HomeMy WebLinkAbout10.06.25 DMC PacketDOWNTOWN MANAGEMENT COMMISSION
October 6, 2025
4:00-6:00 P.M.
Community Vitality Department, 1500 Pearl Street, Suite #300
(The public will attend via Zoom webinar.)
AGENDA
I.Roll Call Secretary
II.Procedural Items (5 min.)Chair
A.Approval of July 2025 Meeting Minutes
III.Public Participation (0-10 min.)Chair
IV.Consent Agenda – Topics will not be discussed unless there are questions posed by the Commission.
Please reference the consent agenda memo.
V.Downtown Boulder Partnership (DBP) Update (15 min.)Bettina Swigger, DBP
VI.Matters from Staff (105 min.)Staff
A.Downtown Development Authority (DDA) Update (Brown) 15 min.
B.Spruce and St. Julien Update (Edwards) 35 min.
C.2026 Budget Recommendations and Approvals (LaBonte) 20 min.
D.Garage Wayfinding (Edwards) 20 min.
E.Draft Commissions Summit Agenda Review (Jones) 15 min.
VII.Matters from Commissioners (10 min.)Chair
VIII.Upcoming Meetings Chair
A.All CV Commissions Summit Meeting: 3 p.m., Monday, October 20, 2025
B.DMC Commission Meeting: 4 p.m., Tuesday, October 28, 2025
IX.Adjourn Chair
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Attachments:
-Draft July 2025 Meeting Minutes
-Special District Boards and Commissions Consent Agenda – September 2025
-Downtown Boulder Partnership Presentation
-DDA Memo
-Spruce and St. Julien Presentation
-2026 Budget Recommendations Presentation
-Garage Wayfinding Memo
-All CV Commissions Summit Meeting Draft Agenda
-Curbside Management Update – This item will not be discussed unless there are questions from commissioners.
-Boulder Improvement District Analysis Update – This item will not be discussed unless there are questions from
commissioners.
Commission Members 2024 Commission Priorities UHCAMC Charter
Commissioner Members 2025 DMC Priorities
Staff Liaison
Cris Jones, Community Vitality Director
jonesc@bouldercolorado.gov
Erica Dahl - Property Owner/Rep
Term ends: 2029
Don Poe, Chair- Property Owner/Rep
Term ends: 2026
Stephanie Trees, Vice Chair – Citizen-at-
Large
Term ends: 2026
Justin Kalvin - Citizen-at-Large
Term ends: 2026
Andy Nathan - Property Owner/Rep
Term ends: 2028
1. Facilitate the perception of safety with support for Boulder's
ambassador program and for mindful policing.
2.Support Economic Vitality by advocating for the activation of
underutilized space (e.g., parking lots), strong encouragement of
affordability efforts, and promotion of helpful code changes.
3.Connect visitors from other areas to the Downtown area by spreading
awareness of marketing efforts and wayfinding.
4.Take opportunities to communicate with other boards and align efforts
to connect the various economic districts.
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CITY OF BOULDER
BOULDER, COLORADO
BOARDS AND COMMISSIONS MEETING MINUTES
Name of Board/Commission: Downtown Management Commission
Date of Meeting: July 15, 2025
Contact Information Preparing Summary: Ellie Kennedy, (303) 441-4032
Board Members Present: Justin Kalvin, Don Poe (Chair), Erica Dahl
Board Members Absent: Stephanie Trees (Vice Chair), Andy Nathan
Staff Present:
Cris Jones, Director of Community Vitality (CV)
Matt Chasansky, CV Senior Manager of Cultural Vibrancy & District Vitality
Kristine Edwards, CV Senior Manager of Operations and Maintenance
Elliott LaBonte, CV Senior Manager of Business Services
Reegan Brown, CV Senior Project Manager
Ellie Kennedy, CV Operations Specialist
Sam Bromberg, CV Senior Project Manager
Melissa Mazany, CV Operations Associate
Stephen Redfearn, Chief of Police, Boulder Police Department
Michael Heath, Police Commander, Boulder Police Department
Guests Present:
Bettina Swigger, CEO, Downtown Boulder Partnership
Type of Meeting: Hybrid
The DMC meeting was called to order at 4:00 p.m. A quorum was present for the conduct of business.
Agenda Item 1: Roll Call
Ellie Kennedy, CV Operations Specialist took roll call; all commissioners were present except
Stephanie Trees and Andy Nathan.
Agenda Item 2: Procedural Items
A.Approval of the May 2025 Meeting Minutes
Justin Kalvin motioned to approve the meeting minutes as presented in the packet. Second by Erica
Dahl. There was no discussion. The motion passed unanimously.
Agenda Item 3: Public Participation
There were no members of the public present.
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Agenda Item 4: Consent Agenda
Consent Agenda – Topics will not be discussed unless there are questions posed by the Commission.
Please reference the consent agenda memo.
•Don Poe asked about the Supplemental Vending Cart Program and if their were available
license. Reegan Brown, CV Senior Project Manager, answered that there are two vacancies, and
Dar Chocolate and an empanada cart have applied and are in review with Brian Holihan,
District Vitality Specialist. Poe asked who left the program, and Brown answered she would
follow up.
•Poe asked about the Curbside Management Update and which commissioners will be project
liaisons. Kalvin offered to volunteer as a liaison. Kennedy will reach out to Chris Hagelin in
Transportation & Mobility for more information about the liaison request for commissioners.
Kristine Edwards, CV Senior Manager of Operations and Maintenance, added more details
about the project timeline, and Elliott LaBonte, CV Senior Manager of Business Services,
added information about the curbside management project goals and tools.
•Poe asked what the differences are between having the Outdoor Dining Program be a temporary
program versus a permanent program, and Brown answered that making the program
permanent will ensure that there is funding for the program every year. Poe asked who gets the
permit fees from the program, and Brown answered Planning & Development Services receive
those fees.
Agenda Item 5: CAGID Visitation Report (Placer.ai)
The report will not be discussed unless there are questions posed by the Commission. Please reference
the packet attachment.
•DMC had no questions or comments regarding the visitation report.
Agenda Item 6: Boulder Police Department Update
Stephen Redfearn, Chief of Police, Boulder Police Department, updated the commission about:
•The June 1st terrorist attack on the mall was a large focus for the first half of the month and has
resulted in additional police presence on the mall.
•The person who attacked people with a chain is in custody.
•The perception of safety and the actual data are often not aligned. Current data shows all crimes
are down YTD.
Michael (Mike) Heath, Police Commander, Boulder Police Department, updated the commission
about:
•Sergeant Ryan Scheevel has left the Mall Sergeant position, and Sergeant Bryan Capobianco is
interim in the position.
•There has been some turnover on officers, but all positions have been filled.
•BPD is increasing patrols on the Pearl Street Mall overnight.
•Heath explained the large number of resources used to apprehend the chain attacker.
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Dahl asked about the response timing of the June 1st terrorist attack and how to get information more
quickly. Heath answered that the mobility of the suspect delayed the response and affected the decision
to call for evacuation.
Poe asked about the Cop Walk event on the mall occurring July 23, 1:00 – 3:00 p.m. Heath answered
that the event is meant to make discussions with police officers more accessible and connect the
department with the community.
Agenda Item 7: Downtown Boulder Partnership (DBP) Update
Downtown Boulder Partnership CEO Bettina Swigger updated the commissioner on current DBP
topics:
•There was a meeting with block captains, Officer James Baddly, and local business owners to
discuss topics of the downtown area.
•DBP successfully moved offices.
•Her team is comparing the data from the pedestrian count data to Placer.ai data. They are now
tracking new numbers of businesses and the number of businesses that left.
•The Welcome to the Heart of Boulder campaign was paused after the June 1st terrorist attack
but is now live and successful.
•Restaurants have been hit by economic issues, so DBP has created a Restaurant Task Force and
a Restaurant Playbook to provide best practices for success as a restaurant in Boulder.
•Swigger shared the schedule for upcoming ad campaigns.
•DBP and city staff are participating in a Collaboration Panel Presentation at the Denver BID
Council event. Commissioners should RSVP to Swigger.
•Bands on the Bricks has upcoming events throughout July and has been successful.
•The Downtown Showdown Event (formerly Office Olympics) is happening soon.
•Swigger gave an update on the operations happening in the downtown area, including the
Ambassador program.
Kalvin asked if the trashcans on The Hill will be implemented downtown as well, and Kristine
answered that the project is currently paused due to budget considerations.
Agenda Item 8: Matters from Staff
A.Garage Wayfinding Signage
Sam Bromberg, CV Senior Project Manager, shared that the signage that directs visitors to the
downtown garages needs to be updated due to changes in transportation routes. She asked the
commissioners for their input on the supplied sign options.
Kalvin shared that the simple, third option is too simple. He asked if the signs will be reflective as he
feels it makes them stand out more. He prefers the hybrid, second option.
Dahl shared she prefers the custom, first option as it’s clearer and easier to understand. Poe added that
the simple, third option doesn’t give enough information about who owns the parking lot or garage.
Poe added he thinks the lettering should be bigger.
Bromberg shared that she can provide a budget once she has more concrete design ideas.
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Swigger added that the custom, first option has an old logo on it that will need to be updated.
The commission discussed more details about the sign options. Poe shared he prefers the branding and
believes it makes the signage stand out. Kalvin shared his thoughts about not needing to advertise too
much because there isn’t much competition.
B.CIP Investments Update
Edwards updated the commission about work done in the downtown area, including:
•Tree trimming at 11th and Spruce
•Maintenance and upgrades at the 1100 Spruce Garage, including heat lamps and landscaping.
•Maintenance and upgrades at the 1500 Pearl Garage, including solar panel gutters and cleaning
out the boiler.
o Poe asked who coordinated the murals, and Edwards answered that it was the Public Art
Office in collaboration with the Maintenance Team.
•Maintenance and upgrades at the RTD Garage, including painting the interior and upgrading
the bike shelter.
o Poe asked who owns the space, and Edwards answered that the city owns the air rights
and the garage, and RTD owns the bus station on the ground level.
•Maintenance and upgrades at the St. Julien Garage, including stairwell enhancements and
painting the back wall.
•Maintenance and upgrades at the Randolph Garage, including restriping and painting.
•Other updates around Boulder, including no overnight parking in the civic area lots and
finishing the tree wells in front of the Wells Fargo parking lot.
C.Final Draft of 2026 Budget Proposal
LaBonte updated the commission about the Community Vitality Department’s budget and explained
Executive Budget Team (EBT). They are a group of city staff who review budget proposals and move
them along to City Council for approval. He shared the 2026 Operating Budget overview, including the
operating budget and capital, and the changes to both from 2024 to 2025 and from 2025 to 2026.
Poe asked if the budget presented is for all of Community Vitality (CV) or the General Fund, and
LaBonte confirmed it is for all of CV. Poe asked if the reduction from 2024 to 2025 is only due to the
Parking Enforcement Department moving out of CV, or if there are other factors like budget
reductions, and LaBonte answered that it is due to the move of the department.
Dahl asked what factors are causing the increase from 2025 to 2026, and LaBonte answered that there
are multiple funding sources from the districts that support the increase.
LaBonte discussed the 2026 – 2031 Capital Improvement Plan (CIP), including improvements and
renovations to lots and garages and supporting public arts projects.
Poe asked if the sale of the Spruce Lot is still happening and how it will impact the budget, and
LaBonte answered that they are working on the second letter of intent and contract.
Poe asked if the funds from the sale will go to the General Fund or to the Commercial Area General
Improvement District (CAGID) fund, and LaBonte answered that it will go to CAGID.
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Poe asked if $3 million for the Pearl Street Mall 50th Anniversary would be enough to fund all the
updates they want to make, and LaBonte answered that they will be focusing on maintenance to make
sure the mall looks nice but keeps its character and culture.
Poe asked about the Regional Transportation District (RTD) service returning to the Boulder Junction
Access District (BJAD) Bus Station, and Edwards answered that RTD may start service in September.
Dahl asked about the revenue that the BJAD parking garage generates, and LaBonte answered that it
generates revenue, but nothing near what the CAGID parking garages generate.
LaBonte shared that The Commercial Area Blueprint Request for Proposal (RFP) has opened and is
requesting ideas for how to connect the districts.
He brought up Notable Items for District Commissions, including maintaining essential services,
addressing deferred maintenance, supporting public spaces, events and safety, expanding the CIP for
asset management, and making minimal changes to the operational budget. LaBonte went over the next
steps of the EBT review in July, the City Council Review in August, the Commission
Recommendations in September, the Final Budget Adoption in October, and future, continued input
from the commissioners.
Poe asked if there will be an issue receiving funds for the capital improvements or if those projects are
already accounted for in the budget, and LaBonte answered that he is cautiously optimistic that city
council will approve the budget.
Agenda Item 9: Matters from Commissioners
Dahl asked about the 50th Anniversary of the Pearl Street Mall and how to support that. Swigger
answered that DBP are going to update the area. They will be seeking a logo design to license out. The
main event is August 7, 2027, so there will be more to come. Swigger shared that they are working to
publish an update to the book Positively Pearl Street that came out on the 30th Anniversary of the Pearl
Street Mall.
Poe brought up that the Vision Plan doesn’t have a funding mechanism, and Swigger replied that it’s a
conceptual guide for anyone who wants to plan a project downtown.
Agenda Item 10: Next Commission Meeting
Next Commission Meeting: 4 p.m., Tuesday, September 9, 2025. The public will be remote.
Agenda Item 11: Adjourn
There being no further business to come before the commission at this time, Poe moved to adjourn the
meeting. The meeting was adjourned at 5:30 p.m.
Approved on:
Attested: Approved by:
___________________ _____________________
Ellie Kennedy Don Poe
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Board Secretary DMC Chair
Date: ______________ Date: _________________
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City of Boulder
Special District Board Consent Agenda
University Hill Commercial Area Management Commission (UHCAMC) – September 2, 2025
Downtown Management Commission (DMC) – September 9, 2025
Boulder Junction Access District (BJAD) Commissions – September 17, 2025
Updates on Community Vitality work plan programs and projects for city special district boards
and commissions. These updates are for informational purposes only and require no discussion
or votes.
Special District Updates
University Hill General Improvement District (UHGID)
•Due to city-wide budget reductions, work on the University Hill Streetscape Project is being
limited to the median improvements at this time. Staff are in conversations to determine next
steps on other aspects of the project. Construction on the medians is planned to begin and
finish this Fall, with design review progressing as scheduled.
•The ash tree on 13th Street in front of the Fox Theatre is slated for removal this fall. Staff are
working with the city’s Forestry team to coordinate the removal and next steps.
•Parking permits for the 14th street surface lot were made available to purchase by UHGID
employees and businesses beginning July 14. Staff will be closely monitoring the lot to
understand utilization and impacts of the permit pilot program.
Central Area General Improvement District (CAGID)
•Staff continue work on improving public parking garages in downtown Boulder in 2025,
which requires periodic partial and full closures of the garages.
•Work continues on the Garage Mobility Hub project, funded in part by a Denver Regional
Council of Governments (DRCOG) grant, to create concept plans for converting CAGID
parking garages into multi-functional mobility hubs.
•Staff continue to facilitate a team across city departments for review of systems and
programs to keep downtown areas clean and well-maintained.
•Roots Music Project continues planning for the Roots Music Festival in Downtown Boulder
on October 17-19, sponsored by the Community Vitality Department.
•Activity permits for the Pearl Street mall remain in high demand, with 15 permits issued in
August. Staff continue to streamline the application process and improve the overall
experience for vendors.
•Through a supplementary Mobile Vending Cart (MVC) Program application, staff have
permitted two vendors, DAR Chocolate and La Catrina Tamales, to fill vacant spots on the
Pearl Street Mall for the remainder of the year. Staff are working closely with both vendors
to help them get set up successfully for the remaining months. In addition, the city is looking
at ways to improve the overall look and feel of the MVC Program, including updates to the
application process, a review of the retail mix, and exploring common aesthetic guidelines
for carts by the end of the year.
Boulder Junction Access Districts (BJAD)
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City of Boulder Updates
Boulder Clean Commute Pilot Program – Work is underway to enhance the Boulder Clean
Commute program for 2025 in partnership with local tech company Commutifi. A strengthened
employer engagement plan has been launched for the remainder of the year to boost participation
and streamline the onboarding process. Commutifi will lead this effort through targeted outreach,
live support sessions, and in-person engagement events. More information can be found on the
program website Boulder Clean Commute.
Curbside Management Plan Implementation Update – Staff continues to implement City
Council’s ordinance, passed in October 2024, to convert traditional loading zones into “Flexible
Loading Zones”.
Downtown Development Authority (DDA) Formation – Staff are working with Progressive
Urban Management Associates (PUMA) to lead the analysis and engagement process to form a
DDA in Boulder. PUMA is currently convening a Planning Group of key stakeholders to provide
creative input and help move this work forward. Next steps include finalizing potential
boundaries, completing a financial analysis, and beginning to draft the Plan of Development. The
goal is to bring the DDA proposal to voters on the November 2026 ballot.
Commercial Areas Blueprint – Staff released an RFP for this work and will be selecting a
consultant by the beginning of September. More updates will be shared once staff select a
consultant and this project moves forward.
Outdoor Dining Pilot Program – Community Vitality staff continue facilitating the next phase
of a proposed permanent program. The Pilot Program is set to end in October 2027.
Boulder Arts Blueprint – Work continues on the Boulder Arts Blueprint, a strategic roadmap
for arts and culture across departments aligned to the update of the Boulder Valley
Comprehensive Plan. Arts Blueprint website.
Public Art in the Districts
•Progress continues on the 11th and Spruce public art project with artist David Franklin. The
engineering assessment of the garage is complete, and staff are now working on final design,
fabrication, and permitting.
•The Accessible Signage project to improve city-wide public art signs and interpretation
continues..
•Free public art tours ran through August with nearly 200 residents and visitors joining
docents on a walk through 30 sculptures, murals, and other projects throughout downtown
Boulder Social Streets Implementation – Further work on this project has been paused due to
budgetary constraints. The engagement and work completed to date has already informed several
key improvements to the special event process and programs.
Parking Enforcement - Enforcement is prepared to monitor compliance with the new flexible
loading zones related to the curbside management plan. They are also ready to help support the
Mobility Hub project and the adjustments that may pertain to enforcement.
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September 2025
Bettina Swigger, CEO
● Public Policy Work
●Marketing Updates
● Upcoming Events & Programs
● Ambassador Program Update
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Public Policy Committee Update
●Advocated for County Commissioners to
compromise on a three-year term for upcoming
Behavioral Health Tax Initiative
● In support of CCRS Sales Tax Extension Initiative
● Received an update on City’s Homelessness
Response Strategy
DBP City Council Candidate Forum
Thursday, October 9, 8:30 - 10 am
eTown
In order to provide a civil environment for the candidates to present their views, attendance at
this Candidate Forum is only open to DBP members and representatives of businesses within
the Business Improvement District. Advance registration is required and the organizers
reserve the right to refuse access to anyone who does not fit those criteria.
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Fall / Winter brand campaign kicks off in a few weeks. New tactic: micro influencers.
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Updated Copy / Photos for Paid Social: Fall Campaigns
Fall Drone
Photo /
Video Shoot
Fall / Winter
People
Photo Shoot
Event
Marketing
Fall FestMunchkin
Masquerade
World
Singing
Day
In
Production:
:30 TV spot
&
:30 & :15
Podcast
spots
Marketing
Overview
Bigger print run: increasing
from 25,000 → 30,000 copies
to meet demand
Value-minded pricing: only a
~5% increase from last year.
(Ad prices have been flat for
the past two years. Revenue
does not cover the entire cost
of
design/production/distribution -
the guide is partially funded by
BID marketing dollars too.
Also, we are printing 5,000
more copies than we did this
year!)
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Case Study #1: Downtown Boulder Partnership
Analyze a strong City-BID partnership model that incorporates strategic planning, shared
management, and financial alignment.
Watch the Panel Discussion: https://youtu.be/8cZhwWOIJPA
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Friday - Sunday, October 3 - 5, 2025
Friday, October 3rd 5 - 9 pm
Saturday, October 4th 10 am - 9 pm
Sunday, October 5th 10 am - 5 pm
Celebrate fall with us at Fall Fest! In addition to live music all
weekend, our beer garden, and the Firefly Handmade Market,
there will be free activities for kids + inflatables in our “Fun Zone”
over by the Boulder County Courthouse Lawn.
On Saturday, October 4th, Downtown Boulder will host its
first-ever Battle of the Bands event during Fall Fest. Winners will
be selected through a combination of audience and jury votes.
Winners receive booking slots a Roots Music Festival and our
2026 Bands on the Bricks series.
BoulderFallFest.com
Musical Lineup for the Weekend
Friday, October 3rd
5 - 6:30 pm Silas Herman & The Tone Unit
7 - 9 pm Cashmere Sweater
Saturday, October 4th
10 - 11 am Boulder Suzuki Strings
11:30 am - 4:30 pm Battle of the Bands
11:30 am - 12 pm Barn Ghost
12:15 - 12:45 pm Sempar
1 - 1:30 pm The Buzz
1:45 - 2:15 pm Razorbill
2:30 - 3 pm Jason Brandt & The Build Out
3:15 - 3:45 pm The Skinny
4 - 4:30 pm Ronjo V
5 - 6:30 pm Mighty Mystic
7 - 9 pm Roka Hueka
Sunday, October 5th
11:30 - 12:30 pm School of Rock
1 - 2:30 pm The Rock and Pop Music Academy
3 - 5 pm 2mx2
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Saturday, October 18, 2025
2 - 3:30 pm
1300 block of the Pearl Street Mall
The 10th annual World Singing Day Boulder event is a
community sing-along where people of all ages, backgrounds,
and singing abilities are invited to sing popular songs together.
Roots Music Festival will be taking place the same weekend
October 17 - 19, 2025, with free music on the 1300 block stage
starting right after World Singing Day.
WorldSingingDayBoulder.com
Friday, October 31, 2025
3 - 6 pm
All four blocks of the Pearl Street Mall
Downtown Boulder’s annual trick-or-treating event is back!
Munchkin Masquerade will feature a variety of exhibitors (both
for and non-profit organizations) and a plethora of downtown
business “treat stops” where families can do free activities and
get some tasty treats!
MunchkinMasquerade.com21
Switch on the Holidays
Sunday, November 23, 2025
2 - 7 pm
1300 block of the Pearl Street Mall & Beyond
Free activities, exhibitors, additional programming, new Downtown
Boulder holiday promotions, the Cookie Crawl, and more start
before 5 pm.
At 5 pm, the official program starts with the flipping of the switch at
approximately 5:20 pm.
BoulderDowntown/Light-Up-The-Holidays.com
Lights of December Parade
Saturday, December 13, 2025
6 - 7:30 pm
Parade Route is on the Website
A little over 50 original floats, community groups, and organizations
participate in the annual Lights of December parade each year!
There are still spots available. Reach out to Kat
(katherine@downtownboulder.org) if you are interested.
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Ambassador Update July-August 2025
Operations Update Quick Facts
●2025 Ridership
increased nearly 14%
over 2024
●Boulder County and
Denver Metro visitors
increased slightly (up
5%) while Out of
State decreased
slightly (down 3%)
●Boulder residents
from 80302 and
80304 continue to
dominate the local
riders (60% of locals)
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Operations Update
Before After
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Operations Update
Before After26
Operations Update
Before After27
CITY OF BOULDER
DOWNTOWN MANAGEMENT COMMISSION (DMC) AGENDA ITEM
MEETING DATE: October 6, 2025
AGENDA TITLE
Downtown Development Authority (DDA) Formation Update
PRESENTERS
Reegan Brown, Senior Project Manager, Community Vitality
Dear DMC,
This agenda memorandum provides an update on the city’s DDA exploration work and outlines next
steps. Staff, together with the consultant team from Progressive Urban Management Associates (PUMA),
have convened the first meeting of the Planning Group that will help guide the process. The group is
responsible for providing creative input, serving as a reality check as ideas develop, helping connect the
team with stakeholders and community members, and—if a DDA is ultimately found to be feasible and
desirable—championing the effort to form the DDA.
To ensure strong representation, we are asking DMC to nominate or volunteer one commissioner to serve
on the Planning Group on behalf of the commission. We will ensure the nominated commissioner is
brought up to speed on the work completed to date so they can fully participate going forward.
The Planning Group will continue to meet monthly, with the next meeting to be scheduled in October.
Once the date is finalized, an invite will be shared.
Thank you for your engagement and support as this work advances.
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1100 SPRUCE
& ST JULIEN
GARAGES CAPITAL
IMPROVEMENTS
PROGRESS
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AGENDA
•1100 Spruce Project Overview
•Timeline
•St Julien Project Overview
•Timeline
•Wayfinding
•Questions & Feedback
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1100 SPRUCE
PROJECT OVERVIEW
•The goals of this project are to preserve the life of this highly utilized
parking structure, enhance safety of the facility, and improve the parking and
access experience for the thousands of daily garage users.
•This project was publicly bid and awarded in December of 2024. The
awarded design team is Boulder based PEH Architects and the awarded
contractor is PCL Construction.
•Initial project communications went out to tenants, garage permit
holders, and local businesses on September 23rd and there will be a townhall
for those able to attend on October 15th. There is a detailed communications
plan to keep stakeholders aware of project progress and impacts.
•Schedules remain in development, but there will be a full closure of the
garage to allow a large amounts of work to be completed simultaneously.
This approach is in response to community feedback and in an effort to
compress work activities into a shorter duration.
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MEET THE TEAM-PEH ARCHITECTS
MARI BLASERSR. PROJECT MANAGER, ASSOC. AIA
CHRISTOPHER MIRTOMANAGING PRINCIPAL, AIA, LEED AP
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MEET THE TEAM- PCL CONSTRUCTION
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1100 SPRUCE
SCOPE OF WORK
This project goes beyond surface-level improvements, it’s focused on the long-term health
and safety of the garage. By taking care of important maintenance now, we’re helping to
preserve the structure, extend its lifespan and keep it safe and dependable. This work
includes but is not limited to:
•Enclosing elevator hoist ways and stairwells to minimize water intrusion
•Storefront replacements on all tenant spaces that have exceeded their useful life
•Structural repairs to maintain the integrity of the facility
•Upgraded lighting and fresh painting to improve visibility, safety, and overall appearance
of the garage
•Concrete repairs and traffic coating throughout the garage
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1100 SPRUCE TIMELINE
Permitting
September 2025 – permit submission
Dec 2025/Jan 2026 – anticipate permit received
Construction
January – March 2026 – construction mobilization and
early work begins
Fall 2026 – work completes
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ST JULIEN
PROJECT
OVERVIEW
•The goals of this project are to preserve the lifeparking structure, enhance safety of the facility, andimprove the parking and access experience for garageusers.
•This project was pulled ahead to 2026 in order tocoincide with the civic pad expansion project currentlyin progress by the St Julien hotel.
•Design work was awarded to Kimley-Horn withsupport of 4240 Architects to allow for a cohesiveproject team.
•Saunders Construction, who is completing theconstruction for the civic pad development, has beenworking on preconstruction efforts for the garagework. We are seeking a Request To Proceed tocontinue partnering with Saunders and maintaincontinuity of the project team.
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ST JULIEN
SCOPE OF WORK
•This project is focused on improving the safety of this garagewith increased lighting, new painting throughout and a thoughtfulrevamp of wayfinding and signage throughout the garage. It willalso include full replacement of two of the stairwells that arepast their useful lives.
•Full replacement of two stairwells
•Wayfinding elements within the garage, including additionalsignage
•Upgraded lighting and fresh painting to improve visibility,safety, and overall appearance of the garage
•Concrete repairs throughout the garage
•Replacement of mechanical equipment including exhaustfans
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ST JULIEN TIMELINE
Permitting
October 2025 – permit submission
Jan/Feb 2026 – anticipate permit received
Construction
February 2026 – construction mobilization begins
Fall 2026 – work completes
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48
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50
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53
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55
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QUESTIONS
& FEEDBACK
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CITY MANAGER’S
2026 RECOMMENDED
BUDGET
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AGENDA
-Key Accomplishments
-Some Definitions
-CMO’s Recommended Budget
-Capital Improvement Plan
-3 Year Comparison
-Timeline and Commission Feedback
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KEY ACCOMPLISHMENTS
Walnut Between Broadway & 13th 1500 Pearl Murals
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KEY ACCOMPLISHMENTS
Garage Capital Investments
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COST ALLOCATIONS,
INTERNAL SERVICES,
TRANSFERS, RESERVES,
AND FUND FINANCIALS
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COST ALLOCATIONS, INTERNAL SERVICES &
TRANSFERS
TransfersCost Allocations
Like a transfer but for specific and defined
services funded by the General Fund.
This includes services from;
•City Attorney's Office
•City Clerk
•City Manager’s Office
•Communications
•Human Resources
•IT support
•Purchasing Support & Solicitation
•Sales Tax Audit & Collections
A revenue and expense between two
different funds.
An example could be the General Fund
transfer to a district fund for General
Fund related expenses. This would show
as an expense in the General Fund and
a Revenue in the district fund
Internal Services
Services provided Facilities &
Fleet, including replacement
funds
Central Software costs
Computer replacement funds
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RESERVES
Types
1.*Operating
2.Sick/Vacation
3.Other
*Required of all funds
Definitions
1.Reserves are a type of savings account that stays within the
fund for emergency uses or revenue shortfalls and will change
from year to year but will always be at least 16.7% of the next
year’s operating budget.
2.Operating reserves must be a minimum of 2 months worth of
operating expenses (16.7%) for the next year. For example,
2025’s operating reserve is based on 2026’s operating budget.
3.Sick/Vacation reserves aim to offset large expenses from
employees separating from the organization with large vacation
balances or to support extended absences for FMLA. These are
not required.
4.Other reserves could include Capital or other identified reserves
that Council or Staff has recommended.
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FUND FINANCIALS
A document that shows actual revenues (sources) and
expenses (uses) from the previous year, the current
year’s adopted and revised budget, the recommended
budget for the following year, and an outlook using
projected revenues and expenses for the next 5 years.
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CITY MANAGER’S 2026
RECOMMENDED BUDGET
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CITY MANAGER’S 2026 RECOMMENDED BUDGET
0
Sources ($)
Taxes 5,884,810
Investments 840,472
Products 7,276,646
Transfers -
TOTAL 14,001,928
Uses Personnel ($)Non-Personnel ($)
Administration 1,526,129 944,530
Arts + Culture 585,821 2,370,780
Capital -12,139,956
Customer Service 545,311 336,395
District Vitality 216,093 1,473,632
Maintenance 920,033 1,516,570
Parking Enforcement --
Special Events 145,862 212,473
Cost Allocations -909,623
Internal Services -852,795
Transfers --
SUBTOTAL 3,939,249 20,756,754
TOTAL 24,696,00367
CAPITAL IMPROVEMENT
PLAN
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2026 – 2031
CAPITAL IMPROVEMENT PLAN
Project 2026 2027 2028 2029 2030 2031
Spruce CMGC $4,665,000 ----4,500,000
St. Julien CMGC $5,00,000 -----
Pearl St. Refresh $2,000,000 -----
1500 Pearl St. CMGC -6,000,000 ----
RTD CMGC --2,600,000 ---
St. Julien Concrete --550,000 550,000 550,000 550,000
Tenant Improvements $50,000 50,000 50,000 50,000 50,000 50,000
CAGID TOTAL $11,715,000 6,050,000 3,200,000 600,000 600,000 5,100,000
Electronic Signage $300,000 -----
Capital Improvements -100,000 100,000 100,000 100,000 100,000
BJAD – Parking TOTAL $300,000 100,000 100,000 100,000 100,000 100,000
1% for Public Art $124,956 129,465 133,470 136,417 139,185 142,009
CCRS $124,956 129,465 133,470 136,417 139,185 142,009
CV TOTAL $12,139,956 6,279,465 3,433,470 836,417 839,185 5,342,009
3-YEAR COMPARISON
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3-YEAR COMPARISON - CAGID
2024 Revised 2024 Actuals 2025 Adopted 2025 Revised 2026 Recommended
Sources
Investments 502,975 691,916 502,976 641,597 648,503
Other 64,590 567,326 65,559 65,559 65,559
Products 6,559,169 6,422,626 6,804,359 6,804,359 7,069,896
Taxes 1,505,130 1,500,438 1,535,233 1,535,233 1,534,191
Transfers 968,819 968,819 723,753 723,753 -
TOTAL 9,600,683 10,151,126 9,631,880 9,770,501 9,318,149
Uses
Personnel 2,063,732 1,851,570 1,978,345 1,978,345 2,069,654
Non-Personnel 4,465,400 2,590,881 3,974,008 4,209,438 3,456,659
Capital 7,415,893 3,111,136 5,550,000 10,560,340 11,715,000
Transfers & Cost Allocations 787,082 433,085 1,061,882 1,061,882 945,268
TOTAL 14,732,107 7,986,672 12,564,235 17,810,005 18,186,581
Reserves 1,184,917 1,184,917 1,213,219 1,040,701 930,456
3-YEAR COMPARISON - CAGID
2024 Revised Budget v. 2024 Actuals
•Helps track projection performance and
expense assumptions
•Revenue projections 6% over budget
•Expense assumptions 46% under budget
2025 Adopted v. 2026 Recommended
•Revenue projections 3% above previous year
•Expense assumptions 2% above previous year
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QUESTIONS?
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SUGGESTED MOTION LANGUAGE
Motion to recommend City Council, serving as the board of
directors for the Central Area General Improvement
District, adopt the City Manager’s 2026 Recommended
Budget appropriating money to defray expenses and
liabilities pertaining to the Central Area General
Improvement District fund.
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MEMORANDUM
To: Downtown Management Commission
From:
Cris Jones, Director of Community Vitality
Kristine Edwards, Senior Manager of Maintenance and Operations, Community Vitality
Samantha Bromberg, Sr Project Manager, Community Vitality
Date: September 9, 2025
Subject: Garage Wayfinding
SUMMARY
Staff is seeking Downtown Management Commission (DMC) feedback on proposed garage
wayfinding signs and locations. Feedback from commissioners in the July meeting highlighted
the desire for simplicity, placemaking, and brand awareness in the signs.
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Figure 1- Garage Wayfinding Sign Mock-Up
To determine where signage should be placed, staff turned to recent traffic data to better understand
how people arrive downtown. Based on that traffic data, a map of the sign locations has been created,
which will demonstrate how drivers will be directed to find the BoulderPark parking garages.
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Figure 2- Map of future wayfinding signage locations in Downtown Boulder
NEXT STEPS
Staff is seeking DMC feedback on the proposed sign designs and locations. Once DMC has
expressed positive feedback for the design and locations, staff will order the signs and plan for
installation in the coming months. This project is expected to be completed by the end of 2025.
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DRAFT
ALL CV COMMISSIONS SUMMIT MEETING
University Hill Commercial Area Management Commission (UHCAMC)
Downtown Management Commission (DMC)
Boulder Junction Access District (BJAD) – Travel Demand Management (TDM) & Parking Joint
Commissions
October 20, 2025
3:00-9:00 P.M.
Penfield Tate II Municipal Building, 1777 Broadway, Boulder
(The public will observe via Zoom webinar)
AGENDA
I.Introductions (20 min.) Secretary
II.Economic Development Strategy Update (60 min.) Mark Woulf, Assistant City Manager
III.Civic Area Project Update (30 min.) Parks & Recreation
IV.Dinner & Connections Exercise (45 min.)
V.Boulder Valley Comprehensive Plan Workshop (30 min.)Chasansky
VI.Arts & Special Events Update (30 min.)Click & Greenstein
VII.Adjourn Chair
VIII.OPTIONAL: Advancing Racial Equity - The Role of Government Training (145 min.) CMO
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Attachments:
-TBD
UHCAMC Commission Members UHCAMC 2025 Commission Priorities
Staff Liaison
Cris Jones, Community Vitality
Director
jonesc@bouldercolorado.gov
1.Readiness of the University Hill
District for Increased Attention/Foot
Traffic Community Engagement and
Collaboration
2.Cleanliness and Safety for an Inviting
and Vibrant District
3.Consideration of Parking in the
Redevelopment Plan for the 14th Street
UHGID-Owned Parking Lot
4.Near and Long-Term Fiscal Resiliency
of UHGID
Trent Bush - Property Owner/Rep
Term ends: 2028
Tell Jones- Property Owner/Rep
Term ends: 2028
Danica Powell - Property Owner/ Rep
Term ends: 2029
Ted Rockwell, Chair - Resident
Term ends: 2026
Dane Anderson - Resident
Term ends: 2030
DMC Commissioners DMC 2025 Priorities
Erica Dahl - Property Owner/Rep
Term ends: 2029
Don Poe, Chair - Property Owner/Rep
Terms ends: 2026
Stephanie Trees, V-Chair - Citizen-at-Large
Term ends: 2026
Justin Kalvin - Citizen-at-Large
Term ends: 2026
Andy Nathan - Property Owner/Rep
Term ends: 2028
1.Facilitate the perception of safety with
support for Boulder's ambassador program
and for mindful policing.
2.Support Economic Vitality by advocating
for the activation of underutilized space
(e.g., parking lots), strong encouragement of
affordability efforts, and promotion of
helpful code changes.
3.Connect visitors from other areas to the
Downtown area by spreading awareness of
marketing efforts and wayfinding.
4.Take opportunities to communicate with
other boards and align efforts to connect the
various economic districts.
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Parking Commission Members
Robyn Ronen, Chair
Term ends 2027
Rebekah Dumouchelle, Vice Chair
Term ends 2027
Daniel Aizenman
Term ends 2030
Kevin Knapp
Term ends 2023
Vacant- Property Owner/Rep
2025 Joint Commission Priorities
1.Reevaluate Parking District Mill Levy
2.Support TVAP Phase 2 Planning
a.10 Year Capital Improvement Plan
3.Support TDM & Transit Enhancements
a.Carshare, bike share, micro mobility,
etc.
b.Restore and Expand RTD Bus Services
to the Depot Square Station.
c.Address Environmental Concerns and
Promote Sustainable Transportation.
d.Transit Enhancements
e.Non-station enhancements
4.Community Collaboration
a.Commission Recruitment/Marketing
b.Community Events
5.Enhance District Identity, Branding and
Wayfinding
TDM Commission Members
Rebekah Dumouchelle, Chair
Term ends 2027
Kevin Crouse, Vice Chair
Term ends 2029
Daniel Aizenman
Term ends 2030
Vacant- Property Owner/Rep
Vacant- Property Owner/Rep
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Update on Curbside Management for Downtown Management Commission
Chris Hagelin, Transportation & Mobility
hagelinc@bouldercolorado.gov
Pu rpose
Our plan is to initiate curbside management planning in the Downtown area in the 4th Quarter of
2025 starting in November and likely culminating by the end of the 1st Quarter in 2026.
Staff are looking at adjusting curbside management in the Downtown due to:
•Increased demand for the curb in general
•Increased demand for short term parking, loading and unloading
•Provide better, more efficient curbside access for:
o Short-term loading, unloading and pick-up
o food and beverage delivery
o TNC pick-up and drop-off
o Amazon, Fed Ex, UPS, USPS deliveries
o Sundance (future work)
Tasks
1.Staff will review existing conditions and propose changes based on pilot program results
and curbside demands (October)
a.Identifying possible locations for Flexible loading zones (24/7 with 15-minute limit
which may also serve as designated pick-up and drop-off locations for
Transportation Network Companies, like Uber or Lyft
b.Examination of other issues related to loading zones and curbside access and
demand and possible changes in curbside uses.
2.Engagement process with Commission, property owners, businesses, and commercial
users of loading zones (early November and likely in January since we do not want to
conduct engagement between Thanksgiving and Winter holidays)
a.Staff are looking for 1 or 2 commissions to serve as project liaisons.
b.Identification of key stakeholders, including but not limited to:
i.Downtown Boulder Partnership
ii.Boulder Chamber
c.Receive feedback on plan and proposed locations
i.Inform level of engagement
ii.Direct engagement with businesses adjacent to proposed changes
d.Identify communication needs to the public and downtown visitors
3.Finalize curbside changes (end of January/early February)
4.Communication Plan (January-February)
a.Businesses
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b.Property Owners
c.Commercial users
d.Transportation Network Companies
5.Install new signage (March)
6.Communication Plan implementation (March)
Future work
•Sundance curbside management plan
Timing:
•Adjustments to timeline?
Pilot Project locations: Downtown Boulder
1.East side of 9th between Walnut and Lawry Lane
2.East side of 11th Pearl and Morrison Alley
3.South side of Walnut between Broadway and 13th
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4.West side of 13th between Lawry Lane and Pearl
5.South side of Pearl between 15th and 16th Streets only 3 spots closest to 16th
6.North side of Pearl between 16th and 17th only from 16th to Foolish Craigs (one spot)
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BOULDER IMPROVEMENT
DISTRICT ANALYSIS REPORT
July 2025
84
CONTENTS
01. Executive Summary ......................................................................... 3
Overview .................................................................................................................................. 3
Existing Conditions ................................................................................................................... 3
Recommendations ................................................................................................................... 5
02. Introduction .................................................................................... 7
Project Background .................................................................................................................. 7
Improvement District Analysis Process.................................................................................... 11
03. Existing Conditions ........................................................................ 12
Central Area General Improvement District (CAGID) ................................................................ 13
University Hill General Improvement District (UHGID) .............................................................. 18
Boulder Junction Access Districts (BJAD) ................................................................................. 22
55th & Arapahoe Station Area ................................................................................................... 25
04. Recommendations ........................................................................ 29
Immediate Actions (6-12 Months) ............................................................................................ 29
Short-Term Actions (12-24 Months) ......................................................................................... 35
Long-Term Actions (Beyond 24 Months) ................................................................................... 38
Recommendations Summary ................................................................................................. 42
Appendix A: District Profiles ................................................................ 43
Central Area GID (CAGID ) District Profile ................................................................................. 43
University Hill GID (UHGID) District Profile ............................................................................... 52
Boulder Junction Access Districts (BJAD) Profile ...................................................................... 61
55th & Arapahoe Profile............................................................................................................ 74
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01. EXECUTIVE SUMMARY
OVERVIEW
The City of Boulder’s commercial areas play a critical role in the community’s economic, cultural,
and civic life. Building off City Council’s priority “Commercial Area Connections and Quality of Life
Improvements,” the City commissioned this Improvement District Analysis to evaluate how existing
and potential special district tools could be used to support the evolving needs of Boulder’s
commercial districts. The analysis focuses on four existing General Improvement Districts (GIDs)—
the Central Area General Improvement District (CAGID), the University Hill General Improvement
District (UHGID), and the Boulder Junction Access Districts (BJAD-Parking and BJAD-Transportation
Demand Management)—as well as future opportunities in areas such as the Civic Area and the
55th & Arapahoe Station Area. The improvement district analysis process included an in-depth
review of each district’s structure, services, financial trends, and challenges, and offers a series of
recommendations to optimize district management and financing mechanisms moving forward.
EXISTING CONDITIONS
86
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RECOMMENDATIONS
Existing city funding sources, including GIDs, are not sufficient to fully implement the community’s
vision for Boulder’s commercial areas. This Improvement District Analysis offers financial and
structural recommendations—aligned with the City’s Long-Term Financial Strategy—to optimize
current district functions and explore new tools to sustainably support these areas. Organized by
Immediate Actions (6-12 months), Short-Term Actions (12-24 months), and Long-Term Actions
(Beyond 24 months), these recommendations aim to close funding gaps, strengthen district
management, and ensure Boulder’s commercial areas remain vibrant and resilient into the future.
DOWNTOWN DEVELOPMENT AUTHORITY (DDA) OPPORTUNITY
Boulder’s core commercial districts are at a pivotal moment. Exploring the creation of a Downtown
Development Authority (DDA) provides an exciting opportunity to support revitalization and
reinvestment across CAGID, UHGID, and adjacent areas like the Civic Area and Western City
Campus. DDAs are state-enabled, quasi-governmental entities designed to support revitalization
efforts in a city’s central business district. A DDA would provide sustainable, long-term funding
through Tax Increment Financing (TIF) and a voter-approved mill levy, helping to address capital
needs, operational gaps, and economic stagnation in Downtown and on the Hill. Immediate next
steps include conducting a financial analysis, defining a potential district boundary, developing a
preliminary Plan of Development, and engaging stakeholders. Over the next year, this process could
culminate in a TABOR election and DDA formation, if deemed feasible.
DISTRICT-SPECIFIC RECOMMENDATIONS
For CAGID, one immediate action in addition to exploring the feasibility of a DDA is to clarify
services with the Downtown Boulder BID to eliminate duplication and improve transparency.
Additional short- and long-term actions—such as exploring expansion to the Civic Area, pursuing a
TABOR de -Brucing vote, or establishing a Public Improvement Fee (PIF)—would be considered as
alternatives if a DDA is ultimately found to be infeasible. Together, these recommendations help
position CAGID to better support future capital investments and evolving district needs.
For UHGID, if a DDA is ultimately found to be infeasible, a range of short- and long-term strategies
could be pursued to strengthen UHGID’s financial sustainability and impact. Short-term actions
include increasing revenue self-sufficiency by reassessing permit fees, expanding paid parking, and
exploring partnerships with hotel operators through the new Lodging Business Assessment Area
(LBAA) to improve connectivity between the Hill and Downtown. In the long term, UHGID may also
consider de-Brucing its mill levy to expand service delivery and better support safety, activation,
and maintenance.
For BJAD, immediate actions center on evaluating the feasibility of removing the overlapping
districts and establishing a single district to streamline governance and reduce administrative
burden. In the short term, the City could begin the inclusion/exclusion process to align boundaries
and consider a temporary mill levy reduction, particularly in BJAD-P where revenues exceed current
88
needs. Over the long term, clarifying BJAD’s role in Boulder Junction Phase II and identifying future
infrastructure and placemaking investments will ensure that the district remains effective and
responsive as the area matures. As part of this planning, the City should also explore alternative
district tools—such as Urban Renewal or Metropolitan Districts—that may offer more flexible
financing mechanisms to support large-scale infrastructure investments in the Phase II area.
RECOMMENDATIONS SUMMARY
The graphic below provides a visual summary of all recommendations outlined in the Improvement
District Analysis report, organized by district and implementation timeline. It illustrates which
actions apply to each district—CAGID, UHGID, BJAD-P, and BJAD -TDM—and categorizes them into
immediate (6–12 months), short-term (12–24 months), and long-term (24+ months) actions.
89
02.INTRODUCTION
PROJECT
BACKGROUND
As Boulder continues to evolve, so must the
strategies that sustain the vitality of its
commercial districts. In support of the
Boulder City Council’s 2024–2025 priority,
“Commercial Area Connections and Quality
of Life Improvements”, the City of Boulder
Community Vitality Department, working in
collaboration with several city departments,
launched a comprehensive initiative aimed
at strengthening the vibrancy, connectivity,
and long-term resilience of Boulder’s
commercial areas. This work is further
informed by guiding documents such as the
city’s Economic Vitality Strategy, Long-Term
Financial Strategy, and other related
planning efforts.
A key component of this initiative is the
Improvement District Analysis. This
analysis, which was initiated in early 2025,
explores how Boulder’s existing and
prospective district management tools can
address near term challenges and
opportunities for reinvestment. To facilitate
this process, the City of Boulder issued a
formal Request for Proposal (RFP) and
retained Progressive Urban Management
Associates (P.U.M.A.).
Boulder’s commercial districts play a central role in the city’s economic, social, and cultural life.
Over time, these areas have evolved in response to shifting community needs, and the city’s
General Improvement District (GIDs) have evolved along with them. Originally established to
support specific priorities—such as parking infrastructure, asset management and maintenance,
and transportation demand management—Boulder’s GIDs have taken on broader roles over the
years. Today, new opportunities, including the retirement of district debt and development in these
commercial areas, present new avenues for reinvestment. At the same time, emerging challenges
WHAT IS A GENERAL IMPROVEMENT
DISTRICT (GID)?
A GID is a type of special taxing district
authorized by Colorado statute to finance
capital improvements, support the maintenance
of public facilities, and provide focused
management and funding within a defined area.
Per Boulder municipal code, a GID is legally
established when a petition is submitted to the
city council of the municipality. City council
must then provide public notice, hold a hearing,
and adopt an ordinance to create the district.
GIDs must also be approved by affected
electors in a TABOR election. Once formed, a
GID may levy property taxes, impose special
assessments, and issue bonds to fund district-
specific improvements and services.
Management and oversight of a GID are handled
by the governing body of the municipality—
typically the city council, which serves as the
board of directors for the district, which is the
case in Boulder. Each district also has a
dedicated advisory commission made up of
local stakeholders These commissions provide
input and recommendations to City Council on
the use of GID funds and the prioritization of
projects within their respective districts.
90
such as safety concerns and increased office vacancies underscore the need for coordinated,
forward-looking strategies. While GIDs provide critical funding, they are not the only tool available
for urban place management. This analysis not only evaluates Boulder’s existing GIDs, but also
explores the benefits and tradeoffs of potential new tools that could enhance the city’s capacity to
manage and invest in its commercial areas. The findings of this analysis provide a strategic lens for
considering how financial mechanisms and governance models might be adapted or expanded to
better support infrastructure improvements, daily operations, and broader place-based goals.
This analysis primarily focused on the city’s four existing GIDs, illustrated in the maps on the
following page, and include:
•Central Area General Improvement District (CAGID): CAGID was established in 1970
to provide centralized parking infrastructure in Downtown Boulder, allowing for more
efficient land use, and helping preserve the area’s historic character. While it began as a
parking-focused district, CAGID now plays a broader role in supporting mobility,
economic activity, and placemaking in Downtown.
•University Hill General Improvement District (UHGID): Established in 1970 to support
commercial activity on the Hill through shared parking and maintenance services,
UHGID has since expanded its role to include placemaking, mobility improvements,
and the Hill Ambassador Program. Despite ongoing financial challenges and reliance on
General Fund support, the Hill remains a strategic focus for the city due to its location at
a key gateway to Downtown, its proximity to the University of Colorado Boulder, and
increased activity driven by two new hotels and a convention center opening in 2025.
•Boulder Junction Access Districts (BJAD): Established in 2010 to support Boulder’s
first transit-oriented redevelopment, BJAD was created to advance the vision outlined in
the city’s 2007 Transit Village Area Plan. The district includes two overlapping
components—BJAD -Parking (BJAD-P) and BJAD-Transportation Demand Management
(BJAD-TDM)—that work together to promote sustainable, multimodal development.
BJAD -P manages parking infrastructure, including shared ownership of a parking garage,
while BJAD-TDM invests in transit incentives and active transportation programs to
reduce single-occupancy vehicle use. Together, the districts have helped shape Boulder
Junction into a walkable, transit-rich neighborhood that supports a more sustainable
and livable urban environment.
Insights from the Improvement District Analysis will subsequently inform the development of the
Boulder Commercial Areas Blueprint—a long-range planning document that will guide future
investment and district management strategies. As part of the Boulder Valley Comprehensive Plan
update, this Blueprint will help ensure that Boulder’s commercial areas remain dynamic, inclusive,
and economically resilient for years to come.
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BOULDER GID BOUNDARIES
LEGEND:
Central Area General Improvement District (CAGID or Downtown)
University Hill General Improvement District (UHGID or The Hill)
Boulder Junction Access District – Transportation Demand Management (BJAD – TDM)
Boulder Junction Access District – Parking (BJAD – P)
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EMERGING OPPORTUNITIES FOR NEW DISTRICTS
As Boulder plans for future growth and development, several commercial areas that are currently
not within a special taxing district have emerged as promising opportunities for reinvestment and
revitalization. While these areas will be explored further in the upcoming Commercial Areas
Blueprint, a few of them present near-term potential for new district structures or targeted
improvements that could strengthen their role in the city’s commercial ecosystem and align with
the city’s broader goals of enhancing infrastructure and connectivity, supporting economic vitality,
and fostering inclusive community spaces. Together, these areas illustrate the value of strategic
reinvestment and the potential role of new or expanded district structures in supporting Boulder’s
evolving commercial landscape. These commercial areas include:
• Civic Area: The Civic Area, which is currently outside of both CAGID and the Downtown
Boulder Business Improvement District (BID), remains underutilized and lacks consistent
activation, amenities, and year-round engagement despite its location within Boulder’s
core. With many of the city’s customer service functions and staff offices that are currently
located in this area set to relocate in 2027, new development and investment in the area’s
infrastructure present the opportunity to transform Civic Area into a vibrant central
gathering place for the community. The process to reenvision this area is currently
underway through the city’s Civic Area Phase 2 project.
• Western City Campus at Alpine-Balsam: The relocation of city staff and services from the
Civic Area to the new Western City Campus at Alpine-Balsam presents a significant
opportunity to support broader revitalization efforts in this area. Situated just north of
Downtown along the Broadway corridor, this newly activated civic hub is poised to bring a
substantial boost of daily activity the surrounding area, creating the opportunity to enhance
physical and economic connectivity between the Western City Campus and Downtown
Boulder through multimodal infrastructure and attracting complementary commercial
uses.
• 55th & Arapahoe Station Area: The 55th & Arapahoe Station Area, located in East Boulder,
is well-positioned for long-term, transit-oriented, mixed-use development that can support
current businesses while accommodating future growth. This area is a large employment
center, and is set to become home to a future State Highway 7 Bus Rapid Transit (BRT)
regional station, as recommended in the 2022 East Boulder Subcommunity Plan. This major
investment will introduce high-frequency transit service connecting Boulder to I-25 and
beyond, along with significant streetscape and multimodal infrastructure upgrades.
Together, these improvements establish the Station Area as a prime opportunity for transit-
oriented development within East Boulder’s growing commercial and employment district.
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IMPROVEMENT DISTRICT ANALYSIS PROCESS
The Improvement District Analysis began with a thorough review of past studies, plans, and
engagement efforts. Each of Boulder’s GIDs has been the subject of extensive planning and
community input over time. Building on this strong foundation helped ensure that the analysis was
aligned with previous work and avoided duplicating efforts that have already captured community
priorities and needs.
To identify information gaps and ensure input from key stakeholders, focused community
engagement was also conducted. This included direct collaboration with the commissions
representing each existing GID, outreach to engaged constituents, and coordination with other
entities operating within the same geographic areas, such as the Downtown Boulder Partnership.
These conversations provided valuable insights and helped round out the understanding of each
district’s context.
A comprehensive analysis of existing conditions in each GID was then compiled. This included
reviewing each district’s origin and the purpose of its establishment, governance structure, the
services and programs it funds, and its assessment methodology. Financial data from 2019 to 2024
was also analyzed to understand how GID funds are sourced and used, and alongside key market
indicators, relevant plans and projects, and partnerships with organizations and institutions active
in each area, a profile was developed highlighting key characteristics of each GID. The time horizon
was also chosen to compare pre-pandemic economic performance metrics to current conditions.
A summary of each district profile is provided in this report, while additional detail on the existing
conditions profiles can be found in Appendix A.
From this foundation, a set of strategic recommendations was developed. Recommendations
include both immediate actions (intended for implementation within the next 6–12 months) and
short-term actions (to be pursued beyond that timeframe). Recommendations were tailored to the
needs and opportunities specific to each district while maintaining alignment with citywide goals.
Finally, to ensure shared ownership and feasibility, all recommendations were reviewed and vetted
through a collaborative process involving City of Boulder staff, GID commissions, and ultimately
Boulder City Council. This approach helped build consensus and lays the groundwork for
implementation of the recommendations provided in this report.
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03. EXISTING CONDITIONS
Understanding existing conditions in each GID was
a critical step in laying the groundwork for
thoughtful, informed recommendations. The
analysis of existing conditions included a review of
each district’s context and structure; relevant past
plans and studies; key characteristics such as
assessment methodology and sources and uses of
funds; market indicators including office and retail
vacancy and property value and sales tax trends;
investments, services, and programs provided by
each district; and key partnerships with other
nonprofit, civic, and institutional organizations
operating in a shared geography. This
comprehensive snapshot of where each district
stands today was essential to identifying
challenges, opportunities, and community
priorities, and ensuring that the recommendations
outlined in the subsequent chapter of this report
are both context-sensitive and forward-looking. A
summary of existing conditions findings is provided
on the following pages, while the full existing
conditions profile for each district can be found in
Appendix A: District Profiles.
^CAGID
^UHGID
^BJAD
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CENTRAL AREA GENERAL IMPROVEMENT DISTRICT
(CAGID)
BACKGROUND
CAGID was originally established in 1970 to provide
shared parking infrastructure that would support
Downtown Boulder’s economic vitality while
preserving its historic character. In response to state
parking minimums at the time, CAGID allowed
Downtown buildings to forgo individual parking lots
by creating centralized facilities. This model enabled
more efficient land use, improved streetscapes,
created a more walkable, vibrant urban core, and is
considered a national best practice for Downtown
parking management.
Since its formation, CAGID has developed and now
oversees five parking garages totaling 2,209 spaces,
four surface lots, and 165 on-street pay stations. The
bonds used to finance CAGID’s parking garage
infrastructure have been retired as of 2023. Over the
past five decades, CAGID’s mission has broadened
significantly beyond its parking-focused origin. Its
funding now supports a range of complementary
programs and services, including:
• Mobility Enhancements: Initiatives such as
EcoPasses for downtown employees, the
Boulder Clean Commute program, the HOP circulator, the Lime E-Scooter Expansion Plan,
and updated parking and access signage aimed at expanding transportation options and
reducing car dependency.
• Economic Vitality Support: CAGID contributes to Downtown’s economic vibrancy by
funding outdoor dining infrastructure, mobile vending opportunities for small businesses,
affordable retail space programs, and special event support.
• Beautification and Placemaking: CAGID has helped to fund place enhancements
including public art, murals, creative crosswalk designs, tree planting, and powerline
undergrounding, all of which enhance Downtown’s visual identity and sense of place.
• Ambassador Program: In partnership with Downtown Boulder Partnership, CAGID helps
fund services that improve cleanliness, safety, and visitor experience through outreach,
maintenance, and public engagement.
CAGID SNAPSHOT
YEAR ESTABLISHED
1970
ASSESSMENT METHODOLOGY
3.526 Mill Levy
TOTAL ANNUAL DISTRICT REVENUE
(2024)
$9,324,519
TOP SOURCES OF FUNDS (2024)
1. Parking Revenue – 66%
2. Property Tax – 15%
3. Transfers In – 10%
TOP USES OF FUNDS (2024)
1. Capital Improvement Plan – 42%
2. District Management – 20%
3. Administration – 14%
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Governance
CAGID is overseen by an advisory body, the Downtown Management Commission (DMC), that
manages and advises on the business affairs of the GID. The DMC includes five Council-appointed
members with five-year terms. Three of those members must own real property or represent real
property owners in Downtown and two members are residents representing the community-at-
large.
partnerships
Key CAGID partnerships include:
•Downtown Boulder Partnership (DBP): DBP is a 501(c)6 membership organization that
receives revenue from business and individuals to promote the civic, economic, and
commercial vitality of downtown Boulder. Under the DBP umbrella, there are two affiliated
organizations:
o Downtown Boulder Business Improvement District (BID): The BID is an
assessment-based district that was formed in 1999 to cultivate a cleaner, safer, and
more vibrant Downtown Boulder. BID services include maintenance, events, the
Downtown Boulder Ambassador program, marketing, and communications.
o Downtown Boulder Community Initiatives (DBCI): DBCI is a 501(c)(3) nonprofit
formed in 2016 to engage visitors and locals alike through arts, culture, innovation,
and inclusive, community-driven experiences in Downtown Boulder.
•Boulder Convention and Visitors Bureau (CVB): Visit Boulder, the city’s official
Convention and Visitors Bureau (CVB), leads marketing, visitor services, and partnership
development to attract tourism and support the local economy. In March 2025, the City
Council approved the new Boulder Lodging Business Assessment Area—a 2% levy on gross
short-term lodging revenue—to sustainably fund the CVB’s marketing, sales, and
infrastructure initiatives.
KEY MARKET INDICATORS
Analysis of several key market indicators has revealed signs of post-pandemic economic
stagnation in Downtown Boulder. Since 2020, both property and sales tax growth have largely
plateaued. While much of the area’s property value appreciation over the last ten years occurred
prior to 2020, values increased by only 6.5% between 2019 and 2024—significantly lagging the 23%
rise in the Consumer Price Index (CPI), suggesting a real decline in value. Additionally, sales tax
revenues in Downtown only returned to pre-pandemic (2019) levels in 2024, underscoring slow
economic recovery. Office vacancy has also steadily climbed since 2020, contributing to reduced
daytime activity and ongoing pressure on the commercial real estate market in Downtown Boulder.
While these challenges are not unique to Boulder, as downtowns across the country continue to
face similar struggles in the aftermath of the COVID-19 pandemic, they do point to a need for
strategic reinvestment and targeted stimulus to help restore economic vitality and reverse the
effects of stagnation.
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DISTRICT CHALLENGES
As Downtown Boulder has evolved over time, CAGID’s roles and responsibilities have evolved as
well. Originally created to fund parking-related infrastructure and services, CAGID now faces a set
of challenges that reflect both the district’s expanded role and the changing needs of the area. The
following issues emerged through this process and highlight key considerations for future
management, funding, and strategic direction:
• Mission Expanded Beyond Parking: CAGID was originally established to finance and
manage parking infrastructure, operations, and maintenance in Downtown Boulder.
Over time, however, the district has taken on responsibilities that extend beyond this
initial mission, including support for downtown vitality and broader public realm
improvements. This expansion has created a misalignment between the district’s
purpose, expectations, and its current funding and governance structures.
• Lack of Clarity Between CAGID and BID Services: CAGID and the Downtown Boulder
Business Improvement District (BID) share overlapping geographies. While this has
certain advantages, and the partnership between CAGID and the BID is effective, it has
led to confusion among property and business owners and the general public about
which organization provides which services. This lack of clarity complicates stakeholder
engagement and limits accountability and transparency in service delivery.
• Fund and Revenue Reporting and Administration: There are administrative challenges
in how CAGID’s funds are managed and reported, particularly due to the complexity of
handling multiple revenue sources. Non-assessment revenues require detailed
tracking, coordination across city departments, and ongoing staff effort, which has
resulted in a significant administrative burden. These complexities not only strain
internal city resources, but can also make financial oversight more difficult and obscure
a clear understanding of how funds are being allocated to support district priorities.
• Capital Maintenance Liability: CAGID is responsible for maintaining key public assets
such as parking structures. As this infrastructure ages, capital maintenance needs have
grown, but current funding levels are not sufficient to keep pace. This creates a growing
liability that could impact the district’s ability to sustain essential services over time.
• Downtown Maintenance Needs Exceed CAGID Funding Capacity: Beyond parking,
Downtown Boulder’s streetscape, lighting, signage, and public spaces require ongoing
upkeep. However, CAGID’s existing budget is increasingly stretched thin, leaving limited
capacity to address these broader maintenance needs.
• Broader Underfunded Capital Needs: Looking ahead, CAGID’s current funding
structure and governance mechanisms are not equipped to meet the district’s future
infrastructure and capital improvement needs.
• Economic Stagnation in Downtown Boulder: In addition to structural and
administrative challenges, as evidenced by the key market indicators above, Downtown
Boulder is experiencing signs of economic stagnation. Shifts in work and retail patterns,
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changing consumer behavior, and new demands on public infrastructure resulting from
the pandemic are a key challenge to Downtown’s vitality moving forward.
PRIORITIES FOR THE FUTURE
In reviewing recent and relevant plans—including the Boulder Valley Comprehensive Plan (2020
Mid-Term Update), Transportation Master Plan (2019), Parks and Recreation Master Plan Update
(2022), Downtown Boulder Vision Plan (2022), and the Central Broadway Corridor Design
Framework (2017)— strong alignment between district priorities and the community’s long-term
vision for Downtown Boulder was revealed. As CAGID’s parking garage construction debt is now
retired, there is an opportunity to realign its financial priorities to meet evolving community and
district needs moving forward. While staff and community partners have made substantial
investments in beautification, quality of life, and connections across Downtown and the Hill since
April 2024, there are several recurring themes from prior plans that remain priorities for future
investments within the CAGID area:
•Pearl Street Improvements: The Pearl Street Mall, a vital contributor to Downtown
Boulder’s economic and cultural vibrancy, is celebrating its 50th anniversary in 2027. As
a result, several recent planning efforts have called for renewed investment in the Mall’s
appearance, including a refresh of the streetscape, activation of key blocks like the
1300 and 1400 blocks with new amenities, art, and gathering spaces, and other place
enhancements that reflect evolving community expectations. There are also
infrastructure and utilities maintenance needs that must be addressed. These
improvements aim to ensure that the Pearl Street Mall remains a welcoming and
dynamic destination for residents and visitors alike.
•Civic Area Redevelopment: With the upcoming relocation of city services to the
Western City Campus in 2027, several publicly owned properties in the Civic Area—
between Canyon Blvd and Arapahoe Ave from 9th to 14th Street—will become available
for redevelopment. This transition presents a once-in-a-generation opportunity to
activate the Civic Area with a mix of civic and commercial uses that support activation
and vitality, further strengthening Downtown’s role as a central gathering place. While
the Civic Area lies outside of CAGID’s boundaries, recent downtown planning efforts
have identified it as a significant opportunity area and the future of this area should be
considered as part of CAGID’s future role.
•Safety: Ensuring Downtown consistently feels and is safe remains a top priority for
maintaining its appeal, functionality, and overall vitality. Perceptions of safety have the
most direct impact of any factor on vibrancy, tourism, and, by extension, Downtown’s
economic conditions and social wellbeing. To address this concern, planned upgrades
to CAGID parking garages include security enhancements that support a safe and
accessible environment for all users. These efforts are complemented by broader goals
to improve pedestrian and cyclist safety through better lighting, visibility, and
infrastructure design.
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•Connectivity to the Hill: Improving the physical and experiential connection between
Downtown and University Hill is a recurring theme across multiple recent city plans.
While this has not always been a community priority, the new hotel and convention
center investments along the Broadway corridor, in addition to planned improvements
to the public realm, have helped to bridge the longstanding gap between these two
activity centers. Looking forward, additional opportunities exist to enhance multimodal
access, particularly through improved bike and pedestrian routes, to strengthen the link
between these districts. This will be critical to fostering not only physical connectivity,
but economic vitality along the Broadway corridor.
•The Future of Downtown Office Space: Downtown Boulder, like many urban centers, is
reevaluating the role and future of office space in a post-pandemic landscape. As work
patterns shift, there is growing momentum to reimagine vacant or underutilized office
spaces for flexible, innovative, or mixed uses that respond to evolving workforce needs
and support Downtown’s long-term vitality.
•Capital Improvements: In addition to Pearl Street Mall improvements, there are a
series of infrastructure upgrades that have been recommended in recent planning
efforts. Key capital projects include parking garage renovations, undergrounding power
lines for aesthetic and safety benefits, and implementation of the Affordable
Commercial Capital Program to support small businesses. These investments address
aging infrastructure while aligning with Boulder's broader goals for sustainability and
economic inclusion.
•Downtown Maintenance and Operations: Ongoing maintenance is essential to
preserving the quality and functionality of Downtown Boulder’s public assets. However,
the growing scope of maintenance needs, particularly for parking structures,
streetscapes, and public spaces, in addition to high inflation and other exogenous
challenges, exceeds CAGID’s current funding capacity. As Downtown evolves, securing
sustainable resources for operations and upkeep will be critical to maintaining the
area’s attractiveness and supporting the needs of businesses, property owners, and the
broader community.
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UNIVERSITY HILL GENERAL IMPROVEMENT
DISTRICT (UHGID)
BACKGROUND
UHGID was established in 1970 to support
commercial activity in the University Hill, or “the Hill,”
area by acquiring land for public parking and
providing needed maintenance services. UHGID
currently owns and manages the 42-space off-street
parking lot at 14th Street and College Avenue, known
as the “14th Street Lot.” It previously owned a lot at
Broadway and Pleasant Street, which was sold in
2021 and redeveloped into the Boulder Moxy hotel.
Like CAGID, UHGID was created to bolster
commercial vitality through parking infrastructure,
management, and maintenance; however, the
district has historically struggled to generate
sufficient revenue to meet its operational needs and
now relies on additional city subsidies to fund its
services.
In 1985, UHGID’s original scope was expanded to
include a broader range of services that support the
functionality and appeal of the district. Today, UHGID
supports programs such as:
•Pedestrian, bicycle, and transit amenities
and incentives: UHGID has aided in
enhancing multimodal infrastructure on the
Hill.
•Placemaking and aesthetic
enhancements: UHGID supports placemaking efforts through services and initiatives
landscaping, art, enhanced public realm design elements, and maintenance of streetscape
amenities.
•Hill Ambassador Program: In partnership with the Downtown Boulder Partnership and the
University of Colorado Boulder, UHGID supports the Hill’s Ambassador Program, which
improves safety and cleanliness through services like trash removal, graffiti abatement, and
visitor assistance.
Today, t he Hill remains a strategic focus for the city due to its location as a major gateway into
Downtown Boulder, its proximity to the University of Colorado Boulder, as a neighborhood
commercial area, and the addition of two new hotels and a convention center set to open in August
2025—all of which are increasing visibility and visitor traffic to the area.
UHGID SNAPSHOT
YEAR ESTABLISHED
1970
ASSESSMENT METHODOLOGY
1.691 Mill Levy
TOTAL ANNUAL DISTRICT REVENUE
(2024)
$434,670
TOP SOURCES OF FUNDS (2024)
1.Transfers in – 62%
2.Parking revenue – 18%
3.Interest & investment earnings – 11%
TOP USES OF FUNDS (2024)
1.Parking & access maintenance –
39%
2.Administration – 21%
3.Customer Service – 12%
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Governance
The business affairs of UHGID are administered by the University Hill Commercial Area
Management Commission, which is composed of five City Council-appointed members with five-
year terms. Three of those members must own real or personal property, reside in the district, or
represent a real or property owner in the district and two members are for citizens-at-large.
partnerships
Key UHGID partnerships include:
• The Hill Merchant Association (“The Hill Boulder”): The Hill Boulder is a 501(c)3 nonprofit
“committed to renewing vibrancy of arts and culture, producing community events, and
promoting year-round business in the University Hill district.”
• Hill Reinvestment Working Group (HRWG): The Hill Reinvestment Working Group is a
neighborhood committee of members that represent city departments, the University Hill
Neighborhood Association (UHNA), the Boulder Area Rental Housing Association (BARHA),
several University of Colorado departments, the Inter-Fraternity Council (IFC) and
Panhellenic. The group collaborates monthly to share information, build relationships,
design programs, evaluate processes and recommend changes and improvements around
ongoing issues on the Hill.
• University of Colorado Boulder: The University of Colorado’s flagship campus is located
across Broadway from UHGID. Students, faculty, and visitors of the university frequently
visit the district.
KEY MARKET INDICATORS
Key market indicators for UHGID point to clear signs of economic stagnation. Since 2020, growth in
both property and sales tax revenues have either plateaued or declined. While most of the Hill’s
property value appreciation over the last ten years occurred prior to 2020, values rose 15.9%
between 2019 and 2024. This growth is below the 23% increase in the CPI, indicating a real decline
in value. Notably, 14% of that growth occurred in a single year (2023–2024) with the addition of the
Moxy Boulder hotel, suggesting that the overall 2019-2024 increase may overstate the district’s
underlying economic performance. In 2024, sales tax revenues remained 11.5% below 2019 levels,
and although retail vacancy has held under 10%, anecdotal evidence indicates ongoing storefront
turnover that predates the pandemic. Like Downtown, the Hill continues to face challenges related
to recovery, stability, and long-term vitality—underscoring the need for strategic reinvestment and
focused support to help reinvigorate the district’s economic base.
DISTRICT CHALLENGES
UHGID faces a range of financial and operational challenges that impact its ability to meet the
community’s evolving needs. While there is strong alignment around the priorities for University
Hill—such as public realm improvements, safety enhancements, and greater economic vitality—
the district lacks the financial capacity to implement many of these goals without additional
support. Specific challenges identified in the Improvement District Analysis include:
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•Revenue Limitations and Reliance on Subsidies: UHGID was originally designed to fund
parking and maintenance needs through self-imposed property taxes. However, current
assessment rates, which comprise just 9% of UHGID’s overall revenue, are insufficient to
cover the scope of today’s services. As a result, the district relies on subsidies from the
city’s General Fund to maintain even baseline operations, which limits its ability to expand
services or make strategic investments.
•Misalignment Between Priorities and Funding Capacity: Community priorities for
improving the Hill, which are well documented and consistently supported, include
improved streetscapes, enhanced safety measures, and support for local businesses.
Despite this clarity, the district does not generate enough revenue to meaningfully advance
these goals. This funding gap restricts UHGID’s ability to respond to both long-standing and
emerging challenges in the area.
•Economic Stagnation: In addition to administrative and financial challenges, as evidenced
by the key market indicators above, UHGID is and has long been experiencing signs of
economic stagnation. High business turnover, a lack of diversity in offerings beyond
undergraduate-serving uses, safety concerns, limited activation, and lagging post-
pandemic economic recovery present ongoing challenges for the district.
PRIORITIES FOR THE FUTURE
A range of past planning efforts by the City of Boulder directly relate to and influence the UHGID
area. These efforts reflect a consistent focus on enhancing the public realm, improving multimodal
connections to the University of Colorado Boulder and Downtown, and strengthening the Hill’s role
as a vibrant commercial and cultural destination. Plans reviewed include the Boulder Valley
Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master Plan (2019), Boulder
Parks and Recreation Master Plan Update (2022), ULI TAP Report for the 14th Street Lot (2023),
Downtown Boulder Vision Plan (2022), University Hill Alley Enhancement Plan (2018), and the
Central Broadway Corridor Design Framework (2017).
Recognizing the importance of the Hill as a city priority, Boulder has taken active steps to invest in
the district’s beautification, livability, and connectivity. Since April 2024, city staff and community
partners have implemented a range of improvements, including new wayfinding signage, creative
crosswalks, enhanced landscaping, sidewalk upgrades, expanded Downtown Ambassador
services, and better multimodal links between the Hill and Downtown. Looking ahead, the 2025
City budget includes $1.4 million dedicated to further investments in the area—most notably,
upgrades to the Broadway medians adjacent to the Hill. These enhancements will include irrigation
repairs, new plantings, and potential art installations. In addition to these ongoing efforts, past
planning processes have identified several key community priorities for the Hill, including:
•Streetscape and Public Realm Improvements: Enhancing the Hill’s public realm is a top
priority to support a more welcoming, comfortable, and active environment for residents,
visitors, and businesses. Planned near-term investments include a streetscape renovation
along Broadway aimed at improving lighting, landscaping, crosswalks, and furnishings,
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which will be informed by public engagement later in 2025. Additional near-term
improvements include a painted crosswalk at 13th and Pennsylvania, and sidewalk
upgrades on 11th Street to strengthen pedestrian connections to Downtown and the Civic
Area. Together, these improvements will elevate the character and functionality of the Hill
as a pedestrian-friendly district.
• Safety: Cleanliness and safety have emerged as key concerns from both community
members and businesses on the Hill. While the Hill Ambassador Program provides valuable
support, infrastructure and operational gaps, particularly in alleys and lower-visibility areas,
limit the district’s ability to feel consistently safe and inviting. Upcoming projects and
ongoing conversations are focused on addressing these issues through environmental
design, activation strategies, and enhanced maintenance to create a safer and more
enjoyable district for all.
• Connectivity to Downtown: Strengthening the link between the Hill and Downtown
Boulder is a recurring goal across city plans, particularly with the new hotel and convention
center development along the Broadway corridor. Improvements to pedestrian and bike
infrastructure, including upcoming work along 11th Street and planning for a cultural
corridor on 13th Street, are intended to help close key gaps and foster more seamless
multimodal movement between districts.
• Diversifying Beyond an Undergraduate Destination: As the Hill evolves, there is growing
interest in broadening its identity beyond an undergraduate-focused commercial area.
Supporting a more diverse mix of retail, services, and cultural amenities can help the
district better reflect the surrounding neighborhoods and broader Boulder community.
• Strengthening Overall Economic Vitality: The Hill has experienced high rates of business
turnover and overall economic stagnation compared to other areas of the city. Recent
developments, such as the new Moxy Boulder and Limelight Hotels and upcoming
conference center, signal momentum. However, sustained investment in public realm
improvements, activation, and safety will be essential to supporting long-term economic
vibrancy in this area.
• Redevelopment of the 14th Street Lot: The UHGID-owned lot at 14th & College represents
a significant redevelopment opportunity for the district. In the short-term, activation
strategies such as pop-up markets, food trucks, and micromobility hubs can bring
immediate energy to the space. Over the long-term, the site holds potential for mixed-use
development, with concepts ranging from retail and housing to artist studios or incubator
spaces. As a centrally located property under public ownership, this site could play a
catalytic role in the Hill’s revitalization.
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BOULDER JUNCTION
ACCESS DISTRICTS (BJAD)
BJAD was established in 2010 to support Boulder’s
first transit-oriented redevelopment, following the
vision outlined in the City’s 2007 Transit Village Area
Plan. Comprised of two overlapping GIDs—BJAD -
Parking (BJAD-P) and BJAD-Transportation Demand
Management (BJAD-TDM)—the district was created
to promote sustainable development by supporting
parking infrastructure and encouraging multimodal
transportation options.
BJAD -P oversees parking management in the area,
including shared ownership of the parking garage at
Depot Square, while BJAD-TDM focuses on reducing
reliance on single-occupancy vehicles through
investments in transit incentives and active
transportation. Together, the districts have
supported a walkable, transit-rich neighborhood by
funding programs such as:
• Pedestrian, bicycle, and transit amenities
and incentives: Providing Boulder Clean
Commute incentives and RTD EcoPasses,
Boulder B-Cycle Memberships, and
CarShare vouchers for residents and
employees of the district
• Education & Community-Building: Hosting
events to inform residents and employees of
the benefits they may receive from living
and/or working in the district and educate
the public about the growth and
development of the area
• Sustainability initiatives: Promoting
sustainable transportation and eco-friendly
development to create a healthier and more
livable environment
Governance
BJAD is managed by a joint commission that
represents both BJAD-Parking and BJAD-TDM. Each
BJAD -P SNAPSHOT
YEAR ESTABLISHED
2010
ASSESSMENT METHODOLOGY
10 Mill Levy
TOTAL ANNUAL DISTRICT REVENUE
(2024)
$631,370
TOP SOURCES OF FUNDS (2024)
4.Property tax – 69%
5.Parking revenue – 27%
TOP USES OF FUNDS (2024)
1.Cost allocation & transfers – 45%
2.Administration – 23%
3.Capital Improvement Plan – 21%
BJAD -TDM SNAPSHOT
YEAR ESTABLISHED
2010
ASSESSMENT METHODOLOGY
5 Mill Levy
TOTAL ANNUAL DISTRICT REVENUE
(2024)
$570,470
TOP SOURCES OF FUNDS (2024)
1.Property Tax – 96%
TOP USES OF FUNDS (2024)
1.District management – 73%
2.Administration – 15%
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five-member commission is composed of five Council-appointed members with five-year terms.
Three of those members must own real property or represent a real property owner in the district
and two members are city electors who may live inside or outside of the district.
partnerships
Key BJAD partnerships include:
•Regional Transportation District (RTD): RTD operates public transit services in the Denver
Metro area, including in Boulder at Boulder Junction. While RTD has not been operating bus
service to and from Boulder Junction due to pandemic disruptions, RTD is committed to
reopening the transit station later this year, which will connect the district to other parts of
Boulder and the region.
•Boulder Chamber Transportation Connections (BCTC): BCTC is 501(c)(3) nonprofit that is
one of eight Transportation Management Organizations (TMOs) in the Boulder-Denver metro
region. BCTC services include sustainable transportation planning, employee commute
options surveys, education and consulting, commute logistics, outreach events, advocacy,
and local and regional leadership. In Boulder Junction, BCTC administers the BJAD EcoPass
Program and helps promote micro mobility options. Additionally, BCTC has partnered with
Community Vitality to host events related to raising awareness of Boulder Junction as a
district and the transportation benefits it has to offer.
KEY MARKET INDICATORS
In contrast to the more established, yet challenged contexts of CAGID and UHGID, BJAD shows
relatively healthy market indicators. Although BJAD has limited office inventory, vacancy rates
remain very low (approximately 3%), indicating strong demand. Multifamily and retail vacancies are
currently around 10%, which is relatively stable for an emerging mixed-use district. Property values
within BJAD have seen significant increases between 2019 and 2024 (268%), driven by ongoing new
development and investment in the area. These trends suggest that BJAD’s economic
fundamentals are strong and well-positioned for continued growth through Boulder Junction Phase
II redevelopment.
CHALLENGES
As Boulder Junction transitions from early-stage development into a more mature, mixed-use
district, BJAD must navigate a set of emerging challenges that reflect its evolving context. Originally
designed to support parking and multimodal transportation infrastructure, BJAD now operates in a
more complex environment—marked by overlapping governance structures, shifting development
patterns including Boulder Junction Phase II development, and infrastructure needs that differ from
those envisioned at the district’s inception. The following challenges highlight key areas where BJAD
must adapt to remain effective, responsive, and aligned with the district’s long-term vision and
goals:
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• Funding Levels Exceed Current Planned Program and Capital Needs: BJAD currently
collects more revenue than is required to support its planned programming and capital
projects, raising important questions about financial efficiency and responsible
stewardship of taxpayer funds. Without a clear pipeline of new projects or services, the
district risks accumulating unused reserves or deploying resources inefficiently. This
dynamic has drawn scrutiny from the BJAD Commission, particularly regarding the existing
mill levies—most notably in BJAD-P—as stakeholders debate whether current rates are
justified. Given that revenues exceed planned expenditures, there is an opportunity to
reevaluate the mill levies and consider adjustments that better reflect the district’s actual
needs, potentially reducing the tax burden on property owners while preserving the district’s
ability to fund essential services.
• Overlapping Districts and Resulting Administrative Burden: BJAD is composed of two
overlapping general improvement districts, BJAD -P and BJAD-TDM, which creates
significant administrative complexity. Each district has its own taxation structure, reporting
requirements, and budgetary process, despite serving a largely unified purpose. This
structure has led to inefficiencies in governance, confusion among stakeholders, and
difficulty in recruiting stakeholders to serve on the joint advisory commission.
• Role of the District in Boulder Junction Phase II Is Unclear: As planning begins for
Boulder Junction Phase II—located west of the existing rail tracks—the role of BJAD within
this expansion area remains undefined. New development presents opportunities to extend
the district’s transportation demand management and parking programs, but it also
requires thoughtful integration to avoid duplicative or misaligned efforts.
PRIORITIES FOR THE FUTURE
• Walkable, Transit-Rich District: Boulder Junction was intentionally designed as a transit-
oriented development due to its strategic location near the railroad tracks, with long-term
aspirations for rail service to Denver and regional destinations via Front Range Passenger
Rail. Moving forward, prior planning efforts have envisioned that high-density, mixed-use
development that supports walking, biking, and transit use will continue. RTD is expected to
reopen the Boulder Junction transit station and bus terminal in 2025, further reinforcing the
transit-oriented nature of this area with improved multimodal regional accessibility.
• Boulder Junction Phase II: Boulder Junction Phase II represents the next step in the area’s
evolution, and is envisioned as an expansion of Phase I’s mixed-use redevelopment and
neighborhood character. Though currently outside the BJAD boundary, there is potential to
expand the district to include this area, enabling consistent infrastructure, funding, and
programming strategies across the full Boulder Junction footprint. Clarifying BJAD’s role in
Phase II will be critical to ensuring cohesive planning, equitable investment, and consistent
service delivery across the Boulder Junction area.
• Parking and Transportation Demand Management (TDM): Boulder Junction is a model for
multi-modal planning, with dedicated funding structures for both parking (BJAD-P) and TDM
programs (BJAD-TDM). These programs support mobility options that reduce reliance on
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single-occupancy vehicles, and are anticipated to continue doing so regardless of potential
BJAD -P and BJAD-TDM consolidation. First- and last-mile connections remain a focus to
ensure that residents, employees, and visitors can access the district easily and
sustainably.
• Capital Improvements: Several near-term capital projects are set to enhance
infrastructure and support the Boulder Junction’s multimodal goals. A branding and
wayfinding signage project is underway to improve navigation and district identity. The Core
Arterial Network (CAN) update for 30th Street will add protected bike lanes, intersection
improvements, and upgrades for pedestrians and transit users. Additionally, a new two -acre
pocket park near the historic depot is planned, with construction potentially beginning by
2026.
• Increasing Vibrancy: Boulder Junction’s vision includes fostering a vibrant, inclusive
commercial environment. A commercial covenant at Boulder Commons ensures that a
portion of ground-floor retail space is leased below market rates to nonprofit or local and
independent businesses, supporting a diverse business mix. Future investments in public
space, amenities, and cultural programming and events are envisioned to further enhance
the area’s identity and appeal for a wide range of users.
55TH & ARAPAHOE STATION AREA
The 55th & Arapahoe Station Area, located in the larger East Boulder subcommunity area, and
pictured in the map below, is one of the city’s employment hubs. Anchored by institutions such as
the Boulder Community Health Foothills Medical Campus, Boulder Municipal Airport, Flatirons
Business Park, Valmont City Park, and the University of Colorado Boulder’s East Campus, the East
Boulder area supports a mix of employment sectors, including research and development,
healthcare, arts and culture, aerospace, and technology. Despite the robust employment base, the
area currently lacks residential options, meaning that nearly all workers commute in daily. While
there are some multifamily residential units on the south side of Arapahoe Ave, existing housing
supply within the Station Area boundary is limited. The nearby San Lazaro Mobile Home Park, just
outside Boulder City limits, is near the Station Area and home to approximately 460 residents.
Additionally, the recently completed Weathervane Apartments, a mixed-income community
located just east of the Station Area boundary on Arapahoe Ave, has added 317 more housing units
to the area.
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The physical layout of the area reflects a legacy of auto-oriented planning. Wide roads, large
blocks, and limited pedestrian infrastructure define much of the environment. Arapahoe Avenue,
designated as State Highway 7, runs through the area and is one of the city’s busiest arterials. East
Boulder, as described by many community members, feels like a series of disconnected “islands”
that are active during the workday but largely quiet during evenings and weekends. Land use
patterns consist primarily of older commercial and industrial buildings, many of which are aging but
still in active use. Though reinvestment has occurred in some properties, new construction has
been relatively limited, and the area lacks the pedestrian-friendly street grid and public amenities
found in other parts of Boulder.
The 55th & Arapahoe area is now poised for significant transformation. The area surrounding the
intersection of 55th Street and Arapahoe Avenue is the planned location of a future State Highway 7
Bus Rapid Transit (BRT) regional station. This major mobility investment will bring high-frequency
transit service connecting Boulder to I-25 and beyond, and will be accompanied by streetscape and
multimodal infrastructure improvements. Together, these enhancements position the Station Area
as a key opportunity site for transit-oriented development (TOD) within East Boulder’s evolving
commercial and employment core. The East Boulder Subcommunity Plan and 55th and Arapahoe
Station Area Master Plan, both completed in 2022, envision this area evolving into a more dynamic,
mixed-use district with enhanced transportation infrastructure, improved amenities, and new
housing opportunities. Implementing new governance mechanisms and investment strategies will
be essential to support long-term economic growth and ensure alignment with these plans’ broader
vision.
LEGEND:
55TH & ARAPAHOE STATION AREA
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KEY MARKET INDICATORS
The 55th & Arapahoe Station Area has seen a substantial increase in property values over the past
decade, with total assessed value growing by 134% since 2014 (not adjusted for inflation). The area
is primarily characterized by light industrial and flex space, encompassing more than 700,000
square feet. Industrial vacancy rates, which spiked during the pandemic, have begun to stabilize.
Office space is the second largest real estate category by inventory, comprising 11 buildings and
just over 230,000 square feet. However, this sector has been significantly underutilized in recent
years, with vacancy rates climbing to nearly 19% since the pandemic. Retail is limited in the area,
with only about 75,000 square feet of space, which also experienced elevated vacancies due to
pandemic-related impacts.
CHALLENGES
Several key challenges were identified through the 55th and Arapahoe Station Area Master Plan
process, including:
•Disconnected Street Network and Limited Mobility Options: The northwest portion of the
Station Area has large blocks and lacks a connected street grid, resulting in limited
pedestrian and bike connectivity. This auto -oriented layout restricts access, safety, and
comfort for those walking or biking, particularly in the absence of north–south bicycle
infrastructure.
•Growing Economic Demand Without New Construction: The area has experienced
notable job growth—particularly in healthcare, industrial, and flex uses—despite limited
new development. While this reflects market strength and efficient reuse of existing spaces,
it also signals potential pressure on aging building stock, with growing needs for modern
infrastructure and space configurations as businesses grow and evolve.
•Involuntary Displacement: As interest in redevelopment grows, so do concerns about the
displacement of existing businesses. Without thoughtful planning, future investment may
inadvertently push out the very people and uses that have shaped the district’s character
to -date.
•Energy Demand and Decarbonization Challenges: Some of the area’s major employers,
including medical and manufacturing facilities, have significant energy demands. The
existing built environment lacks renewable infrastructure and contributes to urban heat
island effects. Addressing these challenges will be critical to achieving Boulder’s
decarbonization goals.
•Infrastructure Gaps and Governance Needs: There is currently no coordinated
governance model in place to manage infrastructure, parking, or forthcoming transit-
oriented investments in the Station Area. Prior planning efforts have recommended
exploring tools such as a special taxing district (GID, BID, URA, or similar) that help deliver
long-term investment, branding, and operations support aligned with community priorities.
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PRIORITIES FOR THE FUTURE
The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan include
several key priorities, informed by extensive community engagement, for the future of the 55th &
Arapahoe Station Area:
•A Mix of Uses: The Station Area’s existing light industrial, medical, and office base provides
a strong foundation for mixed-use redevelopment. Recent zoning code updates to this area
will allow for a broader range of uses, including a range of housing types, neighborhood-
serving retail, and active ground-floor uses to support a community where people can live,
work, and shop.
•Multimodal Investment: The planned BRT station at 55th and Arapahoe offers a rare
opportunity to anchor compact, high-intensity transit-oriented development. Increased
density, paired with reimagined parking strategies and investments in shared mobility
options, can support regional transit access while reducing single-vehicle dependence.
•Public Realm Enhancements: As larger scale redevelopment opportunities occur, there is
an opportunity to complete the street grid and introduce pedestrian-scale infrastructure.
Investments in sidewalks, bicycle facilities, and green/open space could also help create a
safer and more comfortable public realm while building a distinct neighborhood identity.
•TDM Strategies: The area’s concentration of employment could support pilot programs to
support micromobility and commuter-focused TDM programs. These strategies, including
shared parking and curbside management, will be critical to reducing congestion and
making the most of limited public space.
•Climate Goals: Future development can support Boulder’s climate goals through initiatives
like rooftop solar, energy-efficient building materials, and urban greening to reduce
emissions and mitigate urban heat island effects. Where possible, redevelopment or reuse
of existing high use facilities could also focus on improving the energy performance.
•Prevent Involuntary Displacement: A strong emphasis on equity will be essential to
preventing involuntary displacement and gentrification as the area grows and changes.
Policies that support affordable commercial space, retain essential services, and protect
vulnerable tenants can help ensure the benefits of growth are widely shared by both existing
and new community members. Partnerships and incentive programs can help align private
development with long-term community goals.
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04. RECOMMENDATIONS
As documented in the existing conditions summaries, existing city funding sources, including GIDs,
are not adequate to implement the community’s vision for Boulder’s commercial areas.
Complementary to the city’s long-term financial strategy work, this Improvement District Analysis
provides financial and structural options and recommendations to sustainably support the
vibrancy of Boulder’s commercial areas for the next several decades.
Below are recommendations designed to optimize the structures, responsibilities, and financial
resources of current districts, while also exploring new tools and areas for potential district
creation. These recommendations are sorted into Immediate Actions (6-12 months), Short-Term
Actions (12-24 months), and Long-Term Actions (Beyond 24 months).
The goal of these recommendations is to address existing funding gaps for planned projects and
needed services, and to ensure that Boulder’s commercial areas remain vibrant, well-supported,
efficiently managed, and prepared for future growth.
IMMEDIATE ACTIONS (6-12 MONTHS)
EXPLOR E A DOWNTOWN DEVELOPMENT AUTHORITY (DDA) FOR
BOULDER’S CORE DISTRICTS
While Boulder’s existing core GIDs (CAGID and UHGID) provide
critical infrastructure and operational support to each district,
there is growing recognition that additional tools are needed to
support future growth, connectivity, and economic vibrancy
throughout Boulder’s core districts. A Downtown Development Authority (DDA) is one compelling
option, and offers the opportunity to not only provide additional support to the CAGID and UHGID
areas, but to enhance focus on the areas in Downtown Boulder that are undergoing significant
change, including the Civic Area, the Western City Campus, and the connections in between.
What is a DDA?
A Downtown Development Authority is a state-enabled, quasi-governmental entity designed to
support revitalization efforts in a city’s central business district. A DDA brings together property
owners, businesses, residents, and local government to establish a long-term, self-sustaining
organization that finances and manages projects aimed at improving the area’s attractiveness,
functionality, and economic health. A central requirement of a new DDA is the adoption of a Plan of
Development, which outlines the district’s vision, priorities, and strategy for investments.
DDAs are funded through two main mechanisms:
RECOMMENDATION FOR:
CAGID UHGID
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• Tax Increment Financing (TIF): Captures future increases in sales and property tax revenue
within the district without raising current tax rates. These funds are then reinvested into the
area to finance capital projects, maintenance, and ongoing services.
• Mill Levy Assessment (up to 5 mills): Subject to voter approval, a property assessment of
up to 5 mills can be leveraged to fund DDA administration and operations.
TIF is activated by setting a “base” property valuation at the time the DDA’s Plan of Development is
adopted. Any property or sales tax revenue growth above this base—referred to as the increment—
is directed to the DDA for a 30-year term, with the option to renew for two additional 20-year
periods. DDA s have bonding authority, but do not have taxing power beyond the voter-approved 5
mills and cannot exercise eminent domain. Additionally, unlike Urban Renewal, DDAs do not
require findings of blight in order to utilize TIF.
DDAs are governed by a board of 5 to 11 members, made up of stakeholders from within the
district—business and property owners, residents, and often a City representative—who are
appointed by City Council. City Council must also approve any bonds issued by the DDA.
Why Now?
A DDA is a proven tool to reinvigorate economic activity—particularly in areas like Downtown and
The Hill, which face lingering challenges recovering from the impacts of the pandemic and
diminishment of property value as a result. As Boulder considers how best to support its central
business district, the city is also approaching a pivotal moment in its evolution. Several areas in and
around Downtown are poised for transformation, and a DDA could provide long-term, sustainable
funding to address challenges and unlock opportunities:
• The Civic Area, centrally located in Downtown Boulder, is a cornerstone of the city’s
identity. However, its full potential as a vibrant public space and community gathering point
remains unrealized. Despite its central location, the Civic Area lacks consistent activation,
amenities, and public safety infrastructure. Phase II of its redevelopment presents an
opportunity to revitalize the space with improved programming, recreation facilities, year-
round cultural activities, and stronger connections to Boulder Creek. A DDA could help
close existing operational and funding gaps, such as expanding the Ambassador Program to
this area and upgrading infrastructure to support regular public events.
• The Western City Campus in the Alpine-Balsam area is another major, upcoming
investment into Boulder’s civic infrastructure. Once completed, the site will house various
city services and is expected to attract significant daily foot traffic from staff and visitors.
However, the surrounding infrastructure—especially in terms of mobility and access—
requires upgrades to support this growth. Improvements in walkability, bike and transit
access, and better integration with nearby commercial zones will be critical. A DDA could
help fund these enhancements and create a seamless connection between the Hill, the
Civic Area, Downtown Boulder, and Western City Campus.
As City Council recently noted in their review of the Civic Area Phase II, significant investment is
needed to fully realize Boulder’s goals for vibrant, inclusive, and well-connected public spaces.
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However, no current funding mechanism exists to comprehensively support these improvements
across the city’s core districts. A DDA could fill that gap by providing dedicated, flexible resources
for capital projects, operations, maintenance, and economic development across Boulder’s core
districts. It would also position Boulder to meet increasing expectations tied to events like the
arrival of the Sundance Film Festival in 2027, which will bring major attention, visitors, and pressure
on downtown infrastructure and services.
Why a DDA?
While there are other district financing tools that could be used in this area, including Urban
Renewal and expansion of the existing GIDs, further exploration of a DDA is recommended for
several key reasons:
•The geographic area has diverse and complex needs, including infrastructure upgrades,
operational support, maintenance, and programming.
•The economic and social benefits of improvements in Downtown’s core would extend well
beyond a single commercial area or stakeholder group.
•A DDA offers a robust governance model that can support long-term investment and
coordination.
•Peer cities across the region have successfully implemented DDAs over the last 40+ years,
demonstrating replicable models for Boulder.
Overall, the DDA tool is well-suited to the goals at hand, particularly when paired with strategic
engagement, financial planning, and phased implementation. A prospective DDA would need to be
closely coordinated with existing entities such as the City of Boulder, CAGID, UHGID, and the
Downtown Boulder BID to minimize duplication, limit tax burdens, and ensure effective
management across overlapping areas.
Timing Considerations
The timing of a potential DDA is critical. TIF revenues are calculated based on the tax base at the
time the Plan of Development is adopted. For maximum benefit, this plan should be adopted
between the November 2026 DDA formation vote and December 31, 2026, just ahead of Sundance
2027, which is expected to significantly boost sales tax revenue.
Another important consideration is the impact of TIF on overlapping taxing entities, including
Boulder County, the Boulder Valley School District, and the Boulder Public Library District. TIF
would divert a portion of future tax revenue increases from these entities to the DDA, making early
and ongoing collaboration with these stakeholders essential.
Action Steps
To explore the feasibility of forming a DDA, a phased approach over the next 12–15 months is
recommended:
•Phase 1: DDA Framework & Priority Setting
o Define a study area for the DDA formation effort that includes Downtown, University
Hill, and the Alpine Balsam district
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o Compile a property database and work with the City and Assessor to determine
property values and sales
o Conduct periodic creative workshops with the DDA Planning Group
o Develop educational materials that provide a concise overview of how a DDA works
o Conduct interviews and small group meetings with organizations and key
stakeholders from each affected area to inform them on DDA options and seek
priorities (i.e. Downtown Management Commission, UHGID, Downtown Boulder,
etc.)
o Conduct best practice research and orchestrate a tour of comparable DDAs along
the Front Range (i.e. Fort Collins, Longmont, Colorado Springs, others to be
considered)
o Evaluate the pros, cons, and financial implications of wrapping the central business
district’s existing GIDs (i.e. CAGID and UHGID) into a new DDA
o Develop a plan framework, including recommended boundaries and sequencing for
moving forward to create a DDA for Boulder
o Conduct a study session with Boulder City Council to offer findings from initial
research and seek policy guidance.
•Phase 2: Plan of Development
o Evaluate revenue options, including projections for tax increment financing and/or
assessments, and help city staff facilitate meetings with taxing partners
o Conduct periodic creative workshops with the DDA Planning Group
o Broad outreach efforts to seek improvement priorities from all affected stakeholders
within the DDA boundaries in a variety of formats. Meeting formats could include
small groups, Open Houses, and participation in existing community events and
venues. The City’s Racial Equity Instrument would be utilized to make sure that
engagement is inclusive and responsive to city goals.
o Design and interpret an online survey to seek downtown improvement priorities
from all Boulder residents.
o Draft and design a Plan of Development document that identifies a menu of service
and improvement options and supporting graphics to illustrate potential
improvements
o Review draft plan concepts with the DDA Planning Group and Downtown
stakeholders at-large
o Conduct a study session with the Boulder City Council to lay out the draft Plan of
Development and path forward.
•Phase 3: Legal Process to Form DDA
o Database development and management to identify qualified electors and
associated assessment costs (if any)
o Draft and design educational materials to inform stakeholders of the benefits and
costs associated with the DDA
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o Graphic summary of the Plan of Development to visually convey improvement and
project opportunities
o Legal work to prepare for and advance district formation, including draft ordinance,
and management of the TABOR election
o Coaching to help district proponents inform stakeholders on the benefits of the DDA
and clarify TABOR ballot options.
A prospective DDA presents the opportunity to secure a long-term, sustainable funding mechanism
to support Boulder’s core districts, and could help create a more vibrant, accessible, and resilient
city center for decades to come.
CLARIFY CAGID VERSUS BID SERVICES
The current overlap between the services provided by CAGID and
the BID creates inefficiencies and confusion among stakeholders
in Downtown Boulder. By clearly defining and aligning the
responsibilities of each district, the city can eliminate
redundancies, improve service delivery, and provide clarity to businesses about where to seek
support. This clarification will also help streamline operations, making the districts more effective
and responsive. A comprehensive inventory of services will be needed, along with input from key
stakeholders such as the Downtown Boulder Partnership and city staff.
Action Steps:
•Conduct a service inventory to assess overlap and gaps.
•Engage with stakeholders, including Downtown Boulder Partnership, to draft an
implementation plan.
ANALYZE DISTRICT FEASIBILITY FOR 55TH & ARAPAHOE
Although the 55th & Arapahoe area is on the cusp of major
transformation, driven by planned infrastructure investments and
recent zoning changes in the Station Area, there is currently no
dedicated governance structure in place to coordinate place
management, sustain future improvements, or address parking and transportation demand beyond
existing city services. Exploring the feasibility of Boulder’s GID model—which has proven effective
in areas such as CAGID, UHGID, and BJAD—is a logical next step. A GID could provide the long-
term investment, branding, and operational support needed to align with and advance community
priorities.
If there is not sufficient stakeholder support for forming a GID or another type of assessment-based
district (like a BID), the city could consider alternative district management tools—such as Urban
Renewal—that offer different funding and governance mechanisms. While Urban Renewal typically
focuses on addressing blight and catalyzing redevelopment through use of TIF, it can also be
tailored to support infrastructure investment, public realm enhancements, and economic
revitalization in areas where an assessment-based improvement district may not be viable.
RECOMMENDATION FOR:
CAGID
RECOMMENDATION FOR:
55th & ARAPAHOE
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Exploring a range of tools ensures flexibility in aligning the right approach with community needs
and stakeholder readiness.
Action Steps:
To from a new GID in the Station Area, a phased approach is recommended. The following
approach typically takes from 6-12 months, working backwards from a November TABOR election:
•Step 1: Feasibility Study
o To explore the feasibility of creating a GID, an initial analysis is recommended that
includes:
Financial modeling to assess revenue potential and costs, and
Outreach to property owners and community members to identify priorities
for the district and gauge support
o Following feasibility analysis, provide a recommendation on whether or not to move
forward with the legal process to form the district, which may include the creation of
an work plan that describes district characteristics and anticipated services and
investments.
•Step 2: Work Plan
o While not required by state law, it is recommended that a Work Plan that details
district purpose and vision, boundaries, services and projects, financing, mill levy
caps, debt limits, and other district characteristics be created as part of the GID
formation process. Requiring GIDs to prepare an annual work plan for approval by
the City Council (acting as the GID Board of Directors) has become a common
practice in many cities.
•Step 3: Legal Process to form the GID
o Petition – proponents submit a petition of formation to the City of Boulder signed by
at least 30% of the electors of the proposed district, or by 200 electors, whichever
number is less. The petition must include:
A description and map of the proposed boundaries
A general outline of proposed improvements and service
Estimated costs and funding methods (including revenue and debt)
A request for the City to form the district
o City Council review and public hearing – Council considers formation of the GID
o Adoption of ordinance forming the district – Council approves the creation of the
GID and ordinance is passed
o TABOR election (November or regular City election date) – voters within the
proposed district vote on district formation and authorize taxation and debt
Note that if the petition is signed by 100% of the GID electors, the GID may
be created by City Ordinance without an organizational election (but an
election would still be needed to authorize tax, revenue, spending and debt
authority)
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LODGING BUSINESS ASSESSMENT AREA (LBAA) PARTNERSHIP
With the addition of new hotels such as Moxy Boulder and
Limelight Hotel & Conference Center, the recently established
LBAA could be encouraged to allocate funding to improve the
visitor experience between Downtown and the Hill through
wayfinding, streetscape enhancements, and connectivity improvements. This funding could be
used in the near-term to improve connectivity between Downtown and the Hill while the feasibility
of a DDA is explored. The city will need to establish an effective partnership model with hotel
operators and ensure sustainable funding for improvements.
Action Steps:
•Begin a conversation with the board of the LBAA and Visit Boulder, with a focus on
identifying potential revenue from new and existing hotels to establish a dedicated funding
stream specifically for projects between University Hill and Downtown.
•Develop a partnership model with hotel operators to ensure alignment with visitor
experience goals.
SHORT-TERM ACTIONS (12-24 MONTHS)
If a DDA is not feasible, other structures need to be explored to address the needs within Boulder’s
core commercial areas. Below are several potential alternatives in lieu of DDA creation, plus
several short-term recommendations for exploring BJAD efficiencies.
EXPLORE CAGID EXPANSION TO SUPPORT CIVIC AREA
REDEVELOPMENT
If the DDA does not come to fruition, the city could explore
expanding existing GIDs as an alternative tool to help fund and
manage public realm improvements in strategic areas. One such
opportunity is the Civic Area Redevelopment, which will be
catalyzed by the relocation of city services to the Western City Campus in 2027. This transition will
open several publicly owned parcels between Canyon Boulevard and Arapahoe Avenue from 9th to
14th Street for redevelopment.
Although the Civic Area currently lies outside of CAGID’s boundaries, recent planning efforts have
identified it as a key area of opportunity, and its future should be considered in the context of
CAGID’s evolving role. While the area is currently publicly owned and exempt from GID
assessments, the City could authorize participation through a payment in lieu of taxes (PILOT) or
other voluntary contribution if GID services are desired. If future redevelopment results in private
ownership of property in the area, CAGID could be formally expanded to include those parcels. This
would require several steps: (1) a petition signed by a majority of electors or property owners within
the proposed expansion area, (2) public notice and a hearing, and (3) approval by City Council.
RECOMMENDATION FOR:
CAGID
RECOMMENDATION FOR:
CAGID UHGID
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Action Steps:
•Explore the feasibility and implications of CAGID expansion (including PILOT or assessment
structure, services, and governance) as specific redevelopment plans for the Civic Area
take shape.
ANALYZE COST RECOVERY FOR PARKING & UHGID SERVICES
UHGID services are currently heavily subsidized by the General
Fund, but there are opportunities to increase district-generated
revenue to cover operating costs. By reevaluating parking-related
fees and other revenue sources, the city can reduce dependence
on the General Fund while ensuring the financial sustainability of
UHGID.
Action Steps:
•Reevaluate permit parking costs to ensure they reflect market conditions and district
service expenses.
•Explore expanding paid parking zones in high-demand areas to generate additional revenue.
•Analyze alternative revenue sources such as special event parking fees, loading zone
permits, or other partnerships with private operators.
EXPLORE ESTABLISHING A SINGLE DISTRICT IN BJAD
Currently, BJAD-P and BJAD-TDM operate as separate entities,
leading to inefficiencies in funding allocation and governance.
Creating a single district would streamline the approach to
managing transportation and mobility in Boulder Junction,
allowing for greater flexibility and better resource allocation.
While Section 31-25-601, et seq., of the Colorado Revised Statutes (the GID Act) does not prevent a
municipality from creating more than one GID, the GID Act also does not include any process for
the consolidation of GIDs. The Special District Act, which governs metropolitan districts, for
example, does provide a very specific process for the consolidation of metro districts. Thus, the
consolidation of GIDs, in the technical sense, is not possible.
However, the GID Act does provide a process by which property can be included and excluded from
GID boundaries, and the process is rather simple. The process for including property into a GID is
the same as for excluding property from a GID, and is generally as follows:
1.Owner(s) of property proposed to be included or excluded file a written petition with City
Council, requesting that such property be included in or excluded from the GID
2.City Council publishes notice and holds a public hearing on the petition to include or
exclude.
RECOMMENDATION FOR:
UHGID
RECOMMENDATION FOR:
BJAD-P BJAD-TDM
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3. Thereafter, City Council may grant the petition by adopting an ordinance including or
excluding the property and file it with the County Clerk and Recorder. The property is
then officially included or excluded.
The GID inclusion/exclusion process could be utilized to rearrange the boundaries of two GIDs to, in
effect, combine them under one GID. For example, all the property in one GID could be included
into a second GID, the first GID could transfer any agreements or services to the second GID by
agreement, then the first GID could either exclude all the property or simply be dissolved. A GID
may be dissolved at any time by city ordinance following a public hearing, if all the GID’s
outstanding indebtedness, obligations, and liabilities are satisfied first.
One challenge with combining two GIDs by an inclusion/exclusion process is that each GID must
impose a uniform property tax levy across all property in its boundaries. So, if the two combining
GIDs have different mill levies before including/excluding property and dissolving, after inclusion all
the property will pay the same property tax mill levy of the remaining GID.
A GID can utilize assessments or some other kind of fee to impose different rates on different
properties, but to do so, the properties must receive different benefits commensurate with the
different rates imposed. This can be difficult to demonstrate for general GID operations.
If a consolidated district is pursued, the ongoing distinction between the use of funds for TDM
versus parking activities could be established through annual budget and work program
allocations. Further legal and financial analysis will be needed to evaluate the viability and
implications for governance and funding of creating a single district.
Action Steps:
• Conduct a detailed legal and financial feasibility analysis to assess the benefits and
challenges of establishing a single district in BJAD.
• Engage with property owners, businesses, and stakeholders to evaluate potential concerns
and gauge support.
• The timing to consolidate the two districts is not mandated or restricted by city or state
deadlines. The following legal steps could be completed within several months if a single
district is desired:
o Owner(s) of property proposed to be included or excluded file a written petition with
City Council, requesting that such property be included in or excluded from the GID.
o City Council publishes notice of public hearing on the petition to include or exclude.
o City Council Meeting #1: Public Hearing and First Reading of Ordinance to approve
petition to include or exclude.
o City Council Meeting #2: Second Reading and final passage of Ordinance to approve
petition to include or exclude.
o Ordinance filed with the County Clerk and Recorder. The property is then officially
included or excluded.
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ANALYZE IMPACTS AND STEPS TO TEMPORARILY REDUCE BJAD-
P MILL LEVY
Property owners within BJAD-P currently face dual mill levies – one
for parking and one for TDM. With the parking garage debt paid off
and reserve funds growing, it may be financially viable to reduce
the mill levy. However, any decision regarding the mill levy
reductions should be considered within the context of consolidating the BJAD-P and BJAD-TDM
districts, as outlined above.
A detailed financial analysis, including the impacts of merging the districts as outlined below, will
be needed to assess the viability of a mill levy reduction and its impact on the district’s ability to
maintain infrastructure and evolving needs.
Action Steps:
•Conduct a legal and financial feasibility analysis to determine the implications of reducing
the mill levy in the context of creating a single district in Boulder Junction.
•Engage with BJAD businesses and property owners to discuss potential levy reductions and
the merger process.
•Develop a phased strategy for mill levy adjustments, aligned with the broader analysis of
creating a single district, based on financial modeling and stakeholder input.
IDENTIFY GID’S ROLE IN BOULDER JUNCTION PHASE II
As Phase II of planned Boulder Junction revitalization and
redevelopment rolls out, additional stakeholders may enter the
district, creating an opportunity to reassess the role of BJAD and
ensure its structure aligns with future mobility and economic
development goals.
•Identify and evaluate the role of the BJAD and other potential public financing tools in Phase
II infrastructure, mobility, and parking needs.
•Develop a plan for a transition and Phase II work if deemed viable.
LONG -TERM ACTIONS (BEYOND 24 MONTHS)
DE-BRUCE GID MILL LEVY
If the DDA initiative is not pursued, CAGID and UHGID may require
additional revenue to support critical infrastructure and services.
However, the current mill levies are limited by Taxpayer Bill of
Rights (TABOR) restrictions and would require voter approval to
increase. As an example, for the 2025 budget year, CAGID’s current 3.743 mills produced
$1,534,231, but without TABOR limitations, a 9.990 mill levy would have generated $4,094,835.
RECOMMENDATION FOR:
BJAD-P BJAD-TDM
RECOMMENDATION FOR:
CAGID UHGID
RECOMMENDATION FOR:
BJAD-P
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Similarly, UHGID’s 1.726 mills produced $38,957, while an unrestricted 4.984 mill levy would have
generated $112,493.
The act of ‘de-Brucing’ eliminates the spending limit established by TABOR, allows the city to retain
and spend all its revenue collected under current taxing rates, and creates the opportunity for
future mill levy increases. The city will need to gauge voter support and ensure transparency in the
process to avoid concerns about increased taxes, while assessing if a TABOR de-Brucing vote could
be a viable funding solution. Additional revenue generated through “de-Brucing” would be limited to
expenditures aligned with the original purpose of the districts unless also changed by voter action.
Action Steps:
•Evaluate funding needs for CAGID and UHGID based on long-term infrastructure and
service priorities.
•Conduct community engagement to gauge support for a TABOR de-Brucing vote.
•Develop a ballot measure to increase mill levies if deemed necessary.
EXPLORE A PEARL STREET PUBLIC IMPROVEMENT FEE (PIF)
A Public Improvement Fee (PIF) could provide a dedicated funding
stream for improvements along Pearl Street, such as
infrastructure, maintenance, and programming. This fee would be
added to sales tax rates in the affected area, and would require
property owner, business, and resident consent through a TABOR election.
The city will need to ensure that the PIF model is transparent, equitable, and accepted by all
stakeholders to be effective.
Action Steps:
•Assess the feasibility of implementing a PIF along Pearl Street.
•Work with business owners and property managers to gauge willingness to participate and
community goals for use of the potential funds.
•Explore legal and administrative mechanisms for implementing a transparent and equitable
PIF model.
CITYWIDE BOND ISSUE OR TAX INCREASE FOR DOWNTOWN
IMPROVEMENTS
As described earlier, the needs within Downtown Boulder,
including the Civic Area, Western City Campus, and connections
in-between, require ongoing investments in infrastructure, public
spaces, and mobility improvements to support economic vitality
and long-term sustainability. If a DDA is not pursued, some of these unfunded needs could be
explored as a part of the city’s broader Long-Term Financial Strategy work, including the 2026 ballot
strategy based on planned community input.
RECOMMENDATION FOR:
CAGID
RECOMMENDATION FOR:
CAGID
122
Action Steps:
•Assess capital improvement priorities that require new funding.
•Analyze potential funding mechanisms such as a bond issue, dedicated sales tax, or
property tax increase within the city’s long-term financial strategy.
•Evaluate opportunities to incorporate Downtown improvements into larger citywide
infrastructure ballot measures to maximize funding efficiency.
•Engage with voters to assess support for a potential ballot measure.
URBAN RENEWAL (SITE-SPECIFIC OR
DISTRICT SCALE)
For properties or underutilized areas that meet “blight” criteria,
urban renewal could be utilized to fund redevelopment,
infrastructure, and improvements. Urban renewal utilizes Tax
Increment Financing (TIF) to address areas that meet the state’s
definition of blight, which includes factors such as deteriorating
infrastructure, underutilized properties, or economic stagnation. TIF dollars can be used on a site-
specific or district scale to finance the issuance of bonds; reimburse developers for a portion of
their development costs; acquire property; and make public improvements to support
redevelopment efforts. To utilize urban renewal, the city will need to identify suitable properties and
ensure the redevelopment aligns with sustainable development goals and community benefit. The
Boulder Urban Renewal Authority (BURA) could facilitate redevelopment of these properties. It is
important to note that TIF-based tools cannot overlap. Therefore, urban renewal cannot be utilized
within the boundaries of a potential DDA. The city would need to assess the feasibility of urban
renewal based on site conditions, financial feasibility, and alignment with community goals.
Action Steps:
•Identify underutilized properties or redevelopment sites that meet urban renewal eligibility.
•Assess potential for TIF to support infrastructure and economic development projects.
•Identify the steps required to expand the use of BURA in targeted areas or implement
alternative site-specific tools.
•Work with stakeholders to create redevelopment plans that align with community goals.
METROPOLITAN DISTRICT
In areas where urban renewal may not be the best fit, other site-
specific tools – such as a Metropolitan District – could provide
alternative funding mechanisms to support infrastructure and
redevelopment. A Metropolitan District is a type of special district
authorized under Colorado state statute to provide infrastructure
and public services within a defined geographic area. These
districts are commonly used to finance, construct, operate, and maintain infrastructure
RECOMMENDATION FOR:
CAGID UHGID
BJAD-P BJAD-TDM
55th & ARAPAHOE
RECOMMENDATION FOR:
BJAD-P BJAD-TDM
55th & ARAPAHOE
123
investments such as streets, water and sewer systems, parks and recreation facilities,
transportation infrastructure, and in some cases, public safety services. Metropolitan Districts are
typically funded through property taxes, fees, and debt instruments such as bonds, and must be
approved by the local jurisdiction and, in most cases, by voters residing within the district.
The process for creating a Metropolitan District typically takes approximately 6-12 months due to
local approval steps and alignment with Colorado’s May/November special district election
timetable. While the process to form a Metropolitan District is initiated at the city level, all
metropolitan districts in Colorado are formally created by a Colorado District Court per state
statute.
To explore the creation of a Metropolitan District, the process begins with a feasibility study that
includes financial modeling to assess potential revenues and costs, along with outreach to
property owners and community members to gauge support and identify priorities. If the analysis
supports moving forward, the next step is to draft a Service Plan—as required by Colorado statute—
detailing the proposed district's boundaries, services, financing strategy, mill levy caps, and debt
limits. The legal formation process then involves submitting the Service Plan to Boulder City
Council for review and holding a public hearing, after which the Council may approve it by
resolution. Once approved, proponents must file a petition with Boulder County District Court,
secure signatures from at least 30% of eligible electors (or 200, whichever is fewer), and participate
in a court hearing. If the court finds the petition valid, it orders an organizational election where
voters within the proposed district decide on board members, spending authority, taxation, and
final formation. If successful, the court issues a decree officially establishing the district.
Action Steps:
•Identify underutilized properties and redevelopment areas that could be eligible for a
Metropolitan District and assess feasibility.
•Work with property owners to gauge willingness to participate and community goals for use
of the potential funds.
•Explore legal and administrative mechanisms for implementing a transparent and equitable
Metropolitan District.
124
RECOMMENDATIONS SUMMARY
125
APPENDIX A: DISTRICT
PROFILES
CENTRAL AREA GID (CAGID) DISTRICT PROFILE
BACKGROUND/CONTEXT
CAGID was created in 1970 to provide parking infrastructure and related services to the downtown
area in order to more easily attract employees and visitors. To accomplish this, the district built six
mixed use parking garages, one surface parking lot, and on-street paid parking facilities eliminating
the need for each building downtown to have their own parking lot and allowing improved
streetscapes and other infrastructure. CAGID oversees five parking garages with a total of 2,209
spaces, four surface parking lots, and 165 on-street pay stations.
In the 50+ years since CAGID’s genesis, its funding scope has expanded beyond just parking
maintenance to include complementary programs such as:
• Increasing mobility options in the form of EcoPasses for downtown employees, the Boulder
Clean Commute program, the HOP high frequency circulator, the Lime E-Scooter Expansion
Plan, and the Parking & Access Signage Refresh Project.
• Supporting economic vibrancy by expanding options for outdoor dining, mobile vending
carts for small business operators, an affordable retail program, and supporting special
events.
• Leading and assisting in beautification and aesthetic-driven projects such as tree planting,
murals and crosswalk designs, public art, and powerline undergrounding.
• Ambassador program – in collaboration with Downtown Boulder Partnership, providing
services to make the area cleaner and safer, including trash collection, graffiti removal,
providing information to residents and visitors, giving directions and recommendations, and
addressing unfavorable activities.
126
Governance Structure
CAGID, along with the Department of Community Vitality, manages parking operations and related
services, while the Downtown Management Commission (DMC) manages and advises the business
affairs of the GID. The DMC includes five Council-appointed members with five-year terms. Three of
those members must own real property or represent real property owners in Downtown and two
members are residents representing the community-at-large.
Assessment Methodology
3.743 mill levy
KEY MARKET INDICATORS
Key market indicators are being provided to look at existing economic conditions and changes since
2019, considered the pre-pandemic base year.
Commercial Real Estate Trends
Retail
Vacancy (2024) 15.0%
Inventory (buildings) 89
Inventory (sf) 768,752
Net absorption (sf) (14,258)
Market sale price per sf $462.00
NNN rent overall $40.32
Office
Vacancy (2024) 19.0%
Inventory (buildings) 102
Inventory (sf) 2,496,980
Net absorption (sf) (18,553)
Base rent overall $27.43
Multi-family
Inventory (buildings) 9
Inventory (units) 253
Vacancy 32.0%
Asking rent per unit $4,020
Data source: Costar
0%
2%
4%
6%
8%
10%
12%
14%
16%
202420232022202120202019201820172016
CAGID Retail Vacancy
0%
5%
10%
15%
20%
25%
202420232022202120202019201820172016
CAGID Office Vacancy
127
Sales Tax Revenue
2019 $8,800,961
2020 $5,253,717
2021 $7,162,667
2022 $8,584,441
2023 $8,831,332
Change 0.3%
Data source: DMC January 2024 report
Property Values
Total GID Value (Fiscal Year)
2019 $384,680,015
2020 $382,681,446
2021 $385,031,888
2022 $384,352,498
2023 $411,637,845
2024 $409,893,360
Change 6.6%
Data source: Boulder County Assessor $360,000,000
$370,000,000
$380,000,000
$390,000,000
$400,000,000
$410,000,000
$420,000,000
2019 2020 2021 2022 2023 2024
CAGID Total Property Values
128
SOURCES & USES OF FUNDS
CAGID Sources of Funds 2019-2025
The following table and charts show trends in the sources of revenue CAGID received from 2019-
2025, using 2019 as the pre-pandemic base year. While total revenue has largely recovered since
2020, the GID continues to receive a smaller percentage of its funds from transfers in. This
indicates that CAGID is able to rely more on internal streams of revenue such as leases, rents and
royalties and interest and investment earnings.
Parking
Revenue
Property
Tax
Leases,
Rents
and
Royalties
Interest &
Investment
Earnings
Specific
Ownership
& Tobacco
Tax
Other
Revenues
Transfers
In
TOTAL
(sources)
2019
(Actual)
$7,141,719 $1,284,714 - $208,581 $70,050 $63,773 $1,613,285 $10,382,122
69% 12% - 2% 0.7% 0.6% 16%
2020
(Actual)
$4,345,338 $1,357,621 - $221,845 - $84,141 $1,146,104 $7,155,049
61% 19% - 3% - 1% 16%
2021
(Actual)
$6,018,037 $1,333,187 $343,000 $205,387 $67,969 $70,419 $971,104 $9,009,103
67% 15% 4% 2% 0.8% 0.8% 11%
2022
(Actual)
$6,055,246 $1,381,857 $482,540 $221,112 $62,894 $64,588 $968,819 $9,237,056
66% 15% 5% 2% 0.7% 0.7% 10%
2023
(Actual)
$4,514,795 $1,493,258 $156,000 $487,662 $69,767 $94,142 $968,819 $7,784,443
58% 19% 2% 6% 0.9% 1% 12%
2024
(Adopted)
$6,062,159 $1,440,980 $497,010 $226,811 $64,150 $64,590 $968,819 $9,324,519
65% 15% 5% 2% 0.7% 0.7% 10%
2025
(Approved)
$6,299,894 $1,469,800 $504,465 $502,976 $65,433 $65,559 $723,753 $9,631,800
65% 15% 5% 5% 0.7% 0.7% 8%
129
This chart visualizes the total amount of funds gained with a bar chart that corresponds to the right
axis labels and the amount of each source with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
CAGID Sources of Funds (% of Total)
Parking Revenue Property Tax
Leases, Rents and Royalties Interest & Investment Earnings
Specific Ownership & Tobacco Tax Other Revenues
Transfers In
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
$8,000,000
2019 2020 2021 2022 2023 2024 2025
CAGID Sources of Funds (Amounts)
TOTAL (sources):Parking Revenue
Property Tax Leases, Rents and Royalties
Interest & Investment Earnings Specific Ownership & Tobacco Tax
Other Revenues Transfers In
130
CAGID Uses of Funds 2019-2025
The following table and charts show trends in the uses of CAGID funds from 2019-2025, using 2019
as the pre-pandemic base year. Uses have shifted since 2019, with a higher proportion of spending
going towards the Capital Improvement Program (CIP) and a lower proportion going to customer
service and administration, with debt service completely eliminated following 2023. Projects that
used CIP funds over the past year include building freeze recover at 1500 Pearl, a facility
assessment of the Spruce Garage, installing parking garage capacity display signs, replacing
stormwater pipes behind the 1500 Pearl garage, and stump removal and weed control on Broadway
medians.
Admin Customer
Service
District
Mgmt
Parking &
Access
Debt
Service
Cost
Allocation &
Transfers
Capital
Improvement
Plan
TOTAL
(uses)
2019
(Actual)
$1,452,711 $788,025 $1,454,198 $1,258,827 $827,193 $330,541 $314,824 $6,426,319
23% 12% 24% 20% 13% 5% 5%
2020
(Actual)
$1,010,163 $938,268 $1,327,915 $863,836 $836,839 $335,218 $2,086,900 $7,399,139
14% 13% 18% 12% 11% 5% 28%
2021
(Actual)
$1,183,390 $826,632 $749,635 $752,943 $827,883 $335,218 $1,625,685 $6,301,387
19% 13% 12% 12% 14% 5% 26%
2022
(Actual)
$1,178,849 $789,584 $1,077,928 $817,491 $829,682 $324,155 $795,712 $5,813,401
20% 14% 19% 14% 14% 6% 14%
2023
(Actual)
$1,163,470 $728,906 $1,393,584 $942,127 $835,307 $420,471 $2,104,038 $7,587,903
15% 10% 18% 12% 11% 6% 28%
2024
(Adopted)
$1,657,043 $750,412 $2,372,322 $1,129,624 - $787,082 $4,930,000 $11,626,483
14% 6% 20% 10% - 7% 42%
2025
(Approved)
$1,496,934 $618,542 $2,206,043 $1,630,834 - $1,061,882 $5,550,000 $12,564,235
12% 5% 18% 13% - 8% 44%
131
This chart visualizes the total amount of funds used with a bar chart that corresponds to the right
axis labels and the amount of each use with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
CAGID Uses of Funds (% of Total)
Administration (Economically Vital)Community Vitality Customer Service
Economic Vitality & District Management Parking & Access
Debt Service Cost Allocation & Transfers
Capital Improvement Program
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
$14,000,000
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
2019 2020 2021 2022 2023 2024 2025
CAGID Uses of Funds (Amounts):
TOTAL (right axis)Administration (Economically Vital)
Community Vitality Customer Service Economic Vitality & District Management
Parking & Access Debt Service
Cost Allocation & Transfers Capital Improvement Program
132
FUTURE – PLANS, PROJECTS, & PARTNERSHIPS
Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping
the evolution of CAGID.
Summary of Planning Efforts/Past Plans Related to the District
Many of the City of Boulder’s past planning efforts relate to, and will impact, the CAGID area. Below
is a summary of common themes found in plans that apply to downtown. The reviewed plans
include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master
Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), Downtown Boulder Vision
Plan (2022), and Central Broadway Corridor Design Framework (2017).
1.Connect to other districts and destinations
a.CAGID is a key activity center along Broadway and has the opportunity to
seamlessly connect to other activity centers on the corridor, such as University Hill
and the future Western City Campus (expected to open in 2027).
b.Improve multi-use path connections to the University of Colorado and University
Hill.
2.Expand mobility options
a.Vision to develop an intermodal mobility hub Downtown that connects with the
University of Colorado, Boulder junction, and the region as a whole.
b.Proposed bike and pedestrian enhancements in Downtown and on the surrounding
streets.
3.Continue activating the Pearl Street Mall and surrounding areas
a.Reimagine the 1300 block as a space for events, enhanced public amenities, and an
expanded visitor center.
b.Activate the 1400 block with artwork, seating and shade structures, and interactive
and temporary play equipment.
4.Enhance streetscaping, placemaking, branding, and identity
a.Opportunity to designate a historic district in some parts of Downtown.
b.Increase tree canopy and shade structures, adaptable signage and wayfinding,
outdoor seating, and temporary events.
c.Activate surface parking lots and alleys.
Key Projects Likely in the Near-Term
•Capital Improvement Projects:
o Garage repairs and improvements, including security enhancements
o Garage Mobility Hub Project – converting CAGID parking garages into multi-
functional mobility hubs
o Powerline undergrounding – working with Xcel to move powerlines underground to
mitigate risks and enhance Downtown’s sense of place
o Streetscaping enhancements, including the Pearl Street Mall Refresh
o Increasing public art through the 1% for Public Art program
o Affordable Commercial Capital Program – support for small businesses impacted by
the pandemic and increasing rents
133
o HVAC replacement at the 1500 Pearl building
•Other Projects:
o When the Western City Campus opens at the Alpine-Balsam site (projected to occur
in 2027), the City-owned buildings between Canyon Blvd and Arapahoe Ave from 9th
Street to 14th Street will be vacated. The City plans to fill those spaces Downtown
with civic and commercial development that fosters activity, collaboration, and
innovation.
CAGID Key Partnerships
•Downtown Boulder Partnership (DBP)
o DBP is a 501(c)6 organization that receives revenue from business and individual
memberships to “promote the civic, economic and commercial vitality of downtown
B oulder.”
•Downtown Boulder Business Improvement District (BID)
o The Downtown Boulder BID is a taxing district that was formed in 1999 “to cultivate
a cleaner, safer and more vibrant downtown community.” BID services include
maintenance services and marketing and communication programs.
•Downtown Boulder Community Initiatives (DBCI)
o DBCI is a 501(c)(3) nonprofit formed in 2016 “to engage visitors and locals alike
through arts, culture, innovation and inclusive, community-driven experiences in
downtown Boulder.”
DBP, Downtown Boulder BID, and DBCI are all housed under the umbrella Downtown Boulder
organization.
134
UNIVERSITY HILL GID (UHGID) DISTRICT PROFILE
BACKGROUND/CONTEXT
UHGID was created in 1970 as property owners wanted to tax themselves in order to purchase land
to increase available parking options for customers of the area, as well as provide other
maintenance services. UHGID owns and manages a 42-space off-street public parking lot at 14th
Street & College Avenue, referred to as the “14th Street Lot”. UHGID also owned a public parking lot
on the corner of Broadway and Pleasant Street before it was sold in 2021 and redeveloped as the
Moxy hotel.
The funding scope expanded in 1985 to include additional services for the district. Today, UHGID
funds programs such as:
•Pedestrian, bicycle, and transit amenities and incentives
•Placemaking and aesthetic enhancements
•Maintenance and improvements of the right-of-way and facilities
•Other revitalization strategies on The Hill
•Hill Ambassador program – in collaboration with Downtown Boulder Partnership and the
University of Colorado Boulder, providing services to make the area cleaner and safer,
including trash collection, graffiti removal, providing information to residents and visitors,
giving directions and recommendations, and addressing unfavorable activities.
Governance Structure
The business affairs of UHGID are administered by the University Hill Commercial Area
Management Commission, which is composed of five Council-appointed members with five-year
terms. Three of those members must own real or personal property, reside in the district, or
represent a real or property owner in the district and two members are for citizens-at-large.
Assessment Methodology (2025)
1.691 mill levy
135
KEY MARKET INDICATORS
Key market indicators are being provided to look at existing economic conditions and changes since
2019, considered the pre-pandemic base year.
Commercial Real Estate Trends
Retail
Vacancy (2024) 9.1%
Inventory (buildings) 22
Inventory (sf) 191,428
Net absorption (sf) 557
Market sale price per sf $422.00
NNN rent overall $32.72
Office
Vacancy (2024) 20.7%
Inventory (buildings) 3
Inventory (sf) 31,240
Net absorption (sf) 0
Base rent overall $16.54
Multi-family
Inventory (buildings) 3
Inventory (units) 40
Vacancy 1.5%
Asking rent per unit $3,468
Data source: Costar
0%
2%
4%
6%
8%
10%
202420232022202120202019201820172016
UHGID Retail Vacancy
0%
5%
10%
15%
20%
25%
2024202320222021
UHGID Office Vacancy
136
Sales Tax Revenue
2019 $1,560,362
2020 $1,141,856
2021 $1,354,331
2022 $1,318,763
2023 $1,380,202
Change -11.5%
Data source: DMC January 2024 report
Property Values
Total GID Value (Fiscal Year)
2019 $19,478,837
2020 $19,362,624
2021 $19,424,402
2022 $20,243,961
2023 $19,676,630
2024 $22,570,729
Change 15.9%
Data source: Boulder County Assessor $17,000,000
$18,000,000
$19,000,000
$20,000,000
$21,000,000
$22,000,000
$23,000,000
2019 2020 2021 2022 2023 2024
UHGID Total Property Values
137
SOURCES & USES OF FUNDS
UHGID Sources of Funds 2019-2025
The following table and charts show trends in the sources of revenue UHGID received from 2019-
2025, using 2019 as the pre-pandemic base year. Since 2019, the proportion and total amount of
parking revenue has steadily decreased, while the proportion and total amount of interest and
investment earnings has steadily increased. 2021 was an outlier year, with a much larger total
source of funding, corresponding with the $2.7M sale of the Pleasant Street parking lot where the
Moxy hotel is now located.
Parking
Revenue
Property
Tax
Interest &
Investment
Earnings
Specific
Ownership
& Tobacco
Tax
Real Estate
Sales
Transfers
In
TOTAL
(sources)
2019
(Actual)
$111,339 $32,282 $16,826 $1,622 - $350,000 $512,069
22% 6% 3% 0.3% - 68%
2020
(Actual)
$122,573 $32,763 $17,303 $1,621 - $325,000 $499,260
25% 7% 3% 0.3% - 65%
2021
(Actual)
$71,618 $32,559 $15,840 $1,648 $2,734,117 $250,000 $3,105,782
2% 1% 0.5% 0.1% 88% 8%
2022
(Actual)
$71,875 $32,415 $47,201 $1,409 - $270,000 $422,900
17% 8% 11% 0.3% - 64%
2023
(Actual)
$58,219 $35,093 $84,413 $1,695 - $270,000 $449,420
13% 8% 19% 0.4% - 60%
2024
(Adopted)
$79,060 $35,880 $48,320 $1,410 - $270,000 $434,670
18% 8% 11% 0.3% - 62%
2025
(Approved)
$59,979 $39,481 $89,797 $1,438 - $271,034 $461,729
13% 9% 19% 0.3% - 59%
138
This chart visualizes the total amount of funds gained with a bar chart that corresponds to the right
axis labels and the amount of each source with a line chart that corresponds to the left axis labels.
The chart does not include real estate sales, as that only occurred in 2021.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
UHGID Sources of Funds (% of Total)
Parking Revenue Property Tax
Interest & Investment Earnings Specific Ownership & Tobacco Tax
Real Estate Sales Transfers In
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
$0
$50,000
$100,000
$150,000
$200,000
$250,000
$300,000
$350,000
$400,000
2019 2020 2021 2022 2023 2024 2025
UHGID Sources of Funds (Amounts)
TOTAL (right axis)Parking Revenue
Property Tax Interest & Investment Earnings
Specific Ownership & Tobacco Tax Transfers In
139
UHGID Uses of Funds 2019-2025
The following table and charts show trends in the uses of UHGID funds from 2019-2025, using 2019
as the pre-pandemic base year. The amounts and proportion of each use category have stayed
relatively steady since 2019, though the proportion of spending on administration, customer
service, and parking and access maintenance is planned to decrease in 2025. Total uses of funds is
expected to increase substantially in 2025, with 58% of that spending going towards the Capital
Improvement Program. Projects that may use those funds include streetscape renovations, public
art/mural installations, and wayfinding signage between The Hill and Downtown.
Admin Customer
Service
District
Mgmt
Parking &
Access
Cost
Allocation
& Transfers
Capital
Improvement
Plan
TOTAL
(uses)
2019
(Actual)
$143,820 $39,927 $17,578 $275,556 $48,012 - $524,893
27% 8% 3% 52% 9% -
2020
(Actual)
$67,078 $44,387 $70,185 $121,450 $48,732 $185,536 $537,368
12% 8% 13% 23% 9% 35%
2021
(Actual)
$72,493 $41,953 $27,851 $115,709 $48,732 $23,358 $330,096
22% 13% 8% 35% 15% 7%
2022
(Actual)
$68,691 $38,163 $33,717 $139,619 $47,124 $184,258 $511,572
13% 7% 7% 27% 9% 36%
2023
(Actual)
$60,293 $38,345 $28,900 $168,934 $52,913 $37,118 $386,503
16% 10% 7% 44% 14% 10%
2024
(Adopted)
$109,899 $79,007 $55,261 $203,350 $64,220 $15,000 $526,737
21% 15% 10% 39% 12% 3%
2025
(Approved)
$103,173 $40,240 $65,600 $249,741 $73,100 $727,500 $1,259,354
8% 3% 5% 20% 6% 58%
140
This chart visualizes the total amount of funds used with a bar chart that corresponds to the right
axis labels and the amount of each use with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
UHGID Uses of Funds (% of Total)
Administration (Economically Vital)Community Vitality Customer Service
Economic Vitality & District Management Parking & Access Maintenance
Cost Allocation & Transfers Capital Improvement Program
$0
$200,000
$400,000
$600,000
$800,000
$1,000,000
$1,200,000
$1,400,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
2019 2020 2021 2022 2023 2024 2025
UHGID Uses of Funds (Amounts):
TOTAL (right axis)Administration (Economically Vital)
Community Vitality Customer Service Economic Vitality & District Management
Parking & Access Maintenance Cost Allocation & Transfers
Capital Improvement Program
141
FUTURE – PLANS, PROJECTS, & PARTNERSHIPS
Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping
the evolution of UHGID.
Summary of Planning Efforts/Past Plans Related to the District
Many of the City of Boulder’s past planning efforts relate to, and will impact, the UHGID area. Below
is a summary of common themes found in plans that apply to the UHGID area. The reviewed plans
include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master
Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), ULI TAP Report for the 14th
Street Lot (2023), Downtown Boulder Vision Plan (2022), University Hill Alley Enhancement Plan
(2018) and Central Broadway Corridor Design Framework (2017).
1.Improve the pedestrian/visitor experience
a.Improve cleanliness, safety, and activation of alleys
b.Enhance streets with better lighting, drainage, furnishings, and vegetation.
2.Connect to other districts and destinations
a.UHGID is a key activity center along Broadway and has the opportunity to
seamlessly connect to other activity centers on the corridor, such as Downtown.
b.Improve multi-use path connections to Downtown.
3.Develop key opportunity sites
a.The main site in question is the UHGID-owned 14th Street Lot. The redevelopment of
this site has the potential to catalyze further development in the district.
4.Maintain the unique character of The Hill within the district
a.Balance needs and wants between the student/CU population and the broader
neighborhood
b.Utilize public art to showcase and celebrate the district's character
Key Projects Likely in the Near-Term
•Capital Improvement Projects:
o Streetscape Renovations – A capital project to improve the medians in Broadway
along The Hill district and complimented by enhancements to the pedestrian
experience. This may include improvements to trees, landscaping, crosswalks,
lighting, or other ideas which will be the subject of public engagement later this
y ear.
$1.4M – ½ from general fund transfer, ½ fund balance from UHGID
o Painted crosswalk at 13th & Pennsylvania (anticipated in April 2025)
o Mural installation on Everyday Gas Station (April/May 2025)
o Cultural Corridor Planning & Design – link cultural destinations along 13th Street to
connect the Hill with Downtown Boulder
o 20 new Bigbelly trash cans increase waste management efficiency
o Planned sidewalk enhancements that will close the gaps along 11th Street on
University Hill, a critical pedestrian corridor that connects to the Civic Area and
Downtown. This improvement follows the path of the pedestrian scale lighting that
142
was complete on the Hill a few years ago and will improve the walking experience
along 11th Street. This work is expected to be complete this summer.
•Other Projects:
o 14th Street Lot redevelopment
The ULI TAP Report recommended short-term activation opportunities such
a micromobility hub, food truck area, and pop-up market, as well as long-
term development programs with parking, retail/grocery, faculty housing,
artist-in-residence or business incubator spaces, and/or a boutique hotel
o Limelight Hotel and Conference Center, expected to open in Fall 2025
UHGID Key Partnerships
•The Hill Merchant Association (“The Hill Boulder”)
o The Hill Boulder is a 501(c)3 nonprofit “committed to renewing vibrancy of arts and
culture, producing community events, and promoting year-round business in the
University Hill district.”
•Hill Reinvestment Working Group (HRWG)
o The Hill Reinvestment Working Group is a neighborhood committee of members
that represent City departments, the University Hill Neighborhood Association
(UHNA), the Boulder Area Rental Housing Association (BARHA), several University of
Colorado departments, the Inter-Fraternity Council (IFC) and Panhellenic. The group
“collaborates monthly to share information, build relationships, design programs,
evaluate processes and recommend changes and improvements around ongoing
issues” on The Hill.
o https://bouldercolorado.gov/hill-revitalization-working-group-hrwg
•CU Boulder
o The University of Colorado’s flagship campus is located across Broadway from
UHGID. Students, faculty, and visitors of the university frequently visit the district.
143
BOULDER JUNCTION ACCESS DISTRICTS (BJAD)
PROFILE
BJAD includes Boulder Junction Access District – Parking (BJAD-P) and Boulder Junction Access
District – Transportation Demand Management (BJAD-TDM).
BACKGROUND/CONTEXT
BJAD Parking
The Boulder Junction Access Districts (BJAD) were created in 2010 as a result of the Transit Village
Area Plan’s Phase 1 efforts to create Boulder’s first Transit-Oriented Development (TOD). BJAD –
Parking (BJAD-P) manages parking within the district, such as the parking garage that is jointly
owned with the Depot Square Owners Association. BJAD – Transportation Demand Management
(BJAD-TDM) supports TDM measures with additional revenue paid by properties in the district.
Today BJAD funds programs such as:
•Providing Boulder Clean Commute incentives and RTD EcoPasses, Boulder B-Cycle
Memberships, and CarShare vouchers for residents and employees of the district
•Hosting events to inform residents and employees of the benefits they may receive from
living and/or working in the district and educate the public about the growth and
development of the area
•Promoting sustainable transportation and eco-friendly development to create a healthier
and more livable environment
BJAD TDM
144
Governance Structure
BJAD is managed by a joint commission that represents both BJAD-Parking and BJAD-TDM. Each
five-member commission is composed of five Council-appointed members with five-year terms.
Three of those members must own real property or represent a real property owner in the district
and two members are city electors who may live inside or outside of the district.
Assessment Methodology
10 mill levy for BJAD-P and 5 mill levy for BJAD-TDM. Developers also pay Payment in Lieu of Taxes
(PILOT) fees for two years before property taxes are used for funding.
KEY MARKET INDICATORS
Key market indicators are being provided to look at existing economic conditions and changes since
2019, considered the pre-pandemic base year.
Commercial Real Estate Trends
Retail
Vacancy (2024) 8.3%
Inventory (buildings) 5
Inventory (sf) 60,527
Net absorption (sf) (825)
Market sale price per sf $467.00
NNN rent overall $34.00
Office
Vacancy (2024) 2.9%
Inventory (buildings) 8
Inventory (sf) 707,788
Net absorption (sf) 3,345
Base rent overall $47.38
Multi-family
Inventory (buildings) 11
Inventory (units) 1,200
Vacancy 10.4%
Asking rent per unit $2,655
Data source: Costar
0%
2%
4%
6%
8%
10%
12%
202420232022202120202019
BJAD Retail Vacancy
0%
10%
20%
30%
40%
50%
60%
202420232022202120202019201820172016
BJAD Office Vacancy
145
Property Values (BJAD-TDM)
Total GID Value (Fiscal Year)
2019 $31,962,052
2020 $59,286,286
2021 $78,334,084
2022 $101,609,964
2023 $118,002,570
2024 $117,556,834
Change 267.8%
Data source: Boulder County Assessor $0
$20,000,000
$40,000,000
$60,000,000
$80,000,000
$100,000,000
$120,000,000
$140,000,000
2019 2020 2021 2022 2023 2024
BJAD-TDM Total Property Values
146
SOURCES & USES OF FUNDS
BJAD – Parking Sources of Funds 2019-2025
The following table and charts show trends in the sources of revenue BJAD-P received from 2019-
2025, using 2019 as the pre-pandemic base year. Since 2019, the proportion and total amount of
most funding sources has stayed relatively steady, though parking revenue tends to oscillate year to
year. Additionally, the amount of property tax and total sources have increased overall.
Parking
Revenue
Property
Tax
Interest &
Investment
Earnings
Specific
Ownership &
Tobacco Tax
Other
Revenues
Transfers
In
TOTAL
(sources)
2019 (Actual)
$41,648 $273,306 $5,377 $14,836 $25 - $335,192
12% 82% 2% 4% 0.01% -
2020 (Actual)
$190,001 $337,703 $1,213 $15,028 - $175,000 $718,945
26% 47% 0.2% 2% - 24%
2021 (Actual)
$68,550 $489,650 $1,966 $20,008 - - $580,174
12% 84% 0.3% 3% - -
2022 (Actual)
$162,665 $422,661 $5,596 $19,061 $20,316 - $630,299
26% 67% 0.9% 3% 3% -
2023 (Actual)
$88,111 $459,177 $12,287 $19,070 - - $578,645
15% 79% 2% 3% - -
2024
(Adopted)
$173,510 $433,680 $5,120 $19,060 - - $631,370
27% 69% 0.8% 3% - -
2025
(Approved)
$89,402 $442,354 $13,071 $19,840 - - $564,667
16% 78% 2% 4% - -
147
This chart visualizes the total amount of funds gained with a bar chart that corresponds to the right
axis labels and the amount of each source with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
BJAD Parking Sources of Funds (% of Total)
Parking Revenue Property Tax
Interest & Investment Earnings Specific Ownership & Tobacco Tax
Other Revenues Transfers In
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
2019 2020 2021 2022 2023 2024 2025
BJAD Parking Sources of Funds (Amounts)
TOTAL (right axis)Parking Revenue
Property Tax Interest & Investment Earnings
Specific Ownership & Tobacco Tax Other Revenues
Transfers In
148
BJAD – Parking Uses of Funds 2019-2025
The following table and charts show trends in the uses of BJAD-P funds from 2019-2025, using 2019
as the pre-pandemic base year. Since 2019 the share of uses has fluctuated greatly. The overall
trend is that total spending, as well as uses for the capital improvement program and cost
allocation and transfers, peaked in 2023 before steadily declining in 2024 and 2025.
Admin Customer
Service
District
Mgmt
Parking &
Access
Cost
Allocation
& Transfers
Capital
Improvement
Plan
TOTAL
(uses)
2019
(Actual)
$25,604 $4,978 $2,600 $63,228 $30,822 - $127,232
20% 4% 2% 50% 24% -
2020
(Actual)
$103,818 $19,854 - $14,102 $31,250 - $169,024
61% 12% - 8% 18% -
2021
(Actual)
$115,374 $18,694 $2,500 $12,075 $131,250 - $279,893
41% 7% 0.9% 4% 47% -
2022
(Actual)
$109,072 $18,200 $590 $14,950 $228,009 $1,140 $371,961
29% 5% 0.2% 4% 61% 0.3%
2023
(Actual)
$105,785 $19,664 $1,053 $17,838 $485,835 $282,276 $912,451
12% 2% 0.1% 2% 53% 31%
2024
(Adopted)
$125,223 $22,092 $3,822 $34,601 $248,374 $115,000 $549,112
23% 4% 0.7% 6% 45% 21%
2025
(Approved)
$125,755 $23,089 $2,900 $35,393 $21,635 $100,000 $308,772
41% 7% 0.9% 11% 7% 32%
149
This chart visualizes the total amount of funds used with a bar chart that corresponds to the right
axis labels and the amount of each use with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
BJAD Parking Uses of Funds (% of Total)
Administration (Economically Vital)Community Vitality Customer Service
Economic Vitality & District Management Parking & Access Maintenance
Cost Allocation & Transfers Capital Improvement Program
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
$900,000
$1,000,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
2019 2020 2021 2022 2023 2024 2025
BJAD Parking Uses of Funds (Amounts):
TOTAL (right axis)Administration (Economically Vital)
Community Vitality Customer Service Economic Vitality & District Management
Parking & Access Maintenance Cost Allocation & Transfers
Capital Improvement Program
150
BJAD – TDM Sources of Funds 2019-2025
The following table and charts show trends in the sources of revenue BJAD-TDM received from
2019-2025, using 2019 as the pre-pandemic base year. Since 2019, the proportion of funding
sources has stayed relatively constant, with a high percentage coming from property tax. Outliers
include 2019 and 2023 where the district received a higher proportion of funds from PILOT and
transfers in, respectively. Overall, funding sources have increased significantly since 2019, with
total funds peaking in 2023 and property tax funds peaking in 2022.
Property
Tax
Specific
Ownership &
Tobacco Tax
Interest &
Investment
Earnings
Payments in
Lieu of Taxes Transfers In TOTAL
(sources)
2019
(Actual)
$156,969 $8,517 $3,094 - - $168,580
93% 5% 2% - -
2020
(Actual)
$289,906 $14,346 $1,999 $42,882 - $349,133
83% 4% 0.6% 12% -
2021
(Actual)
$249,789 $17,937 $2,829 - - $270,555
92% 7% 1% - -
2022
(Actual)
$681,054 $17,509 $6,271 - - $704,834
97% 2% 0.9% - -
2023
(Actual)
$524,200 $23,341 $14,962 - $175,000 $737,503
71% 3% 2% - 24%
2024
(Adopted)
$546,510 $17,860 $6,100 - - $570,470
96% 3% 1% - -
2025
(Approved)
$557,440 $18,217 $15,623 - - $591,280
94% 3% 3% - -
151
This chart visualizes the total amount of funds gained with a bar chart that corresponds to the right
axis labels and the amount of each source with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
BJAD TDM Sources of Funds (% of Total)
Property Tax Interest & Investment Earnings
Specific Ownership & Tobacco Tax Payments in Lieu of Taxes
Transfers In
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
2019 2020 2021 2022 2023 2024 2025
BJAD TDM Sources of Funds (Amounts)
TOTAL (right axis)Property Tax
Interest & Investment Earnings Specific Ownership & Tobacco Tax
Payments in Lieu of Taxes Transfers In
152
BJAD – TDM Uses of Funds 2019-2025
The following table and charts show trends in the uses of BJAD-TDM funds from 2019-2025, using
2019 as the pre-pandemic base year. Generally, total uses of funds have increased steadily since
2019, with economic vitality and district management using a greater share and total amount of
funds. Meanwhile, the share of administration uses has decreased.
Admin District
Mgmt
Cost
Allocation &
Transfers
Capital
Improvement
Plan
Customer
Service
TOTAL
(uses)
2019 (Actual)
$50,392 $71,427 $5,364 - $4,940 $132,123
38% 54% 4% - 4%
2020 (Actual)
$210,867 $144,983 - - $13,685 $369,535
57% 39% - - 4%
2021 (Actual)
$38,220 $73,823 - - $13,309 $125,352
30% 59% - - 11%
2022 (Actual)
$36,599 $75,051 - $34,401 $18,779 $164,830
22% 46% - 21% 11%
2023 (Actual)
$30,571 $170,180 $12,388 $26,983 $8,078 $248,200
12% 69% 5% 11% 3%
2024 (Adopted)
$53,480 $266,767 $12,760 $15,000 $15,901 $363,908
15% 73% 4% 4% 4%
2025 (Approved)
$51,854 $275,840 $28,342 - $16,150 $372,186
14% 74% 8% - 4%
153
This chart visualizes the total amount of funds used with a bar chart that corresponds to the right
axis labels and the amount of each use with a line chart that corresponds to the left axis labels.
0%10%20%30%40%50%60%70%80%90%100%
2019
2020
2021
2022
2023
2024
2025
BJAD TDM Uses of Funds (% of Total)
Administration (Economically Vital)Community Vitality Customer Service
Economic Vitality & District Management Cost Allocation & Transfers
Capital Improvement Program
$0
$50,000
$100,000
$150,000
$200,000
$250,000
$300,000
$350,000
$400,000
$0
$100,000
$200,000
$300,000
$400,000
2019 2020 2021 2022 2023 2024 2025
BJAD TDM Uses of Funds (Amounts):
TOTAL (right axis)Administration (Economically Vital)
Community Vitality Customer Service Economic Vitality & District Management
Cost Allocation & Transfers Capital Improvement Program
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Boulder Improvement District Analysis Report
FUTURE – PLANS, PROJECTS, & PARTNERSHIPS
Looking to the future, previous planning efforts and key partnerships will be instrumental in shaping
the evolution of BJAD.
Summary of Planning Efforts/Past Plans Related to the District
Many of the City of Boulder’s past planning efforts relate to, and will impact, the BJAD areas. Below
is a summary of common themes found in plans that apply to Boulder Junction. The reviewed plans
include Boulder Valley Comprehensive Plan 2020 Mid-Term Update, Boulder Transportation Master
Plan (2019), Boulder Parks and Recreation Master Plan Update (2022), and the Transit Village Area
Plan (2007, amended 2023).
1.Transit -Oriented Development
a.This location was chosen for development due to its proximity to the railroad tracks,
with the vision that one day there will be rail connection to Denver with RTD service,
as well as the greater region through the Front Range Passenger Rail.
b.As such, land uses and densities will be reflective of the high potential of the area to
be both a neighborhood and a destination.
2.Connectivity
a.This includes building out a complete, fine-grain street network, as well as
connecting to other districts and parts of the city/region by transit.
3.Multi-modal transportation options
a.Boulder Junction will be a pedestrian-oriented multi-modal hub, with options for
connecting to and from the district for those walking, rolling, and using public
transit.
b.An especially important point here is establishing first- and last-mile connections to
provide mobility choices for residents, employees, and visitors once they arrive in
the district.
Key Projects Likely in the Near-Term
•Capital Improvement Projects:
o Branding & Wayfinding Signage Project
•Other Projects:
o Boulder Junction Phase 2
The Phase 2 area is west of the rail tracks and currently outside of the BJAD
area, but there is an opportunity to expand BJAD to include the Phase 2 area.
o RTD reopening Boulder Junction transit station/bus terminal (expected in 2025)
o New 2-acre pocket park across from the depot (construction possible by 2026)
o Potential to consolidate BJAD-P and BJAD-TDM into a single district
o Core Arterial Network (CAN) update for 30th Street
Updating the street with protected bike lanes, intersection enhancements,
and pedestrian and transit facility upgrades
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Boulder Improvement District Analysis Report
o Commercial covenant at Boulder Commons – developer is required to rent a portion
of the ground-floor retail space below market rates to non-profit entities or local and
independent business owners.
BJAD Key Partnerships
•Regional Transportation District (RTD)
o RTD operates public transit services in the Denver metro area, including in Boulder.
RTD is committed to reopening the transit station at Boulder Junction later this year,
which will connect the district to other parts of Boulder and the region.
•Boulder Chamber Transportation Connections (BCTC)
o A 501(c)(3) nonprofit and is one of eight Transportation Management Organizations
(TMOs) in the Boulder-Denver metro region
o Services include sustainable transportation planning, employee commute options
surveys, education and consulting, commute logistics, outreach events, advocacy,
and local and regional leadership
o Administers the BJAD EcoPass Program and helps promote micro mobility options in
Boulder Junction
Has partnered with Community Vitality in the past to host events related to raising awareness of
Boulder Junction as a district and all the transportation benefits it has to offer
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Boulder Improvement District Analysis Report
55TH & ARAPAHOE PROFILE
BACKGROUND/CONTEXT
The 55th & Arapahoe Station Area, located in the larger East Boulder subcommunity area, and
pictured in the map above, is one of the city’s employment hubs. Anchored by institutions such as
the Boulder Community Health Foothills Medical Campus, Boulder Municipal Airport, Flatirons
Business Park, Valmont City Park, and the University of Colorado Boulder’s East Campus, the East
Boulder area supports a mix of employment sectors, including research and development,
healthcare, arts and culture, aerospace, and technology. Despite the robust employment base, the
area currently lacks residential options, meaning that nearly all workers commute in daily. While
there are some multifamily residential units on the south side of Arapahoe Ave, existing housing
supply within the Station Area boundary is limited. The nearby San Lazaro Mobile Home Park, just
outside Boulder City limits, is near the Station Area and home to approximately 460 residents.
Additionally, the recently completed Weathervane Apartments, a mixed-income community
located just east of the Station Area boundary on Arapahoe Ave, has added 317 more housing units
to the area.
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Boulder Improvement District Analysis Report
The physical layout of the area reflects a legacy of auto-oriented planning. Wide roads, large
blocks, and limited pedestrian infrastructure define much of the environment. Arapahoe Avenue,
designated as State Highway 7, runs through the area and is one of the city’s busiest arterials. East
Boulder, as described by many community members, feels like a series of disconnected “islands”
that are active during the workday but largely quiet during evenings and weekends. Land use
patterns consist primarily of older commercial and industrial buildings, many of which are aging but
still in active use. Though reinvestment has occurred in some properties, new construction has
been relatively limited, and the area lacks the pedestrian-friendly street grid and public amenities
found in other parts of Boulder.
The 55th & Arapahoe area is now poised for significant transformation. The area surrounding the
intersection of 55th Street and Arapahoe Avenue is the planned location of a future State Highway 7
Bus Rapid Transit (BRT) regional station. This major mobility investment will bring high-frequency
transit service connecting Boulder to I-25 and beyond, and will be accompanied by streetscape and
multimodal infrastructure improvements. Together, these enhancements position the Station Area
as a key opportunity site for transit-oriented development (TOD) within East Boulder’s evolving
commercial and employment core. The East Boulder Subcommunity Plan and 55th and Arapahoe
Station Area Master Plan, both completed in 2022, envision this area evolving into a more dynamic,
mixed-use district with enhanced transportation infrastructure, improved amenities, and new
housing opportunities. Implementing new governance mechanisms and investment strategies will
be essential to support long-term economic growth and ensure alignment with these plans’ broader
vision.
KEY MARKET INDICATORS
The 55th & Arapahoe Station Area has seen a substantial increase in property values over the past
decade, with total assessed value growing by 134% since 2014 (not adjusted for inflation). The area
is primarily characterized by light industrial and flex space, encompassing more than 700,000
square feet. Industrial vacancy rates, which spiked during the pandemic, have begun to stabilize.
Office space is the second largest real estate category by inventory, comprising 11 buildings and
just over 230,000 square feet. However, this sector has been significantly underutilized in recent
years, with vacancy rates climbing to nearly 19% since the pandemic. Retail is limited in the area,
with only about 75,000 square feet of space, which also experienced elevated vacancies due to
pandemic-related impacts. Supporting data on key market indicators for 55th & Arapahoe are
provided below.
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Boulder Improvement District Analysis Report
Key market indicators are being provided to look at existing economic conditions and changes since
2019, considered the pre-pandemic base year.
Commercial Real Estate Trends
Retail
Vacancy (2024) 20.7%
Inventory (buildings) 8
Inventory (sf) 75,866
Net absorption (sf) 1,696
Market sale price per
sf $280.00
NNN rent overall $16.41
Office
Vacancy (2024) 18.7%
Inventory (buildings) 11
Inventory (sf) 232,554
Net absorption (sf) (5,781)
Base rent overall $15.22
Multi-family
Inventory (buildings) 1
Inventory (units) 70
Vacancy 1.4%
Asking rent per unit $1,113
Industrial & Flex
Inventory (buildings) 34
Inventory (sf) 703,733
Net absorption (sf) 55,511
Vacancy 10.0%
NNN rent overall $14.76
Data source: Costar
0%
10%
20%
30%
40%
20242023202220212020201920182017201620152014
Retail Vacancy -55th & Arapahoe STAMP
0%
5%
10%
15%
20%
20242023202220212020201920182017201620152014
Office Vacancy -55th & Arapahoe STAMP
0%
5%
10%
15%
20%
20242023202220212020201920182017201620152014
Industrial & Flex Vacancy -55th & Arapahoe
STAMP
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Boulder Improvement District Analysis Report
FUTURE – PLANS, PROJECTS, & PARTNERSHIPS
The East Boulder Subcommunity Plan and 55th and Arapahoe Station Area Master Plan include
several key priorities, informed by extensive community engagement, for the future of the 55th &
Arapahoe Station Area:
•A Mix of Uses: The Station Area’s existing light industrial, medical, and office base provides
a strong foundation for mixed-use redevelopment. Recent zoning code updates to this area
will allow for a broader range of uses, including a range of housing types, neighborhood-
serving retail, and active ground-floor uses to support a community where people can live,
work, and shop.
•Multimodal Investment: The planned BRT station at 55th and Arapahoe offers a rare
opportunity to anchor compact, high-intensity transit-oriented development. Increased
density, paired with reimagined parking strategies and investments in shared mobility
options, can support regional transit access while reducing single-vehicle dependence.
•Public Realm Enhancements: As larger scale redevelopment opportunities occur, there is
an opportunity to complete the street grid and introduce pedestrian-scale infrastructure.
Investments in sidewalks, bicycle facilities, and green/open space could also help create a
safer and more comfortable public realm while building a distinct neighborhood identity.
•TDM Strategies: The area’s concentration of employment could support pilot programs to
support micromobility and commuter-focused Transportation Demand Management (TDM)
programs. These strategies, including shared parking and curbside management, will be
critical to reducing congestion and making the most of limited public space.
•Climate Goals: Future development can support Boulder’s climate goals through initiatives
like rooftop solar, energy-efficient building materials, and urban greening to reduce
emissions and mitigate urban heat island effects. Where possible, redevelopment or reuse
of existing high use facilities could also focus on improving the energy performance.
Property Values
Total GID Value (Fiscal Year)
2019 $173,830,800
2020 $173,830,800
2021 $186,697,700
2022 $185,881,700
2023 $236,696,006
2024 $230,515,831
Change 134.0%
Data source: Boulder County
Assessor
$0
$50,000,000
$100,000,000
$150,000,000
$200,000,000
$250,000,000
Total Property Value -55th & Arapahoe
STAMP
160
Boulder Improvement District Analysis Report
•Prevent Involuntary Displacement: A strong emphasis on equity will be essential to
preventing involuntary displacement and gentrification as the area grows and changes.
Policies that support affordable commercial space, retain essential services, and protect
vulnerable tenants can help ensure the benefits of growth are widely shared by both existing
and new community members. Partnerships and incentive programs can help align private
development with long-term community goals.
161