
CULTURAL LANDSCAPE ASSESSMENT FOR CENTRAL PARK
The Cultural Landscape Assessment (CLA) is a tool to assist in the analysis of the potential creation
of a district, particularly regarding the considerations of historic significance and integrity of a
designed landscape. The CLA was developed using the 1998 National Parks Service Guide to
Cultural Landscape Reports (link) and the full report is included in the Jan. 22, 2024 PRAB Packet,
page 76-137 (link).
The CLA found Central Park to have four periods of physical development:
• Historic Period 1: 1903-1922 Acquiring Land for Central Park
• Historic Period 2: 1923-1936 Olmsted Jr. Design for Central Park
• Historic Period 3: 1937-1973 Huntington and DeBoer Designs for Bandshell Seating
• Historic Period 4: 1970-2023 Modern Updates
To evaluate the significance of these periods of development, the CLA utilized the National Register
Significance Criteria:49
A) Association with historic events or activities,
B) Association with important persons,
C) Distinctive design or physical characteristics, or
D) Potential to provide important information about prehistory or history.
49 PART 60—NATIONAL REGISTER OF HISTORIC PLACES, Fed. Reg. (Nov. 16, 1981) (to be codified at 36 C.F.R. pt. 60).
https://www.law.cornell.edu/cfr/text/36/part-60
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Significance – Cultural Landscape Assessment
The CLA determined two of the periods to be historically significant based on these criteria: the
1923-1936 Olmsted Jr. design for Central Park and the 1937-1973 Huntington and DeBoer designs
for the bandshell seating. The CLA found the Olmsted, Jr. period to be significant under Criterion C
(design), “as the work of a recognized master, landscape architect Frederick Law Olmsted Jr.” The
CLA acknowledges the previous determination in the 1995 Bandshell study 50 (link), and concurred
the Huntington and DeBoer period is significant under “Criteria A (Events) and C (Design) for its
role in the social and cultural life of Boulder and the design improvements implemented between
1938 and 1950 by Glen Huntington and Saco Rienk DeBoer, including the bandshell, the
amphitheater, and the associated vegetation and grading.
Staff agree that the park has significance for its design and association with prominent designers,
and for its role in the social and cultural life of Boulder. P&DS staff also believe the period of
development prior to 1924 has historic significance, including its potential to provide important
information about prehistory or history. The CLA focused on the development of the park, and
research prior to 1903 was out of scope of the assessment.
Integrity - Cultural Landscape Assessment
The proposed district may be eligible for landmark designation if it meets the criteria outlined in the
Significance Criteria for Historic Districts (link). However, the proposed district must also retain
physical features that allow it to convey that significance. The National Park Service provides
standards 51 in the “aspects of integrity” that can be used to define whether a site retains enough
integrity to convey appropriate historical associations or attributes.
The historic integrity of an area relates to the ability of the landscape, buildings, sites and features to
convey their historical significance. Where the CLA and city’s local historic preservation code differ
50 Front Range Research Associates, Inc. Boulder Bandshell Historical Study. Prepared for the City of Boulder. 14 July 1995.
51 U.S. Dept. of the Interior. “National Historic Landmarks Glossary of Terms.” National Park Service. Accessed November 2022.
https://www.nps.gov/subjects/nationalhistoriclandmarks/glossary.htm
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on the criteria used to identify significance, both utilize the National Park Service Seven Aspects of
Integrity 52 in its assessment:
1. Location
2. Design
3. Setting
4. Materials
5. Workmanship
6. Feeling
7. Association
The CLA additionally evaluated Central Park’s landscape characteristics, including:
• Topography
• Vegetation
• Circulation
• Buildings and Structures
• Views and Viewsheds
• Land Use
• Spatial Organization
• Small-Scale Features (for the Huntington/DeBoer Period only)
Integrity Findings – CLA
The CLA summary of findings related to integrity includes:
“Over the past century the Central Park landscape has experienced changes that include:
• Physical changes to the landscape, such as the realignment and redesign of the vegetation
and circulation systems, and substantial regrading of the topography.
52 How to Apply the National Register Criteria for Evaluation. U.S. Department of the Interior National Park Service.
https://www.nps.gov/subjects/nationalregister/upload/NRB-15_web508.pdf
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• A change in use through the construction of the bandshell and its evolution as an activated
space for entertainment and performance.
These changes have resulted in a lack of historical integrity of design, materials,
workmanship, feeling, and association, which are needed for Central Park to convey its 1923-
1924 design and association with Olmsted Jr. The character of Central Park relating to the
Olmsted Jr.-era has been altered to the point where it is no longer visible in the landscape.
Both historic significance and historical integrity are required to meet eligibility thresholds
for listing in the National Register. While Central Park has its origins in the 1920s and the
Olmsted Brothers’ recommendations and designs for a park system in Boulder, it is no longer
able to tell that story through the existing landscape. As such, while the park’s history is
significant the lack of integrity in the landscape disqualifies the park as a whole for listing in
the National Register as the work of master landscape architect Olmsted Jr.
However, the northern portion of park is still able to convey its historic significance and
association with the 1938-1950 era of park development associated with Huntington and
DeBoer. Therefore, Central Park remains eligible for the National Register under Criteria A
and C for the period in which the bandshell and associated amphitheater seating were
designed and built (1938-1950). The area associated with these improvements is roughly
outlined in yellow in the graphic on page 3 of this memo; it does not constitute the full park
boundary as no evidence exists linking the southern portion of the park to the Huntington-
DeBoer improvements.”
STAFF ANALYSIS OF INTEGRITY
Methodology to Assessing Integrity of the Proposed Historic District
P&DS staff’s approach to the integrity analysis included:
• Researching the history of the area and assessing its historic, architectural and
environmental significance;
• Review of the CLA findings;
• Multiple site visits;
• Comparison of historic and current aerials, plans and photographs;
• Use of NPS guidance to assess the area’s integrity, based on its local historic, architectural
and environmental significance.
• Consultation with the State and National Register Historians at History Colorado to
review application of the guidance for determining integrity and boundary.
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Integrity Assessment – Proposed Historic District (1924-1937 Period)
P&DS staff agree with the CLA findings that the Olmsted, Jr. design of the park (1924-1937) does
not retain historic integrity due to the extent of changes over time. The following is an assessment
utilizing the National Park Service’s Seven Aspects of Integrity:
The location of Central Park has not changed.
The design of the park was substantially changed by the introduction of the bandshell in 1938 and
its seating in 1950, which interrupted the distinctive circulation pattern of diagonal walks that form a
central green. The paths no longer cross at the northern end of the park and the interior paths curving
from the northwest corner to the southeast corner of the park no longer exist. The Boulder Creek
path introduced pavement north of the Boulder Slough that reinforces the bisected condition of the
park and altered the paths along Boulder Creek at the southern end of the park to create the
Arapahoe Avenue underpass. While many mature trees date to this period, and the overall vegetation
pattern remains with mature trees along the perimeter and concentrated on the northeast, north and
eastern boundaries of the site, some of the trees have been removed or replaced with trees of a
different species. Shrub plantings have been planted around the Bandshell and its seating to help
define the space and create screening from outside of the park looking into the event venue. While
viewsheds toward the Flatirons are visible across the park green and along the perimeter of the park,
the Bandshell is a prominent visual feature constructed outside of the 1924-1937 period. Trees along
the Boulder Slough partially obstruct the view between the northern and southern portions of the
park.
Little material remains from the 1924-1937 period, except for the Boulder Slough infrastructure and
the light pilasters (reportedly part of the 1920s Broadway Bridge repurposed as park light fixtures
when the bridge was replaced in the early 2000s). The date of construction of the stone walls on the
western edge of the park along Boulder Creek is unknown and may date to the 1924-1937 period.
The paths have been repaved.
Little remains related to the workmanship of Central Park dating to the 1924-1937 period.
The Art Deco Bandshell has significantly altered the feeling of Central Park, as it is a prominent
feature visible both within the park and from the surrounding area. Its distinct 1930s design,
combined with the alteration of the original pattern of pathways, convey the sense of a later period
of time.
Central Park’s 1924 design is significant for its association with prominent landscape architect
Frederick Law Olmsted, Jr., however, as described above, the park today does not retain the physical
features to convey retain the integrity of association.
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Figure 2. Side-by-side images showing the planting plan for Central Park drawn by F.L. Olmsted,
March 1924 53 (left); an enlarged aerial photograph from 1938 54 (middle) of Central Park, 12th
Street (Broadway) on the left of the image and 13th Street on the right; and an image from 2023
(right) of Central Park and surrounding thoroughfares.
Integrity Assessment – Proposed Historic District (1938-1974 Period)
Planning & Development Services staff agree with the CLA finding that Central Park is significant
under National Register criterion A (events) and C (design) for the 1938-1973 period of
development. In addition, based on consideration of the local criteria above, the area as a whole
meets local designation criteria for its architectural, historic and environmental significance. Staff
considers that historic integrity is represented across the entire park, and not only the northernmost
portion, for this period, for the following reasons:
53 Courtesy of the United States Department of the Interior, National Park Service, Frederick Law Olmsted National Historic Site.
https://www.flickr.com/photos/olmsted_archives/29558307807/in/album-72157683458369472/
54 United States Forest Service. Aerial Photographs of Colorado. Boulder. May 8, 1938. Photograph.
https://cudl.colorado.edu//luna/servlet/detail/UCBOULDERCB1~17~17~33252~102550
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• DeBoer was commissioned to recommend the site of the bandshell and planned its
landscaping. In April 1937, he wrote “This is in regard to the matter of the location of a band
stand. I have checked over every possible site in the city, and I believe that Central Park is the
only location at the present time. With the location of the proposed City Hall in the [east] end
of the park, I would suggest that the band stand be located on the north line against the
railroad right of way, approximately in the middle of the park. If this site meets with your
approval, I shall draw up a sketch showing my ideas in regard to the treatment of the band
stand and the grounds around it.”
• As described in the 1995 Bandshell Historical Study 55 prepared by Front Range Research,
Associates, the bandshell was “specifically designed to be compatible with its site. As a
component of the central urban park, the Band Shell was situated to provide passersby with a
glimpse of the intriguing figures to be found within the park and encourage them to park their
cars and walk into the site. The Band Shell faces south toward Boulder Creek and away from
traffic on the thoroughfare on the northern edge of the park. The scope of the Band Shell and
its associated seating area is in keeping with the size of the park and provides a comfortable
gathering space for concerts and other cultural entertainment and is and open air amenity
allowing users to enjoy the natural beauty of the park while attending the Band Shell
programs.”
• Central Park maintains its original boundary from its formal establishment in 1924 to
encompass a roughly four-acre area bound by Canyon Boulevard, Arapahoe Avenue,
Broadway and 13th Street. The bandshell was designed for its setting within Central Park, and
features of the full park in DeBoer’s sketches have similar characteristics to the Olmsted Jr.
1924 plan with perimeter trees, contiguous circulation located on the outside of the park and
open lawn.
• The public function of Central Park and the surrounding municipal buildings and public
spaces is historically significant and reflects the changing social, cultural and political
activities of the Boulder community. Following the construction of the bandshell in 1938,
Central Park became a focal point for social activities, typically based around musical or
religious activities. During the 1950s and early 1960s, events in Central Park became more
55 Front Range Research Associates, Inc. Boulder Bandshell Historical Study. Prepared for the City of Boulder. 14 July 1995.
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nostalgic, including singalongs, the community-funded purchase of railcars as a memorial to
“Boulder Pioneers”, an annual “Huck Finn Day,” and Christmas programs. Events in the late
1960s and early 1970s included experimental theater groups that presented live performances
in the bandshell that incorporated ambient and spontaneous noises of Central Park and
surrounding streets 56, protests and vigils including a Chicano rally protesting police brutality
and racism in 1969;57 Martin Luther King Jr. Memorial Vigil in 1971;58 a candle-light march
commemorating the 17th Anniversary of the atomic bombing of Nagasaki, Japan in 1972;59
and bicycle rallies to demand safer bicycling.60
Consideration of the area’s eligibility for designation as a local historic district, the assessment of its
integrity is based on its historic, architectural and environmental significance. The proposed historic
district retains integrity to the 1938-1974 period of development as described below:
The location of Central Park and the five landmarked structures has not moved since their
establishment and therefore retains excellent integrity of location.
The setting of the Civic Area is integral to its significance. Located at the prominent intersections of
Broadway, Canyon, 13th and Arapahoe, the area is centrally located and is a prominent and visual
feature of the community. The view of the Flatirons directly influenced its landscape and
architectural designs and provides a mountain backdrop to the urban park, municipal structures, and
the public spaces in between. Two waterways remain prominent features of the area: Boulder Creek
creates the southwesterly edge of the park and runs south of the Penfield Tate II Municipal Building,
and the Boulder Slough bisects the central green of the park and runs north of the Boulder-Dushanbe
Teahouse. Additionally, the integrity of the five landmarked structures within the proposed
boundary remain high and contributes to the area’s integrity of setting. Staff considers the changes
56 Kaiser, Kathy. “Free plays held in Central Park.” June 17, 1974. Colorado Daily - University of Colorado Boulder, Volume 23,
Number 8.
57 “Chicanos Rally at Fountain March to Police Station.” September 8, 1969. Colorado Daily - University of Colorado Boulder,
Volume 18, Number 6.
58 “Storm chills King vigil, cuts turnout.” April 5, 1971. Colorado Daily - University of Colorado Boulder, Volume 19, Number
124.
59 “Nagasaki memorial plans” August 9, 1972. Colorado Daily - University of Colorado Boulder, Volume 20, Number 172.
60 Ham, Richard G. “Bikeways.” April 23, 1971. Colorado Daily - University of Colorado Boulder, Volume 19, Number 138.
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to the park and public spaces, including the introduction of and improvements to the Boulder Creek
Path and the realignment of paths within Central Park do not detract from the overall setting and
feeling associated with the district’s historic significance.
The spatial relationship between Central Park and the surrounding municipal buildings retains a high
degree of integrity of design. Defining design characteristics of the district include but are not
limited to the urban street grid of Broadway, Canyon Boulevard, Arapahoe Avenue and 13th Street;
the park with its central green with trees planted in groves and along the perimeter of the park;
Boulder Creek and Boulder Slough as prominent water features; five architecturally distinct
structures in and adjacent to the park, many of which were designed and sited in relation to their
park setting.
The district’s historic workmanship is evident in the integration of art and architecture in the
Boulder-Dushanbe Teahouse, the high quality of masonry in the construction of the Atrium Building
and the Penfield Tate II Municipal Building, and the construction of the bandshell and its seating.
The district retains its integrity of materials. The five existing landmarks retain their historic
material, with the exception of the Bandshell, which was rebuilt in 1995 using the same materials.
However, that alteration does not diminish the structure’s historic integrity.
The district retains sufficient integrity to convey its feeling of a historic urban park surrounded by
unique structures representing distinct architectural styles and periods.
As a result of the area’s historic physical features described above, the district retains historic
integrity to convey its association with the design of the park during the 1937-1974 period, and the
numerous social, cultural and political activities that occurred within the park and the surrounding
public spaces.
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Figure 3. Aerial photograph from 1958 showing Central Park with the Bandshell and seating (top center
of image), Broadway and the Municipal Building (left side), 13th Street and buildings on east side of 13th
Street (right side of image). City of Boulder.
Figure 4. Aerial photographs from 1972 (left) and corresponding image from 2023 (right) showing
Central Park with the Bandshell and seating at the center of the images, Broadway and the Municipal
Building with west addition (left side), 13th Street and the Atrium building (top right) on east side of 13th
Street. City of Boulder.
Summary of Integrity Assessment – Local Criteria
In conclusion, P&DS staff agree with the CLA findings that the Olmsted, Jr. design of the park
(1924-1937) does not retain historic integrity due to the extent of changes over time. P&DS staff
considers the proposed historic district retains its historic integrity of location, design, setting,
materials, workmanship, feeling and association from the 1938-1974 period of development.
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DESIGNATION ORDINANCE
The designation ordinance may identify important aspects of the district. Section 9-11-6 (c) B.R.C.
1981 provides the following guidance on the designation ordinance:
Ordinance Designating Landmark or District: In each ordinance designating a landmark or
historic district, the city council shall include a description of characteristics of the landmark or
district justifying its designation, a description of the particular features that should be preserved,
and the location and boundaries of the landmark site or district. The council may also indicate
alterations that would have a significant impact upon or be potentially detrimental to the
landmark site or the district.
Prior to City Council review, staff will draft an ordinance describing particular features within the
district that should be preserved and identify alterations that would have a significant impact or be
potentially detrimental to the district.
PRELIMINARY PERIOD OF SIGNIFICANCE AND CHARACTER-DEFINING FEATURES
Period of significance is the length of time when a property was associated with important events,
activities or persons, or attainted the characteristics which qualify it for National Register listing.61
National Register Bulletin 16 provides the following guidance on determining the period of
significance for a historic district: Usually begins with the date when significant activities or events
began giving the property historic significance; this is often a date of construction.
• For properties associated with historic trends, such as commercial development, the
period of significance is the span of time when the property actively contributed to the
trend.
• The property must possess historic integrity for all periods of significance entered.
• Continued use or activity docs not necessarily justify continuing the period of
significance. The period of significance is based upon the time when the property made
the contributions or achieved the character on which significance is based.
• Fifty years ago is used as the closing date for periods of significance where activities
begun historically continued to have importance and no more specific date can be defined
61 NPS Bulletin 16. https://www.nps.gov/subjects/nationalregister/upload/NRB16A-Complete.pdf. Pg 42.
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to end the historic period. (Events and activities occurring within the last 50 years must be
exceptionally important to be recognized as "historic" and to justify extending a period of
significance beyond the limit of 50 years ago.)
The recommended preliminary period of significance for the district is from 1938 (when the existing
historic character of Central Park was established through designs by Saco DeBoer and Glen
Huntington) to 1974, a date fifty years in the past. During the period of significance, city leadership
intentionally developed the area as a municipal center, physically anchoring it with modern
architectural structures which, in turn influenced the civic use of the park and spaces between the
buildings.
While periods prior to 1938 are historically significant, including the earlier park planning and
design (1903-1923; 1924-1937), the residential, commercial and industrial period (1880-1903); and
the Indigenous history since time immemorial, the area no longer retains its historic integrity
(physical features to convey that time) to justify an earlier period of significance. Opportunities to
represent the area’s earlier history is encouraged by Draft Guiding Principle #4 (see Attachment E:
Draft Design Guideline Framework): “The area is significant for its association with Boulder’s
municipal, social and political history. As part of Boulder’s Civic Area, this district continues to
have a symbolic, geographic, and functional importance and therefore should serve as an inclusive
place where all feel welcome. Celebrate the diversity of our community and enrich our collective
understanding of different periods of Boulder’s history by acknowledging stories of historically
excluded populations.”
If the Landmarks Board recommends designation, Contributing and Non-Contributing features will
be finalized between Landmarks Board and City Council review,. A preliminary list of features
includes:
The open and natural character of Boulder Creek, the Boulder Slough (though changes within the
easement do not require historic preservation review), the urban street grid, each of the five
individually landmarked structures and their settings, Central Park’s open green with trees planted
in groves and along the perimeter of the park, and the two State Champion Trees.
Individually significant features outside the preliminary 1938-1974 period of significance include
the Storage & Transfer Building (1906) and the Boulder-Dushanbe Teahouse (1987-1988; 1997-
1998).
A preliminary list of non-contributing features includes the Sister Cities and 13th Street Plaza
(including paving, artwork and stone walls), the Boulder Creek Path and associated bridge and
railings, Broadway Bridge (reconstructed c. 2003), light fixtures and engraved boulders, the Gilbert
White Flood Memorial, and the B-Cycle stations.
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PRELIMINARY DISTRICT NAME AND BOUNDARY
District Name
The application received on May 30, 2023 proposed the historic district be named the Civic
Center/City Park Historic District. Staff recommends the historic district be known as the Civic
Area Historic District, to reflect the commonly known name of the area, and encompass a broad
history and significance.
District Boundary
The Boulder Revised Code describes a contiguous historic district as an “area containing a number
of sites, buildings, structures or features having a special character and historical, architectural or
aesthetic interest or value and constituting a distinct section of the city.” Section 9-11-2(a)(2) B.R.C.
1981. P&DS staff additionally utilize the guidance in National Register Bulletin 16: Defining
Boundaries for National Register Properties (link) in the analysis for determining historic district
boundaries. The bulletin provides the following summary:
Select boundaries that encompass the single area of land containing the significant
concentration of buildings, sites, structures, or objects making up the district. The district's
significance and historic integrity should help determine the boundaries. Consider the following
factors:
• Visual barriers that mark a change in the historic character of the area or that break the
continuity of the district, such as new construction, highways, or development of a
different character.
• Visual changes in the character of the area due to different architectural styles, types or
periods, or to a decline in the concentration of contributing resources.
• Boundaries at a specific time in history, such as the original city limits or the legally
recorded boundaries of a housing subdivision, estate, or ranch.
• Clearly differentiated patterns of historic development, such as commercial versus
residential or industrial.
Boundary Proposed in Current Application
The application received on May 30, 2023 (link) requested the designation boundary encompass the
area west of the Penfield Tate II Municipal Building (1777 Broadway) to the west side of 14th Street,
and from the south side of Canyon Blvd. to the north side of Arapahoe Avenue, excluding the
privately owned buildings at 1201 Arapahoe Ave. and 1724 Broadway (Yocom Building); and the
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buildings on 13th Street south of the City Storage and Transfer Building (a combination of city-
owned and privately-owned parcels).
Figure 5. Historic district boundary proposed by the applicants outline in black on a Google
Map image that identifies contemporary features and businesses in the area.
The applicants provided the following boundary justification in their application:
“This boundary incorporates five landmarked city-owned properties, the full extent of the
historic Central Park, and the plaza between the Teahouse and the Atrium Building. The
proposed historic district provides area integrity by combining these significant properties in a
cohesive whole and celebrates the sense of place. The proposed boundary intentionally includes
the parking lots to the east of the Atrium Building, Teahouse, and the City Storage and Transfer
buildings. Proposed development on these properties should be reviewed for potential impact
on the historic structures and features. The applicants do support change here that is
sympathetic and respectful to the adjacent historic buildings, especially as the city begins to
repurpose their buildings.”
Boundary Recommended by Cultural Landscape Assessment
The CLA finds Central Park is significant for two periods (1923-1936 Olmsted Jr. Design for
Central Park and 1937-1973 Huntington DeBoer Design) but that only the northern portion of the
site (currently designated as a local landmark), retains integrity. The Peer Review Draft Central Park
CLA Report, states the area associated with the 1938-1950 improvements “does not constitute the
full park boundary as no evidence exists linking the southern portion of the park to the Huntington-
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DeBoer improvements. Therefore, a boundary encompassing only the northern 170 feet of Central
Park is recommended to be included as part of a historic district.
Figure 6. Boundary related to Central Park recommended in the Cultural Landscape
Assessment (CLA) outlined as a dashed red line on an aerial image; contemporary property
lines are shown in thinner solid red lines. The CLA recommended boundary includes the
Bandshell, amphitheater seating and northernmost 170 ft of Central Park.
Boundary Recommended by P&DS Staff
P&DS staff recommend the historic district boundary encompass the area west of the Penfield Tate
II Municipal Building (1777 Broadway) to the east edge of the landmark boundaries for the Atrium
Building (1300 Canyon Blvd.), Boulder-Dushanbe Teahouse (1770 13th St.) and the Storage &
Transfer Building (1750 13th St.), including the 13th Street Plaza, and from the south side of Canyon
Blvd. to the north side of Arapahoe Avenue, excluding the privately owned buildings at 1201
Arapahoe Ave. and 1724 Broadway (Yocom Building) and the buildings on the east side of 13th
Street south of the City Storage and Transfer Building (a combination of city-owned and privately-
owned parcels). The recommended boundary includes the extent of 13th Street between Canyon and
Arapahoe Avenue, and the parking area between the Atrium Building and Canyon Boulevard. The
proposed boundary would follow the midline of Boulder Creek. Staff considers this boundary to
meet the NPS guidance, in that it:
• Contains the significant concentration of contributing buildings and sites: the five designated
landmarks and Central Park.
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• Central Park retains its original boundary from its formal establishment in 1924, and
the full extent of the park is historically significant for its social, cultural and political
use within the 1938-1974 period of significance.
• Utilizes Canyon and Arapahoe as visual barriers that break the continuity of the district (note,
Broadway has historically bisected Boulder’s civic center);
• Includes portion of 13th Street
• Includes the parking area between the Atrium and Canyon
• Follows the rear of the existing landmark boundaries of the contributing buildings along 13th
to recognize the decline of concentration in the contributing resources.
• No buildings or features within the period of significance exist today, and the parking
lot itself is not historic. Inclusion of the parking lot as a “buffer” is discouraged by
NPS guidance.
• The southern boundary follows the mid-line of Boulder Creek, a contributing feature and
visual barrier.
Figure 7. Proposed historic district boundary recommended by staff shown as a solid blue line.
Existing landmarks are shown as the blue shaded areas with a dashed blue outline.
Contemporary property lines are outlined with a solid red line.
While this boundary includes areas, such as parts of Central Park, Broadway and 13th Street
that are non-contributing, the grouping as a whole achieves significance within its historic
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context and the majority of the components that add to the district’s historic character possess
integrity.
DRAFT DESIGN GUIDELINE FRAMEWORK
The Landmarks Board adopts design guidelines as administrative regulations to help facilitate the
review of proposed changes within a district. While the guidelines allow for flexibility and
interpretation, all approvals must be consistent with the standards found in Section 9-11-18, B.R.C.,
1981. If the Civic Area Historic District is designated, specific design guidelines would be
developed to recognize the unique character of the area. These guidelines can be different for
different parts of the district based on contributing and non-contributing features.
Staff formed a technical advisory group to involve the application group and city departments in the
development of a framework for the draft design guidelines. Comprising representatives from
Community Vitality, Facilities & Fleet, Parks & Recreation, Planning & Development Services and
Public Works – Utilities, and representatives from the three applicant groups, the Technical
Advisory Group met over the course of three meetings to create a draft design guideline framework.
Representatives from other city departments, City Manager’s Office, City Attorney’s Office,
Community & Engagement, Transportation & Mobility, chose to review the draft design guideline
framework once complete rather than participate in the technical advisory group.
The framework (see Attachment E: Draft Design Guideline Framework) includes the intent and
scope of the design guidelines, preliminary Table of Contents, and guiding principles. Staff chose to
postpone the development of full design guidelines until after a final decision was made on the
designation. The intent of the framework is to provide direction for reviewing alterations and for the
development of district-specific design guidelines, should the district be designated.
The framework for the proposed historic district is attached for review. If the City Council
designates the historic district, a separate project will commence to develop district-specific design
guidelines with additional opportunities to provide input on and refine those guidelines prior to
adoption, per Chapter 1-4 “Rulemaking” and Chapter 9-11-24 “Landmarks Board and City Manager
Authorized to Adopt Rules”..
PROPOSED FINDINGS
The Landmarks Board finds, based upon the application and evidence presented, that the proposed
historic district designation is consistent with the purposes and standards of the Historic Preservation
Ordinances Sections 9-11-1 and 9-11-2, B.R.C. 1981, in that:
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1. The designation of the Civic Area Historic District will protect, enhance, and perpetuate an
area reminiscent of a past era of history and preserve important examples of Boulder’s
historic architecture and site of historical interest.
2. The proposed designation will maintain an appropriate setting and environment for the site,
and enhance property values, stabilize the neighborhood, promote tourist trade and interest,
and foster knowledge of the city’s living heritage.
NEXT STEPS
Within 45 days of the hearing date, the Landmarks Board must adopt specific written findings and
conclusions approving, approving with modifications, or disapproving the application. If the board
approves or disapproves the application, the board must notify the City Council of its action within
30 days of the hearing date. City Council may call up a decision disapproving a designation.
Additionally, should the board approve the application, within forty-five days of that decision, the
Planning Board shall review the proposal and report to the City Council on its land use implications.
Should an application be disapproved, the same application may not be submitted for a period of one
year.
If the board finds that the proposed designation conforms to Sections 9-11-1 and 9-11-2, B.R.C.
1981, it shall adopt specific findings and conclusions approving or modifying and approving the
application. If the board approves the proposed designation, the application will be forwarded to the
Planning Board (within 45 days) and City Council (within 100 days) for review.
Tentative schedule:
• Feb. 20, 2024 – Planning Board (Land Use)
• March 21, 2024 – City Council, 1st Reading
• April 11, 2024 – City Council, 2nd Reading and Public Hearing
ATTACHMENTS
A: Tolling Agreement
B: Jan. 22, 2024 PRAB Meeting Summary
C: Public Input Received between October 16, 2023 and January 25, 2024
D: Letters Received between July 12, 2023 and January 29, 2024
E: Draft Design Guideline Framework
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DocuSign Envelope ID:4F4842B4-54A2-4304-B184-El1D780D9BC8
TOLLING AGREEMENT FOR CIVIC AREA HISTORIC AREA DESIGNATION
Friends of the Boulder Dushanbe Teahouse, a Colorado unincorporated nonprofit
association, Friends of the Bandshell, a Colorado unincorporated nonprofit association, and
Historic Boulder, Inc., a Colorado nonprofit corporation(together, the "Applicants"), and the
City of Boulder, a Colorado home rule municipality("City"), hereby enter into this Tolling
Agreement regarding Applicants' application to designate the Civic Area as a contiguous historic
district, number HIS2023-00081 (the"Application"). The City and Applicants may be referred to
singly as a"Party"or collectively as the "Parties."
RECITALS
A. On May 30, 2023, the City accepted the Application.
B. The City is the owner of the property proposed to be designated as a historic district in
the Application.
C. On July 12, 2023, the City of Boulder Landmarks Board(the "Board") held a public
hearing pursuant to section 9-11-3(b), B.R.C. 1981, and voted to initiate the designation
of the proposed historic district.
D. Section 9-11-4, B.R.C. 1981, establishes a public process prior to the Landmarks Board
designation hearing for historic districts.
E. Section 9-11-5(a), B.R.C. 1981,provides that after the completion of the steps required
by sections 9-11-3 and 9-11-4, the Board shall hold a quasi-judicial public hearing
Designation Hearing") on the proposal no fewer than 60 days and no more than 120
days after the initiating resolution is adopted, which would be between September 10
and November 9, 2023.
F. However, to provide time for the City to complete a Cultural Landscape Assessment
CLA) and the steps required in section 9-11-4, including the research and community
engagement necessary for a City-owned historic district, Applicants and the City have
determined that the timeline in which to hold the Landmarks Board Designation
Hearing described in section 9-11-5(a) should be extended by 90 days, from November
9, 2023 to February 7, 2024.
AGREEMENT
1.Based on these understandings and acknowledgements, the Parties agree that the
120-day deadline for the Designation Hearing shall be tolled 90 days. Taking into account
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DocuSign Envelope ID:4F4842B4-54A2-4304-B184-El1D780D9BC8
this tolling, the Parties agree that the deadline to hold a Landmarks Board Designation
Hearing shall be February 7, 2024.
2.The City agrees to schedule the Designation Hearing for February 7, 2024.
Applicants accept and agree to this schedule and agree to waive any legal objection or
claim that the Designation Hearing is required to take place at any earlier time.
3.The Parties agree that the mutual promises in this Tolling Agreement constitute
good and valuable consideration.
4.The Applicants agree not to raise any claims as to the invalidity or
unenforceability of all or any part of this Tolling Agreement.
5.The undersigned representatives of each Applicant certify that they are fully
authorized to enter into this Tolling Agreement and to legally bind the Applicant to all
terms and conditions. This Tolling Agreement shall be binding upon each Party and its
successors.
HISTORIC BOULDER,INC.
DocuSigned by:
Signature ylMV
Bob Muckle
Name:
President Historic Boulder Inc 8/22/2023
Title:Date:
FRIENDS OF THE BANDSHELL
Signature:
Name:
Title:Date:
FRIENDS OF THE BOULDER DUSHANBE TEAHOUSE
DocuSigned by:
Signature: -
Gf EDBfr7-5EEH74&._.
3oe Stepanek
Name:
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DocuSign Envelope ID:4F4842B4-54A2-4304-B184-E11D780D9BC8
Friends of the Boulder
Dushanbe Teahouse 8/23/2023
Title:Date:
CITY OF BOULDER
ATTEST: 1
City Manager
City Cler
APPROVED AS TO FORM:
Cit tt rney's ffice
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DUcuSign Envelope ID:4F484284-54A2-4304-8184-E11 D780D98C8
this tolling,the Parties agree that the deadline to hold a Landmarks Board Designation
Hearing shall be February 7,2024.
2. The City agrees to schedule the Designation Hearing for February 7,2024.
Applicants accept and agree to this schedule and agree to waive any legal objection or
claim that the Designation Hearing is required to take place at any earlier time.
3. The Parties agree that the mutual promises in this Tolling Agreement constitute
good and valuable consideration.
1
4. The Applicants agree not to raise any claims as to the invalidity or
j unenforceability of all or any part of this Tolling Agreement.
N
5. The undersigned representatives of each Applicant certify that they are fully
authorized to enter into this Tolling Agreement and to legally bind the Applicant to all
terms and conditions.This Tolling Agreement shall be binding upon each Parry and its
successors.
HISTORIC BOULDER,INC.
Signature:
Name:
Title: Date:
FRIENDS OF THE BANDSHELL
Signature:
v
Name:
Title i L n`as a p Date: 2-
7?
FRIENDS OF THE BOULDER DUSHANBE TEAHOUSE
Signature:
Name:
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PRAB Meeting Summary
Review of Proposed Civic Area Historic District
January 22, 2024
PRAB Board Members Present: Charles (Chuck) Brock, Jason Unger, Andrew (Bernie)
Bernstein, Anna Segur
Staff Present: Ali Rhodes, Scott Schuttenberg, Rosa Kougl, Mark Davison, Bryan Beary,
Jackson Hite, Regina Elsner, Jonathan Thornton, Jill Sobol-Kertz, David Choate, Tina Briggs,
Shihomi Kuriyagawa, Marcy Gerwing, Kristofer Johnson, Brad Mueller, Clare Brandt
In the preceding item, Davison presented an overview of the Central Park Cultural Landscape
Assessment (CLA) methodology and findings and answered questions from the board.
Rhodes and Mueller provided opening remarks. Gerwing presented an overview of the historic
district application. Rhodes, Mueller, Davison, Johnson and Gerwing answered questions from
the board.
Questions
•How would designation impact the Civic Area Phase 2 Park Planning project and any
future developments?
•Does anything change operationally with the park if it’s included in a historic district?
•Would designation impact services to the unhoused using the park?
•Would the parking lots along 14th Street be included?
•Why is the Atrium Building designated?
•What do you love about the park?
•Are there tax benefits to designating the park?
•Are there budgetary implications for the designation, i.e. in construction delays or
redesigns?
•Would designation lead to delays in permitting and approvals?
•Are there other benefits to the potential designation?
Comments
PRAB board members had a robust conversation to understand the potential benefits and impacts
of the proposed Civic Area Historic District designation.
At the end of the PRAB discussion on the proposed designation of the Historic District, a board
member requested an informal straw poll: The four members present all agreed that they do not
support designation of a historic district.
Their concerns can be summarized as thus:
o Lack of understanding of a unifying element or overarching theme that would explain
creating a district.
o Lack of support for additional protection and outsized input by one city board, given that
the buildings, bandshell and some areas of the park are already protected by designation.
Attachment B - PRAB Mtg Summary 1-22-24
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o Disagreement that potential benefits of designation outweigh the added process, time and
thus expense of a district.
The video section of the board chairs statement and the closing board remarks for the PRAB
meeting are:
• Recommendations from PRAB board members: 1:18:35
• PRAB Board Chair statement: 1:06:30
The link to the PRAB recording for the meeting is at:
https://bouldercolorado.gov/government/board-commission/parks-and-recreation-
advisory-board
Attachment B - PRAB Mtg Summary 1-22-24
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Public Input Received between October 16, 2023 and January 25, 2024
CIVIC AREA HISTORIC DISTRICT
Online feedback (as of Jan. 25, 2024)
The project website has hosted an online form since Oct. 16, 2023 for community members to
express their views on the proposed historic district.
Thirty-six people have provided feedback through this channel as of Jan. 25, 2024. The project team
recognizes that this is not a statistically valid sample for our community but it does reflect a range
of views. The online form asked whether people support a designation.
Out of the 36 respondents:
-36% support the designation
-44% do not support the designation
-19% are unsure if they support the designation.
The sections below summarize the main reasons provided as well as some supporting quotes. A
table with the full list of input received is also provided.
1.Out of those who support the designation, the following reasons have been provided:
-It’s good for business and for tourism.
-Preservation is a valuable goal for our cities
-This area represents the best of Boulder (besides the mountain backdrop)
-It will help improve safety and allow people to use the spaces currently dominated by the
unhoused and substance abusers
-Central park is important for community gatherings
-The history being told acknowledges the impacts on historically excluded peoples
“Such a district will act as a deterrent against the spread of any radical changes…”
“Perhaps this newfound designation could also help drive some of the seedier elements of that area out of
the downtown area (or at least to a place that is not so visible or beloved).”
“Why are we so eager to get rid of historical stories of Boulder? The Italians would never tear down an article
of Art or History.”
“Thank you to these organizations and the landmark committee for seeing the civic center as something that
should be protected.”
2.Out of those who do not support the designation, the following reasons have been provided:
-This area needs redevelopment and programming, not further restrictions.
-Parking lots are not historic. Affordable housing should be built on the parking lots.
-We need civic spaces that meet the needs of our community today.
-There is limited benefit of a district designation.
-The city should focus on other priorities.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
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- This is not aligned with the city’s equity and climate goals.
- Not worthwhile to pursue a district until issues of unhoused and public safety are
addressed in the area.
“There is no benefit to landmarking the parking lots and lawn areas around these already landmarked
buildings.”
“I think we can recognize the history without making this a historic district that would make future
improvements harder to complete.”
“The results are clear – landmarking these spaces has simply crystallized their nonfunctionality. Now it’s [the
bandshell] a relic that has little relevance to the performing arts.”
“..the plan seems aimed at preserving Olmsted’s exclusive version of this area…Why is his version of the use
of this land the one that gets preserved? …Why do three groups that don’t include the communities or people
with deeper historical ties to this area get to dictate the future of this area for generations to come?”
“If we are going to spend taxpayer money on this area, it should be done in a way that repairs past harms and
oppressions, rather than preserve them.”
“Please do not do this. It was a good intention in the past, but not now. Especially because the City owns and
manages the resources. Our Downtown needs more cultural interest and creative facilities that expand water
related experience, entertainment, art and robust and diverse markets. But a HD designation at this point is a
constraint.”
“Pointless to do this until the issues around homelessness and safety are addressed – otherwise the
designation is pointless window dressing and propaganda.”
“Are you spending all of this money for the homeless to have a beautiful place to occupy?”
3. Out of those who are not sure if they support the designation, the following reasons have been
provided:
- Need more information and understanding of the impacts
- Worried that significant public resources would be spent here with little return
- Skeptical that the collection of disjointed buildings warrants designation of a historic
district
- Would support if the use of current buildings can be reimagined
- Worried that the designation glosses over the presence of unhoused in the area and the
impact on safety and access to this area for the general public
- Worried that unless the challenges with the unhoused and substance abuse onsite are
addressed, the positive impacts of a historic district cannot be realized
- Desire for the city to prioritize public safety
“I oppose the idea if the inclusion of certain buildings within the proposed historic district will prevent the
possibility of replacing or reimagining some of the buildings within that district [reference Penfield Tate and
Atrium].”
“As far as I know the specific area on the map, it’s a lot of random generic buildings. If anything, Pearl St fits
the bill and we already have that.”
“One thing everybody hates, is a grand expenditure of resources on something that is not terribly important.”
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
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“And I think as long as there are homeless encampments along that whole park area- which seem to be
growing – it will never be a vibrant destination. Fact.”
“If the area was cleaned and made safe I would support the designation.”
“Advertising and promoting this area will increase the danger to citizens and visitors until this area is
managed and drugs are banned from these sites.”
“No desire to preserve the lawless, degraded and dangerous place this area has become.”
“Total disconnect between lack of care and lack of law enforcement in downtown civic areas and this effort
to create historical designation of an area the City has allowed to become trashed and dangerous….Is this an
effort to obfuscate and detract from working on fixing the problem?”
Table 1 is the full list of input received through the online form.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 62 of 95
Table 1 Feedback from the online form (as of Jan. 25, 2024)
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
1 Not sure Is that area really "historic"?
It sounds like Boulder just wants to have a "historic district" like other
cities. Historic districts are usually a focal destination for restaurants,
shopping, walking. As far as I know the specific area on the map, it's a
lot of random generic buildings. If anything, Pearl St fits the bill and we
already have that. Boulder has MANY other things that could use
improvement and development. One thing everybody hates, is a grand
expenditure of resources on something that is not terribly important.
And I think as long as there are homeless encampments along that
whole park area - which seem to be growing - it will never be a vibrant
destination. Fact.
I think the band shell should be demolished (it's small, dirty,
inadequate, and how often is it really used?) and a bigger stage area
could be established for outdoor events.
2 No
This area has so many opportunities for redevelopment
that can anchor a variety of community focused and
cultural mixed uses. Establishing a vital snd creative
mixed use East Bookend will strengthen the urban
downtown. By establishing a historic district it will
prevent so many good things for an equitable
downtown. The bandshell influence along the public
front door to Boulder is an underwhelming civic
experience. The stories and histories of the civic area
Please do not do this. It was a good intention in the past, but not now.
Especially because the City owns and manages the resources. Our
doentown needs more cultural interest and creative facilities that
expand water related experiences, entertainment, art and robust and
diverse markets. But a HD designation at this point is a constraint.
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Item 5B - CAHD Designation Memo 02.07.2024 Page 63 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
can be expressed so creatively without the constraint of
a district.
3 No Why designate parking lots as historic?
Most of the block between 13th St and 14th St is parking lots, which
makes that block unworthy of designation as a historic district,
particularly when the city can just landmark the existing buildings.
Better to prioritize filling in those unattractive empty spaces with
something useful (housing would be nice) rather than make it harder to
develop anything by creating another historic district. Also, the Atrium
building wasn't worthy of being landmarked, doubling down on that
would compound the mistake.
4 No
This area needs redevelopment and programming, not
further restrictions on use
Please invest in public use--including programming, infrastructure and
public safety--in this area.
5 No
This area is TRASHED - totally unsafe currently -
certainly no longer "historic"
Pointless to do this until the issues around homelessness and safety are
addressed - otherwise this designation is pointless window dressing and
propaganda.
6 No Not until it is safe and the
7 Not sure
Concern for safety of area given drug use and resulting
violent behaviors
I have great concern over lack of acknowledgment that this area is
unsafe to visit and enjoy based on out of control drug use and
aggression of people on meth and similar stimulants that cause
aggression. Advertising and promoting this area will increase the
danger to citizens and visitors until this area is managed and drugs are
banned from these sites. If the area was cleaned and made safe I would
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Item 5B - CAHD Designation Memo 02.07.2024 Page 64 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
support the designation. The history provided in the report is very
beautiful and well done.
8 No no support until the area is safe on an ongoing basis.
The civic area is disgusting and unsafe. All this beautiful accumulation of
history yet, for the past few years, it has turned into a sh*thole with the
City's blessing. The intersection of Broadway & Canyon, through which
nearly every visitor to Boulder passes, is an embarrassment. Do better
and stop normalizing the situation.
9 Yes
Because hopefully if this happens, the area will be
cleaned up and I can return to walking along the
Boulder Creek in that area, as well as bringing guest
and children to play. The sooner the better
10 No
Are you spending all this money for the homeless to
have a beautiful place to occupy?
As a citizen of Boulder for over 50 yrs I do resent the intimidation I feel
when I want to enjoy our lovely river walks. I am not referring to those
who are unfortunate in losing their homes, I am referring to those who
live that life by choice. They delight in getting as much as they can from
society for free, as you well know. They regularly harrass the Boulder
High students coming to and from school on their bikes, as you also
well know.
Untill you figure out a way to create these wonderful spaces for us the
citizens to enjoy, why spend all that tax money?
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 65 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
11 No
This area is currently an embarrassment to the city,
designating as Historic will only elevate the hypocrisy in
how this area is being managed
This area is a complete embarrassment, one of many black eyes on the
city of Boulder. Central Park is home to open drug use, open
defecation, regular drug overdoses, a multitude of encampments,
harassments, physical altercation, etc. etc. Designating as "Historic"
may lead residents and visitors coming to the area under the
presumption there is some significance/beauty to the area, cultural
relevance, or just an enjoyable site with something to be gained
(historical perspective). Visiting the area will not fulfill any of these
things interests and will likely lead to visitors leaving the area with a
less than stellar view of Boulder. Until the city takes a proactive
approach to cleaning and maintaining any of the public spaces I am not
in support of any of the efforts of this city to designate or elevate our
public spaces to anything other than what they are, unsafe and
unsanitary areas much of the public chooses to avoid.
12 Not sure
I no longer feel safe in most of our public spaces and
have stop enjoying our public spaces. I used to love
taking my kids to Pearl Street, but we have been
harassed by drug addicts (been yelled at) and the public
bathrooms are not accessible (as meth users use these
public spaces). We also wtiness someone defecating on
Spruce Street. A civic area would not be enjoyed by
most given that our public safety is precarious!
The City's efforts need to prioritize public safety so that ALL can enjoy
our public areas. I don't see how a civic area wouldn't just be plagued
with drug addicts and unhoused citizens.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 66 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
13 No
Get your priorities straight. This town is pathetic
nowadays.
How can this even be a consideration with the rampant meth, fentanyl,
and violent crime that has plagued this area (and entire town). Needles
all over the place. Feces in the river that's covered in trash. You guys
really think meth addicts need affordable housing? Addicts need
treatment, not housing. Addiction is the root of all of the problems
here, and in 15 years of living here I'm repulsed by it nowadays. As a
business owner I pay an ungodly amount of taxes and I can't even
comfortably take my son to the majority of places downtown. People
using meth in public bathrooms. Pathetic. The law only applies to
taxpayers. Park your car and your parking goes 3 minutes over, you
have a ticket within seconds. Meanwhile right around the corner a
meth head is committing grand larceny and BPD just shrugs it off - back
to harassing skateboarders and taxpayers. Your priorities are so far
from reality. Everyone in Boulder is so fed up with this crap.
14 Not sure
Will the designation insure that regular citizens can use
it safely?? And the city will stop prioritizing the use of
the are to the meth / fent head zombies that terrorize
the passerbys?
This area has been in rapid decline the last couple of years- open drug
use, sex, violence, trashing of the land and structures. I don't go down
there any more due to the lack of safety. Are you going to clean it up?
have security guards? eliminate drug use? eliminate camping? pick up
needles? feces? it is absolutely disgusting what has happened the this
city in the last 30 plus years.
15 Not sure
Only if the area is first returned to a safe, clean and
actual civic place. No desire to preserve the lawless,
degraded and dangerous place this area has become.
Total disconnect between lack of care and lack of law enforcement in
downtown civic areas and this effort to create historical designation of
an area the City has allowed to become trashed and dangerous. It does
not make sense that resources are being expended for this type of
designation without first fixing it. Is this an intentional effort to
obfuscate and detract from working on fixing the problem?
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 67 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
16 Yes
to preserve the beauty of our civic center, and prevent
the area from being turned into dense concrete
apartment, blocks, or a larger, drug-filled homeless
encampment
Concerns: open air meth and fentanyl use. Encampments. Propane tank
fires. Stabbings and shootings. Clean up this area. It's a disgrace.
The current council majority that opposes the police and cleanup
resources required to keep this area safe are turning Boulder into a
dump.
Thank you to these organizations and the landmark committee for
seeing the civic center as something that should be protected.
17 No
The designation totally ignores the current situation in
this area: that citizens actively avoid the area due to
crime and harrassment by transients.
I and my neighbors with whom I have spoken are deeply offended by
this. The city spends my time and money on this designation, but not on
the unsafe coniditions there??? I am outraged by your tone deafness.
This tells me my city staff are more effective with the past than the
present.
I am so sorry to see the decline in our city staff and elected officials
mirroring the decline in our public spaces.
I am now motivated -- after many years of support -- to work for an
entirely new roster of all of you.
You are supposed to LEAD.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 68 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
18 Not sure
I oppose the idea if the inclusion of certain buildings
within the proposed the historic district will prevent the
possibility of replacing or re-imagining some of the
buildings withing that district.
It is clear to me that there are two problematic buildings within the
district boundary:
1. The current functions of the Pennfield Tate building should be moved
to the Western City Campus on Broadway, as that campus is built.
Doing so will allow the Pennfield Tate location to be re-imagined or re-
built into a facility that can serve various new public functions -
including the function as a central hub for festivals held within the
district boundary.
2. The current functions of the Atrium building should also be moved to
the new Western City Campus on Broadway, as that campus is built.
This would allow the Atrium location to be re-imagined or re-built as a
year-round indoor/outdoor Boulder Farmers Market facility. Imagine a
facility at the Atrium location with large opening overhead doors - open
during the warmer months - and closed in the colder months - enabling
a year-round Farmer's Market. Look to the success of the Santa Fe, NM
Farmer's Market as a great example of such a facility.
19 No
The area doesn't feel special anymore due to safety
concerns.
Would designation make it much more difficult and expensive for tax
payers anytime a project occurs within the "landmark"?
Will the "landmark" receive the extra help it already needs in terms of
encampments and feeling safe?
Once it becomes a "landmark", are there elements that would be
restored to represent or educate visitors on the history of the area (not
just a few signs)?
How will the "landmark" designation work with the next phase of the
implementation of the Parks department vision for the area? What has
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Item 5B - CAHD Designation Memo 02.07.2024 Page 69 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
recently been implemented seems to conflict with "landmark"
implementation as well as other department visions for the future.
20 Yes
After reading the StoryMap, it's apparent that the area
was deliberately created. Unlike some other parks in
Boulder where the land was donated, this was a
decision by city leaders to make this space. It's the first
time I've heard of Boulder acknowledging that the city
displaced residents (a bit like Denver's Auraria
neighborhood) and I think the district is a good way to
acknowledge that.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 70 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
21 Not sure
I support designation but with re-build of
music/performing arts structure/infrastructure.
I am in full support of designating this area Historic, with the caveat
that we have the ability to upgrade the amphitheater design and
infrastructure. We seem to be one of only a few towns in the state that
has not invested in an outdoor performance area. This is low hanging
fruit. I want to see a world-class outdoor music/performing arts stage
and have the current "seating" area leveled, expanding all the way out
across the ditch into our other grassy area so folks can spread out and
enjoy live events under our beautiful trees and waterways. As it
currently is, we don't have a lot of support from folks because the
structure, sound quality, dance area, bathrooms/services, etc are so
outdated. I can list a dozen small towns within a few hours drive from
here who have invested in a complex and they thrive throughout the
season. Please take some of the $ we now have designated for the arts
and start planning. go see all these other towns where us Boulderites
go to enjoy outdoor entertainment. We'd sure like to stay in our town
and enjoy these events.
22 Yes
Central part of Boulder - community, culture, and
architecture
23 No
The area is riddled with open drug use, addicts,
encampments, overdoses- where do you propose these
people go? They won't magically disappear after you
dumps millions of tax dollars into this. And for who? I
don't even go to that area anymore due to the needles
and harrassment by those who live on the banks of the
creek.
See above. This is a big waste of money- no mention of the mess down
there? Are you all BLIND?
That money would be better spent on inpatient rehab treatment
hospital for these people with mental health/ addiction disorder.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 71 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
24 Yes
This area is the historic heart of the Boulder
community. It has a rich and long history that has
lessons that are relevant to our lives today. It supports
the City's Comp Plan and 2015 Civic Area Masterplan to
celebrate important city owned historic places. .The
hitory here is inclusive of under-represented minority
populations of Indigenous, Black and LGBTQ people. It
is a positive, 'feel-good' action that can be
accomplished
1) History has lessons for the issue of homelessness in the Park and the
creation of this district. There have been transient people and illegal
activities off and on here since the 1880's. Previous responses by the
city government have been creating a shelter that was tied with a work
program at the "Poor Farm", higher levels of policing, sweeps of the
Park to clear it for community festivals, creation of homeless shelters,
counseling services for homeless people and more. Some versions of
these historic policies may be relevant today.
2) The creation of this historic district will shine even more attention on
the problems in the civic area by bringing more understanding of the
history of the use of the park and the high value as the heart of the
Boulder Community.
3) The process of reviewing the merits of this historic district, has
required that every department of the City has had to be consulted for
impacts to their responsibilities. So while this historic district has no
direct connection to social welfare programs, it has reinforced the
discussion within the government about Central Park and
homelessness.
25 Yes
I am 100% in favor of creating the Civic Center Historic
District. This area is a repository of Boulder history back
in time, not only the last 200 years of Americans
settling the area but also through centuries of
indigenous peoples. What a gift to Boulder and from
Boulder to the nation to specify this as an Historic sight!
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 72 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
26 Yes
Historic Districts are support tourism and is good for
business.
27 No
A lot of this area needs to be redeveloped. Too many
parking lots and empty buildings. Really need to build affordable housing on the parking lots.
28 Yes
It's historic, and it reflects a Boulder that so many of us
wish were still there. Such a district will act as a
deterrent against the spread of any radical changes to a
place that was already perfect. Perhaps this newfound
designation could also help drive some of the seedier
elements of that area out of the downtown area (or at
least to a place that is not so visible or beloved).
29 Yes
It is vital to preserve the history of Boulder and
remember all of those who came before us.
30 Yes Central Park plays a huge role in Community Gatherings
31 Yes
I remember going to the Bandshell as a child. There use
to be a train engine there, that just amazed me. Why
are we so eager to get rid of historical stories of
Boulder? The Italians would never tear down an article
of Art or History.
https://youtu.be/xevBo6gfafA?si=4k4LYPwLr0uxVpnJ
I suggest you watch this video done by Denver CBS on the Huntington
Bandshell.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 73 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
32 No It's a terrible idea...
This is just an extension of PLAN's nimby reaction to the Civic Area Plan
which contemplated improvements and construction of new buildings
in the area to make space for civic uses such as an indoor farmers
market...landmarking the bandshell, seats, atrium building, etc is a non-
sensical approach to making civic spaces that can meet the needs of our
community. The results are clear - landmarking these spaces has simply
crystalized their nonfunctionally. When the city met with users of the
bandshell, the main request was to add green room space. By moving it
and adding that space, it could have had life. Now it's a relic that has
little relevance to the performing arts.
There is no benefit to landmarking the parking lots and lawn areas
around these already landmarked buildings.
33 No
I think we can recognize the history without making this
a historic district that would make future
improvements harder to complete.
34 Yes
It has so much history and really represents the best
part of Boulder besides the mountain backdrop.
35 Yes
The buildings to be included in the historic district,
because of their significance, need to have landmark
protection.
36 No Not consistent with the city's equity and climate goals
This area spent far more time in the hands of the Indigenous people
who had stewarded it since time immemorial. After the Indigenous
people were forcibly removed from their land, this area was dominated
by workers, low-income people, and people of color.
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Item 5B - CAHD Designation Memo 02.07.2024 Page 74 of 95
No.
Do you
support
the
proposed
civic area
historic
district? Please explain the reason for your selection.
Please share any other concerns, questions or comments you
have related to this proposed designation.
Yet the plan seems aimed at preserving Omlsted's exclusive version of
this area. Olmsted is a noted racist whose plans for this area led to the
displacement of those who had long used it for shelter, gathering, and
other purposes. Why is his version of the use of this land the one that
gets preserved? Why has there apparently been no input from BIPOC
people and especially from those with much deeper ties to this area
than any non-Indigenous people here now on the creation of this
historic district? Why do three groups that don't include the
communities or people with deeper historical ties to this area get to
dictate the future of this area for generations to come? How does
memorializing a racist's vision of Boulder's civic area align, created
through traumatic displacement of Indigenous people, poor people and
people of color, mesh with our city's racial equity goals?
People from groups that have been and continue to be traumatized by
displacement from this area ought to be the ones deciding how this
area is used. Resources spent creating a historical area would be better
used offering housing support or reparations to the descendants of
those displaced by Olmsted's vision of a neat and tidy area that
destroyed natural ecosystems and excluded BIPOC residents, low
income people, and laborers.
If we are going to spend taxpayer money on this area, it should be done
in a way that repairs past harms and oppressions, rather than preserves
them.
Attachment C - Public Input Received between October 16, 2023 and January 25, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 75 of 95
Proposed Civic Area Historic District
Letters Received from July 12, 2023 to January 29, 2024
1.Paul Levitt – Jan. 15, 2024
2.Catherine Cameron – Jan. 18, 2024
3.Robert Hohlfelder – Jan. 19, 2024
4.Steve Lekson – Jan. 20, 2024
5.Barbara Beasley – Jan. 20, 2024
6.M. Roselle Mullins George – Jan. 21, 2024
7.Susan Osborne – Jan. 24, 2024
8.Jane McKinley – Jan. 25 2024
9.Joe Stepanek - Jan. 25 2024
10.Margaret Ryder – Jan. 28, 2024
11.Charles Birnbaum – Jan. 29, 2024
12.Jenny Elkins – Jan. 29, 2024
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 76 of 95
Letters Received from January 16-29, 2024
Proposed Civic Area Historic District
1.Paul Levitt – Jan. 15, 2024
2.Catherine Cameron – Jan. 18, 2024
3.Robert Hohlfelder – Jan. 19, 2024
4.Steve Lekson – Jan. 20, 2024
5.Barbara Beasley – Jan. 20, 2024
6.M. Roselle Mullins George – Jan. 21, 2024
7.Susan Osborne – Jan. 24, 2024
8.Jane McKinley – Jan. 25 2024
9.Joe Stepanek - Jan. 25 2024
10.Margaret Ryder – Jan. 28, 2024
11.Charles Birnbaum – Jan. 29, 2024
12.Jenny Elkins – Jan. 29, 2024
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 77 of 95
From:Paul Levitt
To:landmarksboard
Cc:Paul Levitt
Subject:FEB 7 LANDMARKS BOARD DESIGNATION HEARING.
Date:Monday, January 15, 2024 5:33:59 PM
External Sender Notice This email was sent by an external sender.
Dear Committe Members,
We are what we remember. Memory makes a life. History ismemory. When that history can be experienced materially, wehave not only the story of its source, but the thing itself. Abeautiful home, for example, embodies a story, but when thehome is preserved, memory and reality become one. Preservationis the archaeology we bring to valuable sites.
Good fortune has enabled me to live in the historic Hillsidedistrict, designated in the early 2000s. It was a fair andaesthetically rewarding experience owing to the helpfulsuggestions of the preservation staff. I know that I am justone of the descendants, one of the boarders, to enjoy this homeas originally designed. The same is true of my neighborhood. Ican see in a glance the relationship of my house to the others,which form a community once known as “Little Athens.”
Living in a landmark district has drawn my disparate neighborsinto a close community and given them a common cause, united byties of architectural and environmental preservation andbeautification.
Demolishing a memorable house and/or neighborhood is akin to adeath. The playwright Tom Stoppard calls death an absence. Theperson or object was once there and is now no longer. Manyabsences can be rectified. The missing part—or something likeit—can be found and substituted for the original. But when areplacement is inadequate, the absence is all the greater.Architecture is like life. Once lost, it can never beregained.
And so I ask you to consider how important it is to retainmemory—a valuable part of Boulder’s life—by designating CentralPark and the five city-owned and already landmarked buildingsthat are in and surround the park as an historic district.
I thank you for taking the time to read and consider my letter.
Yours sincerel
Paul M. Levitt
Professor Emeritus
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 78 of 95
From:Catherine M Cameron
To:landmarksboard
Subject:Historic District for Boulder Central Park
Date:Thursday, January 18, 2024 4:50:03 PM
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Dear Landmarks Board:
I am writing in strong support of the proposed landmarking of the BoulderCentral Park area as a Historic District. This area is the heart of downtownBoulder, it was designed by one of the earliest and best known landscapearchitects in the country (Fredrick Law Olmsted Jr.) and, at this point, it retainsits historic character. By this I mean that Olmstead’s design for Central Parkremains intact, including the open lawns that allow for public gatherings andevents, some of the original trees and other plans remain, the viewshed (to theFlatirons) is still open, and there are pedestrian paths, an irrigation ditch, andmore that were all part of Olmsted’s original design.
I have been a resident of Boulder for almost 30 years. For a number of years inthe 1990s I was on the President’s Advisory Council on Historic Preservation. I know that well-designed and well-preserved historic places are of enormousvalue to cities economically, culturally, and with regard to creatingcommunity. I urge you to strongly consider designating Boulder Central Parkas an Historic District. This move will reap benefits for Boulder for decades tocome.
Sincerely,
Catherine M. Cameron
Catherine M. Cameron
Professor Emerita
Department of Anthropology
233 UCB
University of Colorado
Boulder, CO 80309-0233
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 79 of 95
From:Robert L Hohlfelder
To:landmarksboard
Subject:In Support of the Proposed Central Park Historic District
Date:Friday, January 19, 2024 5:33:49 AM
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Our city is constantly evolving in ways that many in our community either like or dislike. Regardless of how
Boulder changes, it should not be at the expense of our historic identity. Our landmarked buildings are the physical
manifestation of that history. Preserving the integrity of the Central Park area, bounded by some of our more
distinguished landmarks, as a historic district will ensure that the very heart of Boulder will remain as a monument
to our community’s past regardless of how Boulder addresses the challenges of the future.
But will the creation of this historic district honor the contributions of a man, Fredrick Law Olmsted Jr., who
some think was a racist? I am aware of the criticism that his park designs were intended in some instances to
exclude minorities from their use. If such restrictions were ever imposed, they were implemented by local
ordinances and not by him. He was, of course, a product of his time when our country embraced institutional racism
(i.e. segregation) and when white nationalism, embodied by the Klu Klux Clan, challenged our hopes and efforts to
achieve racial equality even in Boulder. Like everyone then or now, his personal views on any and all subjects may
have been inconsistent, changed or evolved over time. It is most important to note that there is nothing in his report
to Boulder that supports the view that he was a racist. Rather his plans suggest quite the opposite. He was a
progressive populist who wanted to make public spaces available and beneficial to all Boulder citizens. In this
regard, he was a man ahead of his times, and we should recognize and honor him for helping preserve such a vital
component of our city. I think Boulder is fortunate to have had one of the last century’s leading landscape designers
originally plan our Central Park area, so much of which still reflects his intended design. The creation of a historic
district that embraces, perpetuates, and expands his vision will guarantee that future Boulder citizens can be
cognizant of our city’s past while experiencing the benefits of a natural oasis within the core of our city.
Having been born in New York City, I know how NewYorkers acknowledge the important contribution Central
Park, perhaps the most famous of the Olmsted family’s parks, makes to improving the quality of urban life. We also
should be proud that our Central Park was FLO Jr.’s contribution to enhancing the landscape and life of our
community,
Bob Hohlfelder
Robert L. Hohlfelder, PhD
Professor Emeritus of History
University of Colorado, Boulder
robert.hohlfelder@colorado.edu
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 80 of 95
From:Steve Lekson
To:landmarksboard
Subject:Central Park Historic District
Date:Saturday, January 20, 2024 11:15:03 AM
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Dear Landmarks Board:
I write in strong support of the proposal to designate as a historic district
Boulder's Boulder’s Central Park Boulder between Canyon and Arapahoe, 13th Street. and
the Municipal Building. As you know, our Central Park was designed by Fredrick Law
Olmsted, Jr., which in itself should justify historic district status. It's very likely that the
landscape would merit listing in the National Register of Historic Places under criterion C,
"representing the work of a master" architect.
I've lived in Boulder for almost 30 years. While not a native, I've been here long enough to
value what makes Boulder unique, and Central Park is surely part of that. Listing it as a
historic district will help retain a bit more of what made (and makes) Boulder the wonderful
place it is.
Thank you,
Steve Lekson
Stephen H. Lekson
Curator of Archaeology, Jubilado
University of Colorado Museum of Natural History
Boulder CO
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 81 of 95
From:Barbara Beasley
To:landmarksboard
Subject:Central Park
Date:Saturday, January 20, 2024 9:25:13 AM
External Sender Notice This email was sent by an external sender.
This note is to let you know that my husband and I fully support the designation of Central Park as Boulder’s 11th
historic district. This park is a spot that can nourish our dear city as it moves through incredible change. It’s green,
natural and designed by the Olmsted’s. What more could we want?
Thank you.
Barbara and Dean Beasley
695 Northstar Ct.
Boulder CO 80304
Sent from my iPhone
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 82 of 95
From:roselle george
To:landmarksboard
Subject:Boulder’s Central Park
Date:Sunday, January 21, 2024 5:44:21 PM
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Growing up in Boulder in the 1960s and 1970s I was inspired by Boulder's leaders including my architectural
designer mother who fought for Boulder’s specialness and uniqueness. Now after a long career as an urban planner
and a continued presence over 60 years in Boulder I see a need to preserve the Central Park by designating it as a
Historic District. The key design elements proposed by the Olmsted Brothers still exist. It has functioned as the heart
of Boulder for so many years. Let’s preserve it so it continues to be a needed asset to the community while
respecting the historical and cultural context. We need to preserve a key area that defines Boulder and makes it
special.
M. Roselle Mullins George
2686 4th St
Boulder, CO 80304
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 83 of 95
January 24, 2024
Dear Landmarks Board members,
Thank you for the time and energy you each contribute to making our city a good place to live.
Keeping the history of our town accessible and alive is one piece of what makes it a joy to be
here - whether long time resident, newcomer or visitor.
I’m writing in strong support of the proposed Civic Area Historic District that you’ll be
considering on February 7. In a way that Marcy Gerwing’s excellent memo on the project
captures completely, Central Park, the landmarked bandshell and the four additional
landmarked buildings included in the district represent important pieces of Boulder’s past. As
an ensemble, they tell a story of our town’s evolution.
I was the lucky city planner who led the project to develop a plan for a greenway and path
along Boulder Creek in the mid-1980s. A team of the primary property owners along the creek
(the City, the County, BVSD and the University) and the implementing city departments
(Transportation, Parks, Flood Control and Real Estate/Open Space) was pulled together. During
the course of five months, we researched and then walked each reach of Boulder Creek for the
purpose of identifying obstacles, points of interest, capital projects and other possibilities.
From the first, we were inspired by Frederick Law Olmsted Jr.’s ideas about keeping open “a
simple piece of bottom-land” along the creek. And as written in his plan for Boulder, the creek
would be “near the heart of the city” and “give a piece of recreation ground worth a great deal
to the people.”
As the City team considered plan details, it was certain that there would be a bike and walking
path, but also flood mitigation, habitat restoration and historic site identification. The creek
itself would be modified to provide pools for trout and to remove obstacles to rafting and
kayaking. We envisioned a project that would connect city parks and important destinations-
civic/library functions, educational functions and commercial functions. The plan was
unanimously adopted by City Council in 1984.
The creek path from Eben Fine Park to 63rd Street was completed (remarkably!) in about five
years, although modifications and improvements continue to this day. It’s hard to imagine in
2024 when in Central Park or at the Farmer’s Market that both the Broadway and Arapahoe
Bridges into Central Park had to be rebuilt - both to let walkers, runners and bikers under, as
well as for improved flood control. Access to Central Park was made markedly better.
I share this story by way of background. I see the proposal for a Civic Area historic district as
absolutely in keeping with the plan done for Boulder Creek decades ago. It will provide a point
of historic interest and a place (in fact the only place today) where the history of the creek is
traced back to the indigenous people, through the early white settlers and the tale of our ever
evolving place.
Historic designation does not freeze either land or buildings in time. It rather assures that any
new use or significant change will be reviewed for compatibility by you and the interested
public. As the “East Bookend” for the Civic area and as the obvious non-auto route from the
University’s conference center to the downtown mall, this future historic district will
undoubtedly be an important touchstone as changes to the area are proposed. Let’s use this
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 84 of 95
opportunity to designate and highlight an historic district that reflects in its buildings and green
spaces the story of our town.
Best regards,
Susan Osborne
Past City Council member and mayor, past Parks Board member and chair, past Historic
Boulder president
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 85 of 95
From:J. MCKINLEY
To:landmarksboard
Subject:Please preserve the historic integrity of Central Park
Date:Thursday, January 25, 2024 11:43:46 AM
External Sender Notice This email was sent by an external sender.
Central Park is an anchor for personal memories and links me to the past of Boulder. The remarkably forward
thinking design has kept it a gathering place for many decades for all who live in and visit Boulder. For those people
who come and go from Boulder, Central Park is iconic. I urge you to proceed with the plan to preserve the integrity
of this park.
Thank you.
Sincerely,
Jane McKinley
Sent from my iPad
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 86 of 95
From:Stepanek
To:landmarksboard
Cc:Sara Martinelli
Subject:Re: Support for Central Park Historic District by Joe Stepanek - Jan 24
Date:Thursday, January 25, 2024 8:04:38 AM
External Sender Notice This email was sent by an external sender.
> Hi Sara
>
> I plan to use this draft, shortened, for my three minute verbal
> presentation for the Feb 7 Land Marks meeting in the Muni building.
> Please address a short note of support to the landmarks board as well
> - stressing perhaps public access and sagfely, good businmess environment.
>
> My thanks, Joe
>
>
> I write to support the establishment of this, Boulder's latest,
> Historic District - in Central Park, the famed Band Shell and its
> immediate area. Many have made the case for Council's approval of this
> proposal and have sited the many benefits for doing so.
>
> Here I mention another, often over-looked, reason for doing so -
> namely, as the City moves to it's new offices on Alpine and Balsam in
> coming five years or so, it has already announced that it will vacate
> its current downtown offices and perhaps sell already land marked
> buildings, perhaps 2 or 3 (The Atrium Building, the Tea House, BMOCA
> and even the Muni building itself), and even raze 1 or 2 buildings
> (new Britain and Mustard Last Stand Buildings) in the current flood
> plan. As these steps are taken, private investors will have an
> opportunity to buy, design, and build a few new structures in the
> downtown area. This governmental move will understandable create many
> issues, even crises, as City officials and even the Boulder public
> engages in this multi-year, complex process.
>
> This era of some turmoil, creates and underscores the necessary and
> desirability of rethinking Boulder's historic heritage, its riches,
> and today its many benefits. Protecting this history, written and
> manifested by a few older Boulderites, a few structures and artifacts,
> should concern us all.
>
> Imagine Neolithic man seeing Boulder Valley for the first time as
> families walked over Davidson Mesa, and then leaving a stone tool
> collection behind for next summer's use. Imagine dozens of First
> Nation tribes settling and hunting in this rich valley, who speak to
> us to this day. In more recent times, these early peoples were
> followed by European explorers, hunters, trappers, miners and farmers;
> then Black Americans seeking opportunity after the Civil War and
> today, Latinos also seeking opportunity as well. Soon there after
> Boulder voted for a university, and then, very recently President
> Eisenhower with a nudge from Ed Condon, placed the Bureau of Standard
> here as well. As a direct consequence, Boulder today is a hotbed of
> globally significant R and D. And we keep on going - by welcoming a
> Soviet era Islamic Tajik Tea House! Today this unique gift is
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 87 of 95
> Boulder's most popular retail business! Imagine that!
>
> Hence, creating an Historic District will set high expectations and
> standards for preservation and for public agreement as building
> permits, licenses etc are considered and approved for this central
> part of Boulder and of Boulder's history.
>
> For my own part, having been raised overseas and savored a career
> overseas as well, in a total of twelve Asian and Africa Countries
> spread over thirty years, and having always returned to home in
> Boulder, I have come to appreciate the remarkable riches in our global
> diversity - here in Boulder and around the world.
>
> A Central Park Historic District can also, inform us, enrich us and as
> we savor festivals, the arts, music, picnics and parties next to
> Boulder Creek. Remember our roots as we enrich future generations.
>
> Thank you
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 88 of 95
From:Margaret Ryder
To:Historic Preservation
Subject:Historic designation for Central Park
Date:Sunday, January 28, 2024 4:41:47 PM
Attachments:Screen Shot 2022-10-07 at 3.04.50 PM.png
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To the Landmarks Board,
I am writing to support the City of Boulder creating an historic district in the heart of the city
and landmark Central Park. The creation of an an historic district in Boulder’s Central Park
Boulder between Canyon and Arapahoe, 13th st. on the East and the Municipal Building on
the West, means preserving the intact design of Fredrick Law Olmsted, Jr. arguably the
earliest and best known landscape architect in this country.
No one is opposed to change. Preservation would like a seat at the table, to carefully consider
changes that remain sensitive to the importance of this sight. Given the rapid change in
Boulder and given this is historically the heart of Boulder, we would like to update the park,
make necessary changes yet consider Boulder’s roots for now and the future. After all, what
would Boulder be without the foresight of the residents who came before us, who had the
foresight to save our architecture, save the mountains from development, create our open
space program, and honor our view sheds?
Please consider preservation of the sight. A collaboration between the City of Boulder and
Preservation means the best outcome to remember and honor the past while preparing for the
future.
Best,
Margaret Ryder
4 Goldenrod
Boulder, CO 80302
214.773.2700
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 89 of 95
29 January 2024
RE: February 7, 2024, City of Boulder Landmarks Board Designation Hearing. Potential Designation,
“Central Park/Civic Area Historic District”
Dear City of Boulder Landmarks Board Members:
I am writing in support of the proposed historic district in the Civic Center area of Boulder. This area has
operated as the ‘heart’ of the community since its inception more than 100 years ago. In 1998, I
founded the Cultural Landscape Foundation (TCLF) in Washington, D.C., to document cultural landscapes
and advocate for their ongoing stewardship. The proposed district is a significant work of planning and
landscape architecture aligned with other such landscapes that create a sense of place in communities
across America and are represented in two of TCLF’s four major programs: What’s Out There (a database
of more than 2,700 nationally significant landscapes), and Pioneers of American Landscape Design
(which includes biographies of S. R. DeBoer, Frederick Law Olmsted, Jr., and Olmsted Brothers). We
encourage the Landmarks Board to look favorably on this local historic district designation.
The five city-owned buildings and Central Park taken together have the potential to tell an almost
continuous story of the evolution of Boulder. The park itself is a remarkable example of the creation of
a town center that suits the needs of a community and, to quote the great landscape architect Laurie
Olin, “serve as a center of energy.” Initially founded by a grass roots, self-improvement committee of
citizens, the Boulder City Improvement Association, Central Park has been the setting for many
memorable events. It’s significant that in 1907 the Brookline, MA-based Olmsted Brothers, undertook
the master plan for several parks and other improvements for Boulder, when the city’s population was
barely 10,000.
Like many Olmsted designed parks, there are layers of history and enhancements, and these , too,
contribute to its significance when the Denver-based planner, S. R. DeBoer made additions (it’s worth
noting that DeBoer and the Olmsted Brothers contributions can also be found in Denver’s Civic Center
Park which was designated a National Historic Landmark in 2012). Taken together, these pioneering
landscape architects and planners addressed such issues as flood control, an appreciation of the Boulder
Creek’s riparian environmental context, opportunities for healthy recreation, and myriad opportunities
for passive and gregarious enjoyment that would benefit all citizens. While changes have occurred over
time, the integrity of their designs remain intact and serve as the critical “bone structure” for managing
change today.
With our mission to "connect people to places,” we strongly support the proposed portion of the Civic
Area as a local Historic District.
Yours sincerely,
Charles A. Birnbaum, FASLA, FAAR
President + CEO
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 90 of 95
From:Jenny Elkins
To:Historic Preservation
Subject:Historic District Central Park Boulder
Date:Monday, January 29, 2024 3:22:20 PM
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Hi. I am writing on behalf of your efforts to create an historic district in
Boulder’s Central Park Boulder between Canyon and Arapahoe, 13th st.
on the East and the Municipal Building on the West.
I am fully in support.
Thank you,
Jenny Elkins
5 Chautauqua Park
Boulder. CO 80302
Attachment D - Letters Received between July 12, 2023 and January 29, 2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 91 of 95
Civic Area Historic District
Draft Design Guideline Framework
February 7, 2024
Intent
What is the purpose of these design guidelines? How will they be used?
(Language from Boulder’s General Design Guidelines and University Place Historic
District Design Guidelines)
The purpose of the guidelines is to facilitate both the Landmark Alteration Certificate
(LAC) application and approval of alterations proposed for design review by assisting
owners and designers as they plan maintenance and changes to buildings and public
spaces and to provide the Landmarks Board with a framework for evaluation of
proposed improvements.
The guidelines reflect the Landmarks Board’s philosophy that underlies all its
decisions: to encourage the preservation and careful treatment of the city’s
historically significant resources, while recognizing the need for continuing adaptation
and improvements to these resources.
The guidelines have been developed to recognize the unique character of the district
and are intended to supplement the General Design Guidelines for Boulder’s Historic
Districts and Individual Landmarks (the General Design Guidelines), which apply
unless otherwise stated. Where the two guidelines conflict, the district-specific
guidelines shall prevail.
The design guidelines are intended to be used as an aid to appropriate design and not
as a checklist of items for compliance. In some cases, unusual circumstances may
allow for projects to deviate from them.
Table of Contents
What areas will the guidelines address?
•Review Process
•Roles and Responsibilities
o Include review bodies, policies and regulations (i.e. floodplain, Park Plan
for the Civic Area, Art Acquisition Policy, Downtown Urban Design
Guidelines, plans and policies related to the list in Guiding Principal #2,
etc.)
•What Requires Review?
Attachment E - Draft Design Guideline Framework 2-7-2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 92 of 95
o Define what does and doesn’t require review in the design guidelines to
streamline and clarify the review process (i.e. maintenance, emergency
repairs, new work)
o Clarify that improvement or maintenance work within the ditch
easements and CDOT easement (Broadway) is exempt from LAC review
• History of the Area
o Summary of area history based on new research to tell more inclusive
history of area.
• Design Guidelines
o Rehabilitation of Historic Structures
o Additions to Historic Structures
o New Construction
o Coordination with Floodplain Development Regulations
o Central Park
o Boulder Creek
o Public Art
o East Bookend
o 13th Street
o Plazas
Guiding Principles
What values are important to inform the district-specific design guidelines?
1. The Secretary of the Interior’s Standards for Rehabilitation are the foundation
for the historic district design guidelines.
Rationale: Adopted by the Landmarks Board in 1985 (revised in 1990), the
Standards for Rehabilitation are the foundation of the General Design
Guidelines and the eight district-specific design guidelines. As a Certified Local
Government, design review is required to be consistent with the Secretary of the
Interior's Standards.
2. Preserve maintenance access and align the design guidelines with
management practices in adopted city plans and policies for utilities
infrastructure, urban trees, park design standards, flood mitigation and
transportation networks related to life safety and accessibility.
Rationale: The City has established programs and professional staff that
manage the many assets within the historic district. The design guidelines
should reinforce the importance of life safety and accessibility within the
Attachment E - Draft Design Guideline Framework 2-7-2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 93 of 95
boundaries of the district. Additionally, defining what does and does not require
review in the design guidelines will clarify and streamline the review process and
ensure that emergency repairs and regular maintenance projects can be swiftly
executed.
3. The area has character-defining features that contribute to its historic
character and setting. Define these key historic features within the historic
district and consider drawing inspiration from them. Key features include but
are not limited to:
• Boulder Creek as a living entity that is significant to Boulder’s past,
present and future and provides critical public safety, health, flood
conveyance, water supply, and environmental benefits.
• The unique architectural character of the area as defined by five distinct,
individually landmarked structures, each representing a forward-looking
and progressive city identity.
• The area is a place for recreation, gathering and play that contributes to
the health and well-being for all and should continue to reflect the variety
of community needs and desires for the enjoyment of the site.
Rationale: The area has character-defining features that contribute to its
historic character. While this is not a complete list, this guiding principle
emphasizes the importance of Boulder Creek, the unique architectural
character of the structures, and the importance of the area as a place for
recreation, gathering and play.
4. The area is significant for its association with Boulder’s municipal, social and
political history. As part of Boulder’s Civic Area, this district continues to have
a symbolic, geographic, and functional importance and therefore should serve
as an inclusive place where all feel welcome. Celebrate the diversity of our
community and enrich our collective understanding of different periods of
Boulder’s history by acknowledging stories of historically excluded
populations.
Rationale: The historic district process provided an opportunity to tell a more
complete history of the area. While there is additional work to be done, it is
evident that the area currently tells only a portion of Boulder’s history. As the
civic center of Boulder, it is even more important that it be inclusive and
welcoming, and broad representation through art, educational opportunities
and programming is encouraged. This principle aligns with the Park Plan for
Boulder’s Civic Area, which states “Preserve, reflect and celebrate the area's
Attachment E - Draft Design Guideline Framework 2-7-2024
Item 5B - CAHD Designation Memo 02.07.2024 Page 94 of 95
fully inclusive history (e.g., Indigenous Peoples, mining, the railroad, Olmsted's
linear park and landmarked structures).”
5. Encourage a vibrant mix of uses in the East Bookend through adaptive reuse
and creative infill. New building design may reflect the character of its own
time and have meaningful juxtapositions, while respecting the integrity, scale
and massing of the surrounding historic buildings. (Park Plan and DUDGs)
Rationale: The East Bookend is anticipated for redevelopment. Both the Park
Plan and the Downtown Urban Design Guidelines provide guidance on how
redevelopment should occur, and encourages a vibrant mix of uses, adaptive
reuse and creative infill. As the East Bookend includes three individually
significant buildings, care should be taken to respect the existing integrity, scale
and massing of those buildings.
6. Align the selection of works of art within the Civic Area Historic District with
adopted city plans and policies to encourage creativity, contribute to a sense
of place, spark conversation, tell our shared stories and capture our moment
in time, foster the enjoyment of diverse works of art, and be thoughtfully
designed contributions to the urban environment of our vibrant city.
Additionally, select artwork within the Civic Area to attract, inspire, educate
and engage the community.
Rationale: The Civic Area Park Plan identifies this area as one of the major art
centers of Boulder, and new artwork within the proposed historic district is
anticipated and encouraged in the future. This guiding principle repeats the
mission of the Acquisition Criteria of the Public Art Policy, as well as language
from the Park Plan for the Civic Area. Both of these statements are compatible
with the intent of historic district designation, which among other things, seeks
to promote tourist trade and interest and foster knowledge of the city's living
heritage.
Attachment E - Draft Design Guideline Framework 2-7-2024
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