Healthy Buildings, Stronger Community Roadmap

Community Engagement Report

August 11, 2025

Prepared by the Institute for the Built Environment - Colorado State University with support from Trestle Strategy Group

Executive Summary

Purpose of This Report

The purpose of this report is to summarize results from community engagement for the City of Boulder’s Healthy Buildings, Stronger Community Roadmap, focused on gaining community feedback about strategies identified by ARUP Group through a complementary scope of work. Engagement efforts for this phase of work were conducted from October 2024 through June 2025 and included interviews, focus groups, and a questionnaire completed by 536 respondents. Learnings from community engagement have been integrated by ARUP into the overall Healthy Buildings, Stronger Community Roadmap.

High-level Recommendations

1. Reduce Complexity

Rigorously examine existing and future programs for opportunities to streamline every aspect of regulations, incentives, rebates, compliance, and reporting. For example, rebates and incentives are so complicated that many forgo redeeming incentives.

2. Support Compliance

Help ease compliance with any new regulations by providing technical support, navigation assistance, and sufficient flexibility to account for the nuances and complexity of a varied building stock.

Explore how city staff can act as more of a partner to building owners and managers, rather than an enforcer.
Establish a single point of contact (one-stop-shop) for building codes, regulations, and incentives, including support with compliance, solutions, and general guidance.
Incorporate flexibility with compliance paths (e.g., a points-based system) to accommodate the high degree of variability and feasibility from one building to the next.

3. Build on Prior Successes

Expand on existing related programs and regulations, and the lessons learned from developing and implementing them.

The SmartRegs program’s slow rollout, phased timeline, and flexibility were appreciated by building owners.
The Building Performance Ordinance (BPO) has been an effective program and there are known opportunities to enhance and improve program administration.
SepticSmart (a time-of-sale program focused on upgrading septic systems) has proven to be effective and successful, offering a model for lessons learned.
Consider learnings from EnergySmart, Boulder County’s program to help residents navigate home upgrades and rebates for their homes with a concierge-style approach.
Consider learnings from PACE, which provides technical assistance for commercial buildings related to energy efficiency, electrification, and rebates.

4. Ensure Adequate Supports & Protections for Low-Income Residents & Small Businesses

Provide additional support for nonprofits, small businesses, and lower-income residents, including increased financial incentives and technical support for equity priority communities and buildings. Increase bilingual outreach, specifically to Spanish-speaking residents.
Recognize and mitigate for negative impacts on residential and commercial affordability that could lead to displacement and/or relocation of residents and businesses across the region, and increased vehicle miles traveled.

5. Consider & Manage for Unintended Consequences

Recognize that people often choose not to upgrade buildings to avoid the cost associated with compliance for codes and regulations. The result is likely counterproductive for increasing existing building stock energy efficiency and reducing emissions. This dynamic should be considered in the adoption of new regulations and in program design, including the recommendations above.

Additional Considerations & Recommendations

The Role of & Need for Contractors

People turn to contractors for guidance and advice when making building upgrades. Many contractors are unlikely to recommend electric heat pumps to replace furnaces, boilers, and water heaters because the technology is unfamiliar and perceived as risky, and because they have ample work installing familiar equipment.

Recommendations:

Continue offering educational events and peer-to-peer learning opportunities where contractors can learn from trusted sources.
Grow capability for high-quality heat pump installations by training existing workforce and developing new workforce.
Address financial concerns and opportunities by emphasizing that heat pumps are a current and growing financial opportunity and provide contractor rapid turnaround financial incentives for heat pump installations.

Motivations, Barriers & Messaging

The adoption of electric alternatives is currently driven by barriers (e.g., cost, complexity, status quo) more than motivators (e.g., comfort, health, emissions reductions). Barriers to electrification and energy efficiency improvements are largely financially-driven. Even for individuals who are very concerned about emissions, cost often dictates decision-making when considering electric alternatives.

Recommendations:

In Roadmap messaging, address barriers in addition to focusing on motivators and benefits. When talking about benefits, the most appealing messages relate to affordability, comfort, and to a lesser extent, health and the environment.
Given the long lead time for adoption and change, consider starting with strategies likely to result in positive outcomes and early wins, helping to minimize unintended consequences and inadvertently create greater resistance to change.
Explore behavior change strategies grounded in social science that include peer-to-peer learning and influence. For residents, this could include yard signs that say, "I switched to electric. Ask me how.” For building owners or contractors, it means learning from and with others with a shared background and lived experiences.

Concerns, Myths & Misinformation

Given that heat pumps are unfamiliar to many and some people have had negative experiences, it will be necessary to address myths and concerns ongoingly. The following concerns raised by community members should be addressed with honesty and clarity:

The grid is at or near capacity and needs to be upgraded before electrification regulations are implemented.
Gas is cleaner than electricity and switching to electric today will increase emissions.
Gas appliances are a reliable source of heat when electricity goes out.
Heat pumps do not work well when it is really cold outside.
Upgrading electric panels is expensive and can take months.
New regulations will make me replace equipment before the end of its useful life.

Receptivity

Based on questionnaire results, there is interest in electrification especially if upgrades are no or low cost; greater openness to replacing equipment at the end of its useful life versus replacing working equipment; and reasonable support of new regulations (more so among residents than business/property owners/managers).

Roughly one-third of questionnaire respondents expressed willingness to voluntarily electrify.
80% of respondents with an AMI above 100% reported willingness to pay more monthly to electrify.
More than half of respondents with an AMI of 100% or less were willing to electrify if doing so cost less.
Nearly three-quarters of the overall sample expressed some level of support for new regulations, but a full quarter, and 50% of business respondents, were not at all supportive.

Business and property owners/managers consider a payback period of one to three years most tolerable for upgrading an RTU to a heat pump. Renters and landlords have divergent views on how much of a monthly rent increase air conditioning is worth, with renters willing to pay notably less than landlords think they would have to charge for adding heat pump air conditioning to a unit currently without AC.
Rebates and technical assistance were deemed the most helpful supports overall.

Engagement Overview

Through a total of more than 60,000 community member contact points between October 2024 and June 2025, the team gathered perspectives on a variety of topics related to the Roadmap. Various engagement activities were conducted and the reach of each, including direct and social outreach, is illustrated in the below graphic.

Interviews: IBE conducted 10 interviews in October 2024 to establish baseline understanding of key considerations and concerns for specific stakeholder groups.

Focus Groups: IBE conducted 16 focus groups (n = 60) from February through April 2025 to gain deeper, more specific understanding of stakeholder-specific perspectives, concerns, and challenges.

Community Outreach: The team delivered three in-person presentations to community groups – two to the Boulder Area Rental Housing Association (n = 20) and one to the city’s Community Connectors-in-Residence (n = 7) – to provide a general overview of the Roadmap, solicit high-level input, and encourage participation in the questionnaire.

Community Questionnaire: Open from April 21 through June 1, the bilingual (English/Spanish) questionnaire (n = 536) gathered insights on attitudes and priorities about the Roadmap; willingness and cost tolerance to electrify; and perceptions of what support will best help them do so.

Refer to the Engagement Process section for details on engagement strategies, processes, and stakeholder groups, and to the Appendices for detailed summaries of learnings from each engagement activity.

Outreach Method	Metric	Value	Additional Details
Interviews	Number of Interviews	10
Interviews	Number of Interviewees	11
Focus Groups	Number of Focus Groups	16
Focus Groups	Total Participants	60
Questionnaire	Number of Questionnaires	1	Available in English/Spanish
Questionnaire	Total Respondents	536	511 English, 25 Spanish
Climate Initiatives Newsletter	Contacts Reached	1,821
Climate Initiatives Newsletter	Open Rate	52%
Climate Initiatives Newsletter	Webpage Views	359
Climate Initiatives Newsletter	Contacts Reached	1,821
Online Advertisement	Total Views/Impressions	57,549
Online Advertisement	Clicks	635	Click-through rate: ~1.1%
City social media	Impressions/Reach	2,859
Direct Mail	Postcards Distributed	250
Affiliate Presentations	Number of Presentations	3
Affiliate Presentations	Contacts Made	27

Total Direct Engagement 634 Interviews + Focus Groups + Questionnaires
Total Digital Reach 62,973 Newsletter + Online Ads + social media

Key Learnings & Recommendations

Key learnings and recommendations are organized to align with Section 6 of the draft Roadmap (Implementing Decarbonization Pathways); parentheses specify Roadmap sub-sections to which the learnings and recommendations that follow apply.

1. Implementation Strategy & Phasing (Roadmap Section 6.1)

The below table summarizes learnings from engagement activities related to prioritization considerations and phasing/sequencing of implementation strategies proposed in the Roadmap. Community members who participated in engagement activities were not made aware of the various sequencing and prioritization recommendations within the Roadmap; rather, these learnings were more general perspectives from participants that relate to sequencing and potential unintended consequences of implementation.

Key Issues & Barriers	Recommendations
Incentive timelines often fail to align with development schedules, creating inefficiencies and financing challenges. Concerns that electrification of all buildings could lead to insufficient electric infrastructure, supply, and reliability. The Hispanic community does not feel they have been communicated with effectively about city plans, policies, and incentives related to energy efficiency programs and incentives. Potential for negative impacts on equity-priority, low-income, and cash-constrained community members.	Reconsider incentive timelines or provide gap funding to better align with development schedules. Use expedited development review and approvals as an incentive to comply with more stringent building standards. Prioritize reducing energy loads first (e.g., weatherization, building envelope improvements, lighting upgrades) to address limited capacity of building-level electric panels and city infrastructure. Address concerns about grid panel/service and transformer upgrades. Increase bilingual communications and support programs, especially through direct mail and outreach to churches. Invest in programs that have multiple equity benefits (e.g., physical improvements for under-resourced buildings/businesses and better supported workforce development).

Key Issues & Barriers

Recommendations

Incentive timelines often fail to align with development schedules, creating inefficiencies and financing challenges.
Concerns that electrification of all buildings could lead to insufficient electric infrastructure, supply, and reliability.
The Hispanic community does not feel they have been communicated with effectively about city plans, policies, and incentives related to energy efficiency programs and incentives.
Potential for negative impacts on equity-priority, low-income, and cash-constrained community members.

Reconsider incentive timelines or provide gap funding to better align with development schedules. Use expedited development review and approvals as an incentive to comply with more stringent building standards.
Prioritize reducing energy loads first (e.g., weatherization, building envelope improvements, lighting upgrades) to address limited capacity of building-level electric panels and city infrastructure. Address concerns about grid panel/service and transformer upgrades.
Increase bilingual communications and support programs, especially through direct mail and outreach to churches.
Invest in programs that have multiple equity benefits (e.g., physical improvements for under-resourced buildings/businesses and better supported workforce development).

2. Decarbonization Policies & Codes (Roadmap Section 6.3)

This section describes recommendations related to policies and code changes that would support Boulder’s decarbonization goals, including expansion of the Building Performance Ordinance (BPO), Boulder’s SmartRegs program (for both residential rental units and potential owner-occupied point-of-sale units), and strategies to encourage electrification.

Key Issues & Barriers	Recommendations
Existing stringent building codes are causing some to not make upgrades that trigger the need for a building permit to avoid having to meet code requirements. Consider if there is a point at which setting a high bar for building codes is actually counterproductive to the city’s goals. Concerns that mandating investments in Boulder facilities may redirect funds away from other locations, leading to suboptimal portfolio-wide improvements. Concerns about the future of the BPO reporting process due to uncertainty about ongoing funding for EPA’s Energy Star Portfolio Manager reporting tool.	Balance simplicity and flexibility by identifying processes and pathways that streamline compliance while offering flexibility and by considering a points-based program. Proactively identify alternative reporting tools that could be used if Energy Star Portfolio Manager becomes unavailable.

Key Issues & Barriers

Recommendations

Existing stringent building codes are causing some to not make upgrades that trigger the need for a building permit to avoid having to meet code requirements. Consider if there is a point at which setting a high bar for building codes is actually counterproductive to the city’s goals.
Concerns that mandating investments in Boulder facilities may redirect funds away from other locations, leading to suboptimal portfolio-wide improvements.
Concerns about the future of the BPO reporting process due to uncertainty about ongoing funding for EPA’s Energy Star Portfolio Manager reporting tool.

Balance simplicity and flexibility by identifying processes and pathways that streamline compliance while offering flexibility and by considering a points-based program.
Proactively identify alternative reporting tools that could be used if Energy Star Portfolio Manager becomes unavailable.

Expand Building Performance Ordinance (Roadmap Section 6.3.1)

These recommendations relate to modifying the current Building Performance Ordinance (BPO), such as strategies and a process to expand the BPO to all buildings in Boulder, including most residential buildings, and expanding requirements for efficiency measures that align with current building codes. This section of the Roadmap provides recommendations to expand the target emissions limits and minimum performance criteria for commercial buildings.

Key Issues & Barriers	Recommendations
BPO reporting is seen as overly administrative, repetitive, and burdensome by some users. Under-resourced and small businesses report significant barriers to compliance, including limited: time to research compliance paths and funding options; access to capital and financing; technical understanding of energy efficiency strategies; and relationships with trusted contractors. Paying consultants to complete reporting is expensive (one business was quoted $15,000 to help with BPO reporting). Automatic syncing of BPO reporting with Xcel Energy statements does not always work, especially when solar is involved. Some users report that the BPO website is not easy to use, but that customer support is very helpful. Property owners face uncertainty about fines for non-compliance and whether those fines outweigh upgrade costs. Different building types (e.g., office vs. lab) share meters, making BPO compliance and comparisons difficult. Energy use in labs is highly equipment-driven and volatile, making performance-based standards difficult to apply; BPO compliance is difficult in facilities requiring high air exchange rates (e.g., labs, restaurants, industrial, etc). Commercial tenants are often responsible for HVAC repairs and replacement. Leases often require like-for-like replacements, which can be interpreted as gas-for-gas equipment.	Conduct a detailed journey map for BPO compliance and identify opportunities for streamlining and simplifying. Create flexible regulations that account for diverse energy demands, building types, infrastructure, and meter sharing. Implement a points-based system to allow for flexibility and sensible solutions (e.g., SmartRegs points-based system in which energy raters can explain compliance options and then verify compliance). Provide enhanced support for under-resourced and small businesses. Extend support strategies currently aimed at residential properties to include small commercial properties, such as guidance on rising rents. Ensure transparency and easily accessible information related to noncompliance consequences/fines. Establish a dedicated single point of contact who works as a concierge, partner, and guide to help navigate codes, regulations, incentives, and support programs. Consider alternatives to EUI for benchmarking (e.g., revenue per SF, occupant density). Introduce phased end-of-life equipment replacement, prioritizing easier swaps like rooftop units (RTUs) before more complex systems like boilers. Develop and communicate clear guidance on new refrigerant requirements and how they will impact total cost of ownership (both up-front and operating costs). Conduct additional research on lease agreements related to HVAC equipment replacement. Work with real estate professionals to ensure tenants are able to replace gas-powered equipment with comparable electric alternatives.

Key Issues & Barriers

Recommendations

BPO reporting is seen as overly administrative, repetitive, and burdensome by some users.
Under-resourced and small businesses report significant barriers to compliance, including limited: time to research compliance paths and funding options; access to capital and financing; technical understanding of energy efficiency strategies; and relationships with trusted contractors.
Paying consultants to complete reporting is expensive (one business was quoted $15,000 to help with BPO reporting).
Automatic syncing of BPO reporting with Xcel Energy statements does not always work, especially when solar is involved.
Some users report that the BPO website is not easy to use, but that customer support is very helpful.
Property owners face uncertainty about fines for non-compliance and whether those fines outweigh upgrade costs.
Different building types (e.g., office vs. lab) share meters, making BPO compliance and comparisons difficult.
Energy use in labs is highly equipment-driven and volatile, making performance-based standards difficult to apply; BPO compliance is difficult in facilities requiring high air exchange rates (e.g., labs, restaurants, industrial, etc).
Commercial tenants are often responsible for HVAC repairs and replacement. Leases often require like-for-like replacements, which can be interpreted as gas-for-gas equipment.

Conduct a detailed journey map for BPO compliance and identify opportunities for streamlining and simplifying.
Create flexible regulations that account for diverse energy demands, building types, infrastructure, and meter sharing.
Implement a points-based system to allow for flexibility and sensible solutions (e.g., SmartRegs points-based system in which energy raters can explain compliance options and then verify compliance).
Provide enhanced support for under-resourced and small businesses.
Extend support strategies currently aimed at residential properties to include small commercial properties, such as guidance on rising rents.
Ensure transparency and easily accessible information related to noncompliance consequences/fines.
Establish a dedicated single point of contact who works as a concierge, partner, and guide to help navigate codes, regulations, incentives, and support programs.
Consider alternatives to EUI for benchmarking (e.g., revenue per SF, occupant density).
Introduce phased end-of-life equipment replacement, prioritizing easier swaps like rooftop units (RTUs) before more complex systems like boilers.
Develop and communicate clear guidance on new refrigerant requirements and how they will impact total cost of ownership (both up-front and operating costs).
Conduct additional research on lease agreements related to HVAC equipment replacement. Work with real estate professionals to ensure tenants are able to replace gas-powered equipment with comparable electric alternatives.

Expand SmartRegs (Roadmap Section 6.3.2)

This section includes recommendations related to the Roadmap section that addresses updated SmartRegs, Boulder’s minimum energy efficiency standard for rental housing. Roadmap suggestions include removing gas-fired equipment from eligible SmartRegs compliance options, mandatory SmartRegs compliance for manufactured homes and accessory dwelling units (ADUs), and implementing requirements for energy efficiency measures at the time of sale for residential housing.

Key Issues & Barriers	Recommendations
Some landlords reported frustration with required replacements (e.g., the requirement for smart thermostats led to tenants mistakenly believing they had air conditioning). Regulatory fatigue may be a greater barrier for some than financial concerns. Many landlords are frustrated with the accumulation of regulations and associated costs, particularly after two major legislative changes in recent years. Costly mandates could drive more landlords out of the market entirely, potentially reducing rental unit availability and affordability. Complex regulations often require costly legal counsel for interpretation. Landlords often resist investing heavily in building upgrades. End-of-life equipment replacements can be prohibitively expensive and incentives and savings do not offset upfront expenses Older buildings struggle to meet modern efficiency standards due to structural/envelope limitations.	Consider a points-based compliance program to account for the unique circumstances of different building types and varying feasibility of upgrades. Consider expanding low-income homeowner programs to include supports for rentals that are deed-restricted or are considered naturally occurring affordable housing (renting at <80% AMI). Look to SepticSafe as a program that has been successful as a point-of-sale program. Provide easier ways for tenants to report landlords in violations of sustainability ordinances and offer protection from retaliation when concerns are brought up.

Key Issues & Barriers

Recommendations

Some landlords reported frustration with required replacements (e.g., the requirement for smart thermostats led to tenants mistakenly believing they had air conditioning).
Regulatory fatigue may be a greater barrier for some than financial concerns. Many landlords are frustrated with the accumulation of regulations and associated costs, particularly after two major legislative changes in recent years. Costly mandates could drive more landlords out of the market entirely, potentially reducing rental unit availability and affordability.
Complex regulations often require costly legal counsel for interpretation.
Landlords often resist investing heavily in building upgrades. End-of-life equipment replacements can be prohibitively expensive and incentives and savings do not offset upfront expenses
Older buildings struggle to meet modern efficiency standards due to structural/envelope limitations.

Consider a points-based compliance program to account for the unique circumstances of different building types and varying feasibility of upgrades.
Consider expanding low-income homeowner programs to include supports for rentals that are deed-restricted or are considered naturally occurring affordable housing (renting at <80% AMI).
Look to SepticSafe as a program that has been successful as a point-of-sale program.
Provide easier ways for tenants to report landlords in violations of sustainability ordinances and offer protection from retaliation when concerns are brought up.

Encourage Electrification (Roadmap Section 6.3.3)

This section provides recommendations related to Roadmap guidance for Boulder to adopt an end of useful life (EUL) HVAC equipment replacement mandate similar to Denver building code, as well as a suggestion to consider including window replacements, air leakage testing, and zero NOx emissions standards. During the community engagement process, participants were not asked about these specific recommendations but rather about their overall perspective on replacing gas-fired equipment with electric equipment (using the term “electrification” was avoided whenever possible).

Key Issues & Barriers	Recommendations
Interest in electrification is growing due to health benefits and air conditioning, but some residents feel overwhelmed by too much information and are resistant to change. Some participants expressed concerns about the potential for more power outages with more electric equipment on the grid. Electrical panel capacity limits the ability to add new systems without significant and expensive upgrades to panels. Concerns about the reliability of electric heating systems in cold weather. Resident concerns about the quality of contractors and associated building upgrades. Concerns about long wait times for code compliance staff and inspectors. Commercial electrification regulations and incentives often do not work well for small commercial buildings. Fully electrifying HVAC equipment typically increases both upfront and operating costs, which hurts small businesses. Gas remains significantly cheaper (per unit of heating output) than electricity in Colorado. End-of-life replacement is challenging. Owners avoid replacing equipment until it is an emergency, causing a chain reaction of low-cost, like-for-like replacement because retrofitting an existing system takes more time and is often more expensive. Time-of-sale requirements cause concern for newer homeowners who may have little to no equity in their homes when they choose to sell. Time-of-sale requirements could be especially challenging for affordable housing, where adding any costs can be prohibitive. Time-of-sale requirements could make the housing market tighter with some people choosing not to sell.	Outreach and education should highlight improved indoor air quality, comfort, and health benefits of electrification. Conduct robust studies to confirm reliability of electric grid with increased electric equipment use. Increase awareness about functionality of gas-fired equipment during electric power outages (i.e., most gas equipment does not work without electricity). Offer free/subsidized electrical panel upgrades for buildings replacing gas-fired equipment with electric equipment. Work with Xcel Energy to expedite panel replacements. Develop a pre-approved contractor program and make the list of contractors available and easy to access. Hire additional city staff, including navigators, to help with compliance including identifying solutions, securing incentives, code compliance, and reporting. Extend support strategies currently aimed at residential properties to include small commercial properties. Consider requiring an electrification feasibility report, including cost estimates and total cost of ownership, before issuing permits. Investigate creation of an electrification rate that mitigates additional utility costs of electric equipment. Ensure adequate heat pump stock: Work with distributors to ensure that equipment is available for emergency and end-of-life equipment failure. Promote awareness of reduced utility costs for commercial kitchens due to lower space cooling needs from electric cooking equipment. Consider implementing a “SWAT” team that can replace gas-powered equipment with electric equipment as quickly as possible in situations of emergency replacement.

Key Issues & Barriers

Recommendations

Interest in electrification is growing due to health benefits and air conditioning, but some residents feel overwhelmed by too much information and are resistant to change.
Some participants expressed concerns about the potential for more power outages with more electric equipment on the grid.
Electrical panel capacity limits the ability to add new systems without significant and expensive upgrades to panels.
Concerns about the reliability of electric heating systems in cold weather.
Resident concerns about the quality of contractors and associated building upgrades.
Concerns about long wait times for code compliance staff and inspectors.
Commercial electrification regulations and incentives often do not work well for small commercial buildings.
Fully electrifying HVAC equipment typically increases both upfront and operating costs, which hurts small businesses.
Gas remains significantly cheaper (per unit of heating output) than electricity in Colorado.
End-of-life replacement is challenging. Owners avoid replacing equipment until it is an emergency, causing a chain reaction of low-cost, like-for-like replacement because retrofitting an existing system takes more time and is often more expensive.
Time-of-sale requirements cause concern for newer homeowners who may have little to no equity in their homes when they choose to sell.
Time-of-sale requirements could be especially challenging for affordable housing, where adding any costs can be prohibitive.
Time-of-sale requirements could make the housing market tighter with some people choosing not to sell.

Outreach and education should highlight improved indoor air quality, comfort, and health benefits of electrification.
Conduct robust studies to confirm reliability of electric grid with increased electric equipment use.
Increase awareness about functionality of gas-fired equipment during electric power outages (i.e., most gas equipment does not work without electricity).
Offer free/subsidized electrical panel upgrades for buildings replacing gas-fired equipment with electric equipment. Work with Xcel Energy to expedite panel replacements.
Develop a pre-approved contractor program and make the list of contractors available and easy to access.
Hire additional city staff, including navigators, to help with compliance including identifying solutions, securing incentives, code compliance, and reporting.
Extend support strategies currently aimed at residential properties to include small commercial properties.
Consider requiring an electrification feasibility report, including cost estimates and total cost of ownership, before issuing permits.
Investigate creation of an electrification rate that mitigates additional utility costs of electric equipment.
Ensure adequate heat pump stock: Work with distributors to ensure that equipment is available for emergency and end-of-life equipment failure.
Promote awareness of reduced utility costs for commercial kitchens due to lower space cooling needs from electric cooking equipment.
Consider implementing a “SWAT” team that can replace gas-powered equipment with electric equipment as quickly as possible in situations of emergency replacement.

3. Incentive Programs (Roadmap Section 6.4)

This section provides recommendations related to Roadmap guidance for modifications to the current income qualification thresholds for incentives and to expand the ability for small commercial buildings to utilize incentives currently set aside for equity priority buildings. It also addresses recommendations to implement rent-protection measures for low-income renters, limiting rent increases for building owners that utilize incentive programs, providing pre-approved plans and expedited permitting for ADUs, and expanding Boulder’s community solar program’s eligibility.

Key Issues & Barriers	Recommendations
Cost is a major barrier for all user groups, indicating an insufficiency of rebates for both equipment and installation. Small contractors, in particular, face financial and capacity constraints in participating in rebate and incentive programs. Upfront costs are a major barrier for contractors (e.g., a contractor could easily need $50,000 in savings plus $150,000 to $200,000 in vendor relationships to cover project costs before getting paid). HVAC contractor sales staff are not motivated by contractor bonus programs because they work on commission, so bonuses do not go to them individually. High up-front costs and adequate availability of equipment limits the ability of contractors, building owners/managers, and residents to purchase and install electric equipment in a cost-effective and timely manner. Commercial building tenants are not well educated on the nuances of triple-net-leases and their responsibility as the tenant for making building and equipment upgrades.	Investigate the potential for a rebate consolidator and explore how other communities are addressing gap funding programs for rebates and incentives. Consider offering a one-time property tax reduction to help offset improvement costs. Removing upfront costs to contractors could improve participation in efficiency and electrification work. Consider allocating the HVAC contractor bonus in part to sales staff specifically, rather than to companies (motivating staff who work on commission). Explore options for the city to act as “Middle Merchant” by buying in bulk to reduce cost and increase availability of new electric equipment (e.g., heat pumps). Provide training on the effective use of incentives and provide clear expectations for program eligibility and application requirements. Peer-to-peer learning is ideal. Conduct additional research on triple-net-leases and how they impact ability/willingness to make upgrades. Provide guidance on triple-net-lease terms, clarifying tenant versus building owner responsibilities. Consider expanding the incentives that are currently offered to low-AMI homeowners to include owners of deed-restricted and NOAH-qualifying properties in exchange for a written commitment to maintain affordability for a period of time. Prioritize upgrades to deed-restricted and NOAH properties by increasing incentives in exchange for their continued provision of naturally occurring NOAH rentals, helping to meet Prop 123 commitments.

Key Issues & Barriers

Recommendations

Cost is a major barrier for all user groups, indicating an insufficiency of rebates for both equipment and installation.
Small contractors, in particular, face financial and capacity constraints in participating in rebate and incentive programs.
Upfront costs are a major barrier for contractors (e.g., a contractor could easily need $50,000 in savings plus $150,000 to $200,000 in vendor relationships to cover project costs before getting paid).
HVAC contractor sales staff are not motivated by contractor bonus programs because they work on commission, so bonuses do not go to them individually.
High up-front costs and adequate availability of equipment limits the ability of contractors, building owners/managers, and residents to purchase and install electric equipment in a cost-effective and timely manner.
Commercial building tenants are not well educated on the nuances of triple-net-leases and their responsibility as the tenant for making building and equipment upgrades.

Investigate the potential for a rebate consolidator and explore how other communities are addressing gap funding programs for rebates and incentives.
Consider offering a one-time property tax reduction to help offset improvement costs.
Removing upfront costs to contractors could improve participation in efficiency and electrification work. Consider allocating the HVAC contractor bonus in part to sales staff specifically, rather than to companies (motivating staff who work on commission).
Explore options for the city to act as “Middle Merchant” by buying in bulk to reduce cost and increase availability of new electric equipment (e.g., heat pumps).
Provide training on the effective use of incentives and provide clear expectations for program eligibility and application requirements. Peer-to-peer learning is ideal.
Conduct additional research on triple-net-leases and how they impact ability/willingness to make upgrades.
Provide guidance on triple-net-lease terms, clarifying tenant versus building owner responsibilities.
Consider expanding the incentives that are currently offered to low-AMI homeowners to include owners of deed-restricted and NOAH-qualifying properties in exchange for a written commitment to maintain affordability for a period of time.
Prioritize upgrades to deed-restricted and NOAH properties by increasing incentives in exchange for their continued provision of naturally occurring NOAH rentals, helping to meet Prop 123 commitments.

4. Workforce Development (Roadmap Section 6.6)

This section provides recommendations related to Roadmap guidance to modify current income qualification thresholds for incentives and to expand the ability of small commercial buildings to use incentives currently set aside for equity priority buildings.

Key Issues & Barriers	Recommendations
HVAC tradespeople have little incentive to adapt to electrification or learn new skills due to high demand for existing work. Not all contractors are well-informed about clients’ eligibility for incentives or the process to apply for them. Some HVAC contractors are misinformed about electric equipment and may tell customers that electric equipment will not work or that the cost is higher than true cost. Many contractors avoid working in Boulder due to the complexity of building codes. HVAC contractors have seasonal staffing challenges due to peak demand in May through August and December through February, with low work periods in between.	Training should emphasize that heat pumps are the future. Offer financial incentives and support to encourage learning. Employers should help shape curricula and training for new workers, while manufacturers should develop hands-on training programs. Provide contractor training for using incentives effectively. Create clear expectations through simple guidance documents about incentive program eligibility and application requirements. Improve connections between employers and training programs, especially for small trade businesses that are unaware of available workforce support programs. Increase efforts to introduce middle and high school students to college alternatives, including trade schools and career pathways in construction. Offering relevant education, such as construction math, would better align with non-college career paths. Increasing off-season HVAC retrofits (especially with EOC involvement) will help smooth out seasonality and improve long-term employee retention in trades.

Key Issues & Barriers

Recommendations

HVAC tradespeople have little incentive to adapt to electrification or learn new skills due to high demand for existing work.
Not all contractors are well-informed about clients’ eligibility for incentives or the process to apply for them.
Some HVAC contractors are misinformed about electric equipment and may tell customers that electric equipment will not work or that the cost is higher than true cost.
Many contractors avoid working in Boulder due to the complexity of building codes.
HVAC contractors have seasonal staffing challenges due to peak demand in May through August and December through February, with low work periods in between.

Training should emphasize that heat pumps are the future. Offer financial incentives and support to encourage learning.
Employers should help shape curricula and training for new workers, while manufacturers should develop hands-on training programs.
Provide contractor training for using incentives effectively. Create clear expectations through simple guidance documents about incentive program eligibility and application requirements.
Improve connections between employers and training programs, especially for small trade businesses that are unaware of available workforce support programs.
Increase efforts to introduce middle and high school students to college alternatives, including trade schools and career pathways in construction. Offering relevant education, such as construction math, would better align with non-college career paths.
Increasing off-season HVAC retrofits (especially with EOC involvement) will help smooth out seasonality and improve long-term employee retention in trades.

5. User Journeys (Roadmap Section 6.7)

Section 6.7 of the Roadmap outlines “user journeys” of various users of different building types and the specific policies, programs, and incentives relevant to each “user.” Recommendations in this section relate to the paths people take through the process and how that process affects program effectiveness generally.

Key Issues & Barriers	Recommendations
Permitting is a major pain point. Participants expressed a need for the government to act as a partner rather than an obstacle in the process. Many residents remain unaware of available energy efficiency and electrification programs. Incentive program paperwork is too time-consuming, leading some people to forego rebates entirely. Clearer communication is needed to help residents and commercial building owners understand rebate processes and limitations. Homeowners, building owners/tenants, and contractors lack unbiased third-party information sources to guide decision-making. Property owners/managers and contractors lack adequate venues for peer-to-peer learning and knowledge/sharing. Operations staff and residents do not receive adequate post-installation training from contractors to properly and effectively operate and maintain new electric equipment. Affordable housing providers increasingly price at the maximum HUD Fair Market Rent (FMR) to cover rising costs.	Consider how the city could be more accessible and helpful, working as more of a consultant than an enforcer. Increase communication and outreach to all community members regarding building regulations and energy efficiency, renewable energy, and electrification programs. Energy Outreach Colorado (EOC) can help with program education and navigation (though EOC staff capacity may be limited). Consider creating a single platform (i.e., one-stop shop) for energy efficiency, electrification, and incentive programs, including analysis and guidance. Provide technical, non-biased building science professionals who can help with education and decision making (a cross between technical support and liaison). Peer-to-peer learning groups can support people who prefer learning from peers rather than the City. Provide post-installation training to operations staff and residents to properly manage new systems. Consider adjustments for affordable housing facilities to ensure rent will not be raised above maximum levels because of increased capital and operating costs.

Key Issues & Barriers

Recommendations

Permitting is a major pain point. Participants expressed a need for the government to act as a partner rather than an obstacle in the process.
Many residents remain unaware of available energy efficiency and electrification programs.
Incentive program paperwork is too time-consuming, leading some people to forego rebates entirely.
Clearer communication is needed to help residents and commercial building owners understand rebate processes and limitations.
Homeowners, building owners/tenants, and contractors lack unbiased third-party information sources to guide decision-making.
Property owners/managers and contractors lack adequate venues for peer-to-peer learning and knowledge/sharing.
Operations staff and residents do not receive adequate post-installation training from contractors to properly and effectively operate and maintain new electric equipment.
Affordable housing providers increasingly price at the maximum HUD Fair Market Rent (FMR) to cover rising costs.

Consider how the city could be more accessible and helpful, working as more of a consultant than an enforcer.
Increase communication and outreach to all community members regarding building regulations and energy efficiency, renewable energy, and electrification programs.
Energy Outreach Colorado (EOC) can help with program education and navigation (though EOC staff capacity may be limited).
Consider creating a single platform (i.e., one-stop shop) for energy efficiency, electrification, and incentive programs, including analysis and guidance.
Provide technical, non-biased building science professionals who can help with education and decision making (a cross between technical support and liaison).
Peer-to-peer learning groups can support people who prefer learning from peers rather than the City.
Provide post-installation training to operations staff and residents to properly manage new systems.
Consider adjustments for affordable housing facilities to ensure rent will not be raised above maximum levels because of increased capital and operating costs.

6. Key Learnings from Community Questionnaire

Awareness & Priorities

Questionnaire respondents expressed understanding of the emissions and health benefits of electrification better than the cost stabilization and comfort benefits.
Respondents prioritized comfort/health/safety, emissions, and affordability – in that order – as goals for existing buildings throughout the community. Cost was commonly expressed as a concern when it came to decision-making.
Equity and resiliency resonated least, except among business owners/managers, who considered equity second-most important.

Willingness to Electrify

Roughly one-third of respondents indicated willingness to convert existing appliances to electric. Another 20% or so may be convinced (they responded they were unlikely, but not extremely unlikely).
The business community (though not property owners/managers) expressed even higher willingness to convert – closer to half.
More than half of residents with an AMI of 100% or less were willing to electrify if doing so costs less (only 9% said they would not and 21% were unsure).
80% of residents with an AMI above 100% reported willingness to pay more each month to electrify.

Support of Regulations

There was mixed support for regulations: Nearly three-quarters (69%) of the overall sample expressed some level of support (40% Completely or Very supportive). But a full quarter of total respondents, and 50% of business respondents, were not at all supportive of new regulations.
There was greater support for end-of-life replacements than replacements driven by other factors (e.g., point-of-sale).
There was a desire for a more integrated approach that considers weatherization and alternative heating/cooling systems.

Incentives & Supports

Rebates and technical assistance were considered the most helpful resources.
Loans were considered the least helpful, with the fewest respondents expressing interest, even in low-interest loans.

Rooftop Units

Fewer than 10% of property and business owners expressed willingness to replace equipment with a heat pump if it cost more, but nearly half expressed willingness to do so if there was no additional cost.
One to three years was the most tolerable payback period for RTU upgrades.
Equipment cost and technical challenges were the greatest barriers for commercial RTUs.

Rental Cooling

Over half of renters expressed support for air conditioning in all homes, “even if it means rents are higher,” while only a quarter of landlords expressed the same.
About 75% of landlords expressed that to have air conditioning, a rent increase of $50 or more per month was reasonable, while only 16% of renters felt the same.
For landlords, rebates were considered the most helpful city resource to help meet rental cooling requirements.

Engagement Process & Details

Engagement Purpose

IBE and Trestle Strategy Group developed a Stakeholder Engagement Plan to guide the process of gathering key stakeholder perspectives. The aim of the plan was to inform development of the Roadmap in a way that supports the Boulder community at large.

Engagement Process & Schedule

The IBE-Trestle-Boulder team engaged the public from October 2024 through June 2025, conducting outreach and engagement in both English and Spanish. The team targeted existing partnerships with relevant organizations to connect with and recruit key stakeholders to engagement activities.

Phase	Oct – Nov '24	Dec '24	Jan – Mar '25	Mar – Jun '25
Activities	Engagement plan	Stakeholder interviews	Focus groups	Questionnaire & community meetings
Goals	Prioritize audiences; identify strategies	Gain baseline understanding to inform later engagement	Understand stakeholder-specific barriers and resource needs	Understand priorities, willingness & cost tolerance, and support needs

Key Audiences

Key audiences included equity-priority communities; commercial and residential building owners, property managers, and tenants; economic development and green jobs thought leaders; and government/policy partners. Each building type has unique direct stakeholders, associated interests, and equity considerations critical to informing the roadmap, as summarized in the table below.

Building Type	Stakeholders	Associated Interests	Equity Considerations
Commercial, Institutional & Industrial	Building owners; commercial condo associations; commercial tenants; learning institutions subject to local regulation	Commercial districts; Boulder Chamber of Commerce; Latino Chamber; property managers; building maintenance staff; learning institutions not subject to local regulation (e.g., BVSD, CU-Boulder); City of Boulder Economic Vitality Department	Owners and tenants of equity consideration buildings, including BIPOC/Hispanic; businesses that serve these and low-income community members
Residential (Single & Multifamily)	Landlords/building owners; tenants; homeowners; homeowners associations	Boulder Housing Partners; Boulder Area Rental Housing Association; property managers; assistance providers (e.g., emergency family assistance associations, City of Boulder Housing & Human Services (HHS), City Planning Department)	Affordable housing providers; “mom and pop” owners/property managers; owners and tenants of low-/fixed-income; manufactured housing; racial/ethnically diverse; families; age 60+; young adults
Policy & Workforce	Governmental and non-governmental policy and workforce development partners (demand and supply)	BVSD; trades/contractors; Chambers of Commerce; Xcel; Energy Outreach CO; FRBEN; activists/advocates; youth and young adults; unemployed; State, County, City offices; advisory boards	Green workforce development

Building Type

Stakeholders

Associated Interests

Equity Considerations

Commercial, Institutional & Industrial

Building owners; commercial condo associations; commercial tenants; learning institutions subject to local regulation

Commercial districts; Boulder Chamber of Commerce; Latino Chamber; property managers; building maintenance staff; learning institutions not subject to local regulation (e.g., BVSD, CU-Boulder); City of Boulder Economic Vitality Department

Owners and tenants of equity consideration buildings, including BIPOC/Hispanic; businesses that serve these and low-income community members

Residential (Single & Multifamily)

Landlords/building owners; tenants; homeowners; homeowners associations

Boulder Housing Partners; Boulder Area Rental Housing Association; property managers; assistance providers (e.g., emergency family assistance associations, City of Boulder Housing & Human Services (HHS), City Planning Department)

Affordable housing providers; “mom and pop” owners/property managers; owners and tenants of low-/fixed-income; manufactured housing; racial/ethnically diverse; families; age 60+; young adults

Policy & Workforce

Governmental and non-governmental policy and workforce development partners (demand and supply)

BVSD; trades/contractors; Chambers of Commerce; Xcel; Energy Outreach CO; FRBEN; activists/advocates; youth and young adults; unemployed; State, County, City offices; advisory boards

Green workforce development

Engagement Activities

Key community engagement activities included interviews, focus groups, and a questionnaire. Individuals were identified for interviews and focus groups by IBE and Trestle in collaboration with the city.

Strategy	Objective
Interviews	Gain broad understanding of key issues for key stakeholder groups to fill existing gaps in knowledge and to inform lines of inquiry for future activities.
Focus Groups	Gain deeper, more specific understanding of stakeholder-specific perspectives, concerns, and challenges.
Community Questionnaire	Gain broad understanding from a large sample of key stakeholders to confirm and complement focus group learnings.

Outreach Strategies

To communicate the overall engagement effort to the community and invite broad participation, the team used the following strategies:

City website: Published overview of engagement process, purpose, and timeline on “Healthy Buildings, Stronger Community Roadmap” webpage; included link to questionnaire.
City newsletters: For questionnaire, included call for participation and link to outreach “toolkit” (see affiliate outreach below) in city newsletters (department specific and city-wide).
Social media: Published posts encouraging questionnaire participation to city’s social platforms.
Traditional media: Reached out to Daily Camera and Boulder Reporting Lab to include call for questionnaire participation in their newsletters.
Affiliate outreach: Invited community organizations, including local chapters of national professional associations, to spread the word about engagement opportunities. Provided a simple outreach “toolkit” comprised of e-blast template and social media posts/graphics to publicize questionnaire.