Civic Area Matters Item 09.03.25
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TO: Landmarks Board
FROM: Alison Rhodes, Director of Parks and Recreation
Mark Davison, Senior Planning Manager, Parks and Recreation
Shihomi Kuriyagawa, Senior Landscape Architect, Parks and Recreation
David Choate, Historical and Cultural Assets Coordinator, Parks and Recreation
SUBJECT: Matters from the Department
DATE: September 3, 2025
Civic Area Phase 2: Historic Elements Framework
Purpose
This item provides an update on the historic elements within the Civic Area Phase 2 Concept Plan. Staff
seeks Landmarks Board feedback on the proposed framework for design solutions related to the
landmarks within the area. Feedback gathered during this session will inform subsequent refinements to
the concept plan and support alignment with the city’s preservation policies. No decision is being
requested at this time. Comments from the Landmarks Board will help guide the approach to any
forthcoming landmarks alteration certificate applications. Any recommendations within the landmark
boundaries will be brought to the Landmarks Board as part of required regulatory review.
Background
The Civic Area Phase 2 Project is building on the 2015 Park Plan , continuing the transformation of this
important public space into a vibrant hub of urban life, cultural events, and natural connections while
honoring the full history of the area and serving the Boulder community. The project boundary is made up
of 9th Street, Canyon Boulevard, 14th Street, and Arapahoe Avenue. It also includes the Arboretum Path
which runs from Central Park to the University of Colorado (CU). Phase 1 of the project was completed in
2018 and includes areas of the park located between the library and the municipal building.
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Figure 1: The site context map shows the Civic Area located between Arapahoe, Canyon, 9th and 14th
Streets. Blue shading indicates the scope of the current project. Green shading indicates the area of
completed Phase I improvements.
The Civic Area Phase 2 project will create a concept plan for the site by the end of 2025. Construction
documentation and permitting will occur in 2026, with construction of identified elements of the concept
plan to begin in 2027 as funded by the $18M allocated from the Community Culture, Resilience, and
Safety Tax (CCRS tax).
Over the past two years, staff has worked on the planning analysis to gather technical data and
community feedback. Building on the values identified by community members in the 2015 Park Plan,
Phase 2 included three windows of engagement over the past two years. Staff shared a summary of the
first engagement window with the Parks and Recreation Advisory Board (PRAB) in August 2024 as well as
a summary for the second engagement window and completion of the Planning Analysis Phase in March
2025.
PRAB and City Council will review feedback from Window 3 and the full concept plan later this fall . The
third engagement window finished in August (2025). The last window of engagement collected feedback
from community members on the proposed concept plan and specific program elements based on
previous feedback in earlier engagement windows.
Historic Elements within the Concept Plan
As included in the 2015 guiding principles, plans for the Civic Area should seek "Celebration of History and
Assets”. The concept plan reflects these guiding principles and recent engagement, technical site analysis
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and policy guidance to deliver a public space that celebrates Boulder and serves the community long into
the future. The recommended approach prioritizes the integration of the historic resources into active
public life while maintaining their unique historic character.
The Civic Area includes five individual landmarks. All exterior changes within each of the five landmark
boundaries require review and approval through a Landmark Alteration Certificate.
The Atrium Building (1300 Canyon Blvd.)
The Atrium Building was constructed in 1969 and designated as an individual landmark in 2022. The
landmark boundary includes the entirety of the building and follows the pr operty boundary on the west,
south and east sides. The parking lot to the north is excluded from the boundary. The building is currently
owned by the City of Boulder and serves as office space.
Throughout the engagement process for Civic Area Phase 2, community members shared they would like
to see a year-round Farmers’ Market in this space and generally seeing the presence of the Farmer s’
Market expanded in this area.
This building is located in East Bookend between 13th and 14th Street, Canyon Boulevard and Arapahoe
Avenue and will be part of the East Bookend Public Private Partnership redevelopment process, separate
from the Civic Area Phase 2 park enhancements. This timeline is projected to be on a different schedule
than the park improvements as it looks at adaptive reuse of existing buildings and developer partnership.
The Dushanbe Teahouse (1770 13th St.)
The Dushanbe Teahouse was constructed in 1988-1990 and 1997-1998 and designated as an individual
landmark in 2020. The landmark designation includes both the interior and exterior of the Teahouse . The
boundary extends from the north side of the teahouse to the south side of the multi-use path adjacent to
the Storage & Transfer Building (1820 13th St.), and from west property line to the east side of the non-
contributing addition. A portion of a private irrigation ditch runs through the boundary; historic preservation
review is not required for ditch maintenance and operation. The building is currently owned by the City of
Boulder and currently operates as a teahouse and restaurant managed by Three Leaf Farms.
Throughout the engagement for Civic Area Phase 2, community members share d their love for the
Teahouse and were interested in seeing expanded gardens around the building.
This building is located in the East Bookend between 13 th and 14th Street, Canyon Boulevard and Arapahoe
Avenue and will remain with the same land use .
The Storage and Transfer Building (1750 13th St.)
The Storage and Transfer Building was constructed in 1906 and designated as an individual landmark in
1992. The designation boundary includes the footprint of the building and approximately 50 feet to the
east. The City of Boulder owns the building and currently leases this space to the Boulder Museum of
Contemporary Art (BMoCA) which provides a range of art programming. While BMoCA is working to
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develop a larger campus in North Boulder, there have been no decisions made for future programming of
this building.
Throughout the engagement for Civic Area Phase 2, community members shared interest in community
gathering spaces.
Along with the Atrium and Teahouse, this building is located in East Bookend between 13th and 14th Street,
Canyon Boulevard and Arapahoe Avenue and will be part of the East Bookend Public Private Partnership
redevelopment process, separate from the Civic Area Phase 2 park enhancements. This timeline is
projected to be on a different schedule than the park improvements as it looks at adaptive reuse of existing
buildings and developer partnership.
The Penfield Tate II Municipal Building (1777 Broadway)
The Penfield Tate II Municipal Building was constructed in 1951 and designated as an individual landmark
in 2009. The designation boundary extends to the property lines on the north and east, and approximately
70 feet to the west of the building (to the multiuse path) and to Boulder Creek on the south. The City of
Boulder owns the building and serves as Council Chambers and city office space.
Throughout the engagement for Civic Area Phase 2, community members shared their interest in this
building including several public facing program opportunities such as a café and visitors center.
Due to holding council chambers and some city staff offices, this building will be looked at for
reprogramming in a future phase outside of phase 2 improvements.
The Glen Huntington Bandshell (1236 Canyon Blvd.)
The Glen Huntington Bandshell was constructed in 1938. Circulation paths and seating were added in
1950. It was designated as a local landmark in 1995 with a major rehabilitation of the structure completed
in 1997. The designation boundary includes the northern 170 feet of Central Park and includes the
bandshell structure and bench seating.
Throughout the engagement for Civic Area Phase 2, community members shared their appreciation for the
bandshell’s iconic form and how it serves as a key visual element in the park. Community members also
shared that the bandshell feels underutilized and often unsafe due to unsocial behaviors happening in the
area. Specific concerns about the seating’s accessibility challenges and lack of comfort were also raised.
Based on this feedback, the concept plan proposes to maintain and expand the role of the bandshell
within the park through improved accessibility, lighting, audio/visual and seating .
To recognize the unique characteristics of the bandshell, staff propose using a framework specific to
historic outdoor theaters in tandem with Boulder’s regulatory process. The criteria for review would not
change, and are found in Section 9-11-18 Standards for Issuance of a Landmark Alteration Certificate ,
B.R.C. 1981. See the “Proposed Framework for Considering Changes to the Bandshell” section below.
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Historic and Cultural Story Walk
In addition to these landmarks, community members have shared enthusiasm for creation of a n art,
historic and cultural story walk. In the future, this proposed pedestrian loop could connect from Pearl
Street through the Civic Area to The Hill and up to Chautauqua, connecting multiple neighborhoods across
the city into a dynamic storytelling trail.
While only the portions that go through the designation landmark boundaries require review from the
historic preservation program, the project team appreciates the support and collaboration of the historic
preservation community in realizing this important storytelling opportunity. Staff continues build on the
research started as part of the Civic Area Historic District proposal of 2022-2023 and has begun to reach
out to community and organizations to inform the content of this walk as displayed in the draft overview in
Figure 2.
Figure 2: A draft historic and cultural storytelling pedestrian loop through Civic Area.
Project Funding
The project team continues to study best practices on how to integrate the above historic elements into
the full vision of Civic Area concept plan. Each of the five individual landmarks within the Civic Area
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represents a unique history and requires a thoughtful approach. The team aims to respect the existing
character of these iconic landmarks and enhance them by making strategic improvements to best serve
the needs of the community.
With $18M in funding for Phase 2, it will not be possible to fully realize all improvements shown in the
Civic Area Concept Plan right away. A phased approach will be necessary for implementing site
improvements. The project team is studying what improvements will be included in Phase 2 of
construction and the cost implications for the overall concept plan. Focusing on improvements east of
Broadway might be a potential approach for the next stage of construction, pending completion of these
studies in Q4 2025.
Proposed Framework for Considering Changes to the Bandshell
In 2022, three UC-Berkely faculty members published a guidebook titled “Preserving Landscape
Experience in Historic Outdoor Theaters.” The project was funded by National Center for Preservation
Technology and Training, a unit of the National Park Service. The guidebook articulates the unique
experience historic outdoor theaters provide within the landscape, as well as the challenges in
maintaining their function.
The guidebook begins with a history of historic outdoor theaters, recognizing Early Outdoor Theaters
(1890-1930), Depression Era Outdoor Theaters (1930 -1942) and Outdoor Theaters Since the Depression
(1943-Present).
Six profiles are presented as exemplary renovations. Staff considers Red Rocks Amphitheater and All
Hallows Amphitheater share key similarities to the Glen Huntington Bandshell.
1) John Anson Ford Amphitheatre (Los Angeles, CA; 1920, 1931, 2008-2017): Page 26-37
2) Red Rocks Amphitheater (Morrison, CO; 1936-1941, 1965, 1987, 2014-2019; Denver Landmark
1973, National Register 1990, National Historic Landmark 2015): Page 38-51
3) Timberline Amphitheater (Mount Hood, OR; 1937-38, 2006. May be associated with listing of the
Timberline Lodge National Historic Landmark and National Register listings): Page 52-63
4) Quarry Amphitheater (Santa Cruz, CA; 1967, 2017): Page 64-75
5) Rhoda Goldman Concert Meadow (San Francisco, CA; Dates of Construction: 1932, 2005;) : Page
76-87
6) All Hallows Amphitheater (Washington D.C.; 1901-1949 (incrementally), 1941, 2005-2007;
Washington Cathedral Close Historic District, DC Inventory (local) 1968, National Register
1974) : Page 88-99
The guidebook then identifies key elements that are critical components to successful historic theater
renovations:
• Seating
• Stage Structures, Lighting and Sound
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• Restrooms, Concessions & Auxiliary Structures
• Contemporary Building and Accessibility Codes
Finally, the guidebook provides a recommended framework for developing a successful renovation
project, one that honors the historic characteristics of the facility and balances strategic enhancements to
better serve the performers and event-goers.
The project team is considering utilizing this framework to assess changes to the Glen Huntington
Bandshell. The Standards for Issuance of a Landmark Alteration Certificate found in Section 9 -11-18,
B.R.C. 1981 remain the criteria for changes, however, utilizing the framework can increase our collective
understanding of the bandshell’s unique site features and theater experience. The following section
demonstrates how the guidebook’s nine step framework might be used by the project team.
1. Formally recognize preserving the landscape experience as an essential goal of the project.
a. Since its construction in 1938, concert goers and audience members have listened to
music and watched performers in this area of the park. Preserving that experience for
future generations is key to any proposal related to the bandshell. Balancing preservation
of visitors’ experience of the landscape with thoughtful modification to support visitor
comfort and functionality of the bandshell involved is an essential goal of Civic Area
Phase 2.
2. Include a core client group member with the role of being the voice for visitors’ experience of
the landscape.
a. Throughout the engagement for Civic Area Phase 2, community members shared their
appreciation for the bandshell’s iconic form and how it serves as a key visual element in
the park. Community members also shared that the bandshell feels underutilized and
often unsafe due to unsocial behaviors happening in the area. Specific concerns about
venue accessibility challenges and lack of comfort were also raised. Additional
engagement with key stakeholder groups, particularly to understand the visitors’
experience, would occur as part of the design process, if changes are included in the
scope of Phase 2 improvements. Engagement with key local stakeholders that could
operate the bandshell, such as theater groups and performance groups will inform
enhancements and upgrades.
3. Investigate and document the history of the theater’s relationship to the landscape.
a. Prior to the design phase, staff will investigate and document the history of the Glen
Huntington Bandshell’s relationship to the landscape. Past documentation wi ll be
referenced, including but not limited to the 1995 Historical Study, 1995 staff
memorandums and designation ordinance, 2015-2016 Determination of Eligibility, 2022
Mundus Bishop Memorandum, 2015 Landmarks Board memo to review removal of the
seating, regrading and hardscaping, 2023 Historic Places Plan (HiPP) and the 2023
Cultural Landscape Report.
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4. Hire a design team with a track record of interconnecting structures and landscapes and
sustaining a landscape focused experience, even while providing state -of-the-art facilities.
a. The project team includes multiple staff and consulting firms focused on interconnecting
structures and landscapes and sustaining a landscape focused experience, while
providing state of the art facilities. RIOS is a multidisciplinary design firm that operates at
the intersection of architecture, landscape architecture, urban design, interiors, and
experience design to create interconnected environments where structures and
landscapes come together to inspire and support extraordinary experiences. With 40
years of experience and offices in Boulder, Los Angeles, and four other cities, RIOS has
led transformative projects that sustain landscape -focused experiences while providing
state-of-the-art facilities.
TheatreDNA is a leading boutique theatre consulting firm specializing in the design and
operation of live event facilities. Their expertise spans performance space design, cultural
facility planning, and technical systems integration, ensuring venues function seamlessly
for both artists and audiences. With experience in feasibility, programming, and
performance equipment design, TheatreDNA delivers comprehensive, collaborative
services that strengthen the connection between performance, place, and community .
5. Recognize how the theater creates its relationship with the landscape .
a. The project team will analyze how the bandshell creates its relationship with the
landscape. For example, the bandshell is situated in an urban park and is a visual
landmark and a performance stage, while the sloped grade and surrounding trees create
an outdoor room with iconic views of the Flatirons.
6. During Pre-Design, investigate if and how each element of the theater—seats, stage
structure, auxiliary buildings, access—contributes to or distracts from the landscape
experience (and to or from each goal—visitor comfort, production values, finances).
a. The framework provides guidance for assessing each element of an outdoor theater.
Analysis will include how the Art Deco stage structure, sloped grade, benches and
circulation paths and other elements contribute to or distract from the landscape
experience, and to visitors’ comfort and accessibility.
7. When faced with an apparent trade-off between fulfilling two goals, step back and
reconceive the two “things” being put in opposition as two “levels of performance” that
must be met.
a. The project team will approach changes within the bandshell boundary as two levels of
performance. For example, rather than presenting a trade off of “historic benches or
comfort and accessibility,” consider “how could the seating at the Glen Huntington
Bandshell both preserve the historic character of the unique outdoor theater and be
accessible and comfortable ?”
8. When compromises appear necessary, formally recognize them and openly consider their
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consequences. Rarely can all the goals of an outdoor theater renovation be equally met, so
you want the choices to be transparent, intentional, and tenable for all stakeholders.
a. The project team will explore and formally recognize choices and tradeoffs in the design
process, and approach compromises with transparency.
9. Knowing a key to success will be creatively resolving perceived conflicts between goals,
emphasize building collaborative relationships throughout the project team and with
individuals in each agency with a role in regulating the project. Involve everybody, especially
regulators and technical experts, in devising solutions that meet apparently conflict ing goals,
rather than just in approving or rejecting proposals.
a. The project team understands that building collaborative relationships is key, and as
described above, is intended to include a broad coalition of experts, and additional
community engagement. The project team recognizes that the Landmarks Board plays an
important role in how the bandshell changes over time.
Questions for the Landmarks Board
1) Does the Landmarks Board have questions about the proposed framework to inform future
enhancements to the bandshell?
2) Does the Landmarks Board have questions about the historic elements included in the concept
plan?
Next Steps
The overall timeline for Civic Area Phase 2 enhancements includes:
• Cost Analysis Evaluation Completed in Q4 2025
• Concept Plan presentation to PRAB: Monday, October 27, 2025
• Concept Plan presentation to City Council: Thursday, November 13, 2025
• Permitting and construction documentation: 2026
• Construction: 2027
Feedback from the Landmarks Board at the September 2025 meeting will guide the approach to any f uture
landmarks alteration certificate applications prior to permitting and construction documentation. The
project team appreciates the Landmarks Board’s thoughtful feedback at this framework stage.
Attachments
Attachment A - Preserving Landscape Experience in Historic Outdoor Theaters (link)