Transit Village Area Implementation Plan 2007Transit V illage Area PlanImplementationPlan
September 2007
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The Implementation Plan for the Transit Village Area Plan describes the process and timeline for
various regulatory changes, funding mechanisms and programs to implement the Transit Village
Area Plan (TVAP). The city will monitor plan implementation through the preparation of
reports to the Planning Board and City Council every two to three years as part of each mid-term
and five-year update to the Boulder Valley Comprehensive Plan (BVCP). Appropriate
components of the Implementation Action Plans will be incorporated into the BVCP Action
Plan.
Chapter Overview
Section 1: Regulatory Changes describes the land use, zoning and other code changes that will be
made (or considered), in order to guide development toward the plan vision.
Section 2: Public Improvements Funding and Phasing addresses the general approach for funding
and phasing public improvements for the area (described in TVAP Chapter 6: Facilities and
Services), including key public improvements in the first phase of development.
Section 3: Transportation Demand Management Implementation outlines the next steps for
putting in place the Transportation Demand Management (TDM) Program (described in TVAP
Chapter 5).
Section 4: Sustainability Goals Implementation outlines measures the city will pursue to further
advance the social, environmental and economic sustainability goals of the plan.
Phasing
A phased approach will be taken for the following components of implementation: the city’s
funding of key public improvements, the regulatory aspects of the plan involving land use and
zoning changes, TDM and transportation connections.
• Phase 1 will occur in the first 10 to 15 years in the area between 30th Street and the railroad
tracks; and
• Phase 2 will generally occur thereafter and focus on the areas east of the tracks and west of
30th Street.
A market absorption analysis shows that projected development between 30th Street and the
railroad tracks can be absorbed into the Boulder market over the next 10 to 15 years (Market
Absorption, EPS, June 2007). Focusing initial development in Phase 1 will ensure more cost-
efficient provision of public facilities and services and will also help create the vision for the
area.
Section 1: Regulatory Changes
Regulatory changes to implement the plan include:
• Changes to the BVCP land use designation descriptions, the BVCP land use map, the land
use code and the zoning map. The general direction for these changes is outlined in the table
on page 3.
In terms of timing, the city will initiate a process for making BVCP land use map changes
and rezoning after completion of the following:
o The mechanisms for funding public improvements have been put in place; and
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o Any necessary land use code changes have been completed.
The criteria for city initiation of Phase 2 land use and zoning changes are the following:
o Substantial redevelopment of Phase 1;
o Plan in place for providing public improvements to Phase 2; and
o Market support for Phase 2 land uses
The Transportation Connections plan will not be applied to Phase 2 properties until land use
map and zoning changes are made.
Properties in Phase 2 that wish to redevelop sooner could do so under current zoning, or
could request BVCP land use designation and zoning changes consistent with the adopted
Area Plan if it can be demonstrated that:
o Adequate public facilities will be in place concurrent with redevelopment, including
construction of transportation improvements shown on the Connections Plan that are
necessary to serve the property and connect it to the arterial street network. An early
action item for plan implementation will be development of a concurrency ordinance
that would require adequate public facilities and services to be in place concurrent
with redevelopment.
Planning Board and the City Council may also consider the market absorption of properties
with similar uses in Phase 1 when considering BVCP land use map and zoning changes for
Phase 2 properties.
• Modifications to the Development Standards to support the TDM program will include:
modifying parking requirements to require unbundled parking and creating parking caps that
will decrease over time; establishing vehicle trip generation allowances by zone; and possible
required parking district participation.
• Modifications to the Design and Construction Standards for streetscapes as needed.
• Adoption of a concurrency ordinance that includes standards to ensure adequate public
infrastructure consistent with the plan is in place prior to rezoning and/or development.
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General Direction for Land Use and Zoning Changes
1 Floor Area Ratio (FAR) is the ratio of the floor area of a building to the area of the lot on which the building is
located. For more information, see FAR sidebar on page 18 of area plan.
2 Zone refers to the current zoning district that may be applied (possibly with amendments) to the proposed land use
area.
Proposed Land Use
Potential
BVCP Land
Use
Designation
Potential Zoning
District Notes
Prototype Uses FAR1 or
DU/Acre
Zone2
Mixed-Use 1
(MU-1)
Office,
retail,
residential
1.0 FAR Mixed-Use
Business
BMS
(Business-Main
Street)
.33 FAR residential is
required to reach 1.0 FAR.
Mixed-Use 2
(MU-2)
Office,
retail,
residential
1.5 - 2.0
FAR
Mixed-Use
Business
BMS for CAGID/
UHGID, or new
zone
(Business-Main
Street)
Include minimum
residential component,
density bonus for
affordable housing, parking
caps, unbundled parking,
trip generation allowances.
Mixed-Use
Industrial 1
(MUI-1)
Industrial,
residential
0.8 - 1.3
FAR
Mixed-Use
Industrial
New zone, or IMS
with amendments
(Industrial-Mixed
Services)
Include minimum non-
residential requirements.
Allow uses in the
environmental field.
Include 0.5 FAR bonus or
other incentives for green
buildings.
Mixed-Use
Industrial 2
(MUI-2)
Industrial,
office,
residential
1.5 - 2.0
FAR
Mixed-Use
Industrial
New zone At time of Phase 2
implementation. Consider
green building density
bonus.
Office-
Industrial
(OI)
Office,
Industrial
0.7 - 1.0
FAR
Light or
Performance
Industrial, or
new land use
designation
Create overlay for
IG (Industrial
General), or new
zone
At time of Phase 2
implementation.
Allow higher-intensity than
IG and more office
flexibility. Consider green
building density bonus.
High-Density
Residential 1
(HDR-1)
Residential
– urban
townhomes,
condos, up
to street
15 - 24
du/acre
High-Density
Residential
RH5 (Residential-
High 5), or new
zone
Develop district that is
designed for urban
townhouses and similar
housing types.
High-Density
Residential-2
(HDR-2)
Residential 25 - 50
du/acre
High-Density
Residential, or
new higher-
density
designation
RH-3 with
possible
amendments
(Residential-High 3)
RH-3 was implemented in
2004. Several projects
have been approved, and a
few have been built.
Evaluate and possibly
modify. Include density
bonus for affordable
housing, parking caps,
unbundled parking, trip
generation allowances.
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Action Plan for Regulatory Changes
Next Steps Responsibility Timeframe
Amend / create zone districts for MU-2, MUI-1, HDR-1;
BVCP land use designation descriptions, and other code
changes (Boulder Revised Code and Design and Construction
Standards) as needed.
Planning 4th Q 2007 - 3rd
Q 2008
Adopt concurrency ordinance. Planning, City
Attorney’s Office
4th Q 2007 - 3rd
Q 2008
Adopt BVCP land use map changes and rezone Phase 1
properties.
Planning 3rd – 4th Q 2008
Evaluate RH-3 zone district and amend as needed (HDR-2). Planning 3rd – 4th Q 2008
Evaluate plan implementation, including timing of Phase 2
land use, zoning and code changes for MUI-2 and OI.
Planning 2013
Conduct periodic evaluation of green building density bonus
implementation.
Planning &
Development
Services
Every BVCP 5-
year update or
whenever
changes occur
to city code for
commercial
green building
standards
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Section 2: Public Improvements Funding and Phasing
Principles for Implementation
The following principles have guided the implementation plan for public improvement
funding and phasing:
1. Put infrastructure funding tools/mechanisms in place prior to rezoning;
2. Identify mechanisms and incentives to fairly distribute public improvement benefits and
burdens among all area property owners;
3. Existing standards, fees and exactions should generally cover the costs of necessary
infrastructure and its on-going maintenance. To the extent they do not, identify
additional mechanisms to close the gap, for example, improvement districts, concurrency
standards, impact fees or regulations;
4. Identify funding and phasing strategies for key connections and improvements that may
be needed ahead of development;
5. Identify funding strategies to finance TDM programs;
6. Develop a realistic implementation plan, including techniques for public/private
partnerships;
7. Any public improvement to be funded by the city should benefit the city as a whole or
implement the vision and goals for the area; and
8. Improvements that benefit the property owner should be paid for by the private sector.
Phase 1 Key Public Improvements
Key public improvements for Phase 1 have been identified that will set the urban design
character for the area and help implement the plan goals. They are shown below:
Phase 1 Key Public Improvements
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Funding of Infrastructure
The city will fund a portion of the key public improvements for Phase 1. Focusing the
city funding of the infrastructure between 30th Street and the railroad tracks initially (in
the first 10 to 15 years) will foster a more efficient and cost effective development
pattern. Phase 2 is anticipated to be developed after 10 to 15 years based on the
estimated amount of development that can be absorbed in the Boulder market. City
funding of key public improvements in the Phase 2 area would occur after the
improvements in Phase 1 are completed.
The funding for extending Bluff Street west of 30th Street is included in Phase 2.
However, a financial feasibility analysis will be conducted to determine whether funding
can be identified for it in Phase 1. The analysis will evaluate alignment options, the total
costs associated with each alignment, options for city/ property owner cost-sharing and
funding, including a possible local improvement district, and the timing of the city's share
of funding. Approval of the final alignment will be contingent upon a demonstration that
any disproportionately impacted property owners will be fully compensated. If
appropriate, the entire property located at 30th and Bluff streets will be purchased
through the funding mechanisms identified in the analysis.
Costs and Phasing of Key Public Improvements in Phase 1 & 2
The following table lists the estimated costs of the key public improvements that provide
public benefit for Phase 1 and 2, primarily parks and transportation improvements, and
the preliminary cost allocation. In addition to the key public improvements listed below,
there are a number of local roads shown on the Transportation Connections Plan that will
be the responsibility of private development to construct as part of redevelopment. (The
estimates were developed in the fall of 2006, based on planning level information only,
not engineering information, and are shown in fall of 2006 dollars.)
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Estimated Costs of Key Public Improvements and Preliminary Cost Allocation
(In Millions)
PUBLIC
IMPROVEMENT
TOTAL
COST
CITY
SHARE
PROPERTY
OWNER SHARE
FASTRACKS
OR TIP3
Phase 1
Junction Place4 2.75 1.75 1.0 0
Bridge over Goose Creek 1.75 1.5 .25 0
Traffic signals .7 .5 .2 0
Pocket Park & Rail Plaza5 1.6 1.6 0 0
Ped/Bike/ Multi-Use Paths 1.2 0 .10 1.1
Land for Historic Depot .35 .35 0 0
Area-wide stormwater
improvements
1.4 0 1.4 0
Subtotal Phase 1 9.75 5.7 2.95 1.1
Phase 2
Upgrades to Old Pearl St. .8 .6 .2 0
Bluff St. west of 30th St.6 2.2 ? ? 0
Traffic signal Pearl &
Frontier
.2 .2 0 0
Bridges- over Goose Creek
and ditch (east of tracks)
2.0 1.5 .5 0
Wilderness extension to
Goose Creek
.4 .3 .1 0
Frontier extension to Goose
Creek
.4 .3 .1 0
Ped/ bike/multi-use paths 4.3 0 0 4.3
Area-wide stormwater
improvements
1.0 0 1.0 0
Subtotal Phase 2
Improvements
11.3 2.9 + ? for
Bluff St.
1.9 + ? for Bluff
St.
4.3
Total 21.05 8.6 + ? for
Bluff St.
4.85 + ? for Bluff
St.
5.4
3 This category includes RTD FasTracks and the Transportation Improvement Program (TIP), which
includes federal funds allocated through DRCOG. Pedestrian, bicycle, and transit access are eligible to be
funded under the DRCOG’s TIP criteria. In addition, there may be some costs attributed to FasTracks, such
as multi-use paths between the bus and the train.
4 Based on the draft Connections Plan, Junction Place from Bluff to Valmont is shown as a local road and
would not include public enhancements. To add the enhancements to this segment would add
approximately $.5 million.
5 This assumes half of the actual land value; the property owner would be compensated for the other half
through credit for minimum open space requirements, density bonuses, and/or through Parks DETs
collected in Phase 2.
6 A feasibility study will determine the cost estimates for the extension of Bluff Street west of 30th Street,
possible funding sources, and the possibility of a local improvement district to help cover some of the costs.
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Estimated Revenues and Funding Approach for the City’s Share of Key Public
Improvements
The development-related taxes to be collected in the Transit Village area, including
development excise taxes (DETs) and construction use taxes, have been estimated below.
Although there would be some DETs collected without an adopted area plan, most of the
revenues listed below are based on new residential development in the area which would
not occur without the adoption of the Transit Village Area Plan. Only the construction
use tax (general fund, transportation, and parks only) and Transportation and Parks DETs
collected in the area are being considered for reimbursement for public improvements in
the area and these are shown in bold below.
Development-Related Taxes
Estimated Development-Related
Taxes
Phase 1 Buildout
Development Excise Tax (DET)
Police 160,000-300,000 $400,000-650,000
Library $175,000-290,000 $370,000-630,000
Fire $150,000-280,000 $360,000-580,000
Human Services $ 59,000-115,000 $150,000-235,000
Municipal Space $180,000-340,000 450,000-700,000
Parks $815,000-1,330,000 $1,700,000-2,900,000
Recreation $200,000-330,000 $425,000-730,000
Transportation 1,300,000-2,000,000 $3,300,000-5,250,000
Housing (HET) 285,000-580,000 $750,000-1,170,000
Construction Use Tax – including general
fund and transportation
$700,000-1,800,000
$2,7000,000-4,000,000
Total $4,024,000 – 7,365,000 $10,605,000 -
16,845,000
Other funding sources include the city’s Capital Improvement Program and DRCOG’s
Transportation Improvement Program.
Transportation Capital Improvement Program (CIP)
Enhancements to the Transit Village transportation network identified as city-funded will
provide access to the FasTracks bus rapid transit (BRT) and commuter rail facilities.
There is a funding gap between the cost of the city attributed transportation
improvements and the TET and transportation-related construction use tax revenues
anticipated from the area. Starting in 2010, the Transportation CIP includes
approximately $900,000 annually for FasTracks Local Optimization (FLO) projects city-
wide. One version of the cash flow analysis, bridges this funding gap with a portion of
the FLO funding.
Transportation Improvement Program (TIP)
The DRCOG TIP is a competitive process that allocates federal transportation funds.
Transit Village area pedestrian and bicyclist improvements are currently eligible for TIP
funding. TIP funding requires a minimum 20% city/local match.
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The city will use the flexible portion of the General Fund Reserves (above 10 percent) to
front-end the city’s share of the key public improvement costs in conjunction with
corresponding private development. Costs to be incurred after five years will be
programmed in the future at the discretion of the City Council. The reserves will be paid
back over time by revenues generated from Phase 1 development, including
Transportation and Parks DET (Development Excise Tax), construction use tax, the
Transportation CIP (Capital Improvements Program) and Federal TIP (Transportation
Improvements Program) funding.
Action Plan for Public Improvements Funding and Phasing
Next Steps Responsibility Timeframe
Put funding plan in place for Phase 1 key public
improvements for both private and public sectors.
Finance, Planning,
City Attorney’s Office,
property owners
4th Q 2007-
2nd Q 2008
Incorporate public improvements into city budget
(CIP).
Planning, Finance,
Public Works
3rd Q 2008
Determine funding of public improvements in
Phase 2.
Planning, Finance 2009
Develop utilities funding and phasing plan for
stormwater system and water and sewer systems.
Utilities, Planning 4th Q 2007-
3rd Q 2008
Conduct financial feasibility analysis for including
the area west of 30th Street and the extension of
Bluff Street in Phase 1.
Transportation 4th Q 2007-
2nd Q 2008
Develop a TVAP arts and aesthetics master plan. Arts & Culture
Program Planning
2007-2008
Evaluate the fiscal and logistical feasibility of
undergrounding the North Boulder Transmission
Line through the area.
Utilities
Transportation
2010-2011
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Section 3. Transportation Demand Management (TDM) Implementation
Implementation efforts related to the TDM program for the Transit Village area will
focus on two primary areas:
1. A framework for managing parking in the Transit Village area;
2. The supporting requirements for TDM activities within the Transit Village area,
including:
a. code changes related to trip generation allowances,
b. the unbundling of parking,
c. mandatory participation in a transportation management organization
(TMO), and
d. establishment of the funding basis for supporting TDM efforts in the area.
This work will be completed with other code changes and prior to any rezoning of the
area.
Action Plan for Transportation Demand Management (TDM)
Next Steps Responsibility Timeframe
General
Refine the final objectives for the TDM program based on
the target markets of employees, residents and customers.
Transportation 4th Q 2007
Identify performance measures reflecting the objectives,
required data inputs, and the data collection methodology
and timing.
Transportation 4th Q 2007 -
3rd Q 2008
Managing Parking
Phase 1 Parking Study- Prepare existing parking inventory
and utilization study.
Transportation Underway -
1st Q 2008
Phase 1 Parking Study- Prepare parking demand projections
and location-specific parking demand ratios by land use and
zone.
Transportation Underway -
1st Q 2008
Phase 1 Parking Study- Analyze shared parking
opportunities and recommended parking management
practices.
Transportation Underway -
1st Q 2008
Define and implement the management structure for parking
management, based on the city’s role, level of financial
participation and the results from the above tasks. Options
include a parking management association (PMA) or parking
district operated by either the city, the property owners or
both
Planning,
Transportation
2nd Q 2008 -
3rd Q 2008
Define city and RTD roles in parking, based on city/RTD
site and master plan, the parking study results and the
Northwest Rail Environmental Assessment
Transportation,
Housing, RTD
3rd Q - 4th Q
2008
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Identify any area around the rail platform that would be
included in the initial parking management area
Planning,
Transportation
4th Q 2008
Phase 2 Parking Study- Define the expected location and
provision of the required parking, including any centralized
parking structure(s).
Planning,
Transportation
4th Q 2008
Phase 2 Parking Study- Develop and adopt detailed
financing and phasing plan for the parking district and/or
PMA, based on final land use and development phasing.
Transportation,
property owners
2nd Q - 4th Q
2008
Secure property interests in the location(s) identified for
centralized parking, if necessary.
Real Estate
Services
2009 on
Evaluate new technologies for parking and information
management.
Transportation 2009 on
Supporting Actions for TDM
Maintain and increase the activities of GO Boulder and a
transportation management association to promote on-going
TDM activities in the area.
Transportation,
TMO
2008 on
Establish trip generation allowances by parcel to achieve the
TDM objectives.
Planning,
Transportation
1st Q – 2nd Q
2008
Change the city’s code to require that parking in the area be
unbundled in most cases.
Planning,
Transportation
1st Q – 3rd Q
2008
Establish parking maximums for each phase by land use
zone.
Planning,
Transportation
1st Q – 3rd Q
2008
Establish the requirement that all new development join and
support a transportation management organization.
Planning,
Transportation
1st Q – 3rd Q
2008
Prepare a detailed TDM implementation plan to implement
the proposed TDM programs and activities.
Transportation,
TMO
4th Q 2008
Develop and adopt the required financing needed for the
TDM program based on final land use and development
phasing.
Transportation,
TMO
4th Q 2008
Ramp up TDM activities in the area by development phase
to provide the services identified in the TDM chapter.
Transportation,
TMO
2009 on
Refine TDM monitoring and reporting program and its
phasing.
Planning,
Transportation
2009 on
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Section 4: Sustainability Goals Implementation
The Land Use Plan, Connections Plan, and TDM components of the plan advance many
of the city’s sustainability goals. This section outlines additional actions the city will
take after plan adoption to work toward the community’s social, environmental and
economic sustainability goals.
Action Plan for Social Sustainability
Strategy Responsibility Timeframe
Affordable Housing
Incorporate density bonus for projects
that exceed inclusionary zoning
requirements in Mixed Use 2 and High-
Density Residential 2 zones.
Housing, Planning 4th Q 2007- 3rd Q 2008
Develop up to 50 percent permanently
affordable housing on city housing site.
Housing 2008-2016
Locally- and Minority-Owned Businesses and Nonprofits
Consider expanding subsidy to support
locally-owned and/or minority-owned
businesses in area.
Housing and Human
Services, Economic
Vitality
On-going
Consider expanding Community
Development Block Grant (CDBG)
funding to non-profit organizations to
develop facilities in the area.
Housing and Human
Services
On-going
Look for opportunities to partner with
developers to provide affordable space
for businesses that provide unique
community benefit.
Economic Vitality,
Housing and Human
Services
On-going
Other
Investigate opportunities for public
childcare and HeadStart as part of Early
Care and Education Council
Comprehensive System Plan.
Housing and Human
Services
On-going
Design pocket park and rail plaza to be
welcoming to a diverse population.
Parks At time of design (2011-
2015)
Investigate library services for area. Library 2012
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Action Plan for Environmental Sustainability
Strategy Responsibility Timeframe
Incorporate a density bonus or other
incentives for LEED (Leadership in
Energy Efficient Design) Platinum
certified (or some other high-level green
standard) buildings in the Mixed-Use
Industrial 1 zone district.
Planning,
Environmental Affairs
4th Q 2007 - 3rd Q 2008
Consider green building density bonus
for Office Industrial and Mixed Use
Industrial 2 areas.
Planning,
Environmental Affairs
2013
Promote and educate property owners
and developers about the pilot LEED-
Neighborhood Development (LEED-
ND) certification program.
Environmental Affairs On-going
Research/ identify incentives to create a
green technology park.
Economic Vitality,
Environmental Affairs,
Planning
2007-2008
Research/ identify incentives for
development projects to incorporate
innovative stormwater drainage
techniques, including green roofs.
Utilities, Planning 2007-2009
Investigate enhancement of the Goose
Creek drainageway.
Utilities,
Transportation,
Housing, Parks
2007-2008 concurrent
with master planning
city/ RTD site
Develop a Transit Village Area
environmental sustainability plan.
Environmental Affairs,
Planning
4th Q 2007 – 1st Q 2008
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Action Plan for Economic Sustainability
Strategy Responsibility Timeframe
Consider potential alternative locations
for the Depot as part of master planning
city housing/ RTD site (which may
require re-positioning the building).
Economic Vitality, Housing
Transportation, Planning,
Facilities/Asset Management,
RTD, historic preservation
community, property owner(s)
2007-2008
master planning
city housing/RTD
site
Explore alternatives for a vibrant use(s)
for the Depot that will be compatible
with building’s historic integrity.
Economic Vitality, Planning,
Facilities/Asset Management
historic preservation
community
property owner(s)
2007-2008
Investigate feasibility of urban-format
mid-box retail in area, with development
community and retailers.
Economic Vitality
2007-2008
concurrent with
master planning
city housing/RTD
site